Values and culture in fire and rescue services
Norfolk Fire and Rescue Service
Progress so far
May 2024
Introduction
In March 2023, His Majesty's Inspectorate of Constabulary and Fire and Rescue Services (HMICFRS) produced the 'Values and culture in fire and rescue services' report. The report contained 35 recommendations.
The report shows progress against the 20 recommendations directed at fire and rescue services (FRSs).
The remaining 15 recommendations were directed at external bodies such as the Local Government Association, the Home Office and National Fire Chiefs Council. As a result, we are unable to progress these locally.
We have worked hard to strengthen our workplace culture and support staff wellbeing. We have collaborated with partners including:
- Norfolk Public Health
- The Fire Fighters Charity
- The Blue Light Card Foundation
- MIND
- OK9
- Other blue light services to put in place additional wellbeing measures
All of this work contributes to an improved workplace culture where it is safe and where we encourage staff to be themselves and to speak out about problems.
Staff wellbeing and mental health continues to be a focus for us. We want everyone to feel confident in opening up about mental health concerns either for themselves or their colleagues.
We will continue to work to complete action against all the recommendations, which will require continued investment of both resource and time. We are committed to making that investment to offer Norfolk a fire service that is welcoming, inclusive and supportive of the needs of our staff so that they may be best prepared for supporting our communities.
Recommendation 1
By 1 October 2023, chief fire officers should make sure their services provide a confidential way for staff to raise concerns and that staff are aware of whistleblowing processes.
Our action
Fire staff and fire fighters can raise concerns via several routes, which have been proactively and continuously shared, and are displayed prominently on our intranet. We have also shared details on posters in all our buildings and through our Wellbeing Champions network. These include the Crimestoppers Fire and Rescue Service anonymous Speak Up line. Additionally, we have an 'email the chief' email address set up and Norfolk County Council provides a whistleblowing line and a dignity at work contact line which are easily accessed via intranet and the public facing website. We encourage all staff to feel confident in raising concerns and have made this a key part of face-to-face cultural workshops for all teams and watches.
Action
We have completed this action.
Recommendation 3
By 1 June 2023, chief fire officers should review the support available for those who have raised concerns and take any action needed to make sure these provisions are suitable.
Our action
We created a People team to oversee work including disciplinary procedures and staff welfare. We assign dedicated welfare support officers to colleagues who raise concerns and further support is available through the Norfolk County Council Dignity at Work line, our wellbeing team and our employee assistance programme. We have also created a network of more than 60 peer wellbeing champions. All teams are represented, with a named individual to help signpost colleagues to support services. Selection of volunteers is not hierarchical, as we recognise that often it can feel easier to disclose information to peers than managers. Our volunteer wellbeing champions are able to support colleagues to seek help and break down barriers to get people talking about mental health, helping to reduce stigma. We have trained up 30+ volunteer wellbeing champions as Mental Health First Aiders (MHFA). They completed the enhanced two-day MHFA course run by Mental Health England. We have trained mental health first aid support officers throughout our service and accredited rep bodies are involved. We have updated our guidance for staff, giving all, one clear online location where they can find key information on all of the options available to them around raising a complaint or concern. This forms part of our FireCare staff wellbeing and support package of information which signposts staff on a whole range of physical and emotional issues.
Action
We have completed this action.
Recommendation 4
By 1 June 2023, chief fire officers should assure themselves that updates on how concerns are being handled are shared with those who have raised them. The updates should be given in an accessible way that encourages trust and confidence in the service response. Consideration should be given to creating a professional standards function to handle conduct concerns in service (or from an external service) to have oversight of cases, to make sure they are conducted in a fair and transparent way and to act as a point of contact for all staff involved.
Our action
We have a formal complaints process which is available on our web pages. Once a concern is raised, a process is followed and wherever possible we will acknowledge the following to the complainant:
- Indicate how the matter is proposed to be dealt with
- Document whether you have requested confidentiality
- Give an estimate of how long it will take to provide a final response
- Advise whether any initial enquiries have been made
- Advise whether further investigation will take place, and if not, why not
We have created a new Professional Standards Officer post within our People Team. This officer is responsible for supporting managers to carry out investigations, oversight of cases and ensuring they are conducted in a fair and transparent way. They also have responsibility for reporting on case numbers and providing updates to our Senior Leadership Team. The People team has responsibility for overseeing the process consistently, where allegations are raised about conduct or behaviour.
Action
We have completed this action.
Recommendation 5
By 1 June 2023, chief fire officers should make sure they provide accessible information for all staff and members of the public on how they can raise concerns and access confidential support (including through external agencies). Chief fire officers should also make sure accessible information is provided on how concerns and allegations will be investigated in a way that ensures confidentiality and is independent of the alleged perpetrator.
Our action
We have policies in place and clear guidance on the range of internal and external ways to raise concerns and/or access support. These provide information about how a concern will be handled. This is available on our intranet and on our website and on noticeboards in all buildings throughout our service and is proactively publicised regularly through our weekly staff newsletter. Information for public complaints is hosted on the Norfolk County Council website. Corporate Complaints Policy - Norfolk County Council
Our guidance is as follows:
- If possible, raise concerns informally with the person concerned
- Raise the issue with your manager or another trusted manager, colleague or union rep
- Contact the Norfolk Dignity at Work line for advice
- Contact anyone in HR - they will all maintain confidentiality
- Contact the Norfolk County Council Whistleblowing hotline
- Call the anonymous Speak Up hotline
- Email the Chief Fire Officer (CFO), Deputy Chief Fire Officer (DCFO) or Assistant Chief Fire Officer (ACFO)
- Use the HMICFRS anonymous reporting line.
- Members of the public should make a complaint through the Norfolk County Council complaints team
Action
We have completed this action.
Recommendation 9
By 1 January 2024, chief fire officers should:
- Immediately review their current background checks arrangements
- Make sure that suitable and sufficient background checks are in place to safeguard their staff and communities they serve
- Make sure that appropriate DBS check requests have been submitted for all existing, new staff, and volunteers, according to their roles as identified by the Fire Standards Board
Our action
We have a Baseline Personnel Security Standard Checks (BPSS) for all staff, Non Police Personnel Vetting (NPPV) for all staff working on a regular basis or who need access to police premises, and DBS for relevant posts. Our vetting policy has been updated in line with the changes to the Rehabilitation of Offenders Act 1974 (exemptions) to update the level of check for all staff. Checks are in place for all new staff. Checks for existing staff are 90% complete.
Action
We are on track with work well underway and due for completion by 31 July 2024.
Recommendation 10
By 1 September 2023, chief constables should make sure they are appropriately using their Common Law Police Disclosure powers in circumstances involving employees of fire and rescue services.
Our action
We have an existing relationship with Norfolk Police to enable the appropriate use of information under the Common Law Police Disclosure Process.
Action
We have completed this action.
Recommendation 12
By 1 March 2024, chief fire officers should provide assurances to HMICFRS that they have implemented the standard on staff disclosure, complaint and grievance handling.
Our action
We have not yet reviewed the updated Fire Standard but are confident that our bullying and harassment and grievance policies will meet the requirements
Action
We are on track with work well underway.
Recommendation 14
By 1 March 2024, chief fire officers should provide assurances to HMICFRS that they have implemented the standard on misconduct allegations and outcomes handling.
Our action
We have not yet reviewed the updated Fire Standard but are confident that our policies and procedures for handling misconduct allegations will meet the requirements
Action
We are on track with work well underway.
Recommendation 17
With immediate effect, chief fire officers should notify HMICFRS of any allegations that have the potential to constitute staff gross misconduct that:
- Involve allegations of a criminal nature that have the potential to affect public confidence in FRSs
- Are of a serious nature
- Or relate to assistant chief fire officers or those at equivalent or higher grades
Our action
Our Chief Fire Officer has implemented a mechanism of reporting any potential gross misconduct cases in our Service directly to His Majesty's Inspectorate Lee Freeman.
Action
We have completed this action.
Recommendation 18
By 1 August 2023, chief fire officers should provide assurances to HMICFRS that all parties are supported in relation to ongoing investigations.
Our action
Direct support is provided through an allocated welfare officer. Further support is available through the Norfolk County Council dignity at work line, wellbeing team and employee assistance program, and peer wellbeing champions. All cases have an aligned HR case worker to support staff.
Action
We have completed this action.
Recommendation 20
By 1 June 2023, chief fire officers should have plans in place to ensure they meet the Fire Standards Board's leading the service standard and its leading and developing people standard.
Our action
We have recently reviewed our approach to fire standards and we are committed to working towards these standards:
- Leading the Service standard: We and Norfolk County Council (NCC) have robust and transparent controls and processes around procurement and commercial activities. New measures mentioned ensure we can track and monitor issues being raised including complaints, disclosures and whistleblowing. New guidance around managing allegations and DBS checking is being adhered to.
- Leading and Developing People standard: We have robust systems to complete background and employability checks on those being considered for employment and new starters. Our performance management process is being reviewed and changes have already been made to our promotional pathways. We are reviewing our leadership development offer for aspiring and existing leaders.
Action
This action is subject to ongoing work with some issues needing to be resolved.
Recommendation 21
By 1 June 2023, chief fire officers should make sure there is a full, 360-degree feedback process in place for all senior leaders and managers (assistant chief fire officer equivalent and above) in service.
Our action
Real World Group delivered 360 feedback to all Strategic Leadership Team (SLT) members. We've developed an in-house 360 system to support ongoing professional development for managers.
Action
We have completed this action.
Recommendation 22
By 1 September 2023, chief fire officers should make sure there is a full, 360degree feedback process in place for all other leaders and managers in service. The process should include gathering feedback from a wide range of sources including colleagues and direct reports
Our action
An in-house 360 system has been developed and is being trialled for ongoing development. Access to 360 feedback for new and developing managers is made available through the National Fire Chiefs Council's (NFCC) supervisory, middle and executive leadership programmes.
Action
We are on track and work is well underway.
Recommendation 23
By 1 June 2023, chief fire officers should seek regular feedback from staff about values, culture, fairness and diversity, with due regard to the leading and developing people standard. They should show how they act on this feedback.
Our action
We seek regular feedback through our annual staff survey, which is followed by an action plan. We are developing shorter but more frequent temperature check or pulse surveys. We gather feedback through our face-to-face SLT visits with all watches and teams throughout the year and our ongoing cultural workshops/roadshows.
Action
We are on track and work is well underway.
Recommendation 24
By 1 October 2023, chief fire officers should put plans in place to monitor, including through the gathering and analysis of staff feedback, watch and team cultures and provide prompt remedial action for any issues they identify.
Our action
We are developing shorter but more frequent temperature check or pulse surveys. We are monitoring of quantitative sections of 360 feedback. We are also conducting analysis of grievance, bullying and harassment allegations, conduct processes and speak up reports providing indicators of issues within specific teams.
Action
We are on track and work is well underway.
Recommendation 26
By 1 October 2023, as a precursor to the development of the College of Fire and Rescue, chief fire officers and the National Fire Chiefs Council should work with the Home Office to consider how they can improve the training and support they offer to staff in management and leadership development. This should include authority members in respect of their assurance leadership roles and should ensure that opportunities are offered fairly across all staff groups.
Our action
Three leadership development options are available to all existing and potential leaders, but challenges have been identified in capacity and buy in for staff to attend. Further review of leadership development programme is required.
Action
This is subject to ongoing work with some issues needing to be resolved.
Recommendation 27
By 1 June 2023, chief fire officers should make sure their equality impact assessments are fit for purpose and, as a minimum, meet the requirements of the NFCC equality impact assessment toolkit.
Our action
Working with the Norfolk County Council Equality, Diversity and Inclusion (EDI) team, we have sector-leading Equality Impact Assessments (EqIAs) and a robust system to ensure they are completed. We are confident our EqIAs meet the required standards.
Action
We have completed this action.
Recommendation 28
By 1 June 2023, chief fire officers should review how they gather and use equality and diversity data to improve their understanding of their staff demographics, including applying and meeting the requirements of the National Fire Chiefs Council equality, diversity and inclusion data toolkit.
Our action
Sources of data are inconsistent as the self-reporting tool in the MyOracle business data management system we use is not well used by staff but guidance is being provided. Our planning and performance team is leading work with Norfolk County Council's information and analytics team and HR to create a dashboard based on the NFCC toolkit and the emerging culture dashboard.
Our culture workshops talk to staff at all levels about the importance of having a diverse workforce and their own responsibilities around inclusion and actively supporting our vision through community engagement.
Action
This is subject to ongoing work with some issues needing to be resolved.
Recommendation 32
By 1 June 2023, chief fire officers should, as a priority, specify in succession plans how they intend to improve diversity across all levels of the service. This should include offering increased direct-entry opportunities.
Our action
Succession planning needs to be implemented as part of our planned talent management system. Direct entry will be considered through review of the NFCC program.
Action
We are on track and work is well underway.
Recommendation 33
By 1 August 2023, chief fire officers should develop plans to promote progression paths for existing staff in non-operational roles and put plans in place to reduce any inequalities of opportunity.
Our action
We have introduced a number of staff with diverse backgrounds into leadership positions, including the Chief Fire Officer. Investment into prevention, protection and people teams has introduced new progression pathways. Leadership development opportunities have been expanded to professional services staff.
Action
We have completed this action.
Recommendation 34
With immediate effect, chief fire officers should review their implementation of the Core Code of Ethics and make sure it is being applied across their services.
Our action
We have added the NFCC Core Code of Ethics to our successful cultural framework. Our staff helped develop this framework which outlines our values and behaviours. Core code e-learning has been added to the maintenance of competence cycle through the new learning management system and all staff are required to complete it. Work is ongoing to embed the code into policy reviews. Our values and behaviours, incorporating the core code, is featured on posters in all our buildings.
Action
We are on track and work is well underway.