Quite frankly a complete farce, designed to be a comfort blanket to help Councillors sleep easy in their beds. Never mind the public often having to wait longer for help to arrive, or firefighters facing increased danger, because their crew size has been cut and assistance is coming from further away.
Sadly I am not surprised. A report, put together by the same people who recommended the cuts, is hardly going to admit their proposals have made things worse. Similarly, the Select Committee that failed to properly assess the proposals, and then approved them, is hardly going to admit they got it wrong.
Did any Councillors challenge the report? With the meeting not available in the Council's webcast library, we have no way of seeing if they did or not. Having said that, the ruling group on the County Council has a reputation for dismissing any challenges and voting as instructed.
Another example of a complete lack of transparency and accountability, which I am sure the Police & Crime Commissioner will use to strengthen her case to take over the running of the fire & rescue service! The County Council may protest about the take over, but they ineptly continue to make it easier for her.
For those who want to know why the report was such a whitewash, consider the following:
Summary
1. The report authors improperly say that discussion by
Members should be restricted to the "actual outcomes against the
expected outcomes". To be a proper review, all the
effects resulting from the cuts should be examined and discussed.
2. There are no reports from the representative bodies, so balanced consideration of the effects is not possible. 3. The wording for some of the expected outcomes in this report differ from that in the final report to the Select Committee in 2014. This is inconsistent and no explanation is given for the change. 4. Most of the statistics only cover 2014/15 and 2015/16, which, as WSFRS has said before, is unrepresentative. It is quite inappropriate to draw any conclusions without showing data for at least the previous five years. 5. This is especially inappropriate, as WSFRS has previously stated that the data for 2014/15 is unrepresentative, because industrial action had an adverse effect on their performance. In addition, the freeze on vacant posts ahead of Future Fire & Rescue 2 will also have had an adverse effect on performance that year. 6. There are a few examples where three or four years are referred to in the report, but the selection of the additional data for those examples is questionable and unexplained. 7. Data appears to have been selected and presented in a way that some negative effects are concealed and positive ones are misrepresented. 8. Previous statistical data referred to average (or mean) figures, but this report is using median figures. That means they cannot be properly compared. Median figures may well appear better than average figures. 9. Essential data, which would indicate if the outcomes had been achieved and identify any adverse effects, has been omitted. Examples include:
Proposal
1 – there is no data at all in relation to the outcome at Horsham.
Proposal
2 – no data for the second immediate response appliances at Crawley and
Worthing.
Proposal
3 – no data on the impact of the changes on first appliance response times.
Proposal
4 – no data on the impact of the changes to third appliance response times at
Crawley.
Proposal
5 – no data on response times and community safety work.
Proposal
6 – no data on operational capacity and support for communities.
Proposal
7 – no data on work or time lost as a result of the changes.
Proposal
8 – no data on the use of additional trained staff to improve operational
resilience.
In short, this report is incomplete and misleading. It
also lacks sufficient accurate data to justify the conclusions
shown.
Detailed comments
Scope of review
Any review of major change must be in depth, unrestricted,
and especially not limited to just the ‘expected outcomes’.
Unexpected outcomes, knock on effects and overall performance must also be
considered? The views of those directly affected by the change must be
considered, as they can often have a better insight regarding the real
effects. In particular, the representative bodies (Fire Brigades Union,
Retained Firefighters Union, and Unison) should have been invited to submit
their observations.
There have been worrying reports that the personnel
reductions are undermining initial and continuation training, with personnel
running out of specialist qualifications. That is also reported to have
resulted in some fire appliances responding to calls without a crew
able to deploy breathing apparatus. The response times will hide this
serious deficiency, as that appliance may well have arrived within the target
time, but rescue and effective firefighting will have been considerably
delayed until an appliance from another station arrives. Concern has also
been voiced about special appliance availability being similarly affected.
All such concerns should be fully reviewed by the Committee.
It is also odd that the wording for some of the expected
outcomes is not consistent in the Consultation Document, the final report to
the Select Committee in 2014, and in this report (see table at the end for
detail). In the following sections, I have used the outcome’s that were
notified to the public.
Selection of data
WSFRS has often criticised the use of statistics for just
two adjacent years, because they say they are unrepresentative. Whilst such
figures are of some use for a simple year to year comparison, they are
clearly not representative of trends and should not be used to draw
conclusions. To identify the true overall effect of cuts, they must show the
figures for at least the five years before Fire Redesign in 2010 and for all
subsequent years.
The use of just 2014/15 data to indicate the situation
before the Future Fire & Rescue 2 cuts is even more dubious, as WSFRS
has previously claimed that industrial action meant that performance was
poor and data for 2014/15 unrepresentative. That year’s figures will
also have been undermined by the freeze on vacant posts that preceded the
decision on FFR 2.
It is accepted that with post-change data only being for
one year, that cannot be used to draw full conclusions. However, it can
indicate areas of concern that should be addressed or monitored. It is
particularly important that the Select Committee also fully review the
effects for at least another four years.
Median or average data
The change from average to median data is a concern, as
that means they cannot be properly compared. Now this may just be confusion
on the part of the authors, as 2.6.8 refers to “median (average)”, which
suggests they are the same, but they are not. Average is the arithmetic mean,
whereas median is the midway point between, for example, the quickest and
slowest response time. A simple illustration of how use of the median can
mislead would be five response times of 5, 7, 8, 15, and 20 minutes. The
median is 8 minutes, but the proper average is 11 minutes.
It is essential that this is clarified to ensure that data
is consistent across the years. It would also be helpful to gain perspective
on average figures, if the best and worst times were also shown.
Mitigation
Much was made of things that would be done to mitigate the
effect of the changes, yet the report fails to mention what has actually been
done, or how effective it has been. For example, the plan to send the 4x4
with additional personnel to critical calls in the Midhurst, Petworth and
Storrington areas. Has that been done for every critical call, has it been
effective etc?
All the actions proposed to mitigate the effect of cutting
crews should be reviewed to see if they have been effective, or if more
measures are required.
2.6. Proposal 1 - Move one of the two immediate
response fire engines at Horsham to Littlehampton, making it a 24-hour
immediate response station
No fire engine was moved, only firefighters were moved or
cut.
The public were told that this proposal, “Improves
Service performance by more effective use of resources”. To justify
that the effect on both Horsham and
Littlehampton should be reviewed, but there is no data provided for
Horsham. Thus only showing improvements, whilst hiding performance
deterioration.
Response times for a second appliance, will have generally
increased by four minutes for both day and night calls at Horsham. By
contrast, the four minute reduction at Littlehampton is only for night calls.
Average response times for a second appliance in Horsham’s area have not been
published, but their second appliance’s availability has been. This will
clearly have an adverse effect on response times, so it is concerning that
availability has dropped from 100% in 2014/15 (when it was
wholetime crewed) to 76% in 2015/16 (now that it is RDS
crewed).
With no mention of Horsham, the conclusion for proposal 1
is simply false. In addition:
2.6.6 – Had the performance figures for the first
appliance at Littlehampton been shown for previous years, instead of just the
previous year, the improvement would be negligible (2012/13 = 99.96%, 2013/14
= 100%). The unusual drop in 2014/15 was almost certainly a consequence of
not filling vacancies and disillusionment amongst personnel whilst changes
were being discussed.
2.6.8 – Littlehampton’s first appliance crewing was
changed from immediate response in the day and retained response at night, to
round the clock immediate response, thus removing the extra 4 minutes on
response times at night. There was also a considerable capital and revenue
cost with this proposal, so to only have an improved overall response
time of just 28 seconds is worrying.
2.7. Proposal 2 - Introduce ‘Group-Crewing’
model at immediate response stations: Bognor Regis, Chichester, Crawley,
Horsham, Littlehampton and Worthing.
This claimed there would be “Increased efficiency
and no reduction in performance”, but no evidence was offered to support
that contention in the Modelling and Analysis Technical Report.
The claim that the change would “maintain existing
crewing levels where possible” was always a questionable claim and
concern was voiced during the consultation. Riding with four
firefighters, instead of five, for 60% of the time is far
from maintaining existing crewing levels. It is also concerning that the
prediction claimed in 2.7.5 has not previously been published.
2.7.3 According to this report the first year was
“predicted to be a year of adjustment”, so why were Members not told of these
predicted issues in the final report to the Select Committee in 2014?
2.7.7 The figures for 2014/15 may well have been adversely
affected by the freeze on filling vacancies ahead of FFR, so it is not a fair
comparison. In addition, the Chief Fire Officer has previously claimed that
industrial action increased response times in 2014/15, so this will also have
contributed to performance being abnormally low that year.
2.7.8 The second fire engines at Crawley and Worthing were
also affected by this change, but the second fire engine response times and
availability have not been included. It is understood that those second fire
engines have not always been crewed, and that they have also been sent to
other station areas to provide cover, thus removing cover from Crawley and
Worthing. This is important data in relation to determining if the outcome
has been achieved.
2.7.9 The conclusions are illogical. The Littlehampton
improvement is claimed to be “almost certainly” due to the change in crewing,
but the deterioration at Chichester is claimed to be “variations in
performance from year to year”. So the 2015/16 improvement at 5 of the 6
stations could in fact just be a one off favourable variation in performance,
which may deteriorate next year.
2.8 Proposal 3 - Remove the 2nd fire engines at
Midhurst, Petworth and Storrington, leaving one fire engine and 4x4 vehicle
at each station
The response times for the first appliances at these
stations are also likely to be have been affected by the change, but no data
is provided. Removing 50% of the appliances in this area significantly
reduces resilience, so when the only remaining appliance at each station is
not available (at another call, standing by at another station, or has no
crew) the response time for the first appliance to arrive at a call will
increase significantly. A proper assessment of the outcome of this proposal
must include the change in first appliance response times.
2.8.3 This claims that “critical attendance standards have
been maintained”, but the 2015/16 figure is actually 3% below target.
Figures prior to 2014/15 are also needed, if a proper assessment is to be
made.
2.8.5 The claim was that this proposal would have a “minimal
impact on performance”, yet response times for second appliances have
fallen dramatically. Not meeting response times on 62%, 79% and
90% of occasions indicates a serious impact on performance. This is
very worrying when you realise that, for most of these station areas, that
means taking longer than 17 minutes to arrive.
2.9 Proposal 4 - Closure of retained unit and
removal of 3rd fire engine at Crawley. Based on low utilisation it does not
contribute significantly to overall performance and existing emergency cover
arrangements
2.9.2 The claim that “whenever both appliances are
attached to incidents, a standby appliance is mobilised to Crawley” is not
supported by evidence. It cannot be, as whenever statistics for appliance
movements for standby purposes have been requested by Members or others, they
are told that such movements are not recorded.
Once again, only the previous year’s response times are
shown, instead of several preceding years. That year may well have been
adversely affected by the freeze on filling vacancies ahead of FFR, and
industrial action, so is not a fair comparison.
No mention is made of the Surrey appliance from Horley
helping to achieve response times in Crawley during 2015/16. Incidents in
Crawley increased by just under 1% in 2015/16, but there was a 13%
increase in responses by the Surrey appliance from Horley
(Mobilised to 129 Crawley incidents, plus an unknown number of standby moves
to Crawley). This appliance has now been moved to Salfords, which will
inevitably increase response times to Crawley for a third fire engine,
and also for a second or first fire engine if one or both of Crawley’s
are already committed. Any competent review also needs to include a look
forward that takes account of known or anticipated changes
2.9.3 The conclusion is inadequate. The response time for
a third fire engine was specifically mentioned in the outcome, but no data
has been provided to assess the extent of the change in third fire engine
response times.
2.10 Proposal 5 - Implement revised day crewing
model at Variable Crewed Stations at Shoreham, Burgess Hill, Haywards Heath
and East Grinstead
2.10.3 No information is given regarding changes to the
amount of time devoted to community safety or the number of activities
undertaken. These figures are required to assess if there has been an
improvement or a deterioration.
2.10.4 The public were told that this proposal would “maintain
response standards”, yet no figures are provided and the
statement in the report suspiciously only refers to “standards across the
service”.
Response times for appliances at the Variable Crewed
Stations have not been published, but appliance availability has
fallen, which will inevitably have an adverse effect on response times.
For first appliances the best last year was 97%, the worst was 87%. For
second appliances the best was 52% and the worst was 30%.
2.11 Proposal 6 - Increase operational capacity
and support for communities in flooding and other severe weather events
Whilst this proposal may have provided useful additional
equipment and training, it has not “increased operational capacity and
support for communities”. That capacity and support has been
significantly reduced as a result of Fire Redesign and Future Fire &
Rescue 2. The number of crews available to respond to incidents has
been cut by 24%, which means far fewer people can be helped at busy
times.
2.12 Proposal 7 - Reductions in management and
Support Services
It is difficult to believe that workload has been absorbed
without any adverse effect on performance. Unless people had spare time on
their hands, which is highly unlikely, the quality and quantity of work carried
out will have suffered. This should be quantified.
It is also of concern that the issues around the removal
of station administrators were not identified during the planning for FFR.
Anyone familiar with their work would know that the station administrators provided
cost effective administration and vital continuity for stations. Their work
allowed operational personnel to focus on their core operational and
community safety functions. The loss of continuity and the loss of training
and community safety time, as a result of operational personnel having to
carry out station administration, were all perfectly predictable.
2.13 Proposal 8 - Utilise additional trained
staff to improve operational resilience
The consultation document specifically referred to “Staff
would be mobilised and use spare appliances or those already at the incident”,
yet no data is provided. Strangely though, there are a number of references
to things that appear to have nothing to do with the proposal to “Utilise
additional trained staff to improve operational resilience”. Such
things as Exercise Tempest, the Emerging Leaders Project, improved
fire-fighting media etc. All interesting, but a distraction from evaluation
of the proposal.
2.13.16 The ‘Crewing Optimisation Group’ (COG) has clearly
had some benefits, but it is under-resourced and the operating model does not
match the times of greatest need. At best, according to the Cabinet Member,
it can increase the number of retained appliances available by four. Yet, whilst
it operates at times when there are already twelve wholetime crews available,
it never operates at night and at weekends, when there are only eight
wholetime crews available. There are shortages of retained personnel that
need to be covered at night and at weekends, as well as during weekdays.
3 Consultation
It is good to see that the report authors recognise the
goodwill of staff, but disappointing that consultation has only been via
focus groups. Whilst this has some value, personnel often feel inhibited in
giving their views, especially when the interviewers were the ones who had
promoted the changes.
Proper consultation should be carried out via the
representative bodies (Fire Brigades Union, Retained Firefighters Union, and
Unison). They can obtain the uninhibited views of staff, which will better
inform Members.
8.2 Equality Duty.
As this is 8.2, it is not clear if this is an error, or if
sections of the report are missing.
This states that an Equality Impact Report is not
required. However, it has ignored the more significant effects of the cuts on
the rural poor, rural elderly and rural ethnic minorities. These groups are
more vulnerable for a variety of reasons. For example, they are more likely
to be in rented, older and less well maintained properties, where the risk of
fire and the risk of becoming trapped is greater. With less access to public
transport these groups also need their own cars, but can often only afford
older second hand ones. These have fewer safety features than modern cars and
may be less well maintained, so in a collision people are more likely to be
trapped with more serious injuries.
The report has also failed to address the more significant
effect of the proposals on the elderly, poor and ethnic minorities in Crawley
Borough. These people are statistically more likely to have fires and to need
rescuing, so reducing the number of fire engines in Crawley will have
unfairly had a greater impact on these vulnerable groups.
|
Differences in published outcomes
Proposal
|
Consultation
Document
|
Report
to Select Committee in 2014
|
Report
to Select Committee in 2016
|
1
|
Improves Service performance by
more effective use of resources.
|
Uses risk modelling to improve
Service performance and make more effective use of immediate response
resources. This proposal would result in a net reduction of one fire engine
and seven posts.
|
Improve Service performance and make more effective use of immediate
response resources. This proposal would result in a net reduction of one fire
engine and seven posts.
|
2
|
Increased efficiency and no
reduction in performance
|
Increased efficiency through a
reduction of 19 posts whilst maintain existing crewing levels where possible.
There will be no reduction in response standards.
|
Increased efficiency through a reduction of 19 posts whilst
maintaining existing crewing levels where possible. There will be no
reduction in response standards
|
3
|
Increased efficiency and no
reduction in performance
|
Frees up resources with minimal
impact on performance and improves flexibility for getting fire fighters to
the incident using the 4x4 vehicles. Resources would be more proportionate to
local risk and operational demand. Sending a second fire engine to an
incident could take longer, depending on the location of incident. However, historically,
the second engines at these stations have often been unavailable. For a
two-engine incident near to the county border it is quicker to mobilise a
crew from a neighbouring Fire Service so there should be no difference. This
proposal would result in a reduction of three fire engines, but current Full
Time Equivalent (FTE)staff at these stations will remain.
|
Frees up resources with minimal impact on performance and improves
flexibility for getting firefighters to the incident using the 4x4 vehicles.
Resources would be more proportionate to local risk and operational demand.
Sending a second fire engine to an incident could take longer, depending on
the location of incident. Historically, the second engines at these stations
have often been unavailable. This proposal would result in a reduction of
three fire engines, but
current Full Time Equivalent (FTE) at these stations will remain.
|
4
|
Resources more proportionate to
risk and performance
|
If both fire engines at Crawley
were committed to an incident, a fire engine from a neighbouring station
would be mobilised to standby at Crawley. Resources would be more
proportionate to risk and operational demand. There would be a delay in the
attendance of a third fire engine, if compared to those occasions when the
current third fire engine at Crawley was available. This proposal would
result in a reduction of one fire engine and 10 retained fire fighter posts
with minimal impact on Service performance.
|
Resources would be more proportionate to risk and operational demand.
There would be a delay in the attendance of a third fire engine, if compared
to those occasions when the current third fire engine at Crawley was
available. This proposal would result in a reduction of one fire engine and
10 retained firefighter posts with minimal impact on Service performance.
|
5
|
Changes to delivery of
community safety work, maintains response standards at reduced cost
|
Increases the hours these
stations provide immediate response from 50 to 60 hours per week through new
shift working arrangements. Community safety work will be delivered in the
same way it is delivered at immediate response stations. This proposal would
result in a net reduction of two fire fighter posts (38 to 36 posts across
four stations). Emergency response standards are maintained at reduced cost.
|
Increases the hours these stations provide immediate response from 50
to 60 hours per week through new shift working arrangements. Community safety
work will be delivered in the same way it is delivered at immediate response
stations. This proposal would result in a net reduction of two firefighter
posts (38 to 36 posts across four stations). Emergency response standards are
maintained at reduced cost.
|
6
|
Improved capability for
preparing for, responding to and supporting the recovery from flooding and
severe weather related events.
|
Improved capability for
preparing for, responding to and supporting the recovery from flooding and
severe weather related events.
|
Improved capability for responding to and supporting recovery from;
flooding and severe weather related events.
|
7
|
Reduced costs in management and
administrative functions.
|
Reduced costs in management and
administrative
functions.
|
Reduced costs in management and administrative functions.
|
8
|
Improved operational resilience
and more effective use of skills and resources
|
Improved operational resilience
and support for major incidents and/or extreme weather conditions. This will
be through implementing a more formal and robust arrangements, for the effective
co-ordination and use of skills and resources
|
The improvement of operational
resilience. Support for major incidents and extreme weather conditions, (or a
combination of both). This will be through implementing more formal and
robust arrangements for the effective co-ordination and use of skills and
resources.
|