Operational Training and Development in the Scottish Fire and Rescue Service

338. The Service is expected to deliver TD through a coherent strategy that includes a clear pathway for staff progression, a learning needs analysis, as well as defined standards and targets. This should integrate course access, coaching, mentoring, secondments, networking, performance management and induction into a single, end-to-end framework that supports continuous development from entry to exit.

339. The TD team previously developed a draft Management Development Framework, but it did not progress completely through governance and has since been discontinued. The Service is now delivering an organisational culture and leadership programme, which includes leadership, development and improvement activities. As part of this, a LMDT project has been established, led by two HoF and involving representatives from across the organisation. The LMDT is responsible for co-designing a comprehensive LMDF to help build a high performing, future ready organisation. A workshop held in Autumn 2025 focused on reviewing existing learning and development information and resources across the Service. Themes that were identified as priority for further consideration at the workshop were to:

• identify priority learning needs for supervisory and middle managers;

• source, catalogue and share existing development tools for supervisory and middle managers;

• evaluate learning approaches applied in local areas and functions; and

• identify resources/subject matter experts which could support the development, design and delivery of the leadership and management framework.

340. It is our understanding that the LMDT has a timeline, targets and milestones set for the project, which indicate a pilot and phased roll out by Q2 of 2026. The main LMDT principles are:

• foundations first and build from there;

• one size does not fit all;

• flexible content and delivery model;

• collegiate approach to development and delivery;

• national programme, delivered locally;

• blend of in-person and online;

• combination of facilitator-led and directed self-learning;

• incorporate coaching and mentoring; and

• what is achievable within the timeframe.

341. The immediate priority of the Service is to develop supervisory managers, with a launch planned for Spring 2026. Middle and strategic manager development will also be considered within this timeline. While significant effort is being invested in creating the LMDF, it may be some time before it is fully operational for all staff groups. Currently, the Service has no clear or consistent pathway for proactive staff development. Opportunities are limited, inconsistently applied and largely focused on those already in post, resulting in a system that is haphazard, untargeted and unsystematic.

Good Practice 10

There is a clear need for stronger strategic direction and a defined development pathway to guide the effective allocation of capacity, funding and resources. The creation of the leadership and management development taskforce and the forthcoming leadership and management development framework is a positive step toward achieving this and should be completed as soon as possible.

LNA

342. The Service has an LNA process, which is managed and governed by the LPG. The LPG supports talent development and has terms of reference which are:

• recommending prioritised L&D-based legislative, strategic, mandatory and role specific needs;

• ensuring that functional and area L&D needs are reviewed and prioritised throughout the year enabling and encouraging a consistent and transparent process;

• supporting the TD team’s planning and budgeting processes by ensuring that LNA returns are completed and prioritised promptly, enabling effective forecast of budget requirements on current development needs as part of the financial and business planning processes;

• keeping the TD team informed of any operational issues that impact on function or area’s learning priorities or delivery plans;

• supporting the sharing of information within their functions/areas on the progress of the L&D delivery so that managers at various levels know what has been delivered and who has attended development;

• agreeing a consensus on how to address role-specific needs, as well as rolling/ annual requests; and

• providing an opportunity to discuss the process and its associated challenges and risks, whilst generating solutions to enable a more efficient LNA process and build on collaborative working.

343. The LPG meets every six weeks, to make recommendations and decisions on investment of the L&D budget, which in turn is reported on a quarterly and annual basis. Although, no specific financial or non-financial resources are allocated to the LPG, the group does manage the L&D budget to support the L&D programmes and initiatives that incur financial charges within their function/area.

344. The LPG work on principle of prioritisation which are:

• statutory: this category stands alone as it focusses on the legislative and regulatory training needs that must be met to ensure the Service meets its legal responsibilities and remains compliant with its regulatory frameworks;

• job specific/required: this category focusses on the learning and development and certification that is required for people to carry out their duties. It refers specifically to the development that must be in place and maintained for the individual to fulfil their job, e.g., Practising Certificate for solicitors, Category B certification for some driving roles;

• priorty 1: development that is essential in the next 12 months to support the person fulfil their current role and should focus on the requirements within the current job description. (This category should also cover those who have started but not completed Priority 1 training, and people who have started a course/qualification which is continuing over more than one year;

• priority two: development that would allow the person to perform their role more effectively in the next 12 months or would support them in their career development aspirations (This would include succession planning within the functions); and

• organisational training: learning/development required to be undertaken by SFRS employees to enable the SFRS to deliver its services as a public service organisation. This can range from compliance requirements e.g. General Data Protection Regulation, H&S training to organisational security and safety.

345.The LPG is an active forum that manages the LNA process for the People Directorate. Applications for L&D are reviewed, prioritised and either approved or declined using established prioritisation principles. However, most priorities, other than priority 2, are heavily focused on mandatory training, refreshers and recertification required for current roles, rather than longer term development for future progression.

346.The centralised L&D budget for 2024-2025 was approximately £422k, a 10% reduction from 2023-2024. The figure used for year-end calculations was £417k. Previous years have also seen significant reductions due to wider public finance pressures. Of this total, 44% (£185k) was already committed to recurring requirements such as Scottish Union Learning and Cyber Security, leaving £237k for all remaining L&D activity. To ensure effective use of this reduced budget, the LPG applied its prioritisation framework when making quarterly recommendations. Reported expenditure was £403k (97%), reflecting minor variations between allocated and actual spend. The breakdown of monies allocated in the year is detailed in Table 12 below.

347. During our inspection, managers advised that most of the LNA budget was committed to organisational or compliance related training such as refreshers and recertification, estimated at 85–90% each year. The information reported to the People Committee for 2024-2025 and illustrated in the Table 12 would appear to support this assertion. We can therefore assume that, based on the current budget, approximately £40k - £60k would be available per year for non-compliance development of staff.

348. Of the £133.5k organisational budget, 73% (£97k) was pre committed to cyber security and the Union Lifelong Learning Partnership, which is a collaborative effort between trade unions and educational institutions to provide flexible and accessible learning opportunities for union members. Of the remaining £36k, around £28k funded MA/SVQ activity for firefighters, assessors and internal verifiers. This would seem to have left roughly £8k for NFCC management licences and conference/event attendance. Realistically, only about £8k, around 2% of the annual LNA budget and between 13% to 20% of the discretionary (non-compliance) budget was available for external management courses.

349. The figures provided represent only a single year, but feedback from staff suggests that limited funding for leadership and management development is indicative of past experience and organisational behaviour. Development for future roles, priority 2, continues to be deprioritised in favour of mandatory compliance training. This imbalance helps explain the significant gap between the number of staff identified as needing development and those who actually receive it.

350. Our fieldwork and feedback from managers at all levels confirm that the LNA process has been overtaken by the volume of training demands and now seems to function more like a TNA. The current balance between compliance related training and staff development is unsustainable. Too little funding is directed toward genuine development, meaning the organisation is not prioritising the development environment required to become a true LO.

Recommendation 10

We are concerned that the learning needs analysis is being used primarily for compliance rather than development. We recommend the Service review the learning needs analysis budget and processes, including how it is allocated and prioritised, to identify improvements.

351. Managers across all levels consistently reported feeling unprepared for their roles following promotion. Interviews with supervisory, middle and strategic managers highlighted limited access to formal development beyond TfOC and refresher training and minimal opportunities to apply learning in practice. This was reflected in widespread gaps in policy knowledge, operational assurance, risk assessment, planning, performance management, and understanding of organisational strategy and values reported in our previous reports.

352. Historically, command, management and leadership development in the UK FRS was delivered through the Fire Service Examination Board. Staff could gain Leading Firefighter, Sub Officer and Station Officer qualifications (‘tickets’) through exams, demonstrating commitment and aptitude. Holding a ticket made staff eligible for promotion and for development for the next role. Development was centrally funded and delivered through institutions such as the Fire Service College, the Scottish Fire Service College and higher education partners and external providers. Courses were often completed after promotion, though many staff attended them beforehand.

353. This balance of leadership, management and command training once allowed FRSs to target limited resources toward staff development before promotion. After the Fire Service Examination Board was dissolved, the Integrated Personal Development System was introduced to modernise this process, but it has since fallen into disuse. Current promotion and development systems now prevail. It is not the intention to promote the previous systems as exemplar but to merely highlight that there was at least a rudimentary process for targeting development with limited resources and then the ability to do this prior to staff landing in role. While the previous model was not perfect, it at least provided a structured, proactive means of developing staff in advance of taking on new roles.

354. Staff expressed reluctance to adopt a ‘sheep dip’ approach to development and the Service has emphasised that the LMDT should avoid a ‘one size fits all’ model. However, the current system lacks transparency in targeting staff for development and provides little opportunity to prepare individuals before they enter new roles. HMFSI considers this a significant weakness and recommended in our culture inspection that the Service continue to undertake analysis and review of course allocation to ensure fair and equitable distribution of funded courses to support the SFRS in its objectives.

National Delivery

355. We were informed that the Service has been developing staff in three main ways. Firstly, they invested in the online Franklin Covey model and a number of staff were enrolled in courses. Staff feedback on the development was mixed with some enthusiastic whilst other were less so. However, this contract ceased and finance was redirected for use in other programmes.

356. Secondly, the Service has begun investing in the NFCC middle manager leadership development programme and the supervisory leadership development programme, each costing around £55 per candidate. Both online programmes cover topics such as personal impact, leadership, service delivery and organisational effectiveness, This is supported by blended learning elements including 360° feedback, learning logs, masterclasses and work-based activities. TD designed and now facilitate wrap around facilitator-led sessions to support and embed learning from the NFCC online programmes which incorporates peer support opportunities throughout the programme rather than a purely self-led approach. Staff who completed these programmes generally reported positive learning and development benefits.

357. It was reported that the Service continues to deliver supervisory and middle management leadership development programmes, with two additional cohorts scheduled before the end of 2025-2026. With the continued success of NFCC supervisory and middle manager programmes, these courses are seen as essential in the development of the LMDF and further investment is planned.

358. Lastly, we found that the Service delivers an internal leadership essentials for supervisory managers course for aspiring, temporary and substantive supervisors across all staff groups. The syllabus covers leadership foundations, culture and behaviour, self-awareness, communication, feedback, balancing support and challenge, and handling difficult conversations. The course is delivered online and demand has been high, with sessions regularly oversubscribed even when additional places were offered.

359. TD reported that course administration was handled entirely by facilitators, resulting in wasted internal capacity. Staff also noted difficulties getting candidates released from duty to attend, along with some resistance to attending training in their own time. Despite these issues, feedback on the course was generally very positive, with staff describing it as professionally delivered. TD staff should be commended for the course development and delivery in the face of limited capacity, support and resourcing.

360. We found no evidence of ongoing development opportunities for strategic managers and many staff consistently reported that they had received no formal development either before or after promotion.

361. The Service has invested in some external development courses and created internal programmes to complement them, demonstrating a commitment to staff development. However, the NFCC pathways do not fully meet all SFRS development needs and it is unclear whether internal courses adequately address these gaps. Significant shortfalls also remain in development provision for strategic managers.

362. Throughout this part of the inspection, we found the range of courses, their volume, and their content unclear, with no coherent plan to manage the scale of development required. While this is partly explained by the issues surrounding the management development framework and LMDF, it remains unclear whether the Directorate’s focus is primarily transactional, improving managers’ performance or transformational, developing leadership capability.

363. We were not convinced the Directorate had a clear vision or could fully grasp the scale of the task, pending the LMDT outputs. Much of the current development approach appeared to be interim, whilst the LMDF and associated processes are being created. In the absence of an agreed pathway with adequate support and resources, progress is being limited by the lack of straightforward policy or guidance outlining the purpose, requirements and processes. Many managers echoed this, describing central course allocation, administration, communication and organisation as confusing and inconsistent.

Local Delivery

364. Across both past and recent inspections, staff consistently reported limited access to centrally organised development opportunities. Many felt unprepared for promotion, noting that development to support progression is scarce and usually only offered after successfully achieving a promoted post. Several also highlighted a lack of support for further education or academic qualifications. A number of FDOs raised concerns about inadequate induction development, citing gaps in leadership training, attendance management, conflict resolution, discipline and H&S.

365. There is a perceived lack of transparency in how development courses are allocated, with many offered at short notice. Staff feel opportunities depend on being ‘in the right place at the right time’, creating a sense of unfairness. Releasing personnel for training is often difficult due to competing priorities and issues such as time off, using time off in lieu and digital access adds further confusion. Many reported that work demands reduce the time available for development and that the centrally offered programme feels fragmented, lacking coherence, structure and alignment with local needs. A consistent theme was the absence of a clear development pathway or central support for those seeking career progression.

366. Across all SDAs, managers were clearly committed to supporting their staff despite the challenges highlighted earlier. Many SD management teams created their own leadership and management training to compensate for limited centrally delivered development. We observed locally run supervisory and middle manager sessions for both On Call and WT staff, often focused on ‘back to basics’ skills needed for newly promoted personnel. Some areas also delivered more advanced transformational leadership sessions, most notably in the City of Glasgow, which were well structured, comprehensive and highly valued by participants.

367. Local areas have recognised gaps in staff non-technical development and created their own courses to address them. However, delivery varies significantly across the LSO areas, resulting in inconsistent organisational messaging. Contributing factors may include competing priorities, geography, workforce profile, duty systems, management capacity, resources and budget. This inconsistency risks unfairness in how staff performance and potential are assessed. The LMDT is gathering information on all local approaches for possible inclusion in the new LMDF, which we support and encourage.

Good Practice 11

Recent inspections identified several effective local service delivery area development initiatives created to compensate for the absence of a national system. This innovation and use of local capacity are commendable, and capturing these approaches to inform the leadership and management development framework is a positive and constructive step forward.

Coaching and Mentoring

368. Coaching aims to improve workplace performance by developing specific skills and behaviours, sometimes enhancing attributes such as confidence and communication. It typically runs for a defined period or becomes part of an ongoing management style. Coaches are usually line managers or external specialists. Mentoring involves an experienced colleague supporting the development of a less experienced individual through questioning, listening and guidance. Unlike coaching, mentoring relationships are longer term and work best when they move beyond directive advice, allowing learning for both participants. Mentors are usually more experienced peers.

369. The effectiveness of any coaching or mentoring system depends on clearly identifying performance gaps, selecting suitable coaches or mentors, managing relationships well and evaluating outcomes. The system should specify when coaching or mentoring is the appropriate intervention, ensure models used are credible and relevant and set clear criteria for choosing external coaches or mentors. It should also emphasise creating a positive learning environment.

370. The People Directorate should play a central role in designing and delivering coaching and mentoring as part of the organisation’s talent management approach. Line managers are also key to fostering this environment and must be developed accordingly. During a recent scrutiny session, management recognised the importance of coaching and mentoring but confirmed that no formal network currently exists. While informal coaching and mentoring take place across the Service, discussions highlighted potential challenges around capacity and capability when considering more formal approaches.

371. Staff reported that most of their development came from informal mentoring, often without a clear distinction between coaching and mentoring or between peer and senior support. Those who received mentoring generally found it valuable, but the organisation’s heavy reliance on this approach is concerning, especially given the high staff turnover in the last five years due to pension changes and retirements etc. Many newer managers now have less experience than their teams, potentially reducing the effectiveness and consistency of informal mentoring. While mentoring remains valuable, reliance on informal mentoring as a primary method of development is potentially no longer viable. Senior managers acknowledged this concern, recognising that many current mentors may lack the necessary experience or development themselves.

372. Local areas have recognised the lack of formal mentoring and have begun developing their own solutions, most notably in Lanarkshire, where a structured strategy, guidance and staff agreement system has been created. However, as with local development activity, mentoring and coaching remain inconsistent and lack continuity, raising concerns about fairness. We were also informed of an informal mentoring system being introduced for strategic managers, sponsored by the Service, but found no evidence that it forms part of a wider organisational strategy. It is also unclear whether the LMDT is gathering information on these various local and organisational approaches.

Managing Personal Performance

373. The CIPD detail that performance management has no standard definition. It can be described as setting objectives, providing feedback, improving performance, supporting learning, development, reward and recognition and career progression. It also covers managing underperformance. Effective performance management can support employees to perform well, maximise their contribution, help them learn and develop and motivate people. Performance management processes can help managers to:

• align the efforts of their team with organisational goals;

• support employees to become effective performers and continue to develop their skills, knowledge and experience;

• identify and address any areas of underperformance fairly and in a timely manner;

• recognise and reward good performance; and

• create clear expectations around performance for employees.

374. The Service has a personal performance management process, which is known as the performance appraisal process and applies to all employees. The Performance Appraisal Policy^[35] states the SFRS ‘is committed to developing all employees to their full potential and to improving service delivery. The SFRS Performance Appraisal Policy will be used by individuals and reviewing managers to help improve performance and service delivery by focusing on both the achievement of objectives (‘what’ is done) as well as an appraisal of skills, knowledge, behaviours and competencies (‘how’ it is done)’. The policy details the objectives, principles, procedure, guidance for managers as well as setting roles and responsibilities. It also details the need to train reviewing managers on the use of the appraisal process as part of the leadership development framework.

375. The policy states that performance appraisal is a joint discussion between an employee and their manager to review the past year, set objectives and identify development needs for the year ahead. Its purpose is to align individual contributions with SFRS strategic goals, values and vision. The process includes formal review meetings and ongoing one-to-one discussions, resulting in an agreed plan with measurable objectives and CPD. It also assesses readiness for advancement, with development opportunities and course allocations expected to link to the LNA process.

376. We previously found that use of the appraisal system was inconsistent, more common among WT than On Call staff. Many perceived it as a ‘tick box’ exercise with little benefit, as good or poor performance was rarely recognised and development requests seldom progressed due to the constraints previously mentioned. Understanding of the system’s role in effective management was limited and the process for allocating development courses appeared opaque. Staff frequently felt that opportunities depended more on luck than on meaningful appraisal outcomes.

377. Staff, including those responsible for producing required reports, recognised the value of appraisal in principle, but were largely dismissive of the current process. Their lack of confidence that appraisals lead to meaningful development created scepticism and the resulting frustration made the system feel more demoralising than motivating.

378. Given ongoing challenges, including training issues, staff turnover, and reduced mentoring the value and effectiveness of the appraisal process appear to have diminished. This was compounded by unrealistic expectations that the TD team and LNA can support development for large staff numbers. The HMFSI recommended the appraisal policy be reviewed in its recent culture thematic, senior managers recognised the need to review the policy and process, but limited capacity has delayed the review.

Secondments and Temporary Promotions

379. A secondment is a temporary placement where an employee works in another area to support organisational needs, provide cover or gain experience. The Service uses secondments to HMFSI, Scottish Government Fire Resilience Unit, Scottish Multi Agency Resilience Training and Exercising Unit (SMARTEU), the Fire Brigade Union and fire safety organisations, offering both business benefits and staff development. However, opportunities are limited by budget and capacity. There is no formal process to assess their value and secondments are not integrated into TD or organisational learning, although the experience gained can support promotion within TA processes.

380. In addition, the Service also employs a temporary promotion process, which allows staff to fulfil a role above their current role for a defined period. The driver for the promotion process is normally to fill a gap in the TOM with aspects of operations and/or management being the need. During this temporary period, staff are able to gain experience, develop in post and start the process of meeting competence criteria. The Service does not have a specific strategy, policy or procedure that defines the use of secondments or temporary promotions with a talent management strategy.

Networking

381. Networking involves building professional relationships that support career development, knowledge sharing and mutual benefit. It can occur formally or informally, in person or online, and helps individuals exchange information and create useful professional connections.

382. We were informed that staff sometimes attended events and conferences to network for issues such as black and minority ethnic staff and women in the fire service as well as representative body business. We welcome this and understand the importance of promoting networking for these aspects of organisational life. That said, we found that those opportunities offered were restricted and that there was also limited central sponsorship for other formal or informal networking.

383. As detailed, staff previously attended the Fire Service College, Scottish Fire Service College and other external providers for development. Although course content and duration were sometimes criticised, many staff valued the informal networking these opportunities provided. Such interactions allowed personnel to share operational and management experiences with colleagues from across the UK FRS, people they might otherwise never meet, offering useful benchmarking and subtle but meaningful development.

384. This informal exchange of learning was valuable, should not be underestimated and may be of particular relevance given the size and scale of the SFRS. While not an ideal system, it did provide a basic networking mechanism that has not been replaced. The Service currently has no strategy or policy for networking and the largely localised approach to training and development may also restrict wider networking opportunities and limit proactive staff development.

385. In addition, we also observed the positive use of the weekly command meetings to discuss issues. These meetings were routinely heralded by new and inexperienced FDOs as a positive forum to discuss and listen to issues as well as received targeted development. We highlighted the strengths of these meetings in the past but observe that they remain relatively informal and form no part of a talent management process. We found no other evidence of structured networking outside staff attendance at management and engagement meetings.

Induction

386. An employee’s first impressions of an organisation strongly influence how well they settle in and how satisfied they feel at work. According to CIPD, induction helps employers welcome new staff, support their integration and ensure they have the knowledge needed for their role. Effective induction can also reduce turnover and absenteeism while strengthening the employer brand. We found a strong example of induction with the FDO induction handbook^[36].

387. This handbook supports FDO induction by outlining key areas for discussion with the line manager, including pre-employment engagement, initial integration, required pre learning, LCMS access, system permissions, equipment lists, mandatory courses and familiarisation with relevant equipment, policies and systems. The process includes ongoing mentoring and line manager sign off, providing a clear and well structured, recordable induction pathway.

388. We observed a strong induction programme for WT, On Call and OC trainees, delivered as part of their foundation training. We are also aware the Service does have an induction process document, an induction guidance document for line managers and an induction check list. Some directorates, areas and departments also provided their own induction input covering topics such as code of conduct, sickness procedures, equality and diversity, H&S and senior manager introductions. However, these local approaches did not appear to be guided by a corporate strategy, policy or procedure, resulting in inconsistency across the organisation. The Service does not currently have a defined induction policy as part of a greater talent management strategy.

Recommendation 11

Talent development is predominantly centred on course delivery and an inclusive interlinked talent management system is lacking. We recommend the Service should strengthen its approach by ensuring robust coaching, mentoring, performance management, secondment, networking and induction processes are embedded within the future leadership and management development framework.

Talent Acquisition

389. TA is a strategic, long-term process focused on identifying, attracting and selecting high-quality employees who can meet both current and future organisational needs. Unlike recruitment, which typically fills immediate vacancies, TA prioritises building a workforce aligned with organisational vision and strategy. Although TA is part of the wider HRM framework, it is distinct from TD. As TD was the main HRM focus of this inspection, TA has only been referenced where it directly interacts with development processes.