Brigade Order Administration 22

Reference ADM22PT1 Author J Harrison Status Revised Date 10/07

Contents

Page no Introduction

Roles and Responsibilities Review Aims 1 1 1 2

Brigade Order

Administration

22

Objectives 2 General requirements Appendix A – Station Guide Appendix B

– Operational monitoring form FB132

2

Part 1

Appendix C

– Identified problem index FB344

Appendix D

– Operational monitoring and review problem identification (standard memo from Performance Review Officer)

Templates/Brigade_info on ‘Sy12’(G:) Appendix E

– Performance Review Policy Group update

Templates/Brigade_info on ‘Sy12’(G:) Appendix F

– Performance Review OPPEG/ Policy Group quarterly report

Templates/Brigade_info on ‘Sy12’(G:) Appendix G - Internal memorandum Templates/Brigade_info on ‘Sy12’(G:)

Operational

Performance

Monitoring

Reference ADM22PT1 Author J Harrison Status Revised Date 10/07 Page 1 of 2

Brigade Order Administration 22

Part 1: Operational performance monitoring

Purpose

This document supports the Brigade’s Order Administration 22 Performance Review and addresses the monitoring of Operational Performance.

It sets out to provide clear guidance on how the policy requirements should be achieved. Maintenance of this document rests with the Performance Review Officer. However, the responsibility for attainment of its aims and objectives is shared with the Performance Improvement Team

Strategic aims and objectives

This Order supports:-

Strategic aim 2. “Protect life, property and the environment from fire and other emergencies”

Strategic aim 3. “Secure the highest level of Safety and Welfare for all Staff & Authority members by providing leadership, training, equipment and systems of work” and

Corporative objectives:-

6 “Ensure the provision of an appropriate response to non fire emergencies”.

8 “Maintain and improve the health safety and welfare of all members and employees” 9 “Ensure that all members and employees are competent and able to perform their role” 10 “Ensure the provision and availability of appropriate equipment, resources and supplier support”.

Roles, responsibilities and review

The Deputy Chief Fire Officer is responsible for ensuring this Order is implemented across the Brigade.

The Performance Review Officer will be responsible for the day to day operation of the Order. The Deputy Chief Fire Officer, the Head of Operational Response and the Performance

Review Officer will review this Order biennially in October and as and when organisational

changes take place. Aims

The aim of this Order is to establish a policy of continuous improvement, which through a formalised system of audit, review and improvement ensures that:

Reference ADM22PT1 Author J Harrison Status Revised Date 10/07 Page 2 of 2 • The public of Shropshire are provided with the very highest standards of

operational performance from its Fire and Rescue Service.

• We continually develop and maintain the highest standards of health, safety and welfare for firefighters responding to emergency incidents

• We can provide evidence identifying the quality of the Brigade’s operational standards measured against key performance indicators. This data will facilitate:

- The setting of performance targets. - Identifying development priorities.

- Provision of quantitative performance information for members of the public.

These measures will contribute towards “Continuous improvement in Performance, Safety & Service” and the overall attainment of the Brigade’s corporate objectives. Objectives

The objectives of this policy are to:

• Provide an effective monitoring and review system, to ensure that a process of continual improvement in Shropshire Fire and Rescue Service’s general operational procedures and standards is achieved.

• Monitor, report and review health, safety and welfare issues at emergency incidents attended by Shropshire Fire and Rescue Service, thus creating an environment that is as safe as is reasonably practical for both firefighters and members of the public.

• Collate empirical and tangible data against which the Brigade can measure its operational performance.

General requirements

This Order in conjunction with the Station Guide (Appendix A) details the system which will be developed, implemented and maintained to ensure that all incidents and training exercises attended by Shropshire Fire and Rescue Service are subjected to critical scrutiny.

The Station Guide forms an integral part of the Order and is a controlled document subject to review and updating.

Monitoring Forms and other supporting documentation are collated and stored on the Operational Performance Database by the Performance Review Officer, and include: Incident Monitoring Form Operational Monitoring Form

Identified Problem Index Problem Identification Index Acknowledgement Letter OPPEG/Policy Group Up-date This information and copies of the above forms are available upon request by contacting the Performance Review Officer.

Appendix A

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“Operational performance

monitoring”

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“Operational performance monitoring”

A station guide

Contents

Preface Page 3

Introduction Page 4

Aims and objectives Page 5

So what are we monitoring Page 6

Methodology Page 7

Structured / strategic monitoring Page 8

Supplementary monitoring Page 10

Self monitoring & remote monitoring Page 11

Staff suggestions Page 12

Database Page 13

Processing of observations & problems Page 14

Problem analysis Page 15

Solution testing Page 16

Communications Page 17

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Preface

The Performance and Risk Management Group have produced this guide to explain how “Operational Monitoring” fits in as part of the overall process of the Brigade’s ongoing audit.

Full details are

contained within

Brigade Order Administration No. 22

This guide is created to assist you to understand how the process is designed to work, what the benefits will be for the public, the Brigade and those serving within it, and most importantly to show how all of us have a very significant role to play in this process.

It is planned to progressively expand the scope of the audit to eventually cover all disciplines and functions within Shropshire Fire and Rescue Service. As this occurs additional guidebooks will be produced to support and compliment this publication.

ADM22PT1 AA- ₄ 10/07

Introduction

So why monitor operational performance?

The Brigade has embarked upon a process of continual audit and review. This audit will eventually involve all departments and functions within the organisation and provide us with the facility to identify and respond to both our strengths and weaknesses.

Although Shropshire Fire and Rescue Service is currently amongst the front runners in this initiative, it is certain that public expectations and legislative developments will eventually make such activities common place if not mandatory. Additional drivers include:

• Political demands: such as the Governments “Best Value” initiative. • Health and Safety requirements.

• The general increase in public expectations eg “The Citizens Charter”.

• To gauge “How are we doing?” facilitating target setting and prioritisation.

So how does operational monitoring fit in?

In a nutshell, it will ensure that the Brigade’s frontline performance is subjected to constant and critical review. Where areas of operational performance are found wanting steps can be taken to remedy these and strengths built upon. Equally it ensures that we constantly monitor and review our Health and Safety policies at the “sharp end”, ensuring that the firefighters of Shropshire Fire and Rescue Service are provided the best possible protection.

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Aims and objectives

This initiative is designed to establish a policy of continuous

improvement, which through a formalised system of audit, review and development ensures that:

• The public of Shropshire are provided with the very highest standards of operational performance from its Fire and Rescue Service.

• We continually develop and maintain the highest standards of health, safety and welfare for firefighters responding to emergency incidents.

• We can provide evidence identifying the quality of the Brigade’s operational standards measured against key performance indicators. This data will facilitate:

‰ The setting of performance targets. ‰ Identifying development priorities.

‰ Provision of quantitative performance information for members of the public.

These measures will contribute towards the continual improvement and the overall attainment of the Brigade’s corporate objectives of

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So what are we monitoring?

Operational monitoring is

not

about “Big Brother

watching you”

Operational monitoring must take a much broader outlook if it is to be really effective and therefore will cover:

• Health, Safety and Welfare functions. Are the Brigade’s H&S policies understood? Are they being implemented? Are they working?

• Prescriptive Brigade and national operational policies. Do they work? Should we change them?

• Standards of competence. Have we got our training right? • Systems of work and methodology. Is it out of date? Are there

better ways of doing it?

• Equipment and facilities. Is the equipment provided the best possible? Should we change it?

Clearly many aspects, including task functions such as BA and Pump Operation will contribute towards our overall effectiveness, and where possible Monitoring Officers will provide constructive comments on all aspects of operational performance. However, it is intended that the focus of operational monitoring will concentrate principally upon Command and Control.

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Methodology

We propose to conduct operational monitoring in

five ways:

1 Structured

monitoring

Each level of command will be monitored by the next highest level.

2 Strategic

monitoring

The Performance Review Officer will monitor specific areas of operational work as directed by Policy Group. Typically this will occur following the introduction of a new operational policy, or perhaps the issue of a new item of equipment.

3 Supplementary

monitoring

By Officers who, though not specifically attending in a monitoring capacity, are able to provide constructive comment.

4 Self

monitoring

Through a formalised operational debriefing and reporting system.

5 Remote

monitoring

Performed by the Performance Review Officer, during or following the incident or exercise, using documentation, recordings,

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Structured monitoring

How will structured / strategic monitoring work?

The next highest level will now monitor each level of Command, with monitoring forms being completed and returned to the Performance Review Officer for analysis and use in driving continuous improvements. Level 2 Command will be mobilised to level 1 incidents, and either take command, or assume the monitoring role. The on duty Level 3 Commander will be mobilised to all incidents where Level 2 Command is instigated and likewise, for all incidents developing to Level 3 Command, the Executive Officer will attend and assume the monitoring role. This does not preclude Level 3 Commanders or Executive Officers from attending and monitoring other incidents where they feel this is appropriate in view of their role in the Brigade.

Level 1 Incident Command Level 2 Incident Command Level 3 Incident Command Make up Executive support Potential to escalate Or Life Risk Specialist Officers Safety Breathing apparatus HAZMAT

Shropshire Fire and Rescue – Incident Command Procedure Monitored by exec officer Monitored by Level 3 Command Monitored by Level 2 Command District Officer

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Strategic monitoring

The PRO supported where required by the PIT will monitor/sample specific areas of operational work as directed by Policy Group Members.. This may occur for example following the introduction of a new operational policy or new item(s) of equipment. The PRO will report finding through either the Operational Procedures and Performance Evaluation Group, The Resources Management Group or Policy group as required.

In addition a random sample of three incidents in each month will be remotely monitored by the PIT to provide assurance of pre-incident, during incident and post incident organizational systems, procedures and performance.

This strategic monitoring may focus on the following areas; • Call Handling & Incident Support

• Preplanning

• Crewing/staffing & turnout arrangements • Training/Incident Command provision • Incident procedures

• Equipment & appliance disposition

• Post Incident considerations including advice/debriefing

Additional areas may also be monitored from time to time. This process is coordinated and overseen by the PRO using the resources of the PIT as required.

Training and exercises

Whenever training exercises are planned, the organising officer should contact the Performance Review Officer so that he/she has the

opportunity to attend and contribute as an observer.

Where this is not possible, constructive observations from other officers attending the exercise should be forwarded to the Performance Review Officer.

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Supplementary monitoring

District Officers may choose to attend an incident to assess the

performance of crews or individuals under their supervision, and as such contribute in a monitoring capacity.

In such instances the Officer concerned will ensure that a constructive evaluation is conducted and feedback

given to the crews and/or the Officer in Charge. To assist Officers in this task a suitable observation sheet has been supplied.

As well as providing a means of recording and reporting relevant observations for further analysis, this document will also act as a guide focusing the Officer’s attention on key performance areas.

The completed observation sheets will be forwarded to the Performance Review Officer for further analysis and

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Self monitoring & remote monitoring

Self monitoring

Following every incident or training exercise, some form of debrief will be conducted. This may take the form of: self analysis, where

individuals evaluate their own performance and identify personnel training and development needs; task debriefs, examining firefighting functions such as BA, pump operation, teamwork etc; a tactical debrief, exploring Command and Control issues; or a strategic debrief, which looks at the wider aspects such as, liaison with outside agencies, financial impact, environmental issues, etc.

The procedures for debriefing are explained fully in Brigade Order Operations No 4 Part 5 and the accompanying guidebook.

Remote monitoring

Much valuable information can be gained by remote monitoring and a number of facilities exist to support this, these include:

• Discussion and interviews with personnel attending incidents.

• Suggestions and problems identified and forwarded by SFRS staff.

• Monitoring radio transmissions.

• Analysis of tape recordings maintained by Fire Control.

• Studying FDR1s and other reports.

• Information from other Brigades and sources.

A formal procedure for remote monitoring is contained within BO Operations No 8 Part 3 Significant Event Investigation (SEI). The process provides a template for the Service, in conjunction with partner organisations where necessary, to critically analyse, post event, incidents where there has been loss of life, serious injury or a high financial or societal loss. The outcomes from such investigations are used to further develop and/or assure the robustness of a wide range of Service policies. Whilst the focus on death and injury from fire may tell us what went WRONG, we

ADM22PT1 AA 13- 10/07 also need to know what went RIGHT. In other words when people escaped and/or

damage was minimal, the ‘near misses.’

The Head of Fire Prevention is responsible for the instigation of an internal or multi agency SEI.

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Staff suggestions

What, you mean us!!???

Yes. It is vital that the wealth of experience, expertise and intelligence, which clearly exists within all levels of the organisation, is recognised and exploited to the maximum.

Operational monitoring should not be seen as the sole property of the Performance Review Officer nor those detailed as Monitoring Officers.

All personnel within Shropshire Fire and Rescue Service have a vital role to play in this.

Ideas should be encouraged from every level and

departments within the Brigade. The expertise developed

by those who through their day to day exposure (both in a direct or supporting role) of operational incidents, should

be utilised in any problem identification or solving process.

Any person identifying an area of weakness, or having a suggestion for improving existing systems which is outside the scope of normal day to day problem solving, should following discussion with their line manager be encouraged to contact the Performance and Risk Management Group via the Performance Review Officer in order to communicate such issues.

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Database

How can information technology play a part in this?

To help us identify trends and to produce statistical evidence of how we are performing, a database has been established.

Observations made by all Monitoring Officers will be entered into the database and over a period of time this will provide a clear picture of how we are performing.

This should prevent “knee jerk” reactions should an isolated problem be identified, allowing the Brigade to prioritise accurately issues that

genuinely need attention.

The database will facilitate the provision of statistical evidence relating to operational performance, including:

• Performance standards for specific areas and overall performance.

It will provide an indication of an improvement or decline in both individual areas and overall standards.

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Processing of observations and

learning points

So what do we do when a learning point is

identified?

Firstly. Its not just learning points we will be looking for. To fully

maximise the potential benefits of the monitoring system, observations should identify:

Strengths: Aspects we can maximise and build upon. Weaknesses: Issues requiring remedial attention.

Development needs: Where a potential for enhancing a system exists. All weaknesses and development needs will be subjected to a controlled process of rectification. This will include:

• Feed-forward system, which directs identified learning to the most appropriate agency(s) for their consideration.

• An effective learning analysis system.

• Examination and testing of the proposed solution.

• Refinement where necessary.

• Implementation (Policy Group approval where required).

• Continual review.

Issues identified which have health and safety implications, or reveal unacceptable levels of risk will be communicated immediately and appropriate safety measures initiated. The Services Operational bulletin will also be used to communicate widely key issues, trends and learning points to operational personnel.

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Learning points analysis

So who gets to solve the issues?

Obviously, where learning or development needs are identified, it is essential that a process exists where by these are promptly addressed and suitable solutions implemented.

Although it is the role of the Performance Improvement Team is to assist managers in identifying such issues, it is not their job to rectify them. They will however identify the most appropriate agency(ies) within the Brigade best suited to address these matters, and this will be

determined on a functional expertise linked basis rather than on rank or position. In many instances a multiple agency approach will be the most fruitful.

This means that everyone within the organisation could be approached and subsequently become involved in Project Groups and Working Parties charged with problem solving! Any such involvement would take account of an individual’s role, responsibilities, experience and duty system.

Of course the Performance Improvement Team will provide support where possible.

Policy Group

Where approval is required from the Policy Group for the implementation of a proposed solution or prior to commencing a lengthy research

project, the PRO will collate all data and evidence available and arrange to present this to the Policy Group.

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Solution testing

How do we ensure that the solutions will really

work?

Well, we have to accept that there may not always be a solution. Sometimes a compromise will be necessary. In any event before we implement a proposed solution we will test and validate it and ensure that it is going to work and that we aren’t just introducing some token measure.

If during this validation process, the proposal requires refining then so be it. The process of problem solving and testing will again be applied and continual refinement will be conducted until it is agreed that the problem has been either fully resolved or a satisfactory alternative identified. Only once the proposed solution has been fully tested and validated, should its implementation be considered.

The Performance Improvement Team will then continue to monitor the issue for an agreed period to ensure that no further problems exist.

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Communication

So, how will we find out what issues have been

identified?

Clearly it is essential that we communicate what issues we have identified. There is neither benefit nor desire to keep them secret. Following incidents attended by Monitoring Officers, feedback should be provided. Often this will be two-way with crews identifying problems they have encountered with equipment, policies and so on and the Monitoring Officer discussing his/her observations.

Global communication

Periodically, the Performance Improvement Team will ensure that all Brigade personnel are updated regarding ongoing operational issues, as well as, the progress being achieved.

Under normal circumstances this will be communicated via “Shrops Ops 2” Operational bulletin or through the Ops Flash procedure.

Operational Procedures & Performance Evaluation

Group updates

The Performance Review Officer will provide periodic updates for the Operational Procedures and Performance Evaluation Group. These will list issues identified, action taken, and results achieved.

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District Officers/Section Heads

To ensure that District Officers and Section Heads are aware of identified issues relating to their respective areas of responsibility, appropriate matters will be promulgated to the responsible Officers.

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Summary

So let’s make it work!

Although the responsibility for the introduction, development and

maintenance of this system will rest with the Performance Improvement Team, all Shropshire Fire and Rescue Service staff share in the

responsibility of achieving continuous improvement. Therefore the performance Review processes must be seen as one of “joint ownership” with all Sections, Stations and personnel contributing towards the achievement of the policy goals ensuring “Continuous Improvement in Performance, Safety & Service”.

Test Improve Monitor

Perform

Review Cycle of Continuous Improvement Implement Formatted: Font: 12 pt

Appendix A

Appendix B

ADM22PT1 AB-1 09/07

FB132

Shropshire Fire & Rescue Service

Operational monitoring

Incident number:: Location/address:: Post code:

Date: Time of call:

Station watch: Incident type:

Incident level: Incident Commander:

No of concerns: Monitoring Officer

2 Operational Monitoring main - headings enter call sign or id

Main headings

tick box(s) if satisfactory

Enter concern number from table below:

7 Date and Initial when Section 6 is completed

A Incident pre-planning B Command and Control C Safety and welfare D Operations

E Fire Control/Communications

3 Operational monitoring – concern(s) Now turn over*

A Incident pre-planning C Safety and welfare 11 Vehicles/plant/services made safe?

1 Contingency plan 1(1) d sip/sop in place and up to

date? 1 Was scene safety stisfactory? 12

Hazardous substances dealt with satisfactorily?

2 Was information readily available? 2 Safety officer’s satisfactory? 13 Pollution control considered?

3 Pre-planned risk assessment in place and effective? 3 Resources parked safely? 14 Were decontamination procedures adequate? 4 Any amendments required? 4 Use of lighting satisfactory? 15 Were surrounding areas searched?

5 Was PDA appropriate? 5 Coning and signs displayed? 16 Were BA crews fully briefed?

6 High visibility tabards worn? 17 Equipment/plant provided and operated safely _{and satisfactory?}

B Command and control 7 Personal Protective Equipment worn/used? 18 Fire Safety/CFS Level 1-2 considered? 1 Was level 1 commander identified? 8 Safety on motorways observed? E Control and communications

2 Command appliance/post established? 9 SHARPS management? 1 Initial call handling satisfactory? 3 Level 1 sheet completed? 10 Fire Personnel injured? 2 Initial PDA on mobilizing satisfactory? 4 Assessment of situation correct? 11 Casualty protection? 3 Was radio procedure satisfactory? 5 Information gathering adequate? 12 Safety and welfare of crews considered? 4 Incident location identified quickly?

6 DRA continuous? 13 All ladders/ALP used correctly? 5 Relief Crews provided satisfactorily?

7 Were priorities assessed correctly? 14 Line safety satisfactory? 6 Equipment provision satisfactory?

8 Plan of action adequate? 15 Pump operation satisfactory? 7 Pumps off run/Supernumerary?

9 Plan re-evaluated as situation changes? 16 BA procedures satisfactory? 8 Main scheme radio messages?

10 Were there adequate resources estimated? D Operations 9 Communication on incident ground effective? 11 Safe systems of work in place? 1 Methods of fire fighting satisfactory? 10 Correct briefing techniques used? 12 Plan effectively communicated and implemented? 2 Covering jet? 11 Correct hand held channels used? 13 Deployment of resources and pesonnel adequate? 3 Number and siting of jets correct? 12 BA communications satisfactory? 14 Was sectoring satisfactory? 4 Correct deployment of pumps? 13 Communication with casualties? 15 Were staff Officers effective? 5 Correct deployment of ladders? 14 Liaison with other services?

16 Satisfactory staging? 6 Rescues carried out satisfactory? 15 Debrief carried out?

17 Damage control implemented? 7 First Aid and casualty handling satisfactory? 16 Response and attendance times satisfactory? 18 I C in command and control of incident? 8 Casualty holding area and equip dump set up?

9 Observers witnesses dealt with?

10 Space management considered?

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FB132

Shropshire Fire and Rescue Service

Operational monitoring

4 SECTION 6

Urgent Section A Having identified a concern in Section 3, enter the Alpha Code (s) A – E

followed by the number relating to the concern in the left hand column: _{Urgent Section B} Urgent Section C Urgent Section D If there is an issue/section/item etc that requires immediate and urgent attention enter

the relevant number in SECTION 6 box to the right.

When urgent issue has been dealt with complete Section 7 _{Urgent Section E}

Operational monitoring –detailed information

5 Recommendations for improvements/favourable comment

A C L O P D H E A

Shropshire Fire & Rescue Service Appendix C

FB344

ADM22PT1 AC-1 10/07

Identified problem index

Inc

no Date

Address Identified problem Addressee(s) Comments Com

p

lete

d

DO=District Officer. FC=Fire Control. Trng=Training Section. ICD=Incident command Department. H&S= Health & Safety Section. Stn=Station Attention needed.

Appendix D

ADM22PT1 AD-1 10/07

Shropshire Fire and Rescue Service Internal Memorandum

To: From: Performance Review Officer

cc:

Ref: Date:

Operational monitoring and review Problem identification

Following a Fire/Special Service* and debrief* on ………...…

at………….……….Incident no…….…...….. The issues noted below were identified. In line with the Brigade continuous improvement policy, these require some urgent remedial* attention.

It is considered that the nature of this observation is such that you/your section* are best suited to join a working party to* address this matter.

A member of the Performance Review Team would be pleased to meet with you at the earliest opportunity to discuss this matter further. Please use the reply slip provided to identify a suitable time and place where we can liaise.

Nature of observation:

Performance Review Officer

“Continuous improvement in performance, safety & service“

Appendix E

ADM22PT1 AE-1 10/07

Shropshire Fire and Rescue Service Internal Memorandum

To: From: Performance Review Officer

cc: cc

Ref: Date:

Operational Monitoring and debriefing

I am in receipt of the Operational debrief summary sheet submitted for Incident no ……….

The main issue(s) you have raised relate to 1

2 3 4

Thank you for highlighting these concerns/issues. In line with the Authoritys’ continuous improvement policy the following comments are made and actions initiated.

1 2 3 4

Performance Review Officer

Shropshire Fire & Rescue Service Appendix F

ADM22PT1 AF-1 10/07

Performance Review

OPPEG/Policy Group Quarterly Report

For quarter ending: ………

During the above period the following new and reoccurring issues have been identified: a) Operational monitoring b) Station audits c) Functional audit d) Staff suggestions/comments e) Strengths

From previous quarter’s reporting the following areas have been progressed:

Outstanding issues requiring attention are:

Performance Review Officer

Shropshire Fire & Rescue Service Appendix G

ADM22PT1

AG-1 10/07 Shropshire Fire & Rescue Service

Internal Memorandum

To: From: Performance Review Officer

cc:

Ref: Date:

Operational strategic monitoring incident no ………..

You are requested to carry out a strategic review of the above Incident which occurred at ……….. on ………To assist you please find attached an Incident Summary along with copies of all relevant information including debrief reports and monitoring sheets.

In carrying out this review you are requested to *carry out a general review using the following headings as a guide / *focus on the following operational areas highlighted in bold;

• Call Handling & Incident Support • Preplanning

• Crewing/staffing & turnout arrangements • Training/Incident Command provision • Incident procedures

• Equipment & appliance disposition

• Post Incident considerations including advice/debriefing

* delete as appropriate

Please use Section 4 of the attached FB 132 to record any findings/observations including any recommendations for improvement or favourable comments. Once your review is completed please return all relevant documents to me in the Performance Review Office.

Performance Review Officer