CHIEF OFFICER FOREWORD

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2 CHIEF OFFICER FOREWORD Dear Minister In November 2008 you charged me with the task of examining how to reduce deaths and injuries caused by fire in Scotland. You asked me to consider this in four key areas:- What are the key reasons why Scotland faces a disproportionately high number of primary fires, fire deaths and fire casualties as compared to other parts of the United Kingdom and Europe? What are the key reasons why Scotland suffers an increasing number of secondary fires? What initiatives are in place to combat these issues and what impact are they having locally and nationally to reduce fire-related deaths, injuries and damage? How can the Scottish Government and Local Government work collaboratively to develop and implement good practice to improve community fire safety in Scotland? To assist me with this task, I formed a small study team drawn from Scottish Government and Strathclyde Fire & Rescue. Each member of the team brought with them an area of expertise which added great value to the Study. Over a six month period we have examined the wide range of issues which characterise Scotland s relationship with fire. We have analysed and reviewed evidence and statistics stretching back over 30 years. We have also initiated questionnaires and qualitative fire investigation research. We have interviewed and consulted with the broadest possible range of stakeholders and, in so doing, we now bring our Study to a conclusion. The Study has identified the key challenges facing Scotland and its relationship with fire. It has also identified a range of viable solutions to these problems. As with many studies of such a complex nature, the solutions to the challenges facing Scotland lie with all of us engaged in the community safety arena and with a large number of agencies. Our report is delivered at a time of unprecedented economic challenge. It was important that the Study reflected on issues of resource 1

3 and capacity in recognition of the anticipated long-term economic conditions. The Study has not however, held back from making any recommendations solely on economic grounds. In our examination of these issues we have also taken views from those employed in both Local and National Government across Scotland, including the Convention of Scottish Local Authorities. A number of the recommendations contained within the report build even more cohesion into the relationship between Local and National Government in Scotland. On behalf of the team, may I thank you for issuing us with the challenge of examining how to reduce deaths and injuries caused by fire in Scotland in a way that has not been undertaken for many years. We look forward to working with those tasked with the responsibility for taking forward the recommendations contained within this Study and to working with all agencies across Scotland with a view to making Scotland safer. We undertook to provide you with a report which was balanced, readable and useable. We have used our best endeavours to provide just that. In that spirit, we therefore convey the outcomes of our Study to you and in so doing, trust that it finds you, as it has left us. Yours sincerely Paul Stewart Brian P Sweeney John McGarvey Cathy Barlow Kirsty Bosley Brian P Sweeney QFSM, D.Univ, MA Chief Officer 2

4 EXECUTIVE SUMMARY This report provides an overview of the main issues identified from the research conducted by the Scottish Community Fire Safety Study. The Scottish Government noted a single year increase of 62% in fire deaths across Scotland for the fiscal year 2007/2008. The Study looked at issues such as the reasons why Scotland suffers higher rates of fire deaths, accidental dwelling fires and secondary fires when compared with the rest of the United Kingdom. In addition, the Study looked at what community safety activity was already ongoing across Scotland s eight Fire and Rescue Services and how National and Local Government were working collaboratively to develop and implement good practice. The Study has identified a range of issues that play a significant role in the number of fire deaths occurring in Scotland. Health issues such as alcohol consumption, smoking prevalence and mental health are all recorded as key contributory factors. High levels of deprivation and other social issues such as the number of people living alone, the projected increase in the number of older people and the number of people receiving social care or care in the community are also recorded as key contributory factors, most of which are recorded at higher rates than the rest of the United Kingdom. Housing and Social Work Departments mirror those faced by the Fire and Rescue Services. Taking into account the issues and challenges faced by different agencies across Scotland, the requirement for all agencies to work in an efficient and co-ordinated way is highlighted. The Scottish Fire and Rescue Services, together with the Scottish Government, are currently working hard at driving down the number of fire incidents. Their success is evident in the long-term reductions in fire deaths, accidental dwelling fires and secondary fires. Whilst there is still a lot of hard work ahead, the Scottish Fire and Rescue Services, along with key partner agencies, are to be congratulated for the reductions made thus far and their hard work to date. It is clear from the evidence gathered on issues such as health and social demography, that a more co-ordinated and targeted multi-agency approach is required if further reductions in fire incidents are to be made in Scotland. This report is backed up by substantial research. Full details of the supporting evidence will be published late in Turning to the issue of governance of community safety in Scotland, the Study has identified an extremely busy landscape both within the fire sector and across the 32 Community Planning Partnerships. This report will highlight issues such as information sharing, terminology, partnership working arrangements and the lack of involvement of the Third (voluntary) Sector as being key challenges faced by all agencies involved in making Scotland a healthier and safer nation. In addition, within the community planning arena, the Study has identified challenges surrounding the lack of emphasis on strategy, consistency, and the use of proper evaluation methods. The challenges highlighted by the Study are not unique to the Fire and Rescue Services. Many issues faced for example, by colleagues in Health Boards, 3

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6 CONTENTS 1. Introduction 6 Context 6 Methodology 6 Scotland s Profile 7 2. How Does Scotland Compare? 8 Europe 8 United Kingdom 8 Fire Deaths 8 Fire Deaths and Response Times 10 Accidental Dwelling Fires 10 Secondary Fires 11 Summary of How Scotland Compares Scotland In Context 14 Fire Causes 14 Room of Origin 15 Health 16 Alcohol 16 Smoking 17 Mental Health Issues 17 Housing Composition 18 Deprivation 18 Case Study - Fatal Fire 20 Secondary Fires 21 Summary of Scotland in context What Are We Doing Now? 23 Partnership Working 23 Information Sharing 24 Community Safety Initiatives 25 Home Fire Safety Case Study 26 Deliberate Fire Reduction Case Study 26 Youth Engagement 26 Youth Engagement Case Study 27 School Education 28 Community Safety Commitment 29 Fire Protection in The Home 30 Smoke Detection 30 Linked Alarms 31 Sprinklers 31 Summary of What Are We Doing Now? The Way Ahead 33 Joint Working 33 Community Safety Landscape 33 Terminology 34 Multi-Agency Approach 34 Information Sharing 35 Multi-Agency 35 Single Shared Assessment 36 Health and Housing 36 Scottish Fire and Rescue Services 37 Voluntary Agencies 37 Evaluation 39 Resources 40 Skills 41 Smoke Detectors and Sprinklers 42 Reduced Ignition Propensity Cigarettes 43 Older People 44 A Safer Scotland? Conclusion Summary of Recommendations References Scottish Community Fire Safety Study Consultations 63 5

7 1. INTRODUCTION Context Fergus Ewing MSP, Minister for Community Safety, commissioned the Scottish Community Fire Safety Study in November The Study was undertaken in response to figures published in Her Majesty s Fire Service Inspectorate for Scotland, Scottish Fire Service Annual Report , which reported a 62% rise in the annual number of fire deaths from the previous year. This statistic was compounded by other reports suggesting that those living in Scotland were at greater risk from fire than other communities across Europe, and Scotland was reportedly showing a consistent and disproportionately high number of fire deaths, fire casualties and fire incidents when compared with the rest of the United Kingdom. Chief Officer Brian Sweeney, of Strathclyde Fire & Rescue, was asked to chair a short-life Study to examine how to reduce deaths and injuries caused by fire in Scotland. The Study was based at Strathclyde Fire & Rescue Headquarters in Hamilton and included representation from both Strathclyde Fire & Rescue and the Scottish Government. The terms of reference allocated to the Study were to:- Identify why Scotland faces a disproportionately high number of primary fires, fire deaths and fire casualties when compared to other parts of the United Kingdom and Europe Consider why Scotland suffers a high number of secondary fires Review the initiatives currently in place to combat these issues and determine the impact they are having locally and nationally to reduce fire-related deaths, injuries and damage Timescales for the Study were agreed as being from December 2008 to June 2009 with an update required for Scottish Government via the Ministerial Advisory Group meeting on 16 June It was agreed the final report for the Study be published in late summer Methodology The Study utilised a number of research methods to fulfil the requirements of the terms of reference. This section outlines the methods used and highlights any limitations on the data resulting from the use of these methods. Structured interviews based around a defined set of questions were held with community safety representatives from all eight Scottish Fire and Rescue Services. In addition, the Chief Officer and appropriate Elected Members from each Service were engaged through meetings and formal discussions. Formal interviews and visits were held with seven Fire and Rescue Services located elsewhere within the United Kingdom. These included Northern Ireland, North Wales, West Midlands, Kent, Merseyside and Cheshire Fire and Rescue Services and London Fire Brigade. Formal interviews were also conducted with representatives from a wide range of partner agencies. These included Scottish Government, the Convention of Scottish Local Authorities, local authorities, Community Planning Partnerships, Health, Social Services, Education, Police, Representative Bodies and the Third Sector. In order to ensure a balanced approach and to obtain the broadest possible range of opinions, consultation was undertaken with individuals ranging from practitioner to senior and strategic management levels. Determine how Scottish Government and Local Government can work collaboratively to develop and implement good practice to improve community fire safety in Scotland. 6

8 Opinion Research Services Ltd were commissioned to undertake three written surveys examining community safety. These were distributed to three groups: Scottish Fire and Rescue Services, United Kingdom Fire and Rescue Services and over 300 external agencies. All of Scotland s Fire and Rescue Services responded, with 28 of United Kingdom Fire and Rescue Services and 50 external agencies also responding. It should be noted that the Study received a high degree of support and contributions despite the short timescales applied. This can be considered as a valid sample size for a study of this type. A three-year Fatal Fire Survey analysing all fire deaths in Scotland from April 2005 to March 2008 was undertaken. In total, 177 fire deaths were categorised, of which 131 were recorded as accidental dwelling fire deaths and analysed as such The country covers a wide and diverse geographical area, including the major cities of Glasgow, Edinburgh, Aberdeen and Dundee. It also encompasses vast rural areas including the Highlands and over 790 islands off the Scottish coast. Each local authority and Fire and Rescue Service, face a wide range of challenges associated with the delivery of community fire safety at both a national and local level. Scotland has a multi-cultural society living within a mixture of urban and rural settings. Challenges are often complicated by a number of factors including; contrasts of population density and sparsity, of overcrowding and isolation, of deprivation and wealth, and, a range of other issues A review of published United Kingdom and international fire statistics, combined with socio-demographics, financial data and trends was conducted. In addition to the research methods outlined above, a literature review was undertaken to challenge or support the emerging findings of the Study. Scotland s Profile 1.11 Scotland is served by eight Fire and Rescue Services located across 32 local authority areas serving a population of approximately 5,168, Scotland s Fire and Rescue Services, as we know them now, were formed in 1975 following a Local Government reorganisation. Since then, Scotland s Fire and Rescue Services have maintained their existing boundaries however, local authority boundaries changed following a further reorganisation in Scottish Fire and Rescue Services employ 9,360 staff including; full and part-time operational personnel, volunteer, control room and support staff million per year is spent on the direct delivery of the services provided by the Fire and Rescue Service in Scotland 3. SCOTTISH 1 General Register Office for Scotland (2008) Figures as at June 2008 [Internet] Available from < 2 Her Majesty s Fire Service Inspectorate for Scotland (2008) Annual Report Edinburgh, Scottish Government 3 Scottish Fire and Rescue Services (2007/2008) Annual Reports 7

9 2. HOW DOES SCOTLAND COMPARE? 2.1 In order to provide an accurate picture of Scotland s relationship with fire, statistical data was compared on a European, United Kingdom and Scotland wide basis. The Study therefore sought to determine if Scotland does have a unique problem in relation to fire and if present, the extent to which this problem exists. Europe deaths. Having discussed recording methods with Netherlands Fire and Rescue Service officials, the Study found that unlike the Fire and Rescue Services in Scotland, fire deaths are often only recorded where the death is confirmed at the incident scene. Across the Netherlands, any casualties removed from dwellings, who die in a workplace incident or when in medical care, are not included in fire death statistics. In addition, fire deaths resulting from road traffic collisions are not recorded. The comparison therefore cannot be considered to be like for like. 2.2 When considering the perception of whether Scotland suffers a disproportionately high number of fires, it was important for the Study to extend its research to include other European countries. This was done to gain a more comprehensive understanding of the context. In this sense, the Study examined whether or not living in Scotland placed its population at higher risk from death and injury, caused by fire, than other European comparators. 2.5 From the evidence available through discussions with the European Union Fire Safety Network and information provided by World Fire Statistics , Scotland s exact performance is difficult to benchmark. However, looking at the data available and Scotland s relative position, it is likely to occupy mid range status being neither best nor worst in comparison with other European countries In considering this perceived problem, Scotland s fire statistics have been described as amongst the worst in Europe. However, contradictory reports place Scotland in a mid table position when compared to other European countries 4. It is important to note that making direct comparisons across Europe is difficult due to the inconsistent way in which data is defined and recorded across the continent. An example of such inconsistency can be found when comparing the Netherlands with Scotland. With a population over three times that of Scotland, the Netherlands records approximately one-third the rate of fire United Kingdom While direct comparison across Europe is difficult, a more accurate and consistent picture can be obtained by benchmarking with other areas of the United Kingdom. All parts of the United Kingdom use a central recording system for fire data allowing effective comparison. Fire Deaths Prior to examining the nature of Scotland s relationship with fire and fire deaths, it should be noted that patterns of fire deaths across the last 20 years have demonstrated considerable reduction. Whilst all fire deaths are regrettable, Scotland s Fire and Rescue Services and others involved in community fire safety must be commended on their significant progress in reducing these events over many years. 8 SCOTTISH 4 CTIF International Association of Fire and Rescue Service (2006) Fire Statistics 2006, No.11 [Internet] Available from < 5 Communities and Local Government (2007) Fire Statistics United Kingdom, 2005 [Internet] Available from <

10 2.8 Number of fire deaths per annum The sustained reductions, shown in Figure 1, have been achieved through a combination of community fire safety activities and the introduction of various pieces of legislation relating to fire safety in the home. Examples of legislation include the Furniture and Furnishings (Fire Safety) Regulations (1988) and guidance on the recommendation to fit hard-wired smoke detection in all new build and converted domestic dwellings through revised Scottish Building Regulations (1993). In addition, Scottish Fire and Rescue Services have been active for many years in enforcing fire safety regulations in non-domestic premises, formerly through the Fire Precautions Act 1971 and more recently through the Fire (Scotland) Act Figure 1 includes a trend line, which highlights a sustained reduction in fire deaths and an approximate decline of almost 50% over the observed time period Figure 1: Fire Deaths in Scotland * When comparing fire deaths, Scotland consistently reports a higher rate of deaths than the rest of the United Kingdom. Looking at Figure 2, Scotland has recorded approximately double the rate of fire deaths than the rest of the United Kingdom across recent years. Rate of accidental dwelling fires deaths per 1,000,000 population UK excluding Scotland Scotland 2001/ / / / / / /08* * Provisional Figure 2: Rate of Fire Deaths in Accidental Dwelling Fires per 1,000,000 Population 2001/02 to 2007/08, Scotland and other parts of the UK 7 The recording of fire deaths can be statistically volatile due to the relatively low numbers involved. This is highlighted in the 2004/05 figures, which show a high rate of fire deaths in Scotland due to a single event in a nursing home where 14 people lost their lives. In order to provide a more balanced picture and to allow for more accurate profiling, it is the view of the Study that fire death statistics are too volatile to be considered in isolation over any single year period. Fire deaths should be compared over a three year period, and the rate of fires and fire casualties should be included in any annual measure of performance. SCOTTISH 6 Scottish Government (2000 and 2006) Fire Statistics Scotland 2000 [Internet] Available from < Fire Statistics Scotland 2006 [Internet] Available from < * The 2007/08 data is from Her Majesty s Fire Service Inspectorate for Scotland - Annual Report and is provided only for illustration [Internet] Available from < 7 Communities and Local Government (2009) Fire Statistics Monitor Quarter 2: 1 July June 2008 [Internet] Available from < The estimates of the population mid-2006 are sourced from the Government Actuary s Department (GAD) [Internet] Available from < 9

11 2.11 Fire Deaths and Response Times A number of observations were reflected to the Study highlighting the potential relationship between fire deaths and the response times of Scottish Fire and Rescue Services. A variety of reports have examined these issues including a recent Communities and Local Government Review of Fire and Rescue Service Response Times 8. This report highlights increased response times in England only and makes observations in relation to the timing of these increased responses and the production of Integrated Risk Management Plans and increased community fire safety activities. The report did not examine Scottish Fire and Rescue Service s response times Accidental Dwelling Fires Scotland has witnessed a downward trend in relation to accidental dwelling fires, and the Fire and Rescue Services are contributing towards these sustained reductions. The information in Figure 3 does however provide evidence to highlight the fact that Scotland suffers a higher rate of accidental dwelling fires when compared with the rest of the United Kingdom. Having discussed the volatility of fire death statistics, accidental dwelling fire data provides a more stable base for analysis due to the higher number of incidents across a single year period The relationship between the number of people who may lose their lives in accidental dwelling fires and the speed and weight of the first attending appliances is a very complex one. The relationship is in itself dependent on a number of variables such as the timeframe from ignition to discovery; the timeframe between discovery and the first call to the Fire and Rescue Service; and finally the time between the first call to the Fire and Rescue Service and the arrival of the first attending vehicle. Much of the work which the Study has evidenced in relation to this issue is based on predictive modelling. In order to establish whether or not the nature of this predictive modelling is relevant in Scotland, more research would require to be undertaken to examine this relationship. Rate of accidental dwelling fires per 1,000 population / / / / / /07* 2007/08* * Provisional Figure 3: Rate of Accidental Dwelling Fires per 1,000 Population 2001/2 to 2007/08, Scotland and other parts of the UK 7 UK excluding Scotland Scotland 8 Communities and Local Government (2009) Review of Fire and Rescue Service Response Times. Communities and Local Government Publications, 10 SCOTTISH

12 Secondary Fires Secondary fires are defined as those which would involve refuse, derelict buildings, derelict vehicles, grass and heathland. In Scotland, these pose a problem and although not generally regarded as a life risk, secondary fires result in significant cost to our communities. They also cause considerable damage to Scotland s environment and are often a result of illegal or antisocial behaviour activities. As seen in Figure 4, a similar trend is recorded when comparing Scotland with the rest of the United Kingdom in that, as a nation, Scotland suffers from higher rates of secondary fires. Summary of How Scotland Compares This section of the report has identified that Scotland, when compared with the rest of the United Kingdom, experiences higher rates of fire death, accidental dwelling fires and secondary fires. It should be noted however that Scotland is witnessing similar downward trends consistent with the rest of the United Kingdom. It is the view of the Study that Scottish Fire and Rescue Services require to establish appropriate performance targets in relation to reducing the number of fire deaths, injuries, accidental dwelling fires and incidences of secondary fires in order that future community safety strategies and initiatives can be reviewed and monitored accurately. The setting of such targets would assist in focusing Scottish Fire and Rescue Services towards targetting community safety activities in a more efficient way. The Study acknowledges there may be issues around target setting however, would recommend this be further researched by those tasked with implementing the recommendation. Rate of secondary fires per 1,000 population / / / / / / /08* * Provisional Figure 4: Rate of Secondary Fires per 1,000 population, 2001/2 to 2007/8, Scotland and other parts of the UK 7. UK excluding Scotland Scotland 11

13 The comparison of fire deaths, the number of accidental dwelling fires and the number of secondary fires also provide evidence which enables further analysis. Whilst Scotland experiences a rate of fire death which is double the United Kingdom average, this is not the case with accidental dwelling fires and secondary fires where the differential is between 30% and 35%. Therefore in Scotland, if there is a fire, people are more likely to die in it than in the rest of the United Kingdom. This will be examined at a later point in this report. Whilst the Study acknowledges that fire deaths will always be the headline category in relation to Fire and Rescue Service reporting mechanisms, it is the opinion of the Study that fire deaths statistics should be compared over a longer period of time to ensure that they are more reliable and valid. They also require to be considered in the context of the number of accidental dwelling fires in order to provide a more complete picture. Recommendations: 1. Scottish Government support the work of other European Union countries to share consistent information regarding the recording of fire statistics. 2. The establishment of national performance targets for Scottish Fire and Rescue Services in relation to fire deaths, casualties and all incidence of fire. 3. Future reporting on fire fatalities be compared over a 3 year period. 12

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15 3. SCOTLAND IN CONTEXT In the previous section we compared Scotland with Europe and the rest of the United Kingdom. Having shown that Scotland has a higher rate of fire incidents than the rest of the United Kingdom, the Study looked at the contributory factors involved in fire incidents and in particular those which made Scotland different from the rest of the United Kingdom. The Study has found that within this higher rate of fire incidents are a number of variables, these will be considered in this section of the report. As highlighted in Paragraph 1.9, Scotland s Fire and Rescue Services provided detailed reports of every fire death over a three year period for the Fatal Fire Survey conducted as part of the Study. This survey provided a range of information which began to paint a picture in terms of the key issues which characterise a fatal fire and those factors which may contribute towards making Scotland different from other parts of United Kingdom. Fire Causes Of the 131 accidental dwelling fire deaths analysed in the Fatal Fire Survey, the single highest identified cause of fire was attributed to smokers materials, followed by cooking appliance. Combining these two causes equate to 63% of all accidental dwelling fire deaths 9. Other identified causes include electrical, candles, heaters and open fires. Table 1 shows a key finding of the Fatal Fire Survey was that well over half of all fire deaths across Scotland had alcohol recorded as being a contributory factor. SCOTTISH COMMUNITY FIRE SAFETY STUDY FATAL FIRE SURVEY 2009 Cause Number Alcohol Involvement Smokers Materials Cooking Appliance Electrical Candle 7 5 Electrical Heater 2 1 Open Fire 2 2 Other 4 3 Unknown 14 8 Total Table 1: Fire causes and alcohol involvement 9 9 Scottish Community Fire Safety Study (2009) Fatal Fire Survey 14 SCOTTISH

16 3.5 Room of Origin The Study, in its examination of fire deaths, also examined the location within the dwelling where the fire started. These locations are highlighted in Table 2. This information also adds to the build up of a picture of the profile of Scotland s fire deaths. It is important to consider the nature of human behaviour when deciding how best to provide protection and education to mitigate the effects of fire. Aligning the room of origin in Table 2 to the causes in Table 1, it is possible to draw some obvious conclusions. The highest causal factor associated with fire death is smoking, the most common location of fire origin being the living room. Similarly, there is a high and observed correlation between cooking and fire origin in kitchens. It would be reasonable to conclude that a relationship exists between the lifestyle habits of individuals and the number of fires which start in the living room, kitchen and to a lesser extent the bedroom. SCOTTISH COMMUNITY FIRE SAFETY STUDY FATAL FIRE SURVEY 2009 Room Of Fire Origin Number of Incidents Living Room 59 Living Room/Bedroom 3 Kitchen 37 Bedroom 22 Porch/Hallway 7 Stair 1 Cupboard 1 Loft 1 Total 131 Table 2: Fire Deaths - Room of Origin 9 15

17 Health 3.6 Alcohol The effects of high alcohol consumption are not unique to Scotland. Across Europe alcohol is witnessed as a contributory factor in fires and can be regarded as a major social problem. The effects of alcohol also have an impact on other agencies and can therefore be referred to as a multi-agency issue and one that Fire and Rescue Services cannot tackle alone. 3.9 The Study found that due to the lack of information recorded in relation to the involvement of alcohol at a fire death incident, the full extent of its involvement with fire was not made subject to accurate reporting. The number of accidental dwelling fire deaths with an alcohol involvement is therefore likely to be under reported. 3.7 In Scotland, alcohol consumption is regarded as a social norm. The Scottish Government discussion paper on alcohol, published in 2008 suggests that up to 50% of men and 30% of women may be exceeding weekly limits 10. Within the United Kingdom, Scotland has the highest alcohol-related death statistics. For both male and females from , Scotland suffered alcoholrelated deaths that were consistently higher than all other United Kingdom countries, with male alcohol-related deaths in Scotland more than double the overall United Kingdom rate 11. Looking at Scotland in the wider context, the country is reported to have the eighth highest alcohol consumption in the world according to statistics on alcohol sales Alcohol poses cultural and social challenges. The country experiences high levels of alcohol consumption which Is may help to account, at least in part, for the higher information number of fires and fire deaths experienced effectively recorded in Scotland. at fire incidents? 16 SCOTTISH 10 Scottish Government (2008) Discussion paper setting out our strategic approach to tackling alcohol misuse [Internet] Available from < 11 National Statistics (2007) Health Statistics Quarterly 33 [Internet] Available from < 12 BBC News (2009) Scots rank high on drink levels [Internet] Available from <

18 Smoking In Scotland, smoking as a cause of accidental dwelling fires, is attributed to less than 8% of incidents however, when a fire death occurs, the figure rises to 41% 9. In the period between 1996 and 2006 cigarettes, as a probable cause of accidental dwelling fire death, claimed almost 1,600 lives in the United Kingdom 13. Furthermore, cigarettes are recorded as a probable cause in one third of all fire deaths and most non-fatal injuries in the majority of European countries 14. Recent estimates of smoking prevalence among adults in Scotland are that 24.7% of adults aged 16 and over were cigarette smokers in 2007, this equates to over one million adults 15. Smoking prevalence across the United Kingdom has steadily declined over the last 30 years. Scotland has mirrored this trend however, it has consistently remained slightly higher than the rest of the United Kingdom. Whilst smoking prevalence in Scotland is slightly higher than other areas in the United Kingdom, the rates of lung cancer are much higher. Scottish lung cancer mortality in both men and women has consistently been the highest (or close to the highest) in Western Europe since These figures would suggest that, despite only a slightly higher smoking prevalence, people in Scotland are heavier smokers with subsequent detrimental effects upon their health. This may also contribute to Scotland s higher rate of fire deaths when compared to the rest of the United Kingdom. The challenges around smoking require to be tackled in a co-ordinated way by a wide range of agencies Mental Health Issues In addition to alcohol and smoking related health issues, wider issues such as mental health and cognitive impairment are significant when discussing fire related deaths in Scotland. Referrals from Mental Health Units and a growing reliance on policies such as Care in the Community will provide challenges for a number of agencies. Of the 177 fire deaths across the Fatal Fire Survey, 16 were recorded as suicide. As an indicator of mental health, Scotland has the highest rate of suicide in the United Kingdom 17. During interviews with Health Boards, issues such as cognitive impairment, linked to the growing number of older people, will bring real challenges, particularly given the reducing proportions of younger people who are likely to be available to care for them in the future. National Fire and Rescue Service incident data systems do not currently record mental health issues at fire incidents; this leads to an issue of non reporting on the extent to which there is a relationship between mental health and fire. The Study acknowledges that information relating to mental health issues may be difficult to record at fire incidents due to sensitivity around the information available. How can Fire and Rescue Services identify those most at risk? SCOTTISH 13 Scottish Government (2006) Statistical Bulletin Crime and Justice Series. Fire Statistics Scotland, 2006 [Internet] Available from < 14 Office of the Deputy Prime Minister (2005) Fire Statistics, United Kingdom Sighted in RIP Coalition Welcome to the Campaign for reduced Ignition Propensity Cigarettes [Internet] Available from < 15 Scottish Public Health Observatory (2009) Tobacco use: key points [Internet] Available from < 16 Whyte B (ISD Scotland) (2006) Scottish Mortality in A European Context , An analysis of comparative mortality trends. Edinburgh, ScotPHO 17 Scottish Public Health Observatory (2007) Suicide: key points [Internet] Available from < 17

19 Housing Composition Deprivation Trends were identified in relation to the occupancy of dwellings where an accidental fire death had occurred, with 53% of incidents occurring in single occupancy households and 51% occurring in flatted accommodation. In addition, 40% of all accidental dwelling fire deaths occurred within social rented housing 9. The number of households in Scotland is continuing to increase and the composition of households is changing. Between 2006 and 2031 it is predicted that the number of households will increase by 19% to 2.7 million 18. This prediction is made on the basis that Scotland has an ageing population, there will be more people living alone and is not based on any projected increase in population The Fatal Fire Survey provides evidence that social deprivation is related to an increased risk from fire. Subsequently, the frequency of fire-related injury or deaths is higher among lower socio-economic groups 20. Results from the Fatal Fire Survey indicate a relationship exists between fire deaths and living in severe deprivation. Of all the accidental dwelling fire deaths, 31% occurred in the Scottish Index of Multiple Deprivation 15% most deprived areas. This demonstrates that people in the poorest areas of Scotland are more likely to die in a house fire than those living in more affluent areas In consideration of the information above and given the profile of fire death victims, the projected change in housing composition in Scotland has the potential to lead to an increase in accidental dwelling fire deaths The Study found that 47% of all accidental dwelling fire death victims were aged 60 or over. Scotland s older population is projected to increase significantly towards the year The numbers of people aged between is predicted to increase by 40%. The numbers of people aged 75 and over is predicted to increase by 81% 19. It is important that Scotland s Fire and Rescue Services take note of the projected age and housing composition changes when developing future community fire safety strategies. 18 SCOTTISH 18 General Register Office for Scotland (2008) Household Projections for Scotland A National statistics publication for Scotland [Internet] Available from < 19 Scottish Executive (2007) High Level Summary of Statistics Population and Migration Source 2006-based national population projections [Internet] Available from < 20 Office for the Deputy Prime Minister, Arson Control Forum (2004) Social Exclusion and the Risk of Fire

20 The Study also revealed that when considering accidental dwelling fires and secondary fires, the percentage of incidents located within the Scottish Index of Multiple Deprivation 15% most deprived areas is almost 50% 21. This clearly shows a direct relationship exists between fire incidence and areas of severe deprivation. At a national level, Scotland is relatively more deprived than the rest of the United Kingdom and a number of reports and research documents have been produced which support this view. The Carstairs Model was used in a recent report as being a more specific and reliable indicator in that it measures deprivation factors, in a consistent way, across the United Kingdom. Using the Carstairs Score to measure social and economic deprivation, Figure 5 compares the levels of deprivation between Scotland and England. The graph shows deprivation areas as deciles, for example, decile one indicating the most affluent areas whilst decile ten indicates the most deprived areas. Figure 5 clearly shows a higher percentage of Scotland s population located in the most deprived deciles, reflecting that Scotland has more severe deprivation than England. Given the direct correlation which was observed from the outcomes of the Fatal Fire Survey, which showed a high percentage of incidents within Scotland s most deprived areas, this offers considerable insight into the reasons behind the disproportionately high levels of fire related incidents in Scotland Population (%) England Scotland Carstairs Decile most affluent most deprived Figure 5: Carstairs deprivation profile, Scotland and England, The Carstairs Model and the Scottish Index of Multiple Deprivation are measures of general deprivation. The Study has utilised the Carstairs Model due to its ability to provide comparisons across the United Kingdom. It does however acknowledge the limitations in the number of deprivation factors utilised in the model. Using specific factors that have been shown to be linked with fires it may be viable to create a fire specific domain for inclusion in the Scottish Index of Multiple Deprivation. 21 Communities and Local Government (2007) Fire Service Emergency Cover Incident Data Reid, James (2009) Excess mortality in the Glasgow conurbation: exploring the existence of a Glasgow effect University of Glasgow SCOTTISH 19

21 Case Study - Fatal Fire This case study details the circumstances surrounding a particular fire incident analysed as part of the Fatal Fire Survey. Although not all fire death incidents have such a high number of issues identified, the majority do record multiple factors similar to those included below. The deceased was an adult female aged 82. She lived alone within a flat located in a terraced tenement block, was a known smoker and had consumed alcohol prior to the incident. The dwelling was in a Scottish Index of Multiple Deprivation 15% most deprived area. Due to mental health and social care issues the victim received three visits per day from her social care provider, these visits were recorded in the home care visitors book.the dwelling was fitted with a working smoke detector that operated at the time of the incident. Post fire investigations revealed numerous cigarette burn marks to carpets, furnishings and several items of the victims clothing. The burn marks were recorded as being a result of previous incidences of the careless use or disposal of smoking materials. The cause of fire was accidental, due to the victim placing partially lit smoking materials into a plastic waste bin. Multi-agency working and information sharing will be covered in more detail later in this report however, it is the view of the Study that had the Fire and Rescue Service been working more closely with other agencies such as Mental Health Units or Social Care Services then measures could have been taken to prevent this tragic event occurring. Examples of effective intervention at an organisational or partnership working level could have included training for Social Service staff on risk recognition, for fire occurring within the home or, a referral system being in place to notify the Fire and Rescue Service in order that a Home Fire Safety Visit may have been conducted. General advice and guidance provided at operational level could have included the provision of additional smoke detection, advice on the appropriate disposal of smoking materials and the provision of a metal non-combustible waste bin. Further investigation may also have taken place into linked alarm systems, the provision of fire retardant clothing/bedding and any other issues identified as being relevant to the victim. 20

22 Secondary Fires The majority of secondary fires involve refuse and occur within the poorest areas of our communities. Some 46% of all secondary fires occur in the Scottish Index of Multiple Deprivation 15% most deprived areas 21.Secondary fires are a severe problem in Scotland s cities and towns, however, rural parts of Scotland also suffer from fires involving areas of heathland, grassland and forestry. The visible scars left by secondary fires can blight local communities, cause considerable harm to the environment and encourage other forms of anti-social behaviour which, in turn, can create a downward spiral of events leading to more serious fires and criminality. In addition, secondary fires tie up Fire and Rescue Service resources in pointless potentially dangerous activities, preventing Scotland s Services attending more serious incidents or from carrying out other duties. The Economic Cost of Fire report published in 2004, estimated the cost of each Fire and Rescue Service response for a secondary fire was 2, Taking into account the average of over 30,000 incidents attended per annum, the Scottish Fire and Rescue Service costs amount to almost 61million. The true cost of a secondary fire is however difficult to record accurately. The cost is likely to be significantly higher than solely Fire and Rescue response costs. The cost of replacing items such as wheelie bins, uplifting fire damaged derelict vehicles and general clean up costs are not recorded by the Fire and Rescue Service however, will require to be borne by local authorities, other agencies and the general public There is an environmental impact associated with all fires however, given the number of secondary fires occurring in Scotland, consideration must be given to the longer-term damage to Scotland s environment. Secondary fires cause damage to Scotland s environment through the emmision of smoke and other toxic gases. In addition, water run off can enter water courses and surrounding ground causing further environmental damage. The majority of secondary fires are set deliberately and may be classified as criminal acts. They are however rarely recorded as offences. During consultations with Scottish Fire and Rescue Services the Study found inconsistencies in the reporting of secondary fires to Scotland s Police Forces. It is the view of the Study that further research and discussion is carried out in order to raise awareness of secondary fires in Scotland and to have them appropriately recorded to enable effective demand reduction strategies and performance targets to be put in place. 23 Office of the Deputy Prime Minister (2004) The Economic Cost of Fire for Annex A London, ODPM SCOTTISH 21

23 Summary of Scotland in Context This section of the Study has provided an insight into the causes of fire in Scotland and the room in which a fire is most likely to occur. It has also examined Scotland s relationship with alcohol, smoking and identified some challenges in relation to mental health issues and an increasingly older population. In examining Scotland s socio demographics, including the Scottish Index of Multiple Deprivation, the Study has drawn direct comparisons between fire deaths, fire activity levels and social deprivation. The Study has also provided observations into existing and future housing composition with observed high levels of incidents in single occupied households and flatted premises. These observations are considered to be consistent across all aspects of fire related behaviour in Scotland. It is evident from the Study that a large number of these social and cultural aspects of Scottish life will not be addressed by a Fire and Rescue Service working in isolation. Indeed, the Study points towards an existing and increasing reliance on the use of multi-agency initiatives in order to tackle Scotland s challenges. Recommendations: 4. Additional information is captured at fire incidents, particularly in relation to contributory factors. 5. Establish a notification system for referrals from Mental Health Units and other agencies dealing with similar issues. 6. Additional research be undertaken to establish the relationship between deprivation and fire. 7. An increase in community safety initiatives across Scottish Fire and Rescue Services directed at reducing secondary fires and incidents of fire related anti-social behaviour. 8. The production of targets for the reduction of secondary fires and an assessment of the environmental impact. 9. Discussions take place with the Association of Chief Police Officers Scotland with a view to establishing appropriate recording methods for secondary fires. 22

24 4. WHAT ARE WE DOING NOW? 4.1 Having analysed the issues facing Scotland in the context of the country s fire, health and social problems, the Study then moved on to examine what Scottish Fire and Rescue Services, in conjunction with other agencies, are doing to tackle the identified problems. their community safety involvement. Scotland s Fire and Rescue Services can clearly demonstrate examples of good practice (case studies included later in this section) and it is clear there is a great deal of good work going on at both local and national level Scotland s Fire and Rescue Services have, voluntarily, been involved in the delivery of community fire safety over a sustained period of time however, with the introduction of the Fire (Scotland) Act 2005 came a legislative duty to provide education on the prevention of fires. The Act followed on from the Local Government in Scotland Act 2003, which placed a statutory duty on Fire and Rescue Services to participate in the community planning process delivered through local authorities. Fire and Rescue Services are also focusing significant resources towards enforcing fire safety legislation in non-domestic premises under the scope of the Fire (Scotland) Act Despite the low number of fire deaths recorded in non-domestic premises, Scottish Fire and Rescue Services must not become complacent in the enforcement of legislation and continue to appropriately balance risk and resources in terms of their community safety engagement and enforcement activities. In order to identify what community safety activity is currently ongoing across the United Kingdom, the Study commissioned a community safety survey adapted for and circulated to three audiences: Scottish Fire and Rescue Services, other Fire and Rescue Services and other stakeholders.the surveys, facilitated by Opinion Research Services Ltd, gathered information on subjects such as partnership working, information sharing, community safety staffing, community safety initiatives and best practice. In addition, the Study team were involved in formal discussions when visiting the Scottish Fire and Rescue Services and various partner agencies regarding Partnership Working Through the Local Government in Scotland Act (2003) Scottish Fire and Rescue Services are involved in Community Planning Community Planning is a process where a local authority and other organisations in partnership plan, provide and promote the well being of their communities 24. Community Planning Partnerships are facilitated through the 32 local authorities in Scotland and involve a number of public sector organisations that are statutory partners. These organisations include Health, Fire, Police, Enterprise and Transport Authorities. In addition to the statutory partners, Community Planning Partnerships may involve other public, voluntary, community and private sector partners 25. The Study did however evidence varied Community Planning Partnership structures across Scotland s 32 local authorities. In addition to the statutory duty to work together under community planning, Scottish Fire and Rescue Services are involved in numerous bilateral or trilateral joint-working initiatives across the country. This work is, in general, conducted after an identification of a local need to address a particular community safety issue and can, on occasion, be directly linked to individual relationships between members of different partner agencies. The Study found evidence that much of the work that is undertaken by key agencies in local areas is done outwith the formal structure of a Community Planning Partnership. A 24 Scottish Fire & Rescue Services (2005) Guide to Community Planning [Internet] Available from < 25 Improvement Service (2009) Community Planning [Internet] Available from < SCOTTISH 23

25 recent report by Audit Scotland, providing an overview of local authority audits, highlighted a number of challenges relating to partnership working and with which this Study would concur. For example, it stated; Making Partnership Working Real and Effective - The development of single outcome agreements is a challenge for councils and their partners and will require further and quicker development of accountability, governance and public performance reporting arrangements their partnership involvement with Health agencies and enter into formalised data sharing arrangements in order to target resources effectively. Scotland s Fire and Rescue Services are all involved in the practice of sharing information with key partners however, the following identified issues may impact on the effectiveness of these arrangements, namely: - Limited sharing of information with those agencies most likely to hold information that could help to identify at risk from fire groups or individuals, such as Health and Social Work Lack of formal information sharing protocols or frameworks Information Sharing Lack of common data sets to allow partner agencies to cross map and share data in an efficient and productive format The community safety survey highlighted some differences when comparing the data sharing arrangements currently in place in Scotland against those that exist in other parts of the United Kingdom. In the main, Scotland and other parts of the United Kingdom share information with similar agencies, with the significant exception being Health Services. The Study revealed that when information sharing between Health Services and the Fire and Rescue Service is measured, 37% of Scottish Fire and Rescue Services are currently sharing information with Health Authorities compared with 89% in the rest of the United Kingdom 27. Given the nature of the contributory factors identified in the Fatal Fire Survey; issues such as mobility, disability, mental health, alcohol and smoking are extremely important in relation to the identification of those individuals or groups likely to be most at risk from fire. Scottish Fire and Rescue Services therefore need to increase 4.12 Current (Fire and Rescue Service) information recording systems do not collate all the required data from a fire incident. Whilst in general, the current information sharing processes require further development, there are examples of good practice such as the co-location of public sector agencies within the same office environment. There is also some evidence of an increased focus towards engagement between Fire and Rescue Services and Heath Authorities throughout Scotland. This momentum requires to be maintained if further reductions in fire deaths and injuries are to be sustained in future years. A key component of that enhanced partnership working will be the production of agreed protocols for data sharing. 26 Audit Commission, Audit Scotland (2009) Overview of local authority audits Opinion Research Services (2009) Scottish Community Fire Safety Study University of Wales, Swansea 24 SCOTTISH

26 Community Safety Initiatives Fire and Rescue Services are currently involved in a variety of community safety activities ranging in size, duration and cost. The activities are generally locally planned, targeted and delivered to meet local risk profiles. When reflecting on the approximate 50% long-term reduction in fire deaths shown in Figure 1, Scotland s Fire and Rescue Services can be proud of their efforts to date. The Study did however evidence some duplication in planning, developing and monitoring community fire safety activities across the Scottish Services. For example; Scotland s Fire and Rescue Services are all involved in the delivery of seasonal campaigns, which broadly cover the same subject matter and seek to achieve similar outcomes. The above duplication requires Scottish Fire and Rescue Services to re-examine their own cross service joint working arrangements. These require to be more efficient and effective prior to Scotland s Fire and Rescue Services fully engaging with other agencies with a view to centrally delivering community safety. It is the view of the Study that a more joined up approach to Community Safety would result in the Scottish Fire and Rescue Services being better able to share good practice and improve efficiency and effectiveness. There would also be significant benefit in co-ordinating activities more specifically with for example, national campaigns being developed across all eight Fire and Rescue Services with each having its own local emphasis. The community safety survey revealed that since 2004 the main focus of community fire safety activity has centred on the promotion and delivery of Home Fire Safety Visits. In addition, the Services have actively been involved in youth engagement initiatives, general home safety and activities to reduce secondary fires and anti-social behaviour across Scotland. Targeting of community safety initiatives and activities is aimed at a number of groups including the general public and those individual groups who may be at an increased risk such as, older people with additional mobility/disability 4.17 problems, individuals receiving care in the community, individuals with high alcohol or substance misuse and minority groups. Geographical areas are also targeted after being identified through Fire and Rescue Service information data, local knowledge, and deprivation information. Through the community safety survey, the Study has collated information on over 140 community safety initiatives being delivered across Scotland. These cover a number of activities ranging from home fire safety advice, education programmes, one-day events, media campaigns, youth programmes, and antisocial behaviour reduction activities. These will be collated with examples of good practice and will be shared in a subsequent manual which will be produced as an outcome of this Study. The following case studies have been included to highlight good practice. 25

27 Home fire safety case study In response to a high rate of fire deaths, and the identification of a clear link between fire and alcohol, the Community Safety Advisor located in Orkney has developed a strong working partnership with the Drugs Alcohol Smoking Action Team. The Community Safety Advisor has been trained in, and attends, partnership groups (for drugs and alcohol issues) on a quarterly basis. As a result, they have been able to work closely with other individuals working with drug and alcohol users in Orkney. Through raising the profile of the Fire and Rescue Service, and highlighting how fire, drugs and alcohol are inter-related, the partnership has led to the generation of 36 referrals for targeted Home Fire Safety Visits over a oneyear period. The partnership has therefore led to the targeting of community safety at those individuals most at risk from fire in the island communities of Orkney. It is hoped that by fostering such close working relationships that together, the agencies can reduce the number of people dying from fire in Highlands and Islands Deliberate fire reduction case study A particular example of a demand reduction initiative aimed at reducing the number of fires associated with refuse and fly tipping which, have a significant impact on the well-being of our communities, can be found in the Deliberate Fire Reduction Task Force based in the Renfrewshire local authority area. The Deliberate Fire Reduction Task Force began in January 2006 and involves a partnership with the local authority cleansing department and Strathclyde Fire & Rescue. Members of the community, Community Wardens, Fire and Rescue Service Staff, Police and local authority workers can all notify the Deliberate Fire Reduction Task Force, via a dedicated phone line, in order to advise of the location of combustible materials likely to become involved in fire. The environmental services department of the local authority then removes the combustibles. To date, over 740 tonnes of refuse has been uplifted, a 34% reduction in secondary fires has been recorded over a threeyear period and an estimated reduction of 1,136 blue light journeys with loss averted savings of approximately 2.23m 28 being achieved. Youth Engagement Significantly, all Scottish Fire and Rescue Services are involved in the delivery of youth intervention schemes and the promotion of good citizenship through youth engagement programmes. The majority of schemes or programmes are delivered through multi-agency involvement (although not necessarily through the community planning process) and cover differing social aspects other than those normally associated with Fire and Rescue Service activities. Youth engagement is an area where targeted development is seen as vital if Scotland s Fire and Rescue Services are to continue their efforts to combat fire related anti-social behaviour. 28 Doyle, C (2009) Deliberate Fire Reduction Task Force Briefing Paper. Strathclyde Fire & Rescue 26 SCOTTISH

28 4.23 Some Fire and Rescue Services are already investigating, through the Scottish Qualification Authority, the options for creating a standard nationally recognised qualification for their youth programmes. It is hoped that by doing so, young people who attend and pass the course can achieve a qualification where this may not have been likely through mainstream education programmes Youth engagement case study Cool Down Crew has been operating in Lothian and Borders Fire and Rescue Service since This programme is delivered by Firefighters, assisted by other agencies, and provides an opportunity to engage with young people who may benefit from the positive role model that the Firefighter can provide. The purpose of the initiative was to reduce attacks on fire crews. The programme runs for one-week and covers a wide range of community safety issues. It is aimed at assisting young people to work towards realising their full potential by encouraging effort, teamwork and good behaviour throughout the activities. Issues covered on the course include: - Home fire safety Dangers of making hoax calls Dangers of deliberate fire setting Road safety Alcohol and drug awareness First Aid Healthy eating. 27

29 Part of the course is run, where possible, in conjunction with an appropriate local authority service and is linked to the delivery of a community project. Examples may include cleaning a local burn or park area, repainting walls or park benches marked by graffiti. As well as enhancing the appearance of the local community, this work aims to give the young people involved a sense of achievement and pride. At the end of the course there is a closing ceremony, which is attended by parents/carers, senior members of the Fire and Rescue Service and members of the local authority. Awards are presented in the form of certificates of achievement from the Fire Board. To date, Cool Down Crew has been delivered to over 500 young people across five local authority areas and since 2005, attacks on Fire Crews have been reduced by 45% in Lothian and Borders School education Learning and Teaching Scotland recently published a framework for the new school curriculum, due to be introduced in schools from August Under the Curriculum for Excellence, there is no prescribed curriculum content rather teachers will have the freedom to develop exciting, interactive lessons, which will deliver a range of experiences and outcomes for all young people. Such flexibility will result in a more varied pattern of curriculum structures to reflect local needs and circumstances. There is considerable scope within Curriculum for Excellence, including for Fire and Rescue Services and other agencies, to develop new ways of working and to develop partnership approaches to delivering enriched experiences for young people. In discussion with representatives from Education Authorities the Study agreed that a multi-agency approach to developing community safety aspects of the curriculum would be mutually beneficial A number of Scotland s Fire and Rescue Services have already produced education packages tailored to the needs of both the Fire and Rescue Service and education establishments. The opportunity now exists to enhance existing packages to bring them into line with Curriculum for Excellence approaches and to provide a more cohesive approach between the Fire and Rescue Services, Education Authorities and other key agencies who can make incisive contributions to aspects of the school curriculum. 28

30 Community Safety Commitment There are a number of strands of evidence that show the rest of the United Kingdom are spending a larger proportion of their budget on community safety than the Services in Scotland. The 2008 Chartered Institute of Public Finance and Accountancy Statistics provided financial data showing that the proportion of spending on community fire safety amongst Scottish Fire and Rescue Services varied, but on average the proportion spent on community fire safety in Scotland was lower than for the rest of the United Kingdom. 29 Interviews for the Study support the impression that there is a stronger focus on community fire safety in the rest of the United Kingdom and the community safety survey showed that Scotland devoted fewer resources to community fire safety. This suggests a requirement for Scotland to review the balance of its resources directed towards responding to emergencies and preventing their occurence. Furthermore, during consultations and through the community safety survey, it was reported that the percentage of staff dedicated to community fire safety was lower in Scotland and unlike other parts of the United Kingdom, almost all of the community safety staff in Scotland were uniformed personnel 27. In addition, it was evident that uniformed staff in Scotland often have a dual responsibility and combine their work on community fire safety education with a commitment to fire safety enforcement work. This dual role was not as evident in Fire and Rescue Services in other parts of the United Kingdom. In general, there is considerable variation in the use of civilian/support staff and uniformed staff in community fire safety across the United Kingdom. Whilst the Study does not hold a strong view, it is evident that civilian/support staff are utilised to the advantage of some Fire and Rescue Services in other parts of the United Kingdom, a resource that is not generally utilised in Scotland. The most common use of civilian/support staff in other parts of the United Kingdom is in the form of Community Safety Advocates who may be employed with particular skills in a given area of expertise or be from a particular community. This may include minority groups, youth engagement, older people, physical disability or alcohol dependency. Other examples where civilian/support staff were employed included management of information technology systems, community fire safety data and performance management arrangements. In other parts of the United Kingdom the shift from what was traditionally considered normal working practices i.e. firefighting and rescue operations, was augmented by a significant financial input from Central Government in England 30. In the main, the financial input was directed at home fire safety however, further finance was made available for secondary fire reduction initiatives. The funding has been evaluated and found to be cost beneficial. This may have resulted in the other Fire and Rescue Services in the United Kingdom becoming more focused on community fire safety activities earlier than the Scottish Fire and Rescue Services. Are Scottish Fire and Rescue Services making best use of their resources? It is the view of the Study that Scottish Fire and Rescue Services may not yet have achieved the optimum balance in relation to channelling their resources between intervention and prevention. Scottish Fire and Rescue Services require to further examine their existing resource allocation and the extent to which there is scope to increase the proportion of resources directed toward community fire safety activities, including the use of civilian/support staff. The Study recommends this is done in conjunction with an examination of the most appropriate use of civilian/support staff. This requirement is further evidenced by Audit Scotland s Progress report on Scottish Fire and Rescue Authorities 2007/08 which states: a clearer commitment to deploy the full range of staff to take forward community safety work can be seen when it is written into operational plans down to station level. In addition to using operational firefighters for community safety work there is a place for specialist staff to take forward more complex activities 31. SCOTTISH 29 The Chartered Institute of Public Finance & Accountancy (2008) [Internet] Available from < 30 Communities and Local Government (2009) Final Evaluation of the Home Fire Risk Check Grant and Fire Prevention Grant Programme. Communities and Local Government Publications 31 Audit Scotland (2008) Scottish Fire and Rescue Authorities 2007/08 Progress Report, Edinburgh 29

31 4.37 Fire Protection In The Home Smoke Detection Fire and Rescue Services have been active in the provision of advice and guidance in relation to fire safety in the home for a number of years. This, coupled with the availability of affordable domestic smoke detectors from retail outlets and the introduction of legislation requiring hard wired smoke detection to be fitted in circulation spaces within all new build and refurbished domestic dwellings, has all contributed to the long-term downward trend of dwelling fire deaths discussed within Paragraph 2.8 of this report. The detector was not covering the room in which the fire started so there was a delayed actuation The occupant lived alone and failed to hear or be alerted to the alarm The occupant suffered from disability or mobility problems and was not able to escape the fire The occupant was under the influence of alcohol and not able to respond due to being in an intoxicated state However, of the 131 accidental dwelling fire deaths recorded within the Fatal Fire Survey, only 28% were confirmed as having working smoke detection, which operated at the time of the fire. A total of 72% had either no working smoke detection or, it was recorded as unknown. Therefore, despite surveys from 2004 showing Scotland as having 95% smoke detector coverage within domestic dwellings 32, Scotland still has no working smoke detection in the vast majority of fire death incidents. This emphasises the need for a targeted approach towards Home Fire Safety Visits. In addition, 28% of the accidental fire deaths recorded in the Fatal Fire Survey occurred despite there being an actuation of a smoke detector within the premises. The reason for death in these circumstances may be attributed to the following: It was identified by the Study that although Scottish Fire and Rescue Services are involved in delivering Home Fire Safety Visits, these are not always targeted at those most at risk from fire. There may be a number of reasons for this including those least likely to suffer a fire in the home being more risk aware, more conscious of the dangers of fire through media and advertising and therefore more likely to request a Home Fire Safety Visit. Conversely, the Study has found that Scottish Fire and Rescue Services rarely receive self-referrals from those people most at risk from fire. The need to work with other agencies to gain referrals is vital in order to target resources towards those most at risk. It is the view of the Study that any future targets How can we ensure working smoke detection is fitted in all homes? (national and/or local) set for Home Fire Safety Visits should be done on a points system to ensure high value Home Fire Safety Visits are carried out and targeted towards those most at risk from fire. This will assist Fire and Rescue Services in making best use of their resources by adopting a quality versus quantity approach. 32 Scottish Executive (2005) Fire Safety Wave , Post Campaign Evaluation [Internet] Available from < 30 SCOTTISH

32 The Scottish Building Standards Division are proposing an increase in the level of fire protection in the home. A public consultation on proposed changes to the building standards in Scotland was completed in July The Study would recommend supporting the proposals made by the Scottish Building Standards Division in increasing the provision of fire protection in the home. This would involve extending the current requirements of smoke detection being fitted in circulation spaces of newly built and converted homes by fitting additional smoke detection in principal habitable rooms such as the living room, as well as the provision of heat detection being fitted within kitchens. Given the number of fires starting in living rooms and kitchens this would increase the likelihood of persons receiving an early warning of fire and having the maximum time possible to make their escape. As shown in Table 2, 17% of fires recorded in the Fatal Fire Survey occurred in the bedroom therefore the Study would also recommend that smoke detection be provided in all bedrooms. Linked Alarms A number of additional automatic systems currently exist which enhance the protection provided by a standard hard-wired smoke detector, systems such as smoke detection linked directly to an automated call handling facility, with the ability to alert the local Fire and Rescue Service. This can be extended to systems where a member of staff can converse with the homeowner to ascertain the nature of any potential incident. A large and increasing number of people in Scottish communities are already in receipt of such care services for reasons such as security, mobility, addiction and health. During discussions with other agencies the Study established that extending a system to include an alert for fire would not be a laborious task, nor would it be cost prohibitive for key at risk individuals. Due to reporting timescales for this report it is recommended that further research be conducted in this area Sprinklers In addition to the application of smoke detection, the use of automatic fire suppression systems (including domestic sprinklers) has been advocated by a number of independent research projects. The research has covered issues such as cost, effectiveness, maintenance and also the legal issues concerning their wider application. To date, the Building Regulations 2004 has incorporated the requirement for automatic suppression systems in high rise domestic buildings over 18 metres and residential care buildings since May However, there is no legislative requirement for sprinklers to be fitted to dwellings in low rise domestic buildings. The use of domestic sprinkler systems would, in the professional opinion of the reporting Fire Officers at the time of the incident, have saved almost 80% of the accidental dwelling fire deaths recorded in Scotland over the threeyear period of the Fatal Fire Survey. This highlights the potential impact that the introduction of domestic sprinklers may have on reducing the number of fire deaths in Scotland. Research undertaken by the Study in relation to appropriate cost benefit analysis has indicated that a blanket approach to the installation of domestic sprinkler systems in all dwellings would be prohibitively expensive, with the estimated cost being in the region of some 6.9 billion 33. However, targeting sprinkler systems toward at risk households or individuals and the introduction of efficient partnership working arrangements, could see a significant reduction in accidental dwelling fire deaths, damage to housing stock and potential long-term care costs for the National Health Service. 33 Prosser, T (2009) Sprinklers and the recession, Opportunity for fire safe housing. Fire magazine. Keyways Publishing Ltd SCOTTISH 31

33 Summary Of What Are We Doing Now? The issue surrounding partnership working and information sharing is key when linking fire safety with other issues such as home safety, youth engagement and anti-social behaviour. When discussing Scotland s Fire and Rescue Service s commitment to community safety, differences were highlighted in relation to the proportion of resources dedicated to community safety activities in Scotland, when compared with other Fire and Rescue Services in the United Kingdom. It is the view of the Study that the range of issues discussed in this section are not solely related to the Fire and Rescue Service and a joint approach is required to identify individuals and communities who may be at risk from fire. Scotland s Fire and Rescue Services require to share information more effectively with other agencies in order to better target wider community safety initiatives in areas such as home safety, youth engagement and antisocial behaviour. Recommendations: 10. The creation of an IT based Partnership Register for the use of all Scottish Fire and Rescue Services. 11. Closer working arrangements are formed with health practitioners in order to access those most at risk from fire. 12. Development of a national accreditation qualification for youth engagement programmes delivered by Scottish Fire and Rescue Services. 13. Development of multi-agency community safety resources to be delivered to schoolchildren via the Curriculum for Excellence. 14. Scottish Fire and Rescue Services examine existing resource allocation and the use of civilian/support staff to deliver community safety activities. 15. Support for Scottish Building Standards Division in the extension of fire detection in the home. 16. Further research be conducted into the most efficient use of linked alarms and for handling those alarm calls. 32

34 5. THE WAY AHEAD 5.1 This Study has examined Scotland s relationship with fire in both a European and United Kingdom context and identified the significant causes of fire along with a range of contributory factors associated with fire deaths. The Study also established what the Fire and Rescue Services are doing in order to combat the number and type of fire incidents occurring in Scotland. In addition, the Study has identified that Scotland s fire problem is beyond the sole responsibility of the Fire and Rescue Service where joint working is necessary to maintain improvements. This section will set out the future in relation to the community safety landscape and provide a view of the way ahead. 5.5 The Study also found that there are issues that need to be addressed with some of the groups that Scottish Fire and Rescue Services have representation on in so far as: - Not all personnel attending have decision-making authority within their respective organisations Inconsistent representation from attending agencies (including the Fire and Rescue Service) Joint Working Lack of direction and guidance within some Community Planning Partnerships 5.2 Community Safety Landscape Through interviews conducted as part of the Study, Scotland s Community Planning Partnerships provided some tremendous examples of good practice and there is a great deal of good work going on throughout the country. The Study has found however, that although only a small country, the community safety landscape in Scotland is vast and extremely varied, with evidence of duplication of effort. Lack of specific terms of reference for the partnerships and for individual agencies attending Lack of long-term strategies which may now begin to be resolved by the production of Single Outcome Agreements. 5.3 The Study recognises that the various community safety groups produce valuable work and they are populated by some very talented individuals. However, there are many areas which overlap, lack consistency and need greater emphasis on strategy, together with the requirement to employ proper evaluation tools and financial impact assessments. 5.4 The complex community safety landscape in Scotland has resulted in Scottish Fire and Rescue Services and other agencies being unsure about which partnerships, committees, forums and groups are most relevant, and how they relate to each other in the wider context. 33

35 The nature of partnership working within Scotland has little in the way of prescribed standards or guidance frameworks with much of it left to the development of local relationships. In some areas, many of these local relationships manifest themselves in the production of extremely successful joint-working arrangements. However, in others they are short lived due to the retiral, promotion or secondment of individuals within the contributing agencies. Similar observations regarding community safety were demonstrated when Scottish Fire and Rescue Services were asked about the current landscape within the Chief Fire Officers Association (Scotland) and Scottish Government. Whilst a number of individuals were able to describe the structure accurately, others expressed varying views and knowledge regarding where community safety sits within the two, the appropriate contacts, and the direction of work streams. The Study observed some evidence that greater clarity and clearer communication of these structures is currently underway and would encourage both Scottish Government and Chief Fire Officers Association (Scotland) to maintain this impetus. Terminology The Study identified that there is a lack of consistency in the use of community safety terminology. This can impact on how Fire and Rescue Services work with other agencies and how comparisons can be made across the community safety sector. For example, the Study found disparities when referring to the following: - Partnership Joint Working It is the view of the Study that the use of consistent terminology and definitions is vital to prevent misunderstanding between different agencies. This would promote more effective multi-agency working arrangements and aid understanding and cohesion. Multi-Agency Approach When examining the key issues emerging from the Study, for example, the key contributory factors of alcohol and smoking, it is clear that the Fire and Rescue Service cannot tackle these social issues in isolation. Furthermore, when examining the relationship of fire and fire casualties to those in receipt of social care, an older population or the increased risk which persons may face when living alone, the requirement for a multi-agency approach is clearly evident. The Study has also concluded that the range of facilities and added value which can be provided by the Fire and Rescue Service in terms of multi-agency working, is occasionally not clearly communicated and not well understood by partners. Equally, the Fire and Rescue Services can occasionally remain unaware of the range of benefits, facilities and added value that other agencies are able to offer them. This is particularly true of the Third Sector. When examining the organisational and governance issues raised, such as information sharing and data collection, the requirement for joint working becomes evident. Furthermore, the use of evaluation toolkits and the training of personnel in the identification of fire risk and the delivery of community safety reinforces the need for a multi-agency approach. Partnership Register Vulnerable At Risk A key area of research on which the Study focused was the partnership element of not only the Fire and Rescue Service, but also our key partner agencies. It is the view of the Study that the partnership working landscape 34

36 5.13 across Scotland, although able to provide some strong examples, is a complex one and the creation of a central body to assist in the co-ordination of community safety activities across Scotland is a key requirement. The requirement for a multi-agency approach has been well documented and the information from the Fatal Fire Survey supports this finding. Respondents were requested to provide information in relation to post incident investigation and in all but two cases only Fire Investigation Teams and Police were involved. Analysis of the reports for the Study revealed that in most incidents other agencies would have known of the individual and probably have been in regular contact.this highlights that Fire and Rescue Services and other agencies are not maximising the opportunity to learn lessons from fire deaths. As a consequence they are not fully developing the opportunity to obtain a range of information which may assist in preventing similar tragedies occuring in the future As identified in Section 3, individuals or groups at risk from fire are often known to other agencies such as the National Health Service, Alcohol and Drug Action Teams, Social Services, Housing Departments, Police, Restorative Justice Agencies, Education or, any other service provided by either the local authority or, a Third Sector organisation. Often, people at risk will be in contact with many of these agencies or groups simultaneously. Scottish Fire and Rescue Services reported that sharing information with other key partner agencies was felt to be problematic due to a number of real or perceived problems, for example: - Knowledge of available data Differences in IT systems Format of data sets Data protection and, Information Sharing The absence of a formal data sharing protocol or framework Multi-agency The effective use of data and the management of information is a vital function for both the Scottish Fire and Rescue Services and key partner agencies. A number of agencies, including the Fire and Rescue Service, are working with similar client groups and individual members of the community. In many cases those people in contact with key agencies share a need for a wide range of community services A recent Anti-Social Behaviour Review report, produced by the Scottish Government, acknowledges the requirement for better information sharing across agencies. A key strategic aim states: - Integrated services require the effective sharing of information and intelligence which allows policy implementation and intervention to take place on an evidence and intelligence led basis Scottish Government (2009) Promoting Positive Outcomes: Working together to prevent anti-social behaviour in Scotland [Internet] Available from < SCOTTISH 35

37 5.18 In order to provide a positive impact to a wide range of issues which may influence individual members of our communities, it is the view of the Study that a requirement exists to examine the creation of national data sets in order to promote the sharing of information across Scotland s public services. It is recognised that the creation of such data sets will involve a considerable amount of work across all agencies involved however, the Study would recommend that initial steps are taken to progress this area of work The Study would recommend the introduction of a pilot project to further assess the benefits, to both the Fire and Rescue Service and other agencies, in relation to the Single Shared Assessment process. What are the benefits of Fire and Rescue Service involvement in the Single Shared Assessment process? Single Shared Assessment In February 2006 the Scottish Government issued minimum information standards for the Single Shared Assessment for all adults 35. This built on the minimum standards set for older people, issued in 2004, by applying it to any adult care group. This system was introduced in order to streamline the assessment process for at risk individuals and families within each of Scotland s 32 local authorities. It involves having one single assessment carried out by a local authority department such as Social Work or Housing. The aim is to signpost those at risk, reduce duplication and ensure the individual or family receives the required services without having to deal with each service separately. Scottish Fire and Rescue Services expressed a lack of knowledge and experience relating to the use of a Single Shared Assessment process. It is the view of the Study that the inclusion of Fire and Rescue Service risk information at the initial point of contact would assist those conducting the assessment in identifying those most at risk from fire. It is, as highlighted in the Fatal Fire Survey, often the client group most likely to have an accidental dwelling fire or be involved in a fire death incident that may be the recipient of a Single Shared Assessment Health and Housing During interviews with Health Boards and Housing Departments, as part of the Study, it was evident that they were open to sharing specific data in order that Fire and Rescue Services could conduct Home Fire Safety Visits to their clients on a targeted basis. Some of these examples would include information on those discharged from hospital, others who may be vulnerable through dependency on alcohol and those living in social housing. The Fatal Fire Survey revealed that many people in receipt of health care or those who live in social housing may be deemed to be more at risk from fire than other sections of Scotland s communities. There is, however, a risk that by seeking to access these target groups in such a generic way that Fire and Rescue Services may receive large numbers of referrals which may not be in manageable quantities. It is the view of the Study that any data received, via these sources, would require to be carefully monitored and developed to ensure a manageable flow of referrals was received and they were targeted to those most in need. In addition, the development of increased capacity in this area, Can housing providers assist to target these most at risk of fire? 35 Scottish Government (2006) National Information Sharing for Single Shared Assessment for All Adults, February 2002 [Internet] Available from < 36 SCOTTISH

38 with other agencies providing home fire safety advice, should be explored. In relation to social housing, a recent tragic fire in England, where six people lost their lives has prompted an early report to state: There is a need for more innovative ways of ensuring tenants are aware of the fire precautions in social housing. Engagement through the tenants/residents association has the potential to form an important bridge between the housing authority and the tenants/residents themselves. 36 Scottish Fire and Rescue Services It should be noted that Fire and Rescue Services across Scotland do not use common data or data sets other than those employed under the auspices of the Fire Services Emergency Cover data and Incident Recording Systems. Information sharing across Scottish Fire and Rescue Services requires further refinement in order to enable sharing of information and good practice, benchmarking and common evaluation processes. It has been identified that throughout Scotland the majority of community fire safety initiative information sharing is conducted through informal networks created by individuals from across the Scottish Fire and Rescue Services. Little formal information or data sharing arrangements are in place to assist Scotland s Fire and Rescue Services to maximise the use of knowledge, this is an issue common throughout the United Kingdom. All Scottish Fire and Rescue Services recognised the need to share information better. They all agreed that there is a need to share best practice and community fire safety resources in a more cohesive way and expressed the ambition to do so Scotland s Fire and Rescue Services are on many occasions, working independently when producing, resourcing and implementing community fire safety initiatives. The duplication of workload and effort is evident. Although this enables locally based and innovative activities, this evidence also points to duplication of work for other agencies as a number of Fire and Rescue Service initiatives are created through joint working arrangements. It is the view of the Study that more formal information sharing arrangements require to be established to allow a more productive flow of information between Scotland s Fire and Rescue Services. Voluntary Agencies In Scotland the Third Sector is well developed and significant. There are approximately 45,000 voluntary organisations involving around 130,000 paid staff and approximately 1.3 million volunteers 37. The Study has identified that there is scope for Fire and Rescue Services and other agencies to work together more productively with the Third Sector and this is an area that requires further development. There is an abundance of expertise and knowledge within the Third Sector that can assist in the delivery of community safety initiatives and the Sector can provide resources in the form of staff and volunteers who could, for example, provide referrals and/or deliver home fire safety advice. SCOTTISH 36 Communities and Local Government (2009) Report to the Secretary of State by the Chief Fire and Rescue Advisor on the emerging issues arising from the fatal fire at Lakanal House, Camberwell [Internet] Available from < 37 Scottish Council for Voluntary Organisations (2009) [Internet] Available from < 37

39 5.30 There are examples of effective joint working with voluntary organisations across Scotland s eight Fire and Rescue Services however, challenges were identified in relation to working with voluntary organisations including: - Voluntary organisations are not always represented at the various community planning groups There are a vast number of organisations targeting similar groups and addressing similar issues. This can lead to duplication of effort and lack of clarity as to whom to approach There is not one single point of contact for voluntary organisations. Recommendations: 17. The Chief Fire Officers Association (Scotland) be tasked to provide a new model of integration for all community safety activities in partnership with Scottish Government and the Convention of Scottish Local Authorities 18. A standardisation of community safety definitions and terminology across Scotland. 19. The creation of Fatal Fire Case Conferences involving key agencies, in the same way as drug deaths are currently investigated. 20. The creation of Common Data sharing Protocols to be used by all agencies involved in community safety The most effective examples of joint working with the Third Sector take place at a local level and involve joint working arrangements between two or three individual organisations and normally take place outwith the formal arena of Community Planning Partnerships. It is the view of the Study that whilst there is evidence of good practice, the joint working arrangements could be more productive and assist a greater number of people if the Third Sector was consulted more often as part of the community planning process. Scotland clearly has a culture of volunteering and voluntary organisations are under utilised in the delivery of the community safety element of the public service agenda especially in relation to targeting at risk groups, identifying those who may be most vulnerable and ensuring equity of service. How can the Fire and Rescue Service share information more effectively with the Third Sector? 21. Scottish Fire and Rescue Services become embedded in the Single Shared Assessment process. 22. Working in partnership with housing organisations to identify value Home Fire Safety Visits within Registered Social Landlord and local authority housing stock in Scotland. 23. Guidance and advice is created in a single data format for the use of Scottish Fire and Rescue Services in order to record community safety activity. 38

40 Evaluation All Scottish Fire and Rescue Services reported evaluation of community fire safety activity as an area causing concern. Although there are limited exceptions, it was expressed that more training and support is required in this area. A requirement for the Scottish Fire and Rescue Services to introduce structured evaluation processes is essential in order to ensure that the appropriate level of community fire safety activity is conducted in at risk areas of Scotland s communities. There is no recognised formal method of sharing evaluation results across the Scottish Fire and Rescue Services or with partner agencies. The Study has found that, due to limited evaluation and accurate data recording, Scotland s Fire and Rescue Services are currently unable to evidence the level of impact that community safety activities are having across Scotland. A lack of evaluation also leads to difficulties when Fire and Rescue Services seek external funding opportunities. Considering what works well in relation to community fire safety activities, it has been identified, through discussions with the Scottish Fire and Rescue Services and by Audit Scotland that:- Fire and Rescue Authorities need to improve the systematic evaluation of their community safety work, ensuring outcomes achieved and reported through community safety partnerships feed into a comprehensive analysis of the range of preventative work, in order to demonstrate the most effective use of resource available 38. It is the view of the Study that evaluation methods require to improve in order that Fire and Rescue Services across the country can provide robust information on the impact initiatives are having within Scotland s communities. The Study recognises the difficulties faced by Fire and Rescue Services in relation to the evaluation of community fire safety activity. Difficulties are noted in the volatility of measuring at the most local of levels and the benefits of some community safety activities can occasionally be intangible and emotional. In addition, the wide range and types of initiatives being undertaken across Scotland make standard evaluations problematic. The Study therefore recommends that improved evaluation information, training and ways of sharing knowledge and experience are further developed for Scottish Fire and Rescue Services. 38 Audit Scotland (2008) Scottish fire and rescue authorities 2007/08 Progress Report. Edinburgh SCOTTISH 39

41 Resources Paragraph 4.31 of this report begins to explain a disparity between the levels of staff commitment and financial spend directed at community fire safety across Scotland, when compared to the rest of the United Kingdom. Given the experience of the rest of the United Kingdom, where the proportion of budget spent on community fire safety is, on average, higher than in Scotland, and where fire and fire death rates are lower, would suggest that Scottish Fire and Rescue Services could justifiably spend a higher proportion of their budget on community fire safety. Interviews for the Study revealed that the eight Scottish Fire and Rescue Services have indicated that a lack of resources can impact on the organisation s ability to fully engage in the community planning process. It can also impede their ability to work effectively in partnership and expand their current community safety capacity to meet existing or growing demands. Moreover, development needs were identified in training provision for specific elements of partnership working such as funding and evaluation. individuals deemed to be at risk. Those agencies already in contact with at risk members of the community can, with training provided by Fire and Rescue Service staff, deliver Home Fire Safety Visits on behalf of the Fire and Rescue Service. Similarly when conducting Home Fire Safety Visits, Fire and Rescue personnel may also provide referals to other agencies which would ensure that Scotland s most vulnerable individuals receive the maximum benefit from joined up services Due to vulnerability and the potential difficulty in the engagement of individuals and groups deemed to be at risk from fire, Scotland s Fire and Rescue Services require to work more closely with other agencies in order to facilitate the delivery of a wide range of community safety initiatives, and in particular, Home Fire Safety Visits. It is the view of the Study that Scottish Fire and Rescue Services require to build capacity in order to deliver Home Fire Safety Visits to those deemed most at risk. As previously stated in this report, many individuals deemed to be at risk are known to several agencies. Given the finite nature of Fire and Rescue Service s resources any opportunities that exist for other agencies to contribute and assist in the delivery of home fire safety advice should be exploited. The use of Fire and Rescue Service resources to deliver Home Fire Safety Visits to those already visited by other agencies results in duplication of effort and can result in the disengagement of 40

42 Skills In order for all Scottish Fire and Rescue Services to deliver front line community safety services it is important that suitable and sufficient training is provided to Fire and Rescue Service staff. This is underlined by the Fire (Scotland) Act 2005 which, places a statutory duty on Fire and Rescue Services to promote fire safety within their individual service area. Fire and Rescue Services require to ensure that staff who are expected to undertake this responsibility are suitably trained in the role which they are expected to fulfil. This role can include involvement with youth activities, creativity in responding to community safety issues and engaging with community members who may be deemed hard to influence. In April 2007 the Chief Fire Officers Association (Scotland) conducted a Training Needs Analysis on all aspects of community safety 39. To date, no enhancement of current community fire safety training has been introduced although the Training Needs Analysis revealed: - A substantial requirement for core training A requirement for skills growth for staff reaching initial competence A growth in community fire safety training demand due to increased activity levels of Scottish Fire and Rescue Services An existing weakness in some areas of community fire safety service provision Following consultations with the Scottish Fire and Rescue Services, the above issues were identified as being current, accurate and relevant. At present, little formal training exists outwith the initial single week input delivered to Trainee Firefighters, at the Scottish Fire Service College, as part of the initial trainee course. There is some evidence from across the United Kingdom that this one week training input is unlikely to be sufficient to recognise the balance of skills required between education, prevention and intervention. Some individual Fire and Rescue Services have therefore extended the input provided to their trainees to incorporate additional training on community fire safety. Very few formal courses currently exist for competent Firefighters, supervisory, middle or strategic managers either in a local or national format. During interviews for the Study, personnel involved in community fire safety across the Scottish Fire and Rescue Services expressed the view that current formal training arrangements are inadequate and do not meet the needs or demands of a modern Fire and Rescue Service. The Study would recommend, given the concerns of Fire and Rescue Service staff, that specific training is considered on a number of aspects of development. These would include issues such as front line service delivery, evaluation of community fire safety activities, funding processes, strategic management, planning and developing and partnership working. In addition, it is recommended that where appropriate Scotland s Fire and Rescue Services seek to explore training in a multi-agency environment. 39 Chief Fire Officers Association Scotland (2007) Training Needs Analysis Part 2 SCOTTISH 41

43 Recommendations: 24. The development of a Scottish Community Safety Toolkit. 25. The creation of a community safety evaluation tool for use by all Scottish Fire and Rescue Services. Introduce Performance Management arrangements across all Community Safety activities. 26. Developing standard training resources for partner agencies to deliver home fire safety advice and guidance and, to identify appropriate referrals for the Fire and Rescue Service. 27. Creating additional training resources centred on general community safety for Fire and Rescue Service personnel. This should include reviewing the existing training needs analysis. 28. The creation of training resources for middle/strategic managers regarding partnership working and community planning Smoke Detectors and Sprinklers The Study identified higher levels of activity in other Fire and Rescue Services in the United Kingdom when comparing targets and actual number of Home Fire Safety Visits completed since the initial drive in The higher number conducted by other Fire and Rescue Services in the United Kingdom may, in part, be explained by the greater emphasis placed on community safety activities by other United Kingdom Fire and Rescue Services. It is the view of the Study that Home Fire Safety Visits, advice and guidance provided by all Fire and Rescue Services in Scotland, should now be given a more structured format including: - Can a Scottish standard be set for Home Fire Safety Visits? The production of practical guidance on what constitutes a Home Fire Safety Visit in order to create a Scottish standard Advice and guidance to specifically target pre-ignition activity such as safe cooking practices, the maintenance of domestic smoke detection and the role alcohol and smoking can play in dwelling house fires Advice and guidance to specifically target post-ignition activity such as calling the emergency services, making an escape plan and what to do upon discovering a fire in the home The introduction of national targets for Home Fire Safety Visits focused upon those most at risk from fire and based on a points system. 42

44 The Study would recommend that further work be conducted in order to provide home fire safety advice to specific target audiences. Pre-ignition advice should be aimed more towards groups receptive to the messages and advice offered by the Fire and Rescue Service. Harder to influence groups should receive advice more tailored towards postignition as they are less likely to take preventative measures prior to suffering a fire in the home. The Study has identified that it would not be cost effective to install domestic sprinklers in all homes in Scotland at current costs of approximately 3,000 per Could an acceptable low cost household. The Study would however, domestic sprinkler recommend the issuing of a sprinkler challenge system be developed for in order to seek a more cost efficient sprinkler Scotland? system for potential use in Scotland. Scottish Government would issue the challenge to Scotland s academic institutions to look at previous research and studies undertaken on fire suppression systems to assess how Scotland can progress the development of an affordable domestic system that meets appropriate standards and uses available water supplies. It is hoped by issuing such a challenge that an acceptable low cost domestic sprinkler system may be identified for use in Scotland. For certain individuals at very high risk of death by fire, the option of fitting a domestic sprinkler system should be actively explored in conjunction with other agencies such as, Health, Social Work and Housing. It is the view of the Study that a standard risk assessment requires to be produced in order to assist Fire and Rescue Services in the identification of individuals who may be deemed to be at such a high-risk level that a sprinkler system is a viable option. Reduced Ignition Propensity Cigarettes Reduced Ignition Propensity fire safer cigarettes are a relatively new introduction, they are designed to self extinguish if left unattended, but otherwise have the same characteristics as normal cigarettes and are cost neutral in terms of production. Legislation mandating the cigarettes was put into force in New York State in June Canada followed in October 2005 and 48 of the 50 US states have since introduced legislation to mandate the production and sale of Reduced Ignition Propensity cigarettes. Due to their recent introduction, evaluation and impact is limited however, in Canada a regulatory impact assessment indicated that Reduced Ignition Propensity cigarettes would be 68% effective in reducing fire deaths at the higher end of the scale, and 34% effective at the lower end 41. Of the 131 accidental dwelling fire deaths, over the three-year period of the Fatal Fire Survey, 54 were attributed to smoking materials. If taken as between 34% and 68% effective, as per the Canadian impact assessment, it is possible that up to 36 lives could have been saved had Reduced Ignition Propensity cigarettes been mandatory in Scotland since The Study recommends that Scottish Government support the work of Communities and Local Government and the European Union in the creation of a European Standard for Reduced Ignition Propensity cigarettes. The Study recognises the potential impact the introduction of such a standard would have on reducing the number of lives lost to fire in Scotland. 40 New York General Law (2000) Ch 284.s.156-c. Cigarette Fire Safety Act, 2000 [Internet] Available from < 41 Communities and Local Government (2007) Update on work relating to fire safer cigarettes. Fire and Rescue Service Circular 57/2007 SCOTTISH 43

45 Older People It is clearly evidenced, from the Fatal Fire Survey, that when examining the number of older people who are involved in fire death incidents, a range of factors, other than being older, are generally present. For example, 90% of older people involved in the Fatal Fire Survey had other contributory factors, such as mobility problems, disability, mental health issues or an alcohol involvement. Simply being older did not necessarily put them at increased risk from fire. It is the view of the Study that the requirement for a multi-agency approach towards keeping older people safe is clearly evident, particularly when considering the projected increase in the number of households in Scotland, the number of people living alone and the expected significant rise in the older population. This may indicate that unless specific targeting of community safety activities towards the 60 and over age group is undertaken, Scotland may expect a further rise in accidental dwelling fire deaths and additional operational activity for Scotland s Fire and Rescue Services. How can Fire and Rescue Services target older people deemed to be at risk from fire? Recommendations: 29. A root and branch review of what constitutes a Home Fire Safety Visit, and who should deliver them. 30. The development of a performance management system for Home Fire Safety Visits. 31. Better delineation of educational pre and post ignition advice. 32. The issuing of a sprinkler challenge. 33. Developing a standard risk assessment for installing sprinklers. 34. Support the introduction of Reduced Ignition Propensity cigarettes in Scotland via the creation of a European Standard 35. The targeting of long-term fire safety initiatives at Scotland s ageing population. 44

46 A Safer Scotland? This Study proposes some 37 recommendations, each of which will add value and contribute towards demand reduction, reduced property loss, improved neighbourhoods and enhanced life safety in future years. However, our key recommendation will call for the creation of a new Safer Scotland Unit. When examining the key issues emerging from the Study, for example, the key contributory factors of alcohol and smoking, it is clear that the Fire and Rescue Service cannot tackle these social issues in isolation. Furthermore, when examining the relationship of fire and fire casualties to an older population or the increased risk which persons may face when living alone, the future requirement for a multi-agency approach is reinforced. Turning to the issues of Social Care and Care in the Community, it is again clear that these groups who are most at risk from fire require to be approached in a way which is much more multi-agency and much less Fire and Rescue in isolation. If Scotland is to tackle the issues set out in this report it requires to tackle them in a way that reflects its social demography, its population and its culture. The report has reflected that Scotland, by comparison with the rest of the United Kingdom, experiences higher levels of social deprivation. It also encounters higher levels of smoking related activity and alcohol consumption. It has a higher proportion of people than the rest of the United Kingdom who live alone and a higher proportion of those persons who live in flats or flatted accommodation. It is the view of the Study therefore, that within the United Kingdom, Scotland has different problems and therefore requires different solutions to tackle the challenges it faces. These challenges are not solely issues for the Fire and Rescue Service It should be emphasised that a great deal of good community safety work is going on throughout a host of community safety groups across Scotland and that they are populated by some very talented individuals. This Study recognises the contribution they make towards all areas of community safety throughout Scotland. However, despite the best endeavours of those who undertake their work in these groups, there is significant overlap, a lack of consistency and a need for greater emphasis on strategy together with the requirement to employ appropriate evaluation tools. A recent Audit Scotland Report which examined, amongst other issues, the work carried out by Community Planning Partnerships made a number of observations with which the Study, through its research, would concur 26. There is no doubt that a great deal of good work, best practice and local partnership activity is going on across the 32 Community Planning Partnerships which are the focus of localised community planning across Scotland. However, despite the best efforts of front line staff and some excellent examples of local partnership arrangements, there remains a somewhat fragmented approach to community planning across Scotland s 32 Councils. In addition to the Audit Scotland report quoted above, the Scottish Government recently published an Anti-Social Behaviour review report. The report provides further evidence and recognition, with which the Study would concur, of the need for all partner agencies to commit to Clear Shared Outcomes. A key Strategic Aim states: - Integrated services require commitment to the achievement of agreed and common outcomes across all partner agencies and stakeholders

47 It is therefore a central recommendation of this Study that Scottish Government give consideration to the formation of a new virtual function. This new virtual hub would include direct input from a number of individuals from each of the key statutory agencies i.e. Police, Fire and Rescue, Social Work, Education and Health. It would also however, receive direct input from a number of representatives from the Third Sector and from those responsible for strategies focussing upon alcohol and older people. This virtual hub would communicate with all 32 Community Planning Partnerships and with hundreds of professionals throughout Scotland from all of the public agencies who are concerned with the public safety and health agenda undertaken on the basis of an assessment of the success, or otherwise, of Stages One and Two. Earlier in this report the Study covered the issues that make Scotland unique in its relationship with fire. The unique nature of Scotland s relationship with fire is also applicable to the nature of its relationship with crime and to the nature of its relationship with health. If the country is to take forward the agenda for a Safer Scotland, it must be done in partnership with all of the key agencies contributing to a unified strategy. The Study believes that strategy can and will be developed by this virtual hub. It is the opinion of this Study that this virtual Safer Scotland function would make Scotland both healthier and safer This would signal a significant shift towards a fundamentally new approach to community safety in Scotland. The formation of such a new function would require to be introduced on a staged basis. Stage One would see the realignment of the existing range of resources that are targeted towards the production of community safety strategy throughout Scotland, in much the same way as the Violence Reduction Unit has sought to tackle all forms of violent crime in Scotland. A Safer Scotland function would also seek to emulate the information sharing systems already operating within the Scottish Community Safety Network. Stage Two would require this newly aligned function to establish solid links with all providers and services within this area. This would inevitably involve the establishment of common language and terms of reference, common data sets and common strategic objectives As part of the Study Chief Officers, Chief Executives and Heads of key organisations were consulted on the concept of a fully fledged Safer Scotland Unit. They all expressed unanimous support for the principal of such a Unit and agreed it would greatly assist in improving strategy, management, coordination and the delivery of community safety across Scotland. Scotland is in so many ways an outstanding country, a country founded on innovation and research, on ingenuity and invention. We believe as a Study that the creation of this virtual function would be consistent with that legacy of innovation. The Study further believes that by linking up our major statutory agencies and by positively engaging with our Third Sector that Scotland can adopt a national approach and a national strategy to tackle these issues and uniquely deliver these on the basis of local need. Recommendations: 5.65 Finally, Stage Three would see the eventual formation of a fully fledged Safer Scotland Unit comprising dedicated professionals with experience across all sectors and spanning the breadth of Scottish Government and Local Government services. The formation of such a Unit would only be 36. Assist the development of strategy, structure, and terms of reference for Community Planning Partnerships. Define common terminology in relation to vulnerability across all Community Planning partners. 37. The creation of a fully fledged and dedicated Safer Scotland Unit subject to an assessment of the success of stages one and two. 46

48 6. CONCLUSION Through a number of strands of research the Study has shown that although difficult to make direct comparisons, Scotland occupies a mid-range position in terms of the reporting of fire incidents across Europe. In relation to comparing Scotland with the United Kingdom however, the Study can provide an accurate measurement of performance. In this regard, and despite showing similar long-term downward trends, Scotland does show higher rates of fire death, accidental dwelling fire and secondary fire incidents. Fire death incidents in Scotland are dominated by two main causes, smokers materials and cooking appliances. Furthermore, in 73% of fire death incidents the fire is known to have started in either the living room or the kitchen. The Study concludes that there is a correlation between the behaviour of individuals and the likelihood of them becoming involved in a fatal fire or accidental dwelling fire incident. Health and social factors are identified as key indicators in relation to identifying individuals or groups who may be at risk from fire. For instance, the Study concludes that alcohol consumption, smoking, mental health and issues such as mobility and being older play a significant role in the number of people dying from fire each year in Scotland. Issues relating to the number of people living in areas of severe deprivation are also shown to directly impact on the number of fire incidents in Scotland. In addition, given the projected increase in the number of people living alone and an ageing population, it is likely that Scotland s Fire and Rescue Services will require to direct future strategies, resources and initiatives toward these groups In relation to the governance of community safety, the Study has identified an extremely busy landscape across Scotland, including within the 32 Community Planning Partnerships. The Study has shown that issues such as the sharing of information, consistency in the use of terminology, lack of proper evaluation methods and challenges relating to the wider issues of partnership working are shared by all the key agencies involved in Community Planning Partnerships. The move towards a more structured approach with an increased emphasis on strategy, consistency and the sharing of key information is vital if Scotland is to make further progress in making its communities safer and healthier. The Study concludes that the issues faced by Scotland s Fire and Rescue Services are also relevant to Health Boards, Housing and Social Work Departments, Police Forces and the burgeoning Third Sector. Working together to take a holistic approach to dealing with the underlying issues and to take advantage of joint information sharing and strategies can deliver an effective and efficient approach to making Scotland safer. A Safer Scotland function, whether virtual or real, will be crucial in delivering this objective and in making Scotland safer and stronger. 6.4 Scottish Fire and Rescue Services are currently involved in numerous community safety initiatives to prevent and mitigate the effects of accidental dwelling fire incidents and incidence of secondary fires or fire related antisocial behaviour. Partnership working and joint working arrangements are also ongoing across Scotland however, they could be strengthened through improved structures. 47

49 7. SUMMARY OF RECOMMENDATIONS Title Description Responsibility Cost Timeframe 1 Scottish Government support the work of other European Union countries to share consistent information regarding the recording of fire statistics Support the current work led by the Department of Communities and Local Government and the European Union Fire Safety Network to enhance the sharing of data and recording methods across the European Union to allow for more comparable fire statistics. Scottish Government Communities and Local Government have already started on this project therefore additional costs will not be incurred. Ongoing 2 The establishment of performance targets for Scottish Fire and Rescue Services in relation to fire casualties, injuries and all incidence of fire. In order to help reduce the number of fires occurring in Scotland it is recommended that performance targets are established in order to have a clear purpose and focus on how Scottish Fire and Rescue Services need to perform. Chief Fire Officers Association (Scotland) in consultation with Scottish Government, Convention of Scottish Local Authorities and the Ministerial Advisory Group The costs to develop and monitor national and local targets will be absorbed by the core work of Scottish Government and Scottish Fire and Rescue Services respectively. March Future reporting on fire fatalities be compared over a 3 year period When reporting fire fatalities (previously HMI Fire and Rescue Service Annual Reports) they should be considered in context with other incidents of fire and not be reviewed in isolation against a previous, single year. Scottish Government Scottish Government already undertakes the collation, analysis and publication of incident data including fire fatalities. The process will therefore be cost neutral. March Additional information is captured at fire incidents, particularly in relation to contributory factors. Investigate the enhancement of current recording systems (Incident Recording System, fatal fire reports and fire investigation reports) to collate information relating to contributory factors in fatal fires. This should include, for example, mental health isssues and human behaviour. Chief Fire Officers Association (Scotland) Development Scottish Government Collation and analysis Communities and Local Government have begun a review of the current Incident Recording System. Any findings as a result of the recommendation can be fed into this review. If the additional information required cannot be obtained within the Incident Recording System collection, costs may increase, for example if the preferred solution is to standardise and collate fatal fire reports or fire investigation reports. July

50 Title Description Responsibility Cost Timeframe 5 Establish a notification system for referrals from Mental Health Units and other agencies deling with similar issues. Work with Health Agencies in order to establish an effective referral system to signpost mental health patients at risk from fire. Chief Fire Officers Association (Scotland) National Health Service Some funding may be required to define the data requirements and referral system (depending on whether a technical solution is required). Due to the timescales for this Study accurate costings were not available and should form part of the initial work to be conducted by those implementing the recommendation. October Additional research be undertaken to establish the relationship between deprivation and fire. Investigate the benefits of additional research into fire and deprivation. This may include the development of a fire domain to be included in the Scottish Index of Multiple Deprivation, social trends and problems, and any identified direct links between fire and deprivation. If identified to be of benefit, relevant research should be commissioned. Chief Fire Officers Association (Scotland) Scottish Government Convention of Scottish Local Authorities Initial costs of staffing to progress the recommendation would by met be core budgets. The cost of additional research would be defined by the outcomes of the investigation and subsequent specifications of the work required. October An increase in community safety initiatives across Scottish Fire and Rescue Services directed at reducing secondary fires and incidents of fire related antisocial behaviour. Set up Secondary Fire Forum to develop best practice, raise the profile of the secondary fire problem in Scotland (in particular anti-social behaviour related incidents), and generate discussion as to how to tackle these issues. Chief Fire Officers Association (Scotland) Scottish Police Costs of attendance at the forum by partners (for example Fire and Rescue Service, Police, Environmental Services and Scottish Government) would be met by core budgets. Potential work streams and initiatives identified by the forum would also be met by core budgets and incorporated into mainstream activity. October

51 Title Description Responsibility Cost Timeframe 8 The production of targets for the reduction of secondary fires and an assessment of the environmental impact. Conduct further study into the environmental impact of secondary fires and establish reduction targets for Scotland s Fire and Rescue Services. Chief Fire Officers Association (Scotland) For costs relating to the production of targets please see recommendation 2. The cost of additional research into the environmental impact would be defined by the subsequent specifications of the work required. October Discussions take place with the Association of Chief Police Officers Scotland with a view to establishing appropriate recording methods for secondary fires. Working with the Association of Chief Police Officers Scotland, investigate the underreporting of secondary fires with the aim to raise the awareness of this issue. In addition, investigate other deterrents and powers that could be utilised. Chief Fire Officers Association (Scotland) Scottish Government Association of Chief Police Officers (Scotland) The costs as a result of any discussions, working groups and potential work streams would be met by the core budgets of the Fire and Rescue Services and Police. July The creation of an IT based Partnership Register for the use of all Scottish Fire and Rescue Services. Develop a Partnership Register to sit within a national community safety toolkit. This should include: Guidance on entering and exiting a partnership Agreed objectives Outcomes Individual member details Funding streams As there are a number of good examples of best practice available, a scoping study should be undertaken to assess what information should be included. Chief Fire Officers Association (Scotland) Scottish Government Convention of Scottish Local Authorities Costs would include staffing to undertake research into what information is required, and the development of the partnership register. A number of examples and guidance documents are currently already available so the development costs may be reduced due to using existing material. Recommendation 23 provides further information relating to additional costs. October

52 Title Description Responsibility Cost Timeframe 11 Closer working arrangements are formed with health practitioners in order to access those most at risk from fire. Investigate the possibility of sharing information with health agencies. This should include data protection issues, format of data, and how we identify those most at risk from fire. Safer Scotland function Chief Fire Officers Association (Scotland) The working group and lead officer time to undertake initial research and discussions with Health services would be met by core budgets. There is also scope to work with the Scottish Government Community Safety Unit in relation to the data specifications required. December Development of a formal national accreditation qualification for youth engagement programmes delivered by Scottish Fire and Rescue Services. Scottish Fire and Rescue Services should work collaboratively to develop a qualification that can be gained through completion of structured youth engagement programmes currently run by the individual services. Chief Fire Officers Association (Scotland) Costs to register individuals onto accredited units would be absorbed by Scottish Fire and Rescue and partner agencies core budgets. March Development of multi-agency community safety resources to be delivered to schoolchildren via the Curriculum for Excellence. Community safety resources including presentations, work books, activities, plays etc. should be developed in a multi-agency format in order to assist schools in the delivery of the Curriculum for Excellence. The resources should cover a range of community safety issues therefore avoiding duplication, and maximising time in the curriculum. Scottish Fire and Rescue input should be created collectively to prevent duplication, develop best practice, and to provide a consistent message across Scotland. Chief Fire Officers Association (Scotland) (Task and Finish Group for March 2010) Safer Scotland Unit Learning, Teaching Scotland Two Scottish Fire and Rescue Services currently have full time seconded teachers working within their organisations. They, along with assistance from other Fire and Rescue Service staff and in partnership with Learning Teaching Scotland and other relevant agencies e.g. Police, Health and Social Services should develop the relevant materials and resources. The costs of staffing would be absorbed by core budgets. 6 months Task and Finish Group 18 months and ongoing March Scottish Fire and Rescue Services examine existing resource allocation and the use of civilian/support staff to deliver community safety activities. Scottish Fire and Rescue Services require to assess their current community safety staff resources and the use of civilian/support staff. Investigate the use of civilian/support staff in community safety roles and any potential benefits this may bring. Chief Fire Officers Association (Scotland) Initial costs of staffing to progress recommendation would be met be core budgets. November

53 Title Description Responsibility Cost Timeframe 15 Support for Scottish Building Standards Division in the extension of fire detection in the home. Scottish Fire and Rescue Services to work with the Scottish Building Standards Division, and add value to their work with regards to the extension of fire detection in the home. Chief Fire Officers Association (Scotland) in partnership with the Scottish Building Standards Division This work is already in progress and funded by Scottish Building Standards Division. October Further research be conducted into the most efficient use of linked alarms and for handling these alarm calls. Investigate current alarm call service availability, costs, who they are linked to, and the possibility for these to be linked to the Fire and Rescue Service. Chief Fire Officers Association (Scotland) Safer Scotland function Strathclyde Fire & Rescue has allocated this research to relevant staff and costs will be met by their core budget. Report by January The Chief Fire Officers Association (Scotland) be tasked to provide a new model of integration for all community safety activities in partnership with Scottish Government and the Convention of Scottish Local Authorities More clarity and definition should be given to the community safety strand of the Chief Fire Officers Association (Scotland) in order to provide support and guidance to Scottish Fire and Rescue Services. This should include work streams and sub-groups. Chief Fire Officers Association (Scotland) Scottish Government Met by core budgets of Fire and Rescue Services, Convention of Scottish Local Authorities and Scottish Government. March 2010 Convention of Scottish Local Authorities 18 Standardisation of community safety definitions and terminology across Scotland. Safer Scotland function to revise current community safety terminology and standardise this to ensure all those working within community safety are following the same definitions to avoid ambiguity and confusion. Safer Scotland function Staff costs would be absorbed from core budgets from agencies involved in the Safer Scotland function. September

54 Title Description Responsibility Cost Timeframe 19 The creation of Fatal Fire Case Conferences involving key agencies, in the same way as drug deaths are currently investigated. Create Service based Fatal Fire Conference groups with multi-agency representation to review fire fatalities, and the contributory factors involved. Representation should include (where appropriate): - Social Work Procurator Fiscal Housing Health Police Alcohol and Drug Teams. Chief Fire Officers Association (Scotland) Costs of staff representation at Fatal Fire Conferences will be met by core budgets. October 2010 The outcomes should be to learn lessons from fatal fires, reduce the likelihood that it will happen again, implement necessary changes required, improve partnership working and information sharing, and to identify others who may be at risk from fire. 20 The creation of Common Data Sharing Protocols to be used by all agencies involved in community safety. Safer Scotland function should work with relevant agencies to develop national information sharing protocols. This should focus on: Current methods of sharing data and format of data Identification of the information held by each agencies Data protection IT systems to facilitate the sharing of data. Safer Scotland function Scottish Government The Scottish Government Community Safety Unit is currently undertaking a piece of work relating to the quality and availability of relevant data. Costs are accounted for within the overall Community Safety Unit budget. Additional work may be required once the Safer Scotland function is established. Costs would be dependent upon specification of the work required. October

55 Title Description Responsibility Cost Timeframe 21 Scottish Fire and Rescue Services become embedded in the Single Shared Assessment process. Scottish Fire and Rescue Services should work with local authorities to investigate the potential to become involved in their Single Shared Assessment process. This would help generate referrals and target fire safety at those most at risk. Consider running a pilot in Renfrewshire local authority area where initial steps have been taken to include fire into the Single Shared Assessment. Chief Fire Officers Association (Scotland) Scottish Government Convention of Scottish Local Authorities As the Single Shared Assessment process is already established any costs due to increased Fire and Rescue Services involvement would be minimal. Actions and analysis as a result of the Single Shared Assessment process would be meet by Fire and Rescue Service core budgets. October Working in partnership with housing organisations to identify value Home Fire Safety Visits within Registered Social Landlord and local authority housing stock in Scotland. Establish systems, based on fire risk, to identify those living within local authority or Registered Social Landlord premises, and deliver Home Fire Safety Visits either via trained housing staff or through normal Fire and Rescue processes. Chief Fire Officers Association (Scotland) Convention of Scottish Local Authorities Research and consultation with housing providers undertaken by Fire and Rescue Service staff(s) would be met by core budgets. October Guidance and advice is created in a single data format for the use of Scottish Fire and Rescue Services in order to record community safety activity. Develop definitions and templates for recording community safety activities to sit within the evaluation section of the community safety toolkit. Housing Landlords Chief Fire Officers Association (Scotland) Scottish Government Potential to utilise the work already underway by the Scottish Government Community Safety Unit regarding a new performance framework currently under development. Costs will be met by the Scottish Government. Additional work may be required. Costs would be dependent upon specification of the work identified. October

56 Title Description Responsibility Cost Timeframe 24 The development of a Scottish Community Safety Toolkit. Create an electronic resource available for the use of all eight Scottish Fire and Rescue Services. Information will include: Guidance documents Planning tools Examples of best practice Contact information for staff in other Fire and Rescue Services Media library to share graphics Evaluation results. Chief Fire Officers Association (Scotland) Scottish Government The scoping exercise and development of the toolkit would require at least one full time post ( 30,000). Costs for the IT requirements and electronic dissemination would need to be defined but estimated at 20,000-40,000. In order to maintain the toolkit at least one part time post would be required. October 2010 A scoping study should be undertaken to review current resources available for inclusion in the toolkit. The costs of staffing and development of the toolkit would be met by Scottish Government and Fire and Rescue core budgets. 25 The creation of a community safety evaluation tool for use by all Scottish Fire and Rescue Services. Introduce Performance Management arrangements across all community safety activities. Create an electronic evaluation tool to sit within the community safety toolkit. The evaluation tool should incorporate the facility to evaluate all community safety activities, from small local projects to national initiatives. Chief Fire Officers Association (Scotland) See recommendation 23. Additional monies may be required for the IT requirements, although it is hoped that existing systems utilised across the United Kingdom can be adopted to minimise costs. October Developing standard training resources for partner agencies to deliver home fire safety advice and guidance, and to identify appropriate referrals for the Fire and Rescue Service. Scottish Fire and Rescue Services should develop training resources for other agencies covering the following: Identification of fire risk within the home Basic delivery of home fire safety advice and guidance The fitting of smoke detection. Chief Fire Officers Association (Scotland) The production of training materials is estimated around 5,000. The delivery of training to partner agencies would be conducted by Fire and Rescue Services and met by core budgets. September 2010 Referral systems for additional Fire and Rescue involvement. 55

57 Title Description Responsibility Cost Timeframe 27 The creation of additional training resources centred on general community safety for Fire and Rescue Service personnel. This should include reviewing the existing training needs analysis. Working with the Scottish Fire Service College, Scottish Government should develop training material for Fire and Rescue Service personnel in relation to community safety. This should include: - Planning initiatives Funding Evaluation Targeting specific groups, Joint working Service delivery of all community safety. Scottish Government Scottish Fire Service College Chief Fire Officers Association (Scotland) Additional relevant training materials to be funded by Scottish Government. Costs dependent upon outcomes of research into the materials required. March The creation of training resources for middle/strategic managers regarding partnership working and community planning. Working with the Scottish Fire Service College, Scottish Government should develop additional training materials and information for Fire and Rescue Service middle/strategic management. This should focus on: - Community planning Partnership working Governance issues. Scottish Government Scottish Fire Service College Chief Fire Officers Association (Scotland) Additional relevant training materials to be funded by Scottish Government. Costs dependent upon outcomes of research into the materials required. March A root and branch review of what constitutes a Home Fire Safety Visit, and who should deliver them. Scottish Fire and Rescue Services should ensure they are providing the same core service when conducting Home Fire Safety Visits. This should include pre and post ignition advice. A standard Home Fire Safety Visit form should also be developed and used by all eight Scottish Fire and Rescue Services, and include a checklist to identify and record those most at risk from fire with the potential to provide referrals. Chief Fire Officers Association (Scotland) Safer Scotland function (multi-agency involvement) Scottish Government The development of a national template, and the development of central guidance would cost approximately 15,000. Fire and Rescue Service staff time would be required for development and be met by core budgets. Monitoring would be undertaken by Scottish Government and be part of core activity. September

58 Title Description Responsibility Cost Timeframe 30 The development of a performance management system for Home Fire Safety Visits. Targets (points, not numbers) should be set for the completion of Home Fire Safety Visits for each of the Scottish Fire and Rescue Services. This should be weighted so that home fire safety visits are risk based and targeted. Scottish Government Chief Fire Officers Association (Scotland) Local targets would be part of Fire and Rescue Service core activity. Scottish Government and the Chief Fire Officers Association (Scotland) would be involved in the setting of national targets and costs would be absorbed by core budgets. September 2010 Ongoing 31 Better delineation of educational pre and post ignition advice. As a part of the review of Home Fire Safety Visits there should be clearer guidance regarding pre and post ignition advice. This should include the types of information provided to specific target audiences and information on its appropriate use. Chief Fire Officers Association (Scotland) Scottish Government Staffing from Fire and Rescue Services to develop relevant guidance would be cost neutral as part of core activity. The production of any materials would be met from existing Scottish Government media and publications budgets (Fire). September The issuing of a sprinkler challenge. The sprinkler challenge should look at previous research and studies to assess how Scotland can progress to develop an affordable domestic sprinkler system that meets appropriate standards and uses available water supplies. Scottish Government The prize would be the trial of 1,000 fitted systems at a cost of 1,000 per system. Cost will be subject to the challenge issued and are included as estimates only. September Developing a standard risk assessment for installing sprinklers. Develop a Risk Assessment Criteria to identify those most in need of a domestic sprinkler system. Chief Fire Officers Association (Scotland) Work to be undertaken by Fire and Rescue Service staff and funded through core budgets. September Support the introduction of Reduced Ignition Propensity cigarettes in Scotland via the creation of a European Standard. Support the work of Communities and Local Government in the creation of a European Standard for Reduced Ignition Propensity cigarettes. Scottish Government Communities and Local Government have already started on this project therefore additional costs will not be incurred. March months -scoping study 57

59 Title Description Responsibility Cost Timeframe 35 The targeting of long-term fire safety initiatives at Scotland s ageing population. Scottish Fire and Rescue Services should work collectively to target and plan fire safety at an increasingly ageing population, particularly those identified as having other factors which may increase their vulnerability to fire. Chief Fire Officers Association (Scotland) Work should be part of Fire and Rescue Service mainstream activity and met by core budgets. March Assist the development of strategy, structure, and terms of reference for Community Planning Partnerships. Define common terminology in relation to vulnerability across all community planning partners. Assist partners involved in Community Planning Partnerships to create terms of reference, strategy and structure to fully engage in the process and, progress with meaningful work streams which add value to Scotland s communities. Scottish Government Safer Scotland function The costs as a result of any discussions, working groups and potential work streams would be met by the core budgets of the Fire and Rescue Services and participating partner agencies. March The creation of a fully fledged and dedicated Safer Scotland Unit subject to an assessment of the success of Stages One and Two. A Safer Scotland Unit should: - Provide a central body to assist in simplifying the community safety landscape in Scotland Improve the governance of community safety across Scotland Support Community Planning Partnerships Create more effective joint working arrangements for all key agencies Promote efficient data sharing arrangements and protocols Assist in clarity of terminology Assist in identifying those deemed most at risk across all agencies Assist in the general delivery of community safety in a co-ordinated manner. Scottish Government Property and initial set up costs estimated at 60,000 Running costs would be approximately 800,000. Met by partner agencies providing seconded staff and supplemented by financial input from the Scottish Government. The above costs are indicative estimates and are subject to further discussion. Begin April 2011 with 6 8 year lifespan This should be done in three stages. 58

60 8. REFERENCES 1. General Register Office for Scotland (2008) Figures as at June 2008 [Internet] Available from < 2. Her Majesty s Fire Service Inspectorate for Scotland (2008) Annual Report Edinburgh, Scottish Government 3. Scottish Fire and Rescue Services (2007/2008) Annual Reports 4. CTIF International Association of Fire and Rescue Service (2006) Fire Statistics 2006, No.11 [Internet] Available from < CTIF_Report11_World%20Fire%20Ststistics% pdf> 5. Communities and Local Government (2007) Fire Statistics United Kingdom, 2005 [Internet] Available from < firestatisticsunitedkingdom> 6. Scottish Government (2000 and 2006) Fire Statistics Scotland 2000 [Internet] Available from < Fire Statistics Scotland 2006 [Internet] Available from < * The 2007/08 data is from Her Majesty s Fire Service Inspectorate for Scotland - Annual Report and is provided only for illustration [Internet] Available from < 7. Communities and Local Government (2009) Fire Statistics Monitor Quarter 2: 1 July June 2008 [Internet] Available from < www. communities.gov.uk/publications/corporate/statistics/monitorq22008> The estimates of the population mid-2006 are sourced from the Government Actuary s Department (GAD) [Internet] Available from < 8. Communities and Local Government (2009) Review of Fire and Rescue Service Response Times. Communities and Local Government Publications. 9. Scottish Community Fire Safety Study (2009) Fatal Fire Survey 10. Scottish Government (2008) Discussion paper setting out our strategic approach to tackling alcohol misuse [Internet] Available from < gov.uk/publications/2008/06/ /0> 11. National Statistics (2007) Health Statistics Quarterly 33 [Internet] Available from < 12. BBC News (2009) Scots rank high on drink levels [Internet] Available from < 59

61 13. Scottish Government (2006) Statistical Bulletin Crime and Justice Series. Fire Statistics Scotland, 2006 [Internet] Available from < Resources/Doc/221249/ pdf> 14. Office of the Deputy Prime Minister (2005) Fire Statistics, United Kingdom Sighted in RIP Coalition Welcome to the Campaign for Reduced Ignition Propensity Cigarettes [Internet] Available from < 15. Scottish Public Health Observatory (2009) Tobacco use: key points [Internet] Available from < keypoints.asp> 16. Whyte B (ISD Scotland) (2006) Scottish Mortality in A European Context , An analysis of comparative mortality trends. Edinburgh, ScotPHO 17. Scottish Public Health Observatory (2007) Suicide: key points [Internet] Available from < suicide/suicides_keypoints.asp> 18. General Register Office for Scotland (2008) Household Projections for Scotland A National statistics publication for Scotland [Internet] Available from < 19. Scottish Executive (2007) High Level Summary of Statistics Population and Migration Source 2006-based national population projections [Internet] Available from < 20. Office for the Deputy Prime Minister, Arson Control Forum (2004) Social Exclusion and the Risk of Fire 21. Communities and Local Government (2007) Fire Service Emergency Cover Incident Data Reid, James (2009) Excess mortality in the Glasgow conurbation: exploring the existence of a Glasgow effect University of Glasgow 23. Office of the Deputy Prime Minister (2004) The Economic Cost of Fire for Annex A London, ODPM 24. Scottish Fire & Rescue Services (2005) Guide to Community Planning [Internet] Available from < pdf> 25. Improvement Service (2009) Community Planning [Internet] Available from < 60

62 26. Audit Commission, Audit Scotland (2009) Overview of local authority audits Opinion Research Services (2009) Scottish Community Fire Safety Study University of Wales, Swansea 28. Doyle, C (2009) Deliberate Fire Reduction Task Force Briefing Paper Strathclyde Fire & Rescue 29. The Chartered Institute of Public Finance & Accountancy (2008) [Internet] Available from < commentary&year=2008&content_ref=776> 30. Communities and Local Government (2009) Final Evaluation of the Home Fire Risk Check Grant and Fire Prevention Grant Programme Communities and Local Government Publications 31. Audit Scotland (2008) Scottish Fire and Rescue Authorities 2007/08 Progress Report Edinburgh 32. Scottish Executive (2005) Fire Safety Wave , Post Campaign Evaluation [Internet] Available from < Publications/2005/12/ //11051> 33. Prosser, T (2009) Sprinklers and the recession, opportunity for fire safer housing Fire magazine. Keyways Publishing Ltd 34. Scottish Government (2009) Promoting Positive Outcomes: Working together to prevent anti-social behaviour in Scotland [Internet] Available from < Scottish Government (2006) National Information Sharing for Single Shared Assessment for All Adults, February 2002 [Internet] Available from < scotland.gov.uk/resource/doc/1095/ pdf> 36. Communities and Local Government (2009) Report to the Secretary of State by the Chief Fire and Rescue Advisor on the emerging issues arising from the fatal fire at Lakanal House, Camberwell [Internet] Available from < 37. Scottish Council for Voluntary Organisations (2009) [Internet] Available from < 38. Audit Scotland (2008) Scottish fire and rescue authorities 2007/08 Progress Report. Edinburgh 61

63 39. Chief Fire Officers Association Scotland (2007) Training Needs Analysis Part New York General Law (2000) Ch 284.s.156-c. Cigarette Fire Safety Act, 2000 [Internet] Available from < amendedcigaretterule.htm> 41. Communities and Local Government (2007) Update on work relating to fire safer cigarettes. Fire and Rescue Service Circular 57/

64 9. SCOTTISH COMMUNITY FIRE SAFETY STUDY CONSULTATIONS Scottish Fire and Rescue Services Allaway. B, Chief Officer, Lothian and Borders Fire and Rescue Campbell J, Chief Officer Fife Fire and Rescue Dalziel. D, Chief Officer Grampian Fire and Rescue Hunter S, Chief Officer Tayside Fire and Rescue Murray. B, Chief Officer, Highlands and Islands Fire and Rescue Torrie S, Chief Officer Central Scotland Fire and Rescue Wynne D, Chief Officer Dumfries and Galloway Fire and Rescue Central Scotland Fire and Rescue Service- Community Safety Department Dumfries and Galloway Fire and Rescue Service- Community Safety Department Fife Fire and Rescue Service- Community Safety Department Grampian Fire and Rescue Service- Community Safety Department Highlands and Islands Fire and Rescue Service- Community Safety Department Lothian and Borders Fire and Rescue Service- Community Safety Department Strathclyde Fire & Rescue Service- Community Safety Department Tayside Fire and Rescue Service- Community Safety Department UK Fire and Rescue Services Cheshire Fire and Rescue Service Kent Fire and Rescue Service London Fire Brigade Merseyside Fire and Rescue Service Northern Ireland Fire and Rescue Service North Wales Fire and Rescue Service West Midlands Fire and Rescue Service Stakeholder Consultations Angus Council Association of Chief Officers of Scottish Voluntary Organisations (ACOSVO) Barbour J, Chief Executive NHS Lothian Black G, Chief Executive Glasgow City Council Burns H, Dr, Chief Medical Officer for Scotland Cadzow Health Centre NHS South Lanarkshire Calderwood R Chief Executive of Greater Glasgow and Clyde NHS Board Carnochan J, Head of Violence Reduction Unit, Strathclyde Police Community Care Providers Scotland (CCPS) Communities and Local Government (CLG) Convention of Scottish Local Authorities (CoSLA) Corbett D, Head of Corporate Policy, Glasgow City Council Docherty C Deputy Headmaster John Paul Academy Donaldson G, Chief Inspector, Her Majesty s Inspectorate Of Education Ewing J, Head of Public Service Reform, Scottish Government Feeley D, Director, Scottish Government Healthcare Policy and Strategy Fire Brigades Union Fire Protection Association (FPA) Fire Service College, Moreton in Marsh Foggo R, Scottish Government Fraser B, Scottish Fire and Rescue Advisory Unit Glasgow Centre for Population Health Glasgow Community and Safety Services (GCSS) Grampian Police Gibbs L, Head of Strategy Unit, Scottish Government Hamilton J, Housing Quality, Scottish Government House S, Chief Constable, Strathclyde Police Irvine A, Scottish Government/Glasgow Community and Safety Services Kay G, Councillor Chair of Fife Fire and Rescue Board. Learning Teaching Scotland Mair C, Improvement Service Mair R, Chief Executive, Convention of Scottish Local Authorities Malone B Chief Executive Perth and Kinross Council Marsden J, Dr. IFE, Greater Manchester Fire and Rescue Service Martin D, Chief Executive Renfrewshire Council Maxwell S, MSP McKerrachar C, Chief Constable Grampian Police 63

65 North Ayrshire Council Purcell S, Councillor Glasgow City Council Reid J, Glasgow University Renfrewshire Council Renfrewshire Deliberate Fire Reduction Task Force Roberts J, Chief Executive Care Commission Scotland Robertson R, Fire Brigades Union Robinson A, Scottish Housing Regulator Rooney P, Councillor Glasgow City Council, Convener Strathclyde Police Ross K Fire Brigades Union Scottish Association for Mental Health (SAMH) Scottish Association of Alcohol and Drug Teams Scottish Building Standards Division Scottish Community Safety Forum Scottish Community Safety Network Scottish Environmental Protection Agency Scottish Fire Service College Scottish Government Scottish Government Schools Directorate South Lanarkshire Social Services Tomkins P, Her Majesty s Chief Inspector of Constabulary for Scotland Walford I, Head of Resilience, Scottish Government Walker P, Managing Director, Glasgow Community and Safety Services Watt J Chief Executive Scottish Federation of Housing Associations Watters P, Councillor, President, Convention of Scottish Local Authorities Wells T, Prof, Chief Executive of NHS Tayside West Lothian Council Wilkinson C, Chief Executive, The Scottish Social Services Council Respondents to Survey Aberdeenshire Community Planning Partnership Aberdeen City Council Aberdeenshire Council Action of Churches Together In Scotland Argyll and Bute Council Bedfordshire and Luton Fire and Rescue Service Buckinghamshire Fire and Rescue Service Building Research Establishment Global Ltd. Central Scotland Fire and Rescue Service City of Edinburgh Council Clackmannanshire Council Cleveland Fire and Rescue Service County Durham and Darlington Fire and Rescue Service Cornwall Fire and Rescue Service Derbyshire Fire and Rescue Service Devon and Somerset Fire and Rescue Service Dumfries and Galloway Council Dumfries and Galloway Fire and Rescue Service Dundee Community Planning Partnership East Ayrshire Council Head of Education East Ayrshire Council, Head of Housing East Dunbartonshire Council East Dunbartonshire Council Head of Education East Sussex Fire and Rescue Service Essex Fire and Rescue Service Falkirk Council Fife Fire and Rescue Service Fire Service Research and Training Trust Grampian Fire and Rescue Service Grampian Joint Fire and Rescue Board Guernsey Fire and Rescue Service Health and Safety Executive Hereford and Worcester Fire and Rescue Service Hertfordshire Fire and Rescue Service Highlands and Islands Fire and Rescue Service 64

66 Highlands and Islands Fire Board Highland Council Highland Council Head of Housing Historic Scotland Humberside Fire and Rescue Service Jersey Fire and Rescue Service Kent Fire and Rescue Service Lincolnshire Fire and Rescue Service Lothian and Borders Fire and Rescue Service Mid and West Wales Fire and Rescue Service Moray Council Northampton Fire and Rescue Service North Ayrshire Council Head of Education North Lanarkshire Community Planning Partnership North Lanarkshire Council Head of Social Work Northumberland Fire and Rescue Service North Wales Fire and Rescue Service Orkney Community Safety Partnership Orkney Islands Council Oxfordshire Fire and Rescue Service Perth and Kinross Council Retained Firefighters Union Royal Society for the Prevention of Accidents Scottish Association for Mental Health Scottish Borders Council Scottish Branch Emergency Planning Scottish Commission for the Regulation of Care Scottish Council for Voluntary Organisations Scottish Environmental Protection Agency Scottish Federation of Small Businesses Scottish Fire Service College Scottish Interfaith Council Scottish Parliament Scottish Trades Union Congress Scottish Whisky Association Shropshire Fire and Rescue Service Society Of Local Authority Chief Executives South Lanarkshire Community Planning Partnership South Yorkshire Fire and Rescue Service Staffordshire Fire and Rescue Service Strathclyde Fire & Rescue Service Surrey Fire and Rescue Service Tayside Fire and Rescue Service The Firefighters Charity The Scottish Ambulance Service The Scottish Business Crime Centre Warwickshire Fire and Rescue Service West Dunbartonshire Council West Lothian Council, Head of Education West Midlands Fire and Rescue Service West Yorkshire Fire and Rescue Service Young Scot Youthlink Scotland Other Contributors Cumbria Fire and Rescue Service Comhairle nan Eilean Siar (Western Isles Council) Dorset Fire and Rescue Service Greater Manchester Fire and Rescue Service Hampshire Fire and Rescue Service Head of Housing Angus Council North Wales Fire and Rescue Service Nottingham Fire and Rescue Service Positive Action In Housing Renfrewshire Council 65

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