COUNCIL HOUSING FIRE SAFETY MANAGEMENT STRATEGY Name Signature Date. Prepared by: P BRAY 18/05/18. Approved by: J GRIFFITHS 18/05/18

Transcription

1 COUNCIL HOUSING FIRE SAFETY MANAGEMENT STRATEGY Name Signature Date Prepared by: P BRAY 18/05/18 Approved by: J GRIFFITHS 18/05/18 Signed off by AD Council Housing Document Title: Version Number: 3 J KNIGHT COUNCIL HOUSING FIRE SAFETY STRATEGY Date of Next Review: 18/05/2019 Philip Bray Council Housing Health and Safety Manager Chief Executive Department Enfield Council Tel Mobile Website: Protect the Environment Think Before You Print. 1

2 CONTENTS 1.0 INTRODUCTION FIRE RISK ASSESSMENT Fire Risk Assessor Qualifications 2.2 Location of Fire Risk Assessments 2.3 Fire Risk Assessment Scope Type 1 Common parts only (non-destructive) Type 2 Common parts only (destructive) Type 3 Common parts and flats (non-destructive) Type 4 Common parts and flats (destructive) 2.4 Fire Risk Assessment Frequency Fire Risk Assessment Rolling Programme 2.5 Fire Risk Assessment Action Plan and Timescales 2.6 Monitoring Completion of Actions 3.0 FIRE SAFETY AUDITS Audits of Non-facilities Managed Premises 3.2 CDM Client Audit - Oversight to Refurbishment Audits 4.0 MAINTENANCE OF FIRE PRECAUTIONS Storage of Items in Common Areas 4.2 Electrical Riser Cupboards 4.3 Security Gates 4.4 Refuse Chutes 4.5 Fire Doors 4.6 Fire Protection and Fire stopping 4.7 Fire stopping barriers within wall cavities and around Windows 4.8 Large Panel System Buildings (Gas facilities) 4.9 Emergency Lighting 4.10 Sprinklers 4.11 Smoke Alarms 4.12 Sheltered Housing Telecare Systems 4.13 Fire Fighting Facilities - Dry Risers 5.0 INFORMATION FOR RESIDENTS JOINT LFB/LBE FIRE SAFETY PARTNERSHIP BOARD 14 ACTION PLAN 15 APPENDIX 1 - Five Year Emergency Lighting Plan 19 APPENDIX 2 - Fire Door Replacement/Renewal/Fitting Process 24 APPENDIX 3 Information to residents 29 2

3 1.0 INTRODUCTION This fire safety management strategy applies to the buildings managed by Council Housing and outlines the interventions planned to take place by the Corporate Health and Safety Team and Council Housing between 2017 and 2021 to ensure Enfield Council meets its legal duty to keep its property safe from fire through the provisions of the Regulatory Reform (Fire Safety) Order Summary of key interventions: Fire Risk Assessments of common parts are to be reviewed over a rolling four year programme with frequency dependant on the desk top priority assigned; The introduction of a type 4 Fire Risk assessment within high rise block flats as and when suitable void properties arise; A schedule of fire safety audits are in place at managed sites to verify operational fire safety compliance; A zero-tolerance policy is in place towards items stored within common areas of general needs blocks; Security gates will be removed by the Council should tenants fail to comply with requests; A five-year programme has been agreed for the instalment of electrical emergency lighting within the blocks of flats where it is known to be absent. As an interim measure, Photoluminessence way finding systems have been installed within high rise blocks as a means of mitigating the risk that exists during this period; Smoke Detector mapping is nearing completion across the stock and a programme of installation within those properties currently without a detector is ongoing; Fire doors are to be sourced from and installed by appropriate third party certified companies; Communal fire doors protecting primary means of escape in high and medium rise blocks will require annual inspection, Subject to London Fire Brigade approval, electrical riser cupboards will be fitted with thumb locks and self-closers, Refuse chutes in high rise blocks are to be decommissioned due to the frequent blockages that occur and fire risk posed, Sprinkler systems will be installed within Enfield Councils high rise blocks; Street properties converted into flats prior to 1991 will require mixed detection systems installed to alleviate any fears over levels of compartmentalisation; Fire compartmentalisation surveys will need to be commissioned to the external facade of two high rise blocks to provide assurances that cladding systems are low risk for fire spread; The current telecare alarm systems that serve Sheltered Housing Schemes will require reviewing to address the issue of call stacking ; High rise blocks currently without a dry riser are programmed to have a dry riser fitted in 2018; Utility companies disturbing the fabric of our buildings must be required to demonstrate fire stopping competence before permission is given for work to proceed. Internal staff with a supervisory role will be similarly upskilled in fire stopping to verify work has been satisfactorily carried out; A quarterly Joint London Borough of Enfield / London Fire Brigade Fire Safety Partnership Board has been set up to share relevant information. 3

4 2.0 FIRE RISK ASSESSMENT Enfield Council must ensure that there is a comprehensive fire risk assessment for the common areas in its blocks of flats, maisonettes and premises that it manages such as Sheltered Housing Schemes and Community Halls. The fire risk assessment will help identify the fire hazards and risks in the property so that decisions can be made on whether any risks identified are acceptable or whether something needs to be done to reduce or control them. 2.1 Fire Risk Assessor qualifications The Corporate Health and Safety Team employs Fire Safety Advisors to carryout the necessary fire risk assessments. Assessors must demonstrate an understanding of fire safety legislation (i.e. hold a recognised fire safety qualification such as the NEBOSH Fire Safety Certificate), demonstrate suitable experience of advising on fire and safety issues (i.e. previous experience within the fire safety field such as the Fire Service) and have membership of a recognised fire safety institute (i.e. institute of Fire Engineers). 2.2 Location of fire risk assessments Each buildings fire risk assessment is currently held on the Council Housing Shared Drive under the Health and Safety folder. Senior management are committed to making fire risk assessments available to residents. As of 2018, London Councils are developing a standard approach to the presentation of this information and it is envisaged that Enfield LBC will adopt this. 2.3 Fire Risk Assessment Scope Fire Risk Assessment is mandatory by virtue of the Fire Safety Order. For Council Housing, the scope of a fire risk assessment is restricted to the common parts of the building up to and including the front door that forms part of the escape route. Specific action within general needs homes is not required but for specialised housing such as Sheltered Housing, Personal Centred Fire Risk Assessments are now completed as recommended by the London Fire Brigade. The purpose of a fire risk assessment is to evaluate the risk to people from fire, taking into account existing fire safety measures, and to determine whether additional measures are necessary. The process effectively informs the Council how it must discharge its general fire precaution duty. The Fire Safety (Regulatory Reform Order) requires risk assessments to be suitable and sufficient. As the term is not defined in legislation, it follows that the adequacy of any Fire Risk Assessment is a matter for subjective judgement. There is no single correct or incorrect method of carrying out a Fire Risk Assessment rather there are many approaches. The two most prominent documents are: PAS 79:2007 Fire Risk assessment Guidance and a recommended methodology and; The Local Government Association: Fire safety in purpose-built blocks of flats (2011) PAS 79:2007 Fire Risk assessment Guidance and a recommended methodology PAS 79:2007 is acknowledged as the key guidance document for achieving fire safety risk assessment best practice across the United Kingdom. The Fire Risk Assessment template used in conjunction with Council Housing is based on the content of PAS 79. Should additional fire precautions be deemed necessary, these are set out in an action plan which forms part of the documented fire risk assessment. 4

5 The Local Government Association: Fire safety in purpose-built blocks of flats (2011) Type of risk assessment The LGA guidance document outlines four types of Fire Risk Assessment, namely types 1, 2, 3 and Type 1 Common parts only (non-destructive) A Type 1 fire risk assessment is the basic fire risk assessment required for the purpose of satisfying the Regulatory Reform Order and that which we carryout. The inspection of the building is non-destructive. As well as considering the arrangements for means of escape, the fire risk assessment includes examination of at least a sample of flat entrance doors. It also considers, so far as reasonably practicable, the separating construction between the flats and the common parts without any opening up of construction. However, in this type of fire risk assessment, entry to flats beyond the area of the flat entrance door is not involved. Unless there is reason to expect serious deficiencies in structural fire protection such as inadequate compartmentation, or poor fire stopping the LGA guidance states that a Type 1 inspection will normally be sufficient for most blocks of purpose-built flats. Where doubt exists in relation to these matters, arrangements would be made for a surveyor to attend to undertake an intrusive investigation i.e. a type Type 2 Common parts only (destructive) The scope and objectives of a Type 2 fire risk assessment are generally similar to those of a Type 1 fire risk assessment, except that there is a degree of destructive inspection, carried out on a sampling basis. This will usually necessitate the presence of a contractor for the purpose of opening up construction and making good after the inspection. A Type 2 fire risk assessment is usually a one-off exercise, which is carried out only if there is good reason to suspect serious structural deficiencies that could lead to spread of fire beyond the flat of fire origin Type 3 Common parts and flats (non-destructive) A Type 3 fire risk assessment includes the work involved in a Type 1 fire risk assessment, but goes beyond the scope of the RRO (though not the scope of the Housing Act). This risk assessment considers the arrangements for means of escape and fire detection (i.e. smoke alarms) within at least a sample of the flats. Within the flats, the inspection is non-destructive, but the fire resistance of doors to rooms is considered. A Type 3 fire risk assessment may sometimes be appropriate for rented flats if there is reason to suspect serious risk to residents in the event of a fire in their flats. (This might be, for example, because of the age of the block or reason for suspicion of widespread, unauthorised material alterations). This type of fire risk assessment will not be possible in the case of long leasehold flats, as there is normally no right of access for freeholders Type 4 Common parts and flats (destructive) A Type 4 fire risk assessment has the same scope of work as a Type 3 fire risk assessment, except that there is a degree of destructive inspection, in both the common parts and the flats, carried out on a sampling basis. This will usually necessitate the presence of a contractor for the purpose of opening up construction and making good after the inspection. However, the nature of the work is such that, often, destructive inspection within flats can only be carried out in those that are vacant. This is the most comprehensive fire risk assessment, but will only be appropriate in limited circumstances such as when a new landlord takes over a block of flats in which the history of works carried out is unknown and there is reason to suspect serious risk to residents from both a fire in their own flats and a fire in neighbours flats. To date only limited Type 4 assessments have been completed on void flats mainly as a fact-finding process that was shared with the voids team. 5

6 The Fire Risk Assessments undertaken within Council Housing common areas will generally be type 1 basic fire risk assessments. Where the fire risk assessor has a query over compartmentalisation then further destructive investigations will be arranged by the fire risk assessor and carried out in consultation with building surveyors i.e. type 2 or type 4 assessment. Following the Grenfell Tower Fire, the merits of completing Type 4 assessments within high rise blocks to confirm levels of compartmentation has received greater attention. The completion of type 4 assessments is not straightforward, being dependant on suitable void properties becoming available and where not, persuading residents to allow building surveyors to conduct intrusive investigations and put right any damage caused. The Corporate Health and Safety Team will complete sample type 4 fire risk assessments in high rise void properties. The voids team will be required to notify both the asbestos and Health and Safety Team as soon as such properties arise to enable appropriate staff to be mobilised. When undertaking fire risk assessments within the communal areas of high rise blocks the Councils Fire Risk Assessors will complete a type 3 assessment, inspecting electrical cupboards and ducts etc. Where there are particular areas that require greater investigation i.e. a type 4 destructive assessment, this will be arranged. For example a number of high and medium rise blocks have internal risers for water pipes and these in some cases run behind the electrical in-take cupboards. The rainwater pipes are deteriorating and the electrics are likely to require upgrading. Type 4 assessments will be commissioned to relevant blocks to check appropriate fire stopping measures are in place and actioned where required. 2.4 Fire Risk Assessment Frequency The Fire Risk Assessment itself will need to be reviewed and while in theory the only time that it will need to be reappraised is when there is a physical change to the building, the introduction of a managed risk approach will see a cycle of Fire Risk Assessment appraisal being applied. This cycle will depend on the nature and classification of the stock which has been desk top rated in accordance with the guidance detailed within the LGA publication Fire safety in purpose-built blocks of flats (2011): High Risk Buildings - high rise stock 6 stories or more, all sheltered housing stock, all community halls and all pre 1991 converted non-purpose built premises. These premises will have the Fire Risk Assessment refreshed annually within 12 calendar months. Buildings with 6 or more stories have limited means of escape available, involve larger numbers of persons and have difficulties in fire-fighting. Sheltered Housing settings are included due to the age of people (mobility issues), large communal areas and open way in which the occupants interact with one another. Community Halls are included due to the rooms being leased to third parties whose guests will not be familiar with evacuation procedures. Converted (non-purpose built) properties are included as compartmentalisation has been retrofitted prior to the introduction of the 1991 Building Control Regulations. Medium Risk Premises - purpose built medium rise housing stock with between 4 and 5 stories, with common parts. These premises will have the fire risk assessment refreshed on not less than a three year cycle with a third being undertaken annually. Low Risk Premises purpose built flats with between 1 and 3 stories. These premises will have the fire risk assessment refreshed on not less than a four year cycle with a quarter being undertaken annually. 6

7 Any block subject to a refurbishment programme or fire will need to have its Fire Risk Assessment reviewed and updated on completion to take into account the works undertaken Fire Risk Assessment Rolling Programme By introducing a rolling annual Fire Risk Assessment programme covering a proportion of all priority risk buildings then it is possible to have a fire safety programme resourced by two qualified advisors that: Meets suggested Fire Risk Assessment frequencies, Enables a programme of fire audits to be carried out on managed premises and those subject to refurbishment, Investigate fires, Provide specialist advise to refurbishment and housing support teams, and Provide fire training courses to operational staff 2.5 Fire Risk Assessment Action Plans and Timescales Each Fire Risk Assessment generates a Fire Action Plan detailing the mitigation measures required to meet the Fire Safety (Regulatory Reform Order). In 2017 the action categories and timescales assigned were amended and replaced by a single classification applicable to all three prioritisation groupings, giving greater parity with the action target dates resulting from fire safety audits. CATEGORY TIMESCALES ACTION SCHEDULE Very High Risk Immediate action is required to eliminate or mitigate the fire hazard. 7 It is credible/probable that a fire could occur leading to fatalities, significant property damage and or a health effect caused by a fire which causes a permanent, progressive or irreversible condition. High Risk Action within 2 months It is credible/probable that injury types and property damage not captured by the category above could occur. The hazard may arise from sources such as physical agents, hazardous substances, processes or activities. Alternatively, some legal duties do not directly result in control of risk, e.g. the requirement to assess fire risks but still demands compliance by the duty holder. These can be referred to as compliance and administrative arrangements and would be classified as High risk. Medium Risk Action within 3 months Risk of minor injury/health effects resulting from control weakness that need addressing in the medium term. The fire hazard is considered to present a likely/possible risk but the presence of controls reduces the likelihood of an incident occurring. Low Risk Action within 6 months Negligible injury/health effect with a remote likelihood of occurring. Could lead to a non-conformance occurring in the future if not addressed.

8 2.6 Monitoring Completion of Actions Completed Fire Risk Assessments and Action Plans are provided to Council Housing who are responsible for collating the actions into a single spreadsheet and allocating actions to the relevant teams. Each team has access to a spreadsheet to record their progress which in turn updates a master spreadsheet. The data is handled by a bespoke database (FRAME) which provides the auditing and management facility for assessing progress. Progress is currently reported at monthly meetings with the Assistant Director Council Housing. 3.0 FIRE SAFETY AUDITS 3.1 Audits of Non-facility Managed Premises A programme of fire safety auditing of non-facilities managed premises (Sheltered Housing Schemes and Community Halls) is carried out by the Corporate Health and Safety Unit. Fire safety audits have a different focus to fire risk assessments and seek to verify compliance with staff training requirements and the implementation of testing and maintenance regimes for fire-fighting and detection equipment. 3.2 Construction Design and Management Regulations (CDM) Client Audit - Oversight to Refurbishment Projects Construction Design and Management audits will seek to ensure that fire preventative works included within projects have been assessed by design teams and specifications implemented with evidence available to fire risk assessors. Design teams should have competent fire surveyor input to demonstrate that any modifications or maintenance works to be carried out assess the impact on fire safety (evidence of compliance with Part B of the Building Regulations and that on completion of the works the building will meet the requirements of the Fire Safety (Regulatory Reform) Order). Principal Designers are overseeing and verifying Designers have correctly specified certified materials for replacement and improvement works to buildings, Clerk of works are verifying that specified materials have been used on building facades and fire compartmentation has not been compromised. The Health and Safety files for projects contain all relevant information to enable the fire risk assessor to reappraise the building following refurbishment (third party accreditation schemes for fire doors). 4.0 MAINTENANCE OF FIRE PRECAUTIONS 4.1 Storage of Items in Common Areas Tenants storing belongings in communal areas can pose a real risk to safety. Items can accidently be set alight or be set alight deliberately. In the event of fire, items in hall ways and on stairs can stop people escaping and hinder firefighters. With the exception of our managed Sheltered Housing Schemes, a zero-tolerance policy has been adopted and applied to items stored within communal walkways. Caretakers and Neighbourhoods officers have a daily/weekly presence at high rise sites and deal with unauthorised storage or dumped rubbish either though the tort process or simply by removing it. 4.2 Electrical Riser Cupboards Electrical riser doors are checked daily by Council Housing caretakers. The doors are often found open due to supply companies placing their meters for residents in these cupboards and for those residents with pre-payment meters, access is required for them to top up their credit. Often residents force entry to the cupboards, when their credit runs out. To alleviate 8

9 the problem Council Housing are currently liaising with the London Fire Brigade on the possibility of fitting thumb locks and self-closers to electrical cupboards to ensure they remain locked shut but allow residents access should they require it. 4.3 Security Gates Security gates fitted in the common parts in front of flat front doors presents a danger to both residents and firefighters. Where such gates are discovered our Housing Operations team issue fire safety advice in leaflet form. Security gates will be removed by Enfield Council should residents or leaseholders fail to comply with deadlines imposed. 4.4 Refuse Chutes Refuse chutes frequently become blocked and those accessed for clearance from residents balconies in high rise blocks often remain blocked for an unacceptable period of time. Chutes will need to be cleared of refuse and appropriately decommissioned to eliminate the fire risk posed and replacement receptacles provided. 4.5 Fire Doors Within shared residential buildings the front doors of individual flats in common parts along with communal doors protecting the primary means of escape are an important part of the fire protection for the building, forming part of the protection for the routes used for escape from corridors and staircases. These doors need to be fire resisting, self-closing, close fitting with no gaps, no warping and not damaged in any way. It follows that dutyholders must ensure that fire doors are maintained in an efficient state, in efficient working order and in good repair. The process to be followed when purchasing, fitting and repairing fire doors is set out in appendix 2, the main points being: Fire doors must be sourced from third party certified door manufacturers due to limitations with traditional door testing procedures. Traditional door testing evidence only relates to the sample tested and does not guarantee that every product will be produced to the same quality. A variation in quality can have a direct impact on the performance of the fire door. Third party certification provides the reassurance that fire doors are produced to the same specifications and quality as that originally tested. Once tested the fire door must be manufactured to the same configuration or in line with the approved extended scope. Third party certified schemes (e.g. TRADA and Cerifire) ensure consistency in fire door manufacture via a programme of periodic audit visits to the manufacturing plant and audit testing of sample fire doors taken from the production line. The Fire Safety Regulatory Reform Order requires that fire doors are installed and subsequently maintained correctly if they are to function as intended by manufacturers. In recent years certified third party approved installer schemes have been introduced as a way of demonstrating that those persons undertaking work on fire doors are competent. One of two routes can be followed: a. Use a door installing company with membership (certification) from an approved third-party Fire Door Installer Scheme; BM TRADA (Q-Mark), FIRAS, or b. Use a qualified third party certified fire door inspector to check and certify doors following any work carried out by non-third party approved fire door installers. Third party approved fire door installers are to be specified in contracts to be met either directly or via the companies supply chain. 9

10 The Fire Safety Regulatory Reform Order, requires that the premises and any facilities, equipment and devices provided in respect of the premises are subject to a suitable system of maintenance and are maintained in an efficient state, in efficient working order and in good repair. The frequency of checking or inspecting fire doors is not specified within the Regulatory Reform Order. Guidance documents recommend doors are inspected/checked, dependant on the frequency of use ranging from weekly to annually. A suitable fire door inspection regime for communal fire doors protecting primary means of escape routes and flat entrance doors is therefore required along with the upskilling of staff in fire door inspection. 4.6 Fire Protection and Fire stopping in service risers; between flats and between flats and means of escape routes Fire protection and fire stopping to service risers, and between individual flats, corridors and the means of escape routes prevents the rapid spread of fire throughout blocks and is essential. This is often breached when utility companies (gas, electricity, TV cabling etc) run new services between flats, or between common parts and flats. These breaches are often not resealed correctly with fire resisting material/stopping to maintain the fire protection. It is essential that following any refurbishment or maintenance work that there is confidence that appropriate fire stopping is in place to maintain compartmentalisation. There are two broad options to achieving this: Prior to authorising work that will disturb the fabric of the building, contractors are required to demonstrate that the staff fitting fire-stopping products are competent to do so. Third party certification (e.g. BM TRADA Q-Mark or FIRAS) is a means of demonstrating competency. Post inspection checks are made by competent Council Housing staff. Surveyors engaging in the of work would need to hold a fire stopping Inspection qualification (e.g. Fire Stopping Inspection Diploma accredited by IFSM). Companies would be required to make good any deficiencies or failing this, Council Housing would need to rectify any issues at its own cost. 4.7 Fire stopping barriers within wall cavities and around windows Fire stopping in wall cavities can help to stop the spread of fire from one room to another and is required by Building Regulations. Replacement windows, particularly upvc window units can contribute to fire risk, if they are not properly installed. upvc window units are often not as deep to the original units and create gaps. In the event of fire these gaps can allow fire into the wall cavity, increasing the risk to people in the building. Non-fire resisting upvc panels as part of replacement of window units can contribute to total failure of the windows during a fire. This can allow the fire to pass upwards across the exterior wall to the windows of flats above. Building Regulations require fire stopping around windows. Following the Grenfell Tower fire, five high rise blocks in Enfield were identified as having rain screen cladding that needed to be checked to verify whether Aluminium Containing Material was present. The removal of cladding provided an opportunity to additionally confirm the presence of suitable cavity barriers. One site (Walbrook House) was deemed compliant having additional timber sub-frames supporting and closing the window cavity opening with mineral fibre insulation tightly packed into cavities. At two sites (Dorset & Keys) cavity barriers were found to be missing. The cladding was removed and further remedial works are scheduled to take place in At a further two sites, (Bliss and Purcell), the external fire report made assumptions and recommendations for further checks to be carried out to confirm suitable fire stopping barriers were in place. Verification checks must be completed in

11 4.8 Gas Supplies / Large Panel System Buildings In 1968 there was a gas explosion in an eighteenth floor flat at Ronan Point in Newham which displaced load bearing wall elements and led to a vertical progressive collapse. It was discovered that the buildings construction exhibited fundamental flaws in its design and construction. The design relied on gravity forces and friction to hold all the panels together, which could lead to progressive collapse if one part failed. Following the event, the government at the time wrote to Local Authorities advising of the requirement for urgent appraisal and where necessary, measures for the strengthening of existing blocks and/ or removal of piped gas supplies. It was thought that blocks built after Ronan Point and existing Large Panel System buildings had been strengthened to enable them to carry gas and withstand explosion. However, in September 2017 the DCLG wrote to Local Authorities to raise awareness of the issue again. This was prompted by cracking at a Large Panel System building in Southwark (Ledbury Towers). Structural engineers investigating were unable to locate records of any remedial works. As a precautionary measure, the gas supply to the buildings was turned off. The DCLG recommended that Local Authorities should ascertain whether Large Panel System buildings for which they were responsible had piped gas and if they did, to take action to ensure they could carry piped gas safely. In 2017 Capital Structural Engineers were commissioned by Council Housing to provide expert advice regarding the susceptibility of its buildings to resist disproportionate collapse in the event of a gas explosion. Based on a desk study of information provided by Council Housing, 13 buildings were confirmed as being Large Panel System blocks. 6 blocks were deemed compliant strengthening appeared to have taken place 4 blocks were deemed non-compliant: Coverack Close (3 blocks) the piped gas supply must be removed. Mason House the internal gas supply must be removed but may still require strengthening, 3 blocks required further verification: Cheshire House, Walbrook House and Shepcote House Investigations are likely to suggest the requirement for remedial strengthening works which is unlikely to be viable because of the anticipated expense involved and the proposal to disposal of such buildings as part of Estate Regeneration, within the next couple of years. The latest information from LBE Regeneration Team, suggests the following programme: Shepcot House vacant possession expected early 2020 for demolition Coverack Close (5-20) vacant possession expected early 2020 for demolition Coverack Close (other blocks) vacant possession phased over next 3-5 years Mason House LBE to confirm It is understood that gas safety measures (e.g. gas leak detectors and automatic system cutoff valves) were subsequently introduced in a number of the blocks as a means of controlling and minimising the risk of a piped gas explosion. Gas leak detectors and associated solenoid cut-off valves are not a long term alternative to legislative compliance regarding LPS blocks. Plans for the buildings and their likely future need to be confirmed to allow further decisions to be made on gas supply removal. 4.9 Emergency Lighting 92 blocks of flats are currently without compliant emergency lighting. A plan to install electrical emergency lighting over the next five years has been agreed and signed off by the Assistant Director for Council Housing. To mitigate the risk during this period, photoluminessence way finding systems have been installed within all high rise blocks. 11

12 Emergency lighting installation progress is monitored and reported quarterly at the Corporate Health and Safety Committee Sprinklers Following the Grenfell Tower Fire, Enfield Council committed itself to installing sprinkler systems to all high-rise blocks. Further discussions will be required to develop a plan of prioritisation Smoke Alarms The 1991 Building Regulations made a requirement for new flats to be fitted with smoke detection. There was no legislation specifically requiring the retrospective fitting of fire detection within properties until 2015 when the Smoke and Carbon Monoxide Alarm (England) Regulations were introduced. However, this legislation only applies to private landlords, social landlords were excluded. Following the Lakanal House fire in 2009, the Local Government Association funded national guidance on fire safety in purpose built blocks of flats, including high rise. The guidance was published in 2011 (Fire Safety in Purpose Built Flats). This states that in all flats regardless of the date of construction, there should be an adequate number of smoke alarms as this offers the best method of detecting a fire. The position taken by Council Housing on the fitting of smoke alarms has been progressive and dates back to the 1980 s when they were first installed. More recently, hard wired smoke detectors with rechargeable battery back-up have been fitted within flats as part of any internal works completed under a Decent Homes Project (from 2004/5), every rewire on day to day maintenance works (from 1998) and when a property becomes void (from 2007). A total of 7,897 hard wired smoke alarms had been installed by However, information on their locations was not known. Housing Property Services are working through a programme to confirm that functioning smoke detectors are in place within our tenanted stock. Visits are made as part of the annual (9 months) gas CP12 checks and 5 yearly fixed electrical testing programme where detectors are either confirmed as present or fitted if absent. In view of concerns over levels of compartmentation in street properties converted into flats prior to 1991, arrangements need to be made to provide mixed detection systems i.e. a detector that sounds within the flat but also coverage in the common areas via an interlinked heat detector in each flat in the room opening onto the escape route. Three and four storey properties must be prioritised in the first instance. Communal fire alarm sounders in the majority of the sheltered schemes have been installed and set up in a manner that is contrary to general guidance. The flats correctly have individual self-contained detection systems that only sound within the flat. There is also a 24hr monitored separate smoke detector linked to the remote safe and connected monitoring centre. However, the buildings communal areas have a separate fire alarm system, with fire alarm detectors and sounders located within the communal corridors. A linked heat/sounder detector is also located within the entrance hall of each flat and in some cases they have a siren style sounder. Consequently, whenever the communal fire alarm sounds, whether by test or unwanted activation, residents are subjected to the full sounding alarm causing distress and anxiety to residents. With the exception of one scheme (Cullands which has a total evacuation policy due to lack of compartmentation) all have a stay put policy and they are told to ignore the fire alarm. Guidance recommends that apart from the normal detectors and sounders in the communal areas, if it is decided to install a detector within the entrance hallway of a flat then this should only be a heat detector and not a heat detector sounder. 12

13 4.12 Sheltered Housing Telecare Systems It is long-standing convention that, in sheltered housing, domestic smoke alarms are connected to a social alarm ( Telecare ) system, that results in transmission of alarm signals (from pull-cord and pendant devices as well as smoke alarms) to an on-site scheme manager and a Telecare-equipped alarm receiving centre. Within Enfield, all sheltered housing properties are connected to a Telecare alarm system. The telecare systems originally installed would be classed as a Category LD3 i.e. a smoke alarm in the hall and a heat alarm in the kitchen. Telecare smoke detectors automatically sound an alarm in the home when they detect smoke and also send an alert to the control centre - this is how they differ from standard smoke alarms. For new and upgraded fire detection systems, guidance states that a Category LD1 system would be recommended. Here all rooms are protected with automatic fire detectors (other than toilets, bathrooms and shower rooms) allowing a signal to be transmitted to an alarm receiving centre, regardless of which detector in the flat operates. This level of protection should be provided in refurbishment or electrical re-wiring projects and when existing smoke detection in flats reaches the end of its natural life. Within Enfield s Sheltered Schemes the social alarm systems are monitored by wardens (except non-manned schemes) and out of hours by independence and Wellbeing Enfield Ltd, a company set up within Enfield Council to manage a 24 hour remote monitoring centre known as Safe and Connected. This comprises speech pull cords and smoke detection units all with battery back-up. Safe and Connected is an accredited member of the Telecare Services Association who provide a Code of Practice. When a call is activated, if the warden is on site the scheme will ring onsite to the wardens handset. If the scheme is off-site i.e. no warden, the system will dial off-site to the Safe and Connected control room. This will display on the call handling screen, showing the flat ID number and method of call, i.e. pull cord, pendant or smoke detector. Currently, if a second call is received from the same flat or a different location within the same building a beep will be heard but cannot be accepted as the operator can only accept one call at a time until the call to the flat has been closed. Staff have been instructed to close any existing call and prioritise a smoke detector call. The London Fire Brigade have raised concerns with this type of telecare system where emergency calls requiring immediate assistance could be held in a queue behind less urgent calls call stacking. A Safeguarding Fatal Fire Investigation Group is currently reviewing these arrangements with the Sheltered Housing Manager to determine the best solution to address a system that is becoming unfit for purpose. The solution will need to ensure the prioritisation of smoke and fire related calls Fire Fighting Facilities - Dry Risers Dry risers are used to enable water to be delivered for firefighting purposes to all floors of high-rise buildings. In 2017, 13 high rise blocks were identified as not having a dry riser. Work to install dry risers is planned to be completed in

14 5.0 INFORMATION FOR RESIDENTS The Councils purpose-built blocks of flats were designed and built as self-contained residential units with a stay put principal. Should a fire start in the common parts or in another flat, all residents not directly affected by the fire would be expected to stay put and remain in their flat unless directed to leave by the fire and rescue services. Appropriate fire action notices are displayed in blocks to advise residents of the local evacuation strategy for their block. Residents receive an information pack on taking up a tenancy and periodic fire related articles appear in Housing News (Appendix 3). Neighbourhoods officers maintain a weekly presence on high rise estates and are able to receive any concerns raised by residents. It is recognised that additional fire safety information for residents along with contact details to report concerns will need to be included on the Councils website. 6.0 JOINT LONDON FIRE BRIGADE/LONDON BOROUGH OF ENFIELD FIRE SAFETY PARTNERSHIP BOARD A joint fire safety partnership board meets quarterly to ensure an open two way conversation between the London Fire Brigade and the various teams represented on the board. 14

15 ACTION PLAN (Procedural Actions): No. ACTION RESPONSIBILITY RISK 1 ZERO TOLERANCE APPROACH TO STORAGE OF ITEMS IN COMMUNAL AREAS TO BE EXTENDED ACROSS ALL GENERAL NEEDS BLOCKS 2 WHERE NEW FIRE DOORS ARE TO BE FITTED IN COMMON AREAS, CONTRACTS MUST REQUIRE THAT FIRE DOORS ARE SOURCED FROM THIRD PARTY APPROVED MANUFACTURERS AND THAT THEY ARE FITTED BY THIRD PARTY APPROVED INSTALLERS. DOCUMENTARY COMPLINACE EVIDENCE MUST BE COLLATED AND INCLUDED WITHIN THE HEALTH AND SAFETY FILE 3 ONGOING CHECKS TO BE MADE THAT CONTRACTORS FITTING FIRE DOORS ULTILISE APPROPRIATE THIRD PARTY APPROVED COMPANIES WITHIN THEIR SUPPLY CHAIN. 4 WHERE FIRE DOORS ARE UPGRADED, THIS MUST BE CARRIED OUT BY A THIRD PARTY APPROVED INSTALLER AND EVIDENCE MAINTAINED. 5 LEASEHOLDERS WISHING TO CHANGE THEIR FIRE DOOR MUST MEET THE SAME REQUIREMENTS FOR THIRD PARTY APPROVAL 6 TO COMPLETE THE SMOKE DETECTOR MAPPING PROGRAMME AND CONFIRM PRESENCE IN ALL TENANTED PROPERTIES 7 THE FUTURE OF THE NON COMPLIANT LPS BLOCKS TO BE CONFIRMED. THE INVESTIGATIONS AT CHESHIRE, WALBROOK AND SHEPCOT MUST ALSO BE CONCLUDED. 8 FIRE RISK ASSESSORS TO HAVE ACCESS TO PLANNED PREVENTATIVE MAINTENANCE RECORDS HELD ON A HEALTH AND SAFETY DATA ASSET MANAGEMENT SYSTEM 9 FIRE SAFETY AUDITS TO BE COMPLETED ON SHELTERED HOUSING SCHEMES AND COMMUNITY HALLS 10 SECURITY GATE REMOVAL TO BE EXTENDED TO ALL AND MEDIUM RISE BLOCKS IN ENFIELD NEIGHBOURHOODS LEASEHOLDER / REGENERATION CORPORATE SAFETY NEIGHBOURHOODS 15

16 11 VOIDS TEAM TO ALERT FIRE ADVISORS TO ALL VOIDS THAT BECOME AVAILBLE IN RISE BLOCKS AND FACILITATE ENTRY TO ENABLE SAMPLE TYPE 4 FIRE RISK ASSESSMENTS TO BE COMPLETED 12 SUBJECT TO LFB APPROVAL THUMB LOCKS AND SELF CLOSERS TO BE FITTED TO ELECTRICAL CUPBOARDS BY APPROVED CONTRACTORS. 13 TYPE 3 FIRE RISK ASSESSMENTS TO BE COMPLETED IN THE COMMON AREAS OF RISE BLOCKS. 14 CDM AUDITS TO BE COMPLETED ON MAJOR WORKS PROJECTS 15 UTILITY COMPANIES TO DEMONSTRATE THIRD-PARTY FIRE STOPPING CERTIFICATION BEFORE WORK COMMENCES 16 TO INFORM RESIDENTS INDIVIDUALLY OF THE EMERGENCY PLAN AND FIRE SAFETY MEASURES IN PLACE AT BLOCKS. 17 TO ENSURE THE COUNCILS WEBSITE CONTAINS RELEVANT FIRE SAFETY INFORMATION FOR RESIDENTS 18 TO CONTINUE FACILITATING THE JOINT LFB/LBE FIRE SAFETY PARTNERSHIP BOARD 19 FIRE RISK ASSESSMENTS TO BE STORED ON A CENTRAL HEALTH AND SAFETY ASSET DATABASE 20 TO REVIEW LONDON COUNCILS TEMPLATE COVERING THE PUBLICATION OF FIRE RISK ASSESSMENTS WITH THE INTENTION OF ADOPTING VOIDS TEAM/CORPORATE SAFETY SEREVICES CORPORATE SAFETY CORPORATE SAFETY HOUSING OPERATIONS CORPORATE SAFETY CORPORATE SAFETY CORP SAFETY/ MEDIUM MEDIUM MEDIUM MEDIUM MEDIUM MEDIUM LOW LOW 16

17 ACTION PLAN (Expenditure Actions): No. ACTION RESPONSIBILITY RISK 1 ELECTRICAL EMERGENCY LIGHTING TO BE INSTALLED IN ACCORDANCE WITH THE APPROVED 5 YEAR PLAN. 2 TO COMMISSION FIRE BARRIER VERIFICATION CHECKS BEHIND THE RAINSCREEN CLADDING ON THE RISE BLOCKS BLISS AND PURCEL. 3 TO ENSURE THAT ALL 13 RISE BLOCKS ARE EQUIPPED WITH A DRY RISER 4 TO ENSURE THAT DRY RISERS ARE SUBJECT TO TESTING AS OUTLINED IN BRITISH STANDARDS (A DRY CHECK IN THE WINTER AND A WET CHECK IN THE SUMMER WITH A RECORD/CERTIFICATE BEING ISSUED). 5 ANNUAL ROUTINE INSPECTION OF COMMUNAL FIRE DOORS PROTECTING PRIMARY MEANS OF ESCAPE IN /MEDIUM RISE AND SAMPLING OF RESIDENTS DOORS AS AND WHEN APPOINTMENTS/VISITS ARE MADE 6 TO INSTALL SPRINKLERS WITHIN RISE BLOCKS 7 TO REMOVE AND DECOMMISION REFUSE CHUTES IN RISE BLOCKS THAT ARE ACCESSED BY RESIDENTS BALCONIES 8 TO COMMISSION TYPE 4 FIRE RISK ASSESSMENTS IN /MEDIUM RISE BLOCKS THAT HAVE INTERNAL RISERS FOR WATER PIPES THAT RUN BEHIND ELECTRICAL INTAKE CUPBOARDS CHECKING APPROPRIATE FIRE STOPPING MEASURES ARE IN PLACE. 9 TO UPSKILL INTERNAL STAFF IN FIRE DOOR INSPECTION 10 TO INSTALL MIXED DETECTION SYSTEMS WITHIN CONVERTED STREET PROPERTIES PRIORITISING FOUR AND THREE STORIES 11 SURVEYORS ENGAGED IN POST INSPECTION OF WORK TO BE UPSKILLED TO HOLD A FIRE STOPPING INSPECTION QUALIFICATION 12 RECRUITMENT OF A SECOND FIRE SAFETY ADVISOR COUNCIL PROPERTY HOUSING HOUSING OPERATIONS CORPORATE SAFETY MEDIUM MEDIUM MEDIUM 17

18 13 TO PROVIDE THE CORRECT FIRE ALARM SYSTEMS WITHIN SHELTERED HOUSING SCHEMES TO CORRESPOND WITH THE FIRE EVACUATION STRATEGY 14 TO ENSURE THAT THE TELECARE SYSTEMS SERVING SHELTERED HOUSING ARE INVESTIGATED AND PROGRESS MADE TOWARDS ADOPTING A SYSTEM THAT AVOIDS CALL STACKING HOUSING OPERATIONS MEDIUM MEDIUM 18

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24 FIRE DOOR PURCHASING, INSTALLATION AND REPAIR POLICY CORPORATE HEALTH & SAFETY TEAM May 2018 Enfield Councils blocks of flats operate a stay put fire policy. Consequently, it is important that all flat entrance doors and communal doors are able to prevent a fire spreading throughout the building. The following steps must be adhered to when purchasing, fitting and maintaining fire doors. DEMONSTRATING FIRE DOOR PERFORMANCE (MANUFACTURERS/SUPPLIERS) 1. WHERE NEW FIRE DOORS ARE TO BE FITTED AT FLAT ENTRANCES AND IN COMMON AREAS FIRE DOOR SETS MUST BE SOURCED FROM THIRD PARTY CERTIFIED MANUFACTURERS. Third-party certification verifies a fire door s design, performance, manufacturing process and quality assurance. The company is independently audited to ensure that all the management and manufacturing processes and systems are in place to ensure consistency with the product that was tested. The product is subject to regular scrutiny, with frequent testing taking place on standard products to ensure that the test was not just a once-only event. The two most prominent schemes are: The BWF-CERTIFIRE Fire Door Scheme TRADA s Q-Mark Scheme A list of schemes who manufacture and supply certified product can be downloaded from 2. A COPY OF THE FIRE DOOR MANUFACTURERS THIRD PARTY CERTIFICATE MUST BE OBTAINED. The certificate will detail the doors for which the company holds the certification and must match those supplied. 24

25 3. OBTAIN THE ORIGINAL TEST CERTIFICATE FOR THE FIRE DOORS SUPPLIED The fire door test certificate is the primary means of demonstrating a door has been suitably tested to show its ability to resist the spread of fire and meet BS 476 Part 22 or the European equivalent BS EN 1634 Part 1. The test certificate will explain the scope of the test evidence relating to the door leaf design that has been tested, describing all the components that were fitted in the test. The data sheet also confirms what seals, hinges, closers and other ironmongery are permitted under the certification. However, it provides only a snapshot of the product test. By using compatible third party certified product and suppliers, in accordance with the fire certificate and installation instructions you can prove the fire performance of a fire door assembly or doorset. In the case of the Certifire scheme the fire certificate can be downloaded from the product register: 4. CHECK THAT THE CERTIFICATE REFERS TO THE ACTUAL DOORS SUPPLIED The fire door test certificate will detail the type of door tested, e.g. panel, flush, moulded panel etc. and the batch of doors it corresponds to. Checks must be built into your process to ensure that the specified details on the fire certificate match the supplied door. 5. CHECK THAT THE DOOR LEAF HAS A LABEL OR IS MARKED IN SOME OTHER WAY SHOWING THE CERTIFICATE NUMBER OF THE ORIGINAL DOOR MANUFACTURER All doors must have a unique door number which allows full traceability of the door. The label is normally located on the top of the door. 6. STORE THE ABOVE INFORMATION IN A CENTRAL LOCATION The third party certification and corresponding test certificate should be stored under the address where the door has been installed. 25

26 DEMONSTRATING CORRECT FIRE DOOR INSTALLATION AND MAINTENANCE 1. FIRE DOORS MUST BE FITTED AND/OR MAINTAINED BY THIRD PARTY CERTIFIED INSTALLERS. Installing a fire door correctly is as important as ensuring the door itself is to the correct standard. Fire doors must be fitted or repaired by a door installing company with membership (certification) from an approved third-party Fire Door Installer Scheme. There are various third party accredited schemes, which allow you to view their registers and locate a suitable company. BM Trada Q Mark: OP37 Fire door installation scheme Warrington Fire FIRAS scheme for fire doors A COPY OF THE INSTALLING COMPANIES CERTIFICATION MUST BE OBTAINED. Ongoing checks must be made that contractors installing fire doors use appropriate third party certified companies within their supply chain. 3. THE ADDRESS WHERE THE FIRE DOOR (INCLUDING UNIQUE REFERENCE NUMBER) HAS BEEN INSTALLED MUST BE RECORDED. The unique reference of the door must be recorded against the property address where it was installed and saved with the third party installers certificate of registration. 26

27 REGULAR INSPECTION 1. A SUITABLE FIRE DOOR INSPECTION REGIME MUST BE IMPLEMENTED The Regulatory Reform Fire Safety Order makes it a legal requirement to ensure that fire resisting doors are correctly installed and adequately maintained in order for them to be fit for purpose. A suitable inspection regime must be carried out by competent qualified personnel. (Fire door inspection scheme Communal fire doors protecting primary means of escape routes in high and medium rise blocks should be completed annually to identify necessary repairs or door replacement required. The results of the inspections are to be stored on a central asset database for the block. Flat entrance fire doors in communal areas should similarly be subject to inspection. Officers with appropriate fire door inspection qualifications would be best placed to inspect residents flat doors on the occasions appointments/tenancy visits are made. All fire doors should be treated as identifiable assets and records of inspections maintained. 2. FIRE DOOR REGISTER A fire door register should be maintained to record information and the history about each individual fire door. This provides a central hub for all the relevant information about fire doors within a building. 27

28 LEASEHOLDERS The front entrance doors to leaseholder flats including the frame are deemed to be part of the structure and as such are the responsibility of the Council to maintain/replace. 1. Leaseholders must seek written permission from Council Housing Leaseholder Services before changing the front fire door themselves. 2. Where requests are made, Leaseholder Services are to provide instruction on the standards to be achieved to receive conditional approval: All new fire door sets to flats must be FD30s that meet BS476: Part 22 or BS EN 1634 Part 1 A test certificate for the replacement door must be provided to the homeowner by the contractor supplying/fitting the door confirming that the door set meets this standard. Fire door sets should be manufactured by a third party certified fire door manufacturer and marked in accordance with TRADA s Q-Mark Scheme or BWF s Certifier Scheme. The door must be fitted by a third party certified fire door installer. 3. Discovery of non-compliant leaseholder fire doors The leaseholder should in the first instance be asked to replace the door to the standards described above or elect for Council Housing to carry out the replacement and recharge the leaseholder for the cost. Where the door remains non-compliant then legal action must be pursued. SUMMARY OF FIRE DOOR PROCUREMENT All fire doors, frames, associated ironmongery and other components must be purchased from third party certified manufacturers All doors, frames and associated ironmongery and components must be compatible and detailed in the fire certificate All products must be installed by third party certified installers in accordance with the installation instructions and fire certificate This Fire Door Purchasing, Installation and Repair Arrangement is formally signed off by John Knight, Interim AD of Council Housing. Signed: Date: 28

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