Review of progress against recommendations within the Independent Inspection of Northern Ireland Fire & Rescue Service Report 2023

The picture back then: -

In 2022 when we began our initial inspection scoping exercise, we observed a Service that had experienced a degree of disruption. The global covid pandemic clearly added to this disruption and, of course, led to challenges across public and private sector organisations across the globe.  Through necessity the Service had adopted a reductionist approach, with its key focus being to provide, maintain and deliver an effective emergency service. 

In line with all public sector organisations, NIFRS had found itself operating within an extremely challenging fiscal environment and had experienced a real terms reduction of £14.5 million since 2011/12.  The steps taken to ensure that ‘front-line services’ were protected, had resulted in reductions in support services, both in terms of personnel numbers and a lack of investment in enabling management information systems (MIS).  

One of the biggest challenges observed, and one we considered may have been at the heart of a number of other issues, was the lack of stability of leadership at the Executive level and throughout the Service. Alarmingly, at the time of writing the report, 47 of the 94 flexi-duty officer roles were being occupied in a temporary capacity.  There had also been instability at a political level, with the Northern Ireland Assembly for a number of years and as a result there had been limited Ministerial priority and direction setting for NIFRS. We observed and commented on the absence of a Framework Document which would normally be expected to set out Government priorities against which the Service would be expected to perform. The Board had also experienced instability, and was still in a state of change when we carried out our work. This instability had resulted in significant challenges in the building of key relationships between DoH, the Board, Executive Leadership Team (ELT) and across the Service.

We made reference to the lack of a clear methodology applied to the strategic direction of the Service. This included the absence of any robust analysis of risk and demand, a working Finance Strategy and a working People Strategy, all underpinned by a clear corporate risk appetite.  

One of the most risk critical examples of this was the failure to prioritise the full alignment with National Operational Guidance (NOG), despite an Internal Audit Report identifying the risk and a recovery action plan being agreed. We considered this to be a significant risk to the organisation, and more importantly a risk to those engaged in emergency response.

We were delighted to observe and reflect that the vast majority of staff interviewed demonstrated a very strong association with the ‘brand’ and possessed a genuine pride in their respective and collective roles.  The Inspection Team witnessed a clear desire, amongst all staff groups, to always do the right thing for the communities they serve and deliver positive outcomes.  Individuals, and teams, would frequently go beyond what should reasonably be expected and plugged gaps in structures and modern practices by working long hours and displaying incredible levels of goodwill.  In spite of this many staff expressed frustration at, what they perceived to be, a lack of leadership and poor communications.

From a front-line service delivery perspective, many personnel felt vulnerable. They were concerned at the reduced crewing levels and the quality of training available to develop and maintain their competence. Others felt frustrated at reduced resources in Fleet, Information Technology (IT), Personal Protective Equipment (PPE) and Operational Support. Again they expressed frustration at what they saw as a lack of leadership and a coherent direction of travel.  

Toward the end of our inspection we were pleased to see some stability returning to the ELT with the majority of ELT members being appointed in a substantive capacity. We also reported that it was our belief that the ELT at that time had demonstrated without question that they had the skills and professionalism to lead the Service on this journey of change.  We were also encouraged by the desire shown by all parties to work with the Inspection Team to identify opportunities for improvement.

We stated very clearly however that the level of improvement required would take time, financial investment and significant political support if the Service were to be successful in their endeavours.  

The Picture Now:-

Whilst this review aims to consider progress against the eleven recommendations in the 2022 report, it would be wrong not to reflect on the very clear improvements that have been made since our last visit.

Perhaps the most obvious improvement, that was clearly evident during this inspection, was the improved stability within the Board, ELT and Sponsor Team. The stability provided by now substantive post holders across these groups, coupled with  professional and  collegiate relationships between various parties, has led to a vastly improved atmosphere and a working environment where all concerned are clear on their roles and responsibilities and are working together toward achieving improvement. The leadership styles displayed by the Chief Fire and Rescue Officer, The Chair of the Board, and the Head of the Sponsor Unit are complimentary, appropriate, and respectful. Whilst each has a role to play, each has an appreciation and respect for the other. This creates a much improved working environment and one that is worthy of praise.

This stability of leadership has also permeated throughout the various layers of the organisation. The number of staff occupying temporary positions has reduced significantly since our last visit and the decision to assign Station Managers to each of the fire stations across the country has been welcomed by all and has provided a clear focal point and a stability that was so clearly lacking.

The allocation of dedicated resources to teams involved in the alignment with NOG has led to significant steps being taken toward the achievement of this task. The risk based prioritisation of work is a very sensible approach and the enthusiasm and professionalism of those engaged in this work was encouraging and impressive.

Equally impressive was the progress made in the creation of a comprehensive and evidence based Community Risk Management Plan (CRMP). The publication of the CRMP is a significant milestone on the journey to ensuring NIFRS can align service delivery assets to known risks and in line with activity and demand data.

Investment in training is clear to see with the opening of the new learning development centre in Cookstown earlier this year. It would be difficult to see how anyone could fail to be impressed with this facility. Of course, building a training facility is only part of the journey of improvement. A comprehensive understanding of training need, coupled with a sophisticated programme of training courses and development opportunities aligned to Service and individual needs, is necessary to ensure staff are equipped with the skills to carry out their roles and afforded the opportunity to maintain and enhance those skills at appropriate points in their careers. It is fair to say that whilst the Service are working towards this goal, they are not yet fully aware of how they will achieve this and ensure staff are provided access to this new facility.

There are a number of other areas of business where it is clear that NIFRS are sighted on what needs to be done, but has not yet made the progress we might have hoped to see. We fully accept that budget, resources, and competing priorities are factors in this. However, we would encourage the Service, and the DoH, to work in partnership and with focus in their efforts to action the remaining areas of work in relation to the recommendations of the 2023 report within a meaningful timeframe.