SAFER HOUSES CELEBRATING 20 YEARS OF FIRE PREVENTION IN THE HOME
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1988 > 1989 > 1990 > 1991 > 1992 > 1993 > 1994 > 1995 > 1996 > 1997 > 1998 > 1999 > 2000 > SAFER HOUSES CELEBRATING 20 YEARS OF FIRE PREVENTION IN THE HOME
Department for Communities and Local Government Eland House Bressenden Place London SW1E 5DU Telephone: 020 7944 4400 Website: www.communities.gov.uk © Crown copyright, 2008 Copyright in the typographical arrangement rests with the Crown. This publication, excluding logos, may be reproduced free of charge in any format or medium for research, private study or for internal circulation within an organisation. This is subject to it being reproduced accurately and not used in a misleading context. The material must be acknowledged as Crown copyright and the title of the publication specified. Any other use of the contents of this publication would require a copyright licence. Please apply for a Click-Use Licence for core material at www.opsi.gov.uk/click-use/system/online/pLogin.asp, or by writing to the Office of Public Sector Information, Information Policy Team, Kew, Richmond, Surrey TW9 4DU e-mail: licensing@opsi.gov.uk If you require this publication in an alternative format please email alternativeformats@communities.gsi.gov.uk Communities and Local Government Publications PO Box 236 Wetherby West Yorkshire LS23 7NB Tel: 0300 123 1124 Fax: 0300 123 1125 Textphone: 08701 207 405 Email: communities@capita.co.uk or online via the Communities and Local Government website: www.communities.gov.uk Printed on paper comprising no less than 75% post-consumer waste. November 2008 Reference number: 08 FRSD 05599 ISBN : 978 1 4098 0753 7
SAFER HOUSES – 20 YEARS OF FIRE PREVENTION in THE HOME Contents Ministerial forewords 2 Introduction 4 A history of fire prevention 6 The big picture 10 1988 Furniture Regulations 12 1988 National smoke alarm campaign 14 1992 Hard wired smoke alarms in new build properties 16 1995 In the Line of Fire 18 1997 Safe as Houses 20 01 1998 National Community Fire Safety Centre 22 1999 Fire Kills campaign begins 24 2002 Bain Review 28 2003 Our Fire and Rescue Service 32 2004 Fire and Rescue Services Act 34 2004 Home Fire Risk Check initiative 36 2007 Revision of the Building Regulations 38 2008 The future of fire prevention 40 Note: The name ‘fire and rescue services’ came into use as part of the Fire and Rescue Services Act in 2004, before which they were known as ‘fire services’. Some of the extracts and quotes in this document that pre-date this name change refer to the service by its old name.
Sadiq Khan
Parliamentary Under Secretary of State
Communities and Local Government
“…fire-related deaths in
the home are at their
lowest since the 1950s.”
02
Maintaining the safety and well-being of was in the 1950s. It’s even more a vital part in our achievements so far. But
the general public sits at the very heart of impressive when you consider that we’re we must not be complacent; there is still
responsible government and we work an ageing population, with many more much work to be done, and this unique
tirelessly to ensure communities are safe. people at higher risk from fire due to partnership must continue to thrive if
Protecting people from the dangers of age and infirmity. we’re going to build on our success.
fire is a vital part of that work.
Our success has not gone unnoticed
Therefore I’m delighted to provide a outside the UK, with the Japanese and
foreword for this document, which sets out US Governments knocking on our door
how we have significantly improved fire to find out more about our approach to
safety in the home over the last 20 years. fire prevention. With recognition at home
and now abroad, it’s particularly timely
In the UK we have a strong record in fire that we celebrate our collective successes
prevention. Four out of five people now and achievements in improving fire
have a smoke alarm in their home, and safety, and reducing preventable deaths.
the latest statistics show that fire-related We have a strong story to tell; we should
deaths in the home are at their lowest tell it and celebrate it.
since the 1950s.
This document highlights how the
This is a terrific achievement, especially as partnership between central government
the population is much larger now than it and fire and rescue services has played
Gareth Thomas
Minister for Trade, Investment and Consumer Affairs
Department for Business, Enterprise and Regulatory Reform
“I’m particularly proud of the part our
domestic furniture fire regulations have
played in driving down injuries and deaths
from house fires.”
03
We have been very successful in improving for their courageous work in saving Finally, I want to acknowledge the
fire safety in UK homes over the past lives in household fires. Without their important contribution made by the
20 years, and I’m particularly proud of dedication and bravery, the extra escape furniture industry, the BSI, test
the part our domestic furniture fire time bought by the furniture regulations laboratories, consumer groups, the Royal
regulations have played in driving down would mean nothing. Society for the Prevention of Accidents
injuries and deaths from house fires. and individual experts. All of these groups
I’d also like to thank Trading Standards, have helped ensure the life-saving furniture
The 1980s saw a worrying increase in who have done a great job in enforcing regulations continue to be effective.
the number of tragic deaths and serious the regulations for the past 20 years.
injuries caused by furniture filled with The latest Government report shows that
highly combustible foam catching light. in a five-year period they successfully
In response, the Government and secured nearly 100 convictions against
industry worked together with fire and suppliers selling illegal and dangerously
rescue services, enforcement authorities inflammable furniture to the UK public.
and consumer groups to quickly draw Also, because the regulations cover
up regulations which to date have saved second hand furniture in rented
hundreds of lives and prevented accommodation, and nursery items
thousands of injuries. including prams and pushchairs, Trading
Standards have been able to provide
I would like to take this opportunity to greater protection to some of our more
further thank the fire and rescue services vulnerable citizens.
We’ve come a very long way and seen a significant drop in the number of fire-related deaths in the home 1988 > 1989 > 1990 > 1991 > 1992 > 1993 > 1994 > 1995 > 1996 > 1997 > 1998 > 1999 INTRODUCTION
05
This document celebrates 20 years at some of the activity that took place in And, as we reflect on what has already
of hard work to improve fire safety previous years. But we have focused on been achieved, we set out our ambitions
in the home. It sets out a chronology the last 20 years, as much has been for the future and look forward to
illustrating the wide range of activity achieved in that time – in so many areas. another 20 years of safer houses.
that has taken place – from government
reports and regulations, to nationwide Past successes, future ambitions We hope you’ll find this an interesting
advertising campaigns. The following pages highlight some of read, perhaps reminding you of successful
the key milestones, and the impact work you’ve been involved in yourself.
We have taken 1988 as a starting point, they’ve had on fire safety between 1988
as it marks the introduction of the and 2008. We will begin, however, with
groundbreaking fire safety regulations a look back at the work before 1988.
for furniture and furnishings, and the
beginning of a national media campaign Our main focus is on the work government
to promote key fire safety messages. has done by collaborating with fire and
rescue services and other stakeholders
Since then we’ve come a very long way in this area. Communities and Local
and seen a significant drop in the number Government is now only responsible for
of fire-related deaths in the home. the safety in England. However, before
devolution, the predecessor departments
Of course fire safety in the home didn’t have also had responsibility for fire safety
start in 1988, and we briefly look back in Wales.
Fire-related deaths in the home have reduced by around 400 since 1988 1988 > 1989 > 1990 > 1991 > 1992 > 1993 > 1994 > 1995 > 1996 > 1997 > 1998 > 1999 A history of fire prevention
07
Before 1988, government published became a prominent feature of more with the equally stark message that the
regular material about fire safety, but it recent publications. reader will not be equipped to deal with
didn’t have the same impact as the work a fire. A new logo also appeared during
done since. One significant change during those this year, moving away from the ‘Danger
10 years was the increased focus on From Fire’ approach of earlier leaflets.
1960s cigarettes. A 1970 government leaflet
During the 1960s, for example, the only mentions cigarettes when warning In the early 1980s the number of
number of domestic fire-related deaths in the elderly not to smoke in bed. By fire-related deaths in the home gradually
the UK rose from around 400 at the start 1980, the message was directed at a fell back below 800, but was still
of the decade to almost 700 by the end. broader audience, and covered other worryingly high. By 1988, the year
The numbers continued to rise over the areas of the home – the living room, that marks the starting point for this
following two decades, despite a greater garages and workshops. document, there were 731 deaths in
focus on fire safety from government. the UK. Since then numbers in the UK
Yet despite improvements to the material have fallen below 400 – the lowest for
1970s being produced, the number of deaths 40 years. The fire statistics for England
During the 1970s, messages around fire continued to rise, passing 800 by the alone also show a downward trend:
safety were very similar. The language end of the 1970s. the number of lives lost to fire deaths
and graphics changed slightly to reflect in 2006 was down to 287.
new styles, but broadly the material was 1980s
the same. Interestingly, there was no In 1985, the style of the material changed
mention of smoke alarms, which to a very stark black and white cover,
In 2003, chip pan fires fell by 23 per cent on the 1998-2002 average 1988 > 1989 > 1990 > 1991 > 1992 > 1993 > 1994 > 1995 > 1996 > 1997 > 1998 > 1999 A history of fire prevention (cont)
09
Fry safely Most recently, in 2008, official
One specific message that has changed government advice was updated, based
since the 1970s is what to do if a chip on these new recommendations. The
pan catches fire. new version of the Fire Safety in the
Home leaflet – the lead piece of literature
Advice stayed the same during the 1970s in the Fire Kills campaign range – now
and 1980s, when people were encouraged contains these key messages:
to place a wet tea towel over the flames • Don’t take any risks. Turn off the heat if
– as demonstrated by Delia Smith in it’s safe to do so. Never throw water
1983’s Your Guide to Safe Frying. over it
• Don’t tackle the fire yourself
But in the 1990s, fire and rescue services • Get out, stay out, and call 999.
began to recommend that the public
should not try to tackle chip fires at all,
which was consistent with advice on
other fires in the home.
When the kitchen fire safety campaign,
Fire Starts when your Attention Stops,
was last run in 2003, chip pan fires fell by
23 per cent on the 1998-2002 average.The big picture
The graph below shows how many As you can see, the annual total has
domestic fire-related deaths there have fallen by over 50 per cent since 1988 –
been each year in the UK since 1960. showing just how effective the work
carried out in that period has been.
A growing problem An all time high
During the 1960s the In the 1970s the number
number of fire-related of deaths continued to
deaths in the home rose rise, passing 800 by the
from 390 to almost 700. end of the decade.
10 865
822
785 787 780
765
733 728
720
688 690
656 654 652
627
611
583 574
567
549
506
390 388
1960
1961
1962
1963
1964
1965
1966
1967
1968
1969
1970
1971
1972
1973
1974
1975
1976
1977
1978
1979
1980
1981
1982A gradual reduction The downward trend Butts out
The 1980s saw a slight The numbers since 1988 have Deaths from smoking-related
improvement, but there shown a real downward trend, fires fell by 25 per cent after the
were still 731 deaths thanks to the work outlined in first national campaign to tackle
in 1988. this document. them in 2002.
Fireproofing furniture Home help
The Furniture and Furnishing Fire and rescue services have
Regulations saved at least 710 carried out nearly 2 million home
lives between 1988 and 1997. fire risk checks since 2004.
11
Raising the alarms
744
In 1987 just 9 per cent of
731
710 707 homes had a smoke alarm;
692 699
by 2006 it was 80 per cent.
634 625
613
578
559 564 562
530
513
488 483
463 455 446
430
374 376
363
1983
1984
1985
1986
1987
1988
1989
1990
1991
1992
1993
1994
1995
1996
1997
1998
1999
2000
2001
2002
2003
2004
2005
2006
Fatal casualties in dwelling fires, UK, 1960 - 2006. Taken from Table 26 of Fire Statistics, United Kingdom, 2006.The Furniture and Furnishing Regulations saved at least 710 lives between 1988 and 1997 1988 > 1989 > 1990 > 1991 > 1992 > 1993 > 1994 > 1995 > 1996 > 1997 > 1998 > 1999 1988 > Furniture Regulations
13
In 1988 the number of fire-related deaths in A swift response Continued success
the home continued to be worryingly high. Thankfully, designers and manufacturers Government commissioned research1
were well-placed to respond quickly to shows that the FFRs were responsible for
One of the main culprits was furniture the new regulations. This was largely due saving at least 710 lives between 1988
containing polyurethane (PU) foam, to the development and testing work and 1997, rising to 1,860 if other factors
responsible for one in every 13 house fires carried out in the previous decade, and are taken into account. The Government’s
and 35 per cent of all deaths from fire. the willingness of the industry collectively annual fire statistics show this downward
to make furniture safer. trend has continued.
Government responded to this alarming
trend by introducing the Furniture and As the FFRs are performance-based, and Effective enforcement
Furnishings (Fire) (Safety) Regulations don’t stipulate how the new standards Enforcing the FFRs is a high priority for
(FFRs), which first came into force on should be met, manufacturers can meet Trading Standards. Their experience and
1 November 1988. the requirements in the way they think expertise over the past 20 years allows
most appropriate for their own products. them to focus on key areas of prevention,
Since that date, all fabric and PU foams It appears that the majority use chemical such as nursery furniture, including prams
used in the making of upholstered flame retardants in combustion modified and pushchairs, and the second hand
furniture must be fire resistant. As of foams and the back-coating of covering market. They also contribute greatly to the
1 March 1989, other filling materials also fabrics. But with growing consumer effective interpretation of the FFRs, and to
had to meet the same requirements. Finally, concern about their use, it’s likely that integrating them with other relevant and
on 1 March 1993, second hand furniture more furniture materials with natural fire over-lapping legislation such as the
was covered by the new regulations. resistance will appear on the market. General Product Safety Regulations.
1
Effectiveness of the Furniture and Furnishings – see Bibliography, p44By 2006, 80 per cent of people in the UK owned a smoke alarm 1988 > 1989 > 1990 > 1991 > 1992 > 1993 > 1994 > 1995 > 1996 > 1997 > 1998 > 1999 1988 > National smoke alarm campaign
15
In 1987, half of the deaths caused by selected region, the campaign was rolled homeowners how important it is to
house fires occurred because people out nationally with equally positive results. install a working smoke alarm.
were already trapped by the time they
knew there was a fire. Only 9 per cent The second phase of the campaign In 2006 it commissioned research2 to
of homes had a smoke alarm, because targeted older age groups that had look at the effectiveness of its work.
homeowners saw them as too expensive been less receptive to the initial messages. It showed that ownership was as high as
and only for commercial premises. For example, only 20 per cent of over 80 per cent across the UK, demonstrating
55s in social groups D and E owned an the difference that well-researched,
A new emphasis alarm. Ownership was also low among clearly-targeted and impactful
Recognising the need to take action, the elderly, who still saw smoke alarms communications can make.
government began to promote the use as expensive, unnecessary and difficult
of smoke alarms in homes through a to install.
national campaign, which began in
1988. This new emphasis also coincided Results of this follow-up were again very
with advances in technology that made positive, with ownership increasing from
the alarms cheaper to produce and 24 per cent to 40 per cent in the over 65
advertise, and more affordable for age bracket.
people to buy.
Keeping up the good work
After a successful pilot, which doubled The Government has continued to run
ownership of smoke alarms in the regular advertising campaigns, reminding
2
Evidence base for evaluation of Community Fire Safety – see Bibliography, p44Over 2.25 million homes in England
and Wales now have mains wired
smoke alarms
1988 > 1989 > 1990 > 1991 > 1992 > 1993 > 1994 > 1995 > 1996 > 1997 > 1998 > 1999 > 2000
1992 >
Hard wired smoke
alarms in new build
properties17
Work to promote the use of smoke home to be fitted with a smoke alarm, towards fire safety; quite the
alarms continued in the early 1990s, with never came into force. opposite. No one would emphasise
a change in the building regulations for more strongly than I that the detector
new properties. The legislation had first been proposed prevents no fire. What it does is give
in 1988 by Alistair Burt, the Conservative the vital few extra seconds of warning
In 1992, the guidance on fire safety (in MP for Bury (North). In his initial speech – which, as we have seen all too
Approved Document B) was amended to the house, he quoted US and recently, can mean the difference
to say that every new build must allow Canadian statistics, taken from a between life and death.”
for mains wired, interconnected smoke Child Accident Prevention Trust paper,
alarms to be installed. These are estimating that smoke alarms could A world leader
thought to be even more reliable reduce the number of lives lost in house The eventual 1992 amendment to the
and effective than the self-contained fires by 40-50 per cent. regulations was one of the first national
alternative that tends to be used in requirements of its type in the world and
older homes. Mr Burt also pre-empted concerns has resulted in mains wired smoke alarms
that smoke alarms might lead to people being fitted in over 2.25 million homes in
The Smoke Detectors Act being less careful about preventing fires England and Wales since 1992.
The amendment to the building themselves:
regulations was made following a
private members bill being passed in “I do not believe that the more
1991. The Smoke Detectors Act, which widespread use of smoke detectors
would have required every newly built will encourage a lazier attitudefire authorities should be given
statutory responsibility to
promote fire safety
> 1991 > 1992 > 1993 > 1994 > 1995 > 1996 > 1997 > 1998 > 1999 > 2000 > 2001 > 2002
1995 >
In the Line of Fire19
Following the new regulations on from cure toward prevention, where this approach had already made
smoke alarms, the focus shifted to recommending that: a huge impact at local level, the report
what else could be done to help recommended that it became mandatory
prevent fires. “…fire authorities should be given for the whole service.
statutory responsibility to promote
In October 1993, the Audit Commission fire safety – to educate the public The financial disincentive
began a study to reconsider issues it had about fire, its causes, its dangers and While advocating this new emphasis on
identified in an earlier 1986 report on ways to combat it”. prevention, the report also highlighted a
fire safety – covering the funding and problem with the Government spending
overall approach of fire and rescue The rationale behind this change was formula. As fire authorities received
services. They published the results two simple. However quickly firefighters more funding, the more fires they dealt
years later, in 1995, in a report called reach a fire, there will always be a limit with, there was no financial inventive to
In the Line of Fire. to the number of deaths they can carry out fire safety work. In fact, it was
prevent, because it also depends on how a disincentive, as they would receive less
Shifting the emphasis quickly the fire was detected. funding for reducing the number of fires
Looking at all aspects of fire operations, in their community.
the report concluded there was not Smoke alarms and sprinklers can play
enough emphasis on fire prevention a vital role here, but ultimately a focus
work – and that this was hampering on preventing fires in the first place is
a more effective response to fire the most effective way to further
safety. It went on to promote a shift reduce deaths. Giving examples ofWe believe that investing in community fire safety will save lives Community Fire Safety Task Force > 1992 > 1993 > 1994 > 1995 > 1996 > 1997 > 1998 > 1999 > 2000 > 2001 > 2002 > 200 1997 > Safe as Houses
21
Following the Audit Commission’s A new vision for fire prevention National and local action
report, the Home Secretary established Despite the strong recommendations As part of its strategy, the Task Force
a Community Fire Safety Task Force, from the Audit Commission in 1995, recommended the establishment of a
in 1996, to review community fire safety community fire safety remained at the National Community Fire Safety Centre
and recommend a five-year strategy periphery of fire and rescue service (see page 23). The Task Force also concluded
to reduce fires and deaths in the home. activity. Fire prevention had still not that high profile media campaigns were
become a statutory duty and authorities the most cost effective way to get across
In its 1997 report, Safe as Houses, the received no funding for it. What’s more, key fire safety messages to the greatest
Task Force identified four main barriers there was no national strategy to reduce number of people. To support the national
to reducing the number of fatalities and fatalities, which meant there was no strategy, the Task Force recommended that
injuries from fire: clear focus on achieving this objective. fire and rescue services produce annual
• questionable leadership and direction Community Fire Safety Plans, setting out
• resource issues The vision set out in Safe as Houses objectives at a local level.
• duplication of effort was to see the reduction of fires and
• lack of effective communication with casualties at the centre of fire and Safe as Houses also suggested more
those most at risk. rescue service policy and activity. This targeted programmes of work to improve
was at a time when there were no the public’s response to fire safety
The Task Force also quantified the national or local targets for reducing messages and to change behaviour. Finally,
financial benefits of investing in the number of fires, injuries from fires it stressed the importance of evaluating
prevention work for the first time – or fire-related deaths. any initiatives, which again was not
estimating them at £300m per year. something that had been done before.Much of the National Community Fire
Safety Centre’s work was considered
mainstream activity by 2007
1993 > 1994 > 1995 > 1996 > 1997 > 1998 > 1999 > 2000 > 2001 > 2002 > 2003 > 2004 >
1998 >
National Community
Fire Safety CentreExcuses Kill
1998 also introduced the hard-hitting
‘Excuses Kill’ campaign. This featured two
20-second adverts, portraying the devastating
impact of what can happen to families and
households who fail to maintain their smoke
alarm. Backed by haunting music, the adverts
showed gravestones and flowers, with
epitaphs of fictional people and their dates
of birth and deaths. It was underpinned
with the simple, emotive strapline ‘Excuses
Kill - Test Your Smoke Alarm’.
23
Ministers established the National In particular, it helped develop local A successful outcome
Community Fire Safety Centre (NCFSC) in links between fire and rescue services By 2007, much of the NCFSC’s work
1998, in response to the Community Fire and One Stop Shops, as well as was regarded as mainstream activity
Safety Task Force’s recommendations. links with the Sure Start network, by fire and rescue services, and it was
Neighbourhood Management Pathfinders closed down by the Government – who
Its aim was to provide a focus for and Government Offices. acknowledged that it had more than
the leadership, development and served its purpose.
implementation of an evidence-based Other key achievements included the
community fire safety strategy, development of: The NCFSC also proved the value of
including national campaigns and • national branding for community fire high profile media campaigns in helping
sustainable partnerships. safety (Fire Kills – You can prevent it) reduce accidental fire deaths. The
• a suite of fire prevention literature, Government has announced its ongoing
A broad remit produced to Plain English standards commitment to support the community
The NCFSC’s work was particularly broad, • a community fire safety “toolbox” fire safety agenda by continuing the
drawing on techniques, interventions and of guidance information and resources national Fire Kills media campaign.
outreach strategies that ranged from for local fire and rescue services
award-winning, high profile media • a comprehensive fire safety
campaigns, to initiatives based on education programme for primary
community development and health and secondary children.
promotion models.Fire Kills has been a pivotal part
of the Government’s success in
reducing fire deaths
93 > 1994 > 1995 > 1996 > 1997 > 1998 > 1999 > 2000 > 2001 > 2002 > 2003 > 2004 > 20
1999 >
Fire Kills
campaign begins25
The Fire Kills campaign has been running messages, and bought alarms as smoking-related fires. When it was run
for the last 10 years and has been a a result of them. in 2002, deaths from smoking-related
pivotal part of the Government’s success fires fell by 25 per cent on the previous
in reducing domestic fire deaths by 50 The most recent, Pull Your Finger Out, year. It enjoyed the same success when
per cent since 1988. featured the actress Julie Walters and it was run again in 2004.
first ran from January to March 2008.
The campaign, which was originally The smoke alarm industry reported a The successful kitchen fire safety
launched after the publication of significant increase in sales – as much campaign Fire Starts when your Attention
Safe as Houses, aims to raise awareness as 73 per cent – during this period, Stops, (see page 9) was also part of the
and encourage the public to change while the percentage of people who wider Fire Kills campaign.
their behaviour and attitudes to could recall fire safety advertising
fire safety. without being prompted rose from The Fire Kills logo and strapline have
46 to 64 per cent. Further runs of the changed over the course of the campaign,
Success on a national scale adverts are due later in 2008 and are as illustrated above, and now focus on
The success of Fire Kills has been largely scheduled for early 2009. the role the public can play in preventing it.
due to a series of national advertising
campaigns, focused on the use and Other campaigns, which focused on
maintenance of smoke alarms. different elements of fire safety, have
also had a very positive impact. For
There is strong evidence that the public example, Put it Out. Right Out was
responded positively to the campaign’s the first national campaign to tackleFire Kills has helped raise awareness
among hard to reach audiences
93 > 1994 > 1995 > 1996 > 1997 > 1998 > 1999 > 2000 > 2001 > 2002 > 2003 > 2004 > 20
1999 >
Fire Kills
campaign begins
(cont)27
Targeting high-risk groups This work was recognised by the They have been able to plan their
Fire Kills also aims to engage high-risk Commission for Racial Equality in 2004, own work, at a local level, around the
groups in deprived areas, who don’t who highlighted Fire Kills as an example national awareness campaign running
respond to conventional advertising. of good practice for black and minority at any particular time.
Targeted campaigns, PR and partnership ethnic community engagement.
working (with RNID, the Child Accident Moving forward
Prevention Trust and others) have helped Feedback from the communities The campaign continues to build
raise awareness among these hard to themselves has also been extremely relationships with key partners at
reach audiences. positive: the national level to target fire safety
messages at the most vulnerable.
In particular, Fire Kills has made an effort “It is the first time that our
to raise awareness within black and communities felt that their celebration The campaign also supports activity
minority ethnic communities, many and festival (Eid ul Fitr) was recognised at the local level. The vulnerable and
of who still feel fire safety is not their from a wider community” harder to reach communities are
responsibility and that smoke alarms – Merseyside FRS Somali Advocate.” targeted through a comprehensive –
are too expensive. and ever-evolving – programme of PR,
A winning combination partnership and sponsorship work.
We have used specialist publications Close collaboration with fire and rescue Existing trusted communication channels
and TV channels, alongside outreach, services has been instrumental to the with these groups are used to help raise
training and community programmes, campaign’s success, and given them real awareness, ranging from charities
to tackle and change these perceptions. focus for their regional activity. through to public houses.the prevention of death from fire
through increased community fire
safety measures must be among the
highest priorities of the fire service
95 > 1996 > 1997 > 1998 > 1999 > 2000 > 2001 > 2002 > 2003 > 2004 > 2005 > 2006 > 20
2002 >
Bain Review29
The Future of the Fire Service: reducing “the Government should urgently service, in terms of size, location
risk, saving lives. The Independent bring forward legislation to and the nature of the communities
review of the fire Service (known as the create a statutory duty upon fire they serve.”
Bain Review) was published in December authorities to deliver Community
2002. It was the result of a three-month Fire Safety in order for the service All those interviewed highlighted the
review by Sir George Bain (Chairman), to underpin the changing role of great work being done by the service.
Professor Sir Michael Lyons and Sir the fire service.” They also raised very similar concerns
Anthony Young. about what was preventing the service
Getting access to the front line from having more of an impact, despite
The review built on a thematic inspection Bain’s review took place against a the different profiles and challenges they
report, published in 2000 by Her Majesty’s backdrop of industrial action by the faced. These issues – including problems
Fire Service Inspectorate, which looked members of the Fire Brigades Union. with funding and the lack of legislation
at how central government, the fire and – were then explored in more detail by
rescue service and its partners could shift However, the team did visit a range Bain and his team.
from response to prevention. of fire and rescue services around the
country to get the views of those on Springboard for reform
This earlier report, Making a Difference, the front line. Nine were chosen, from In a wide-ranging report, Bain stated
echoed the recommendation from large metropolitan services such as that fire and rescue services needed to
In the Line of Fire that this new focus West Midlands, through to the small be changed to bring them into line with
on prevention be made a statutory duty regional team in Strathclyde. This was best practice. Perhaps most significantly,
as soon as possible: to give “a good cross-section of the he provided a springboard for the95 > 1996 > 1997 > 1998 > 1999 > 2000 > 2001 > 2002 > 2003 > 2004 > 2005 > 2006 > 20
2002 >
Bain Review
(cont)31
legislative reforms that gave fire authorities dealing with the most fires response. This marked a major departure
prevention a statutory footing: get the most money. This, along with from the previous, highly prescriptive,
the tiny amount of funding allocated approach to fire cover.
“While it may be an unachievable to fire safety work, did little to raise
aspiration that no one should die the profile of community fire safety at
from fire in the future, we believe a local level.
there is plenty of scope to drive down
fatalities, injuries, loss of property In parallel with Bain’s report, work was
and damage to the environment to being done to change the funding
negligible levels. This requires the model, and from April 2003 the number
combination of a focus on fire of fires, false alarms and special calls
prevention rather than incident was removed from the formula. This
response, different working practices abolished the perverse incentive that
and a modern flexible risk based had discouraged a greater focus on fire
approach to allocating resources.” prevention.
(ref: Foreword)
Risk based approach
A flawed formula The Bain report also introduced integrated
Echoing In the Line of Fire and Safe as risk management for fire safety – using
Houses, Bain pointed out the perverse risk to determine what resources are
funding incentive that saw the fire allocated for prevention, protection andWe need to refocus the fire service to
concentrate on preventing fires in the
first place
1996 > 1997 > 1998 > 1999 > 2000 > 2001 > 2002 > 2003 > 2004 > 2005 > 2006 > 2007 >
2003 >
Our Fire and
Rescue Service33
The Government took the recommendations A three-strand approach • To reduce the number of fire-related
from the Bain Review seriously, The white paper said that fire and rescue deaths in the home by 20 per cent
publishing a white paper, Our Fire and services should take a broader role in averaged over the 11-year period to
Rescue Service, the following June. preventing fire and creating safer 2010 compared with the average
communities. It set out a three-strand recorded in the fire-year period to
This highlighted the large number of strategy to prevent fires in communities: 1999 – with no local authority fire
reports on the fire and rescue service, 1. Building Regulations – to ensure fire brigade having a fatality rate more
but criticised the lack of action. It safety is designed into new or materially than 1.25 times the national average
committed the Government to a altered homes and other buildings by 2010.
programme of change, which included 2. Fire safety legislation for non-domestic
preparing legislation to update and buildings • To reduce by 10 per cent the number
modernise fire safety law. 3. Community fire safety – local activity of deliberate fires by 31 March 2010
to promote a safe environment for from the 2001/02 baseline.
The Rt Hon John Prescott MP, Deputy those most at risk of fire.
Prime Minister, whose department had Although this target did not transfer into
taken on responsibility for the fire and New targets the PSA targets for the 2007 spending
rescue service in 2001, accepted that it At the same time as the white paper period (so-called CSR07), the
was in need of reform: came out, the Government was working Government will continue to track
“We need to refocus the fire service up new Public Service Agreements progress against it until March 2010.
to concentrate on preventing fires in (PSAs) for the 2004 Spending Review
the first place” period, which set the following targets:Since 2004 fire and rescue authorities
have had a duty to promote fire safety
in their area
1998 > 1999 > 2000 > 2001 > 2002 > 2003 > 2004 > 2005 > 2006 > 2007 > 2008 >
2004 >
Fire and Rescue
Services Act35
After years of discussion and prevention was the most effective (2) In making provision under subsection (1)
recommendations from various quarters, model for fire safety. For example, figures a fire and rescue authority must in
fire prevention was finally made a showed that over half of all fatalities particular, to the extent that it
statutory duty in the Fire and Rescue from fire were happening before fire considers it reasonable to do so,
Services Act 2004. and rescue services are called out. So make arrangements for –
stopping fires starting in the first place will (a) the provision of information,
Since the Act came into force, all fire save more lives and make communities publicity and encouragement in
and rescue authorities have had to safer, particularly amongst the most respect of the steps to be taken
promote fire safety in their area and vulnerable groups. to prevent fires and death or injury
make it a mainstream activity. by fire;
Of course the speed and efficiency with (b) the giving of advice, on request,
The Act also introduced a change of which fire and rescue services respond about –
name for fire services, which have since to incidents remains vital, so their work (i) how to prevent fires and
been called fire and rescue services – the needs to find the right balance between restrict their spread in buildings
addition of ‘rescue’ emphasising a key prevention, protection and response. and other property;
part of their role. (ii) the means of escape from
A new duty on fire prevention buildings and other property
Prevention better than the cure In article 6 on Fire Safety, the Act states: in case of fire.
Research in the years running up to the (1) A fire and rescue authority must
new Act supported Bain and the Audit make provision for the purpose of This represents a major milestone for fire
Commission’s recommendations that promoting fire safety in its area. prevention.Fire and rescue services have
carried out nearly 2 million
Home Fire Risk Checks
1998 > 1999 > 2000 > 2001 > 2002 > 2003 > 2004 > 2005 > 2006 > 2007 > 2008 >
2004 >
Home Fire Risk
Check initiative37
Government signalled its strong support people living alone with young families. evaluation to assess the impact of the
for the fire and rescue services moving Two years into the grant, the Government investment, and understand how
to a prevention-based approach by commissioned initial evaluation of the the distribution of grant funding over
investing £25m pump priming capital work at a local level. The key findings a four-year period contributed to:
into the Home Fire Risk Check (HFRC) were as follows: 1. meeting the PSA target on accidental
initiative. • The reduction in fires and non-fatal and deliberate fires
casualties was greater where HFRC/ 2. the development of partnership
It aimed to deliver free smoke alarms alarm installation was more targeted working by fire and rescue services to
to 1.25 million vulnerable households, • Fire and rescue services recognised deliver fire prevention programmes
as part of a home visit that provided that partnering with other agencies 3. targeting activity by fire and rescue
personalised fire safety advice to was vital for reaching vulnerable services at deprived communities
householders. Fire and rescue services people, securing referrals and gaining 4. the development of plans for fire
could also use the funding to install assistance in carrying out HFRCs prevention work from 2008/9 onwards.
sprinklers where the risk merited such • The estimated benefits of the initiative
an approach. to date (2004-2006) far outweigh the At the time of writing, the evaluation
revenue and capital costs, even allowing is not complete. However, we do know
The main target group for this initiative for uncertainties in the analysis. that fire and rescue services in England
was the over 65 age group, but other carried out nearly 2 million HFRCs and
high-risk groups were also covered, A full evaluation fitted 2.4 million smoke alarms using the
including people living with disabilities, Pleased with these initial findings, funds – an incredible achievement in
black and minority ethnic households and Government then commissioned a full increasing home smoke alarm ownership.2007 was the first time domestic
sprinklers had been mentioned
in the building regulations
1998 > 1999 > 2000 > 2001 > 2002 > 2003 > 2004 > 2005 > 2006 > 2007 > 2008 >
2007 >
Revision of the
Building Regulations39
In 2007 there were further changes to published a consultation paper on The revisions also offered a range of
the building regulations, covering the revisions to Part B (Fire safety) of the alternative design solutions for how
use of sprinklers in domestic properties. Building Regulations, which included a to include sprinkler protection in other
number of proposals for including types of property.
Ten years earlier, Safe as Houses had sprinkler protection in domestic and
first looked at the potential of installing residential premises. This followed a
sprinklers in homes, referencing data study by BRE that showed a targeted
from the US that suggested this could approach would be cost effective.
reduce the number of deaths from fire
by up to 63 per cent. The report also By the end of 2006, the Government
looked at a study by ENTEC which had published a revised Approved
concluded that the universal Document B stating that any new
installation of domestic sprinklers blocks of flats over 30m in height must
was not cost effective. have the capacity for sprinkler protection
to be built in. This came into effect in
Setting new standards for flats April 2007, and was in line with
Then, in January 2005, BSI published BS 9251. The final regulatory impact
BS 9251:2005 Sprinkler systems for assessments estimated that this change
residential and domestic occupancies. could save 18 lives and prevent 280
In July that same year the Government injuries over 25 years.We must not be complacent:
we must continue to drive
down fire deaths
2000 > 2001 > 2002 > 2003 > 2004 > 2005 > 2006 > 2007 > 2008 >
2008 >
The future of fire
prevention41
Looking back at the milestones in fire In particular, the campaign will target as safe as possible. We’re currently
prevention since 1988, there can be no groups that research has shown are most looking into options for improving the
doubt that the fire and rescue service vulnerable to fire, including single parents, effectiveness of the consumer product
has come a very long way in the field older and disabled people, students and safety framework.
of fire prevention, in partnership with those who frequently drink and smoke at
government. home. Plus it will specifically try and Sharing success across the world
engage the Pakistani, Bangladeshi, A recent report, commissioned by the
The Government remains committed to Somali and Polish communities, where US Government and discussed in a recent
the fire safety agenda and has developed smoke alarm ownership remains very low. edition of Fire Chief magazine, advised
a new Departmental Strategic Objective that their fire chiefs and departments
(DSO) to continue reducing the numbers Overall, Fire Kills will continue emphasising seriously consider following the UK
of fatalities and casualties. the importance of owning and maintaining model for delivering fire safety strategies
a working smoke alarm, which is proven and programmes.
But where else will our focus lie? to be the most cost effective way of
giving an early warning and enabling We were also delighted to be able to
Fire Kills continues to thrive householders to escape. share our experience with colleagues
Fire Kills has proved highly effective in from Japan and we will continue to share
getting across important messages about Future of furniture regulations our experience and learn from others
fire safety to a large audience, and will The Government is also committed to as we develop our work in the future.
remain a priority for the Government. continue making upholstered furniture2000 > 2001 > 2002 > 2003 > 2004 > 2005 > 2006 > 2007 > 2008 > 2008 > The future of fire prevention (cont)
43
The future is local By changing the way cigarettes are their use in properties not covered by
Fire and rescue services now carry out a manufactured, so they are less likely to existing regulations.
wide range of fire prevention activity burn to the filter if left unsmoked or
and will continue to do so. As statutory discarded, we can reduce the risk that Looking ahead
partners in Local Strategic Partnerships, they will result in fires. At the time of These are some of the key areas we
fire safety – and prevention in particular writing, the UK is leading the development will focus on over the next few years,
– are now key considerations when of a European Standard on safer cigarettes, but we know there’s more to do. Moving
assessing risks and setting priorities. which will take at least two years to forward, we will stay responsive and
finalise. We are arguing for it to be based open to change – making sure safer
We know many fire and rescue services on the one already in use in the US. houses remain a priority.
have successfully negotiated a fire
indicator against which local targets are Protecting life, protecting property
set, and will monitor how fire prevention We are also carrying out a wider piece
develops against this new landscape. of work, looking at the different types
of protection available, to help us
Cigarettes getting safer develop more effective policy. For
Centrally, government has a role to play example, we’ve commissioned new
in influencing the development of fire research around the use of sprinklers,
safer cigarettes. One-third of fatal house which we recognise have a valuable
fires are caused by cigarettes – an average role to play in fire protection.
of 100 lives per year. Meanwhile, we continue to encourageBibliography
In the Line of Fire: Value for Money in the Fire Service – the National Picture,
Audit Commission (1995).
Safe as Houses: The Report of the Community Fire Safety Task Force,
Home Office (1997).
The Future of the Fire Service: Reducing Risk, Saving Lives. The Independent
Review of the Fire Service, Bain, G., et al (2002).
Our Fire and Rescue Service, ODPM (2003).
Effectiveness of the Furniture and Furnishings (Fire) (Safety) Regulations 1988,
Department of Trade and Industry (2000).
UK Fire Prevention Works, Philip Shaenman and Mick Ballesteros, Fire Chief,
44 April 2008.
Evidence base for evaluation of Community Fire Safety, Michael Wright,
Richard Genna and Sarah Cudmore, (2006).
National Risk Assessment of Dwellings, ENTEC, (1997).1996 > 1997 > 1998 > 1999 > 2000 > 2001 > 2002 > 2003 > 2004 > 2005 > 2006 > 2007 > 2008 >
£20
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