PAPER H
Purpose: For Decision

Committee

EXECUTIVE

Date

8 SEPTEMBER 2016

Title

FUTURE FIRE CONTROL PROVISION

Report to

EXECUTIVE MEMBER FOR
PUBLIC PROTECTION AND PFI

PUBLIC

HEALTH,

EXECUTIVE SUMMARY
1.

This report seeks a decision from the Executive to approve the recommendation
to move the control function from Surrey Fire and Rescue Service (SFRS) to
Hampshire Fire and Rescue Service (HFRS) for a period of 5 years. When
referring to “control” within this report this refers to the call handling and
mobilisation of fire service resources for operational incidents via the 999 call
centre.

2.

The recommendation within this report has been made following our
consideration of the options described within this document.

3.

The current five year contract between SFRS and the Isle of Wight Fire and
Rescue Service (IWFRS) expires on the 31 March 2017.

4.

The Isle of Wight Council (IWC) commissioned a feasibility study from Mott
MacDonald to explore if the move to HFRS is technologically feasible. The study
produced a report which is explained within the body of this. IWFRS officers
have used this report and the strategic information contained within this
document to reach this recommendation.

5.

The Isle of Wight Fire Authority (IWFA) and Hampshire Fire and Rescue
Authority (HFRA) are working within a successful strategic partnership which is
delivering savings to the Isle of Wight Council. This decision will assist in
delivering those savings.

6.

Fire and rescue services have been given clear direction to collaborate which
government is seeking to make a statutory obligation through the Policing and
Crime Bill. The continued collaboration with HFRS supports this position.

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 7.

The timing of this decision is critical due to the current contract with SFRS
ending on the 31 March 2017 coupled with the national Emergency Services
Mobile Communication Programme (ESMCP) that is in progress. This decision
will assist in IWFRS transitioning into the ESMCP (the replacement for the
current national emergency services communication network) with HFRS and
benefit from the additional capacity that HFRS can offer.

8.

HFRS are part of the Network Fire Control Services Partnership (NFCSP) which
comprises of Hampshire, Devon and Somerset, Dorset and Wiltshire FRS.
IWFRS will benefit from the resilience of this existing collaboration.

9.

As the strategic partnership with HFRS matures, with this product included, there
are significant resilience and capacity benefits to the IWFRS which also deliver
savings to the IWC.

10.

The decision to accept the recommendation will lessen the current risk of
working with another service with differing operational procedures and policies.
Whereas working with HFRS has already seen policy and procedure alignment
that will positively continue as the partnership develops. There will be a reduction
in the cost of provision to the IWC which will see an improvement in service
delivery to the public due to the already aligned operational procedure and policy
between the two organisations.

BACKGROUND
11.

At Full Council on the 21 January 2015 a decision was made for the Isle of Wight
Fire Authority to enter into a strategic partnership with Hampshire Fire and
Rescue Authority. It was resolved:

(i) THAT a strategic partnership agreement be entered into with Hampshire Fire and
Rescue Authority.
(ii) THAT strategic leadership is provided as set out in the agreement. As a
consequence of that, Hampshire Fire and Rescue Services (HFRS) Chief Fire Officer is
appointed the Chief Fire Officer of the Isle of Wight Fire and Rescue Service.
(iii) THAT the Managing Director (now Chief Executive), be delegated the authority, in
consultation with the then Leader and Executive Member for Public Protection and PFI,
to conclude on the precise wording of the agreement, provided it remained within the
broad terms as set out in the report (attached to and forming part of these minutes).
12.

The agreement sets out that those products of the partnership are to be
considered for inclusion through the lifetime of the partnership. Inclusion of in
scope areas are to be subject to the partners agreeing key terms as to costs,
staff and governance. One of these products is the consideration of the future of
fire control provision after the current contract post March 2017.

13.

Upon commencement of the partnership it was decided that the future provision
of fire control must be considered. The decision would be based on the
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 recommendations of the service after reflecting on the findings of an independent
technological feasibility study.
14.

Mott MacDonald was the preferred provider to deliver this feasibility study. They
have experience in delivering strategic projects for Communities and Local
Government in relation to the national Firelink project. Mott MacDonald has also
worked with other fire and rescue services on previous fire control transfer
projects such as London Fire Brigade.

15.

Mott MacDonald was tasked with investigating the feasibility of two business
options for the Isle of Wight Fire Authority. One being the contract to continue
with provision through the current provider SFRS for a further five years. The
other option to transfer the provision to HFRS also for five years.

16.

The Mott MacDonald report has been attached as Appendix 1 to this paper.

STRATEGIC CONTEXT
17.

The strategic partnership with HFRS continues to deliver in accordance with the
Isle of Wight Council Corporate Plan 2015-17. Priority 1 “Supporting growth in
the economy, making the Island a better place and keeping it safe”.

18.

The Isle of Wight Council remains the Isle of Wight Fire Authority and the
strategic partnership will provide enhanced command and control, increased
capacity, resilience and sustainability as well as a range of benefits that a
partnership brings in which additional significant savings can be achieved.

CONSULTATION
19.

There has been no requirement for consultation on this decision as full council
agreed for the fire control provision to be included in the content of the strategic
partnership.

20.

The service highlighted a potential risk during the first year of the partnership
with HFRS in that the continued good collaborative work with Surrey Fire and
Rescue Service, as a fire partner within the South East Fire group, maybe
affected because of the intended process and communication. Therefore Surrey
was kept informed of the potential decision and of the process involved in
obtaining a feasibility study to ensure there was a sound basis for the
recommendation to be made.

21.

Mott MacDonald engaged with various departments within IWC, IWFRS, HFRS
and SFRS. This ensured that relevant and sufficient data was collated to provide
accurate information for inclusion within the report.

SCRUTINY COMMITTEE OR PANEL VIEW
22.

HFRA requires the project manager to report to the HFRS Performance Review
and Scrutiny Committee as part of their scrutiny process.
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 23.

IWFRS reports progress to the Executive member on a monthly basis and the
partnership is subject to financial scrutiny.

FINANCIAL / BUDGET IMPLICATIONS
24.

Surrey currently provides the control contract to IWFRS for £304,168 per annum
which includes a four percent increase year on year.

25.

The feasibility report sets out three financial options for the future provision these
are:

26.

Surrey option 1
Ongoing revenue costs £419,000 (38 percent increase on the current contract
price)

27.

Surrey option 2
Ongoing revenue costs £324,000 (six percent increase on the current contract
price)
In addition transition costs- revenue £12,000

28.

HFRS option 3
Ongoing revenue costs £200,000 (presents savings as part of the overall DDIP
figures as per the DDIP business case)
Transition costs- capital £89,000

29.

All the above costs are based on net present value.

30.

Options 1 and 2 provide differing levels of service based on a modular approach
to charging. These modules are providing levels of service that Surrey FRS
believes it is currently providing through the contract that were not agreed at its
commencement.

31.

Option 2 assumes IWFRS will provide part of the services that the modules
included in Option 1 provide.

32.

Option 3 involves HFRS via NFCSP providing all of the services through the
strategic partnership.

33.

It is the intention of the strategic partnership to absorb costs both in transition
and revenue costs to ensure the business case figures are achieved. The
business case figures state that the project will make cumulative savings to IWC
of £1,194,895 over three years. This product will contribute to those savings.

34.

Financial tolerances have been set within the strategic partnership agreement at
plus or minus ten percent of the business case figures. Therefore a change
request would be required through the Delivering Differently in Partnership
(DDIP) implementation board for approval to continue with the project. This
decision would have to be approved by the IWC chief executive.

35.

Expectations are also stated within the report that all works are required to be
completed immediately. This may not be the case due to the impending ESMCP.
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 This national project will see new suppliers of technology and providers of the
communications network. Therefore it will make sense to use existing technology
in the period between this year and the beginning of the programme which will
commence during 2016 to 2020.
36.

These figures have been confirmed by the management accountant for fire and
rescue.

LEGAL AND PROCUREMENT IMPLICATIONS
37.

By virtue of section16 of the Fire and Rescue Act 2004 provision for the
arrangements for the discharge of the functions of one fire and rescue authority
by others including provision as to the terms on which any function is to be
discharged, including provision as to payment can be made. The IWC as the
Isle of Wight Fire and Rescue Authority entered into a Strategic Partnership with
Hampshire Fire and Rescue Authority which commenced on the 1 April 2015.

38.

The purpose of the agreement was, through the partnership, to ensure delivery
of the “Delivering Differently in Partnership” project by ensuring:
•
•
•
•
•

continued effective delivery of fire and rescue services
reduction in the cost of provision of the Isle of Wight Fire and Rescue
Service to assist the Isle of Wight Council achieve efficiency savings
standards of service provision are not reduced in a way that adversely
affects Isle of Wight and Hampshire residents.
a platform is created for the future delivery of both services
both Authorities retain financial and political control and accountability of
their fire and rescue service as fire authorities

39.

This agreement enables a range of leadership and service elements to be
considered, and where feasible, to be progressed into the partnership. One of
these service elements was identified in the agreement as being the inclusion of
the Network Fire Control Service.

40.

The Fire and Rescue Services Act 2004 (the Fire Act) permits the local fire and
rescue authority (FRA) to explore the outsourcing of fire control operations to
another service without undertaking a procurement exercise. Section 16(1) of the
Fire Act provides that a fire and rescue authority (in this case IWFRS) may enter
into arrangements with either another fire and rescue authority, or any other
person, for the discharge of one/all of the function(s) listed in sections 6 to 9 (the
core functions) and/or section11 (other functions) of the Fire Act.

41.

The core functions are as follows:

42.

Section 6(1) - making provision for the purpose of promoting fire safety.

43.

Section 7(1) - making provision for the purpose of firefighting & protecting life
and property

44.

Section 8(1) - making provision for the purpose of rescuing people in the event of
road traffic accidents, etc.
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 45.

Section 9(1) - functions relating to emergencies.

46.

IWFRS is discharging its functions in accordance with the Fire and Rescue Act
2004 therefore this does not fall within the scope of the Public Contracts
Regulations 2015.

EQUALITY AND DIVERSITY
47.

The council, as a public body, is required to meet its statutory obligations under
the Equality Act 2010 to have due regard to eliminate unlawful discrimination,
promote equal opportunities between people from different groups and to foster
good relations between people who share a protected characteristic and people
who do not share it. The protected characteristics are: age, disability, gender
reassignment, marriage and civil partnership, pregnancy and maternity, race,
religion or belief, sex and sexual orientation.

48.

The current contract with SFRS does not have any identified equality and
diversity implications. An equality impact assessment has been completed as
part of the strategic partnership with HFRS and has also been advised to take
into account the current proposal.

49.

This EIA has been reviewed by the responsible manager and IWC legal
department. This does not identify any equality implications of entering into
partnership with HFRS in that the services currently provided by SFRS will
continue.

PROPERTY IMPLICATIONS
50.

Property implications will exist in relation to the permission for the provision of
fire and rescue services to access our property and ICT systems and hardware
to assist in the transition from Surrey to Hampshire.

51.

All hardware provided to Isle of Wight Fire and Rescue Service has either been
purchased by Isle of Wight Fire and Rescue Service or purchased by Surrey Fire
and Rescue Service and recharged back to Isle of Wight Fire and Rescue
Service.

OPTIONS
52.

Option 1 - continuing with SFRS for five years core service and all of the optional
modules with no enabling work required.

53.

Option 2 - continuing with SFRS for a period of five years for core services and
additional modules. This option requires some minor enabling works and
additional revenue costs.

54.

Option 3 - Movement of the control function from Surrey Fire and Rescue
Service to Hampshire Fire and Rescue Service for a period of five years from
end of transition date (nominally 1 April 2017).
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 RISK MANAGEMENT
55.

The DDIP Project risk register currently rates ICT as an amber risk on JCAD this
is due to the technology required for such a project. This decision paper for
executive will potentially instigate movement to HFRS. This will create a product
and project plan within DDIP. ICT will be an integral section of this product and
project plan. IWC ICT will work with partner ICT sections to ensure the project
plan is executed within cost, time and quality tolerances.

56.

Risks associated with the SFRS options are listed below:

57.

SFRS has ambitious plans for tri-service integration. This could mean that there
is a risk that the services provided to the IWFRS are not seen as important by
the larger partners such as Surrey Police and South East Coast Ambulance
Service Trust. This would have to be monitored through regular stakeholder
engagement and reviews of levels of service provision.

58.

There is a risk that harmonisation with HFRS as part of the strategic partnership
will not be reflected in SFRS operations without increased effort and cost. The
current work being undertaken within the operational products of the strategic
partnership link IWFRS and HFRS. This would require additional capacity and
funding to realign with SFRS which could undermine the benefits of the existing
partnership with HFRS.

59.

The SFRS control room is unlikely to be in a position to easily take advantage of
efficiencies that will be gained from DDIP harmonisation between IWFRS and
HFRS.

60.

Risks associated with the HFRS option are listed below:

61.

There may be disruption to control room operations during the migration
process that will need to be managed to avoid operational impacts. These risks
will be mitigated through the project management of the migration. HFRS have
experience of this through their NFCSP work and well-founded project
management expertise.

62.

There may be a risk of the exit plan requiring an agreed extension period to
enable transition. The project plan submitted by Mott MacDonald (Page 38-39 of
Appendix 1) suggests it is possible to coincide with the contract end date (31
March 2017). Mitigation will be an agreement with SFRS that they will provide
support in accordance with the exit management plan.

63.

There may be barriers to integration of the NFCSP into IWC back office support
systems that may mean that some of the manual transfers with these systems
may continue to need to be supported. These will be kept to a minimum and will
be managed through inclusion of IWC ICT teams in the migration and
implementation.
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 64.

There is a minimal risk of challenge (from other potential providers) if it could be
deemed that IWFRS is procuring a service rather than using existing partnering
arrangements to effectively bring the call handling and mobilising service back
in-house. However the mitigation is captured within the statement made in the
“Legal and Procurement Implications” section of this report.

EVALUATION
65.

The recommendation of this report is for the IWC Executive to approve the
decision for option 3 the movement of the control function from SFRS to HFRS
for a period of five years.

66.

Our organisations are currently working within a positive strategic partnership
that is providing savings to the authority in accordance with a carefully managed
project plan.

67.

The response products being delivered through the strategic partnership will be
further enhanced through the increased ability to share common operational and
mobilisation procedures.

68.

Option 3 will ensure the transition from our current national communications
network to the emergency services network will be closely managed. This will be
in accordance with both organisations to further align systems and project
management processes.

69.

The replacement of current differing business processes that may be subject to
human error with automated solutions.

70.

IWFRS will benefit from the resilience of a control partnership consisting of
Hampshire, Devon and Somerset, Dorset and Wiltshire fire and rescue services.

71.

Hampshire and the Isle of Wight may be working closely in the future through the
potential devolution agreement and the Home Offices motivation for the Police
and Crime Commissioners involvement with fire authorities through the Policing
and Crime Bill.

72.

Hampshire Fire and Rescue Service is mentioned in government’s consultation
as already leading in collaboration with our partners which can only benefit
IWFRS and the IWFA in the future.

RECOMMENDATION
73.

Option 3 - Movement of the control function from Surrey Fire and Rescue Service
to Hampshire Fire and Rescue Service for a period of five years from end of
transition date (nominally 1 April 2017).

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 APPENDIX ATTACHED
74.

Appendix 1 - Technological Feasibility Study – Mott MacDonald.

BACKGROUND PAPERS
75.

Policing and Crime Bill - http://www.publications.parliament.uk/pa/bills/lbill/20162017/0055/17055.pdf

76.

Minutes to Full Council – 21 January 2015 https://www.iwight.com/Meetings/committees/mod-council/21-1-15/minutes.pdf

77.

Corporate Plan 2015-17 - https://www.iwight.com/search/?q=corporate%20plan

78.

Business Case - https://www.iwight.com/Meetings/committees/mod-council/21-115/Background%20Papers/Business%20Case%20%20Delivering%20Differently%20in%20Partnership.pdf

Contact Point: Dean Haward, Strategic Partnership Coordinator,
 01983 821000 ext. 8113 e-mail dean.haward@iow.gov.uk

MICK KEENAN
Local Senior Officer

COUNCILLOR PHIL JORDAN
Executive Member for Public Health, Public
Protection and PFI

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