DMFD59 Improving Stakeholder and Community Engagement

Report LFC-0293z to the London Fire Commissioner sets out the background to the formation of a stakeholder and community engagement team.

Following publication of the Grenfell Tower Inquiry Phase One report on 30 October 2019, London Fire Brigade (the Brigade) must more effectively communicate how it is responding to the Chairman’s recommendations and working to make London safer with London’s communities (see paragraph 10 below) and a wide and influencial stakeholder audience. The Brigade’s actions, corporate approach, tone of communications and stakeholder liaison are important factors in getting these objectives right.

In addition to the Grenfell Tower Inquiry findings, the Brigade also received its first HMICFRS inspection report on 17 December 2019. The HMICFRS found that overall the Brigade ‘requires improvement’, concluding some of the same findings identified in the Grenfell Tower Inquiry Phase One report.

Brigade officers will also develop a new Integrated Risk Management Plan (currently the London Safety Plan) in the coming months, with the existing plan due to end in March 2021. There is an opportunity to ensure that all of the learning and changes the Brigade has committed to are included and clearly explained in the new plan. Stakeholder engagement, working closely with the Strategy and Risk department (which leads on the production of the Brigade’s Integrated Risk Management Plan), and eventual public consultation on the new plan is therefore important and will need to be meaningful, effective and delivered with adequate resource.

Existing resource and expectations

Despite increased demand since the Grenfell Tower fire in 2017, additional Brigade public affairs resource has only included an increase of one half time to one full time Public Affairs Officer (FRS C grade). Current resource available and dedicated to public affairs and stakeholder engagement is just one Public Affairs Manager and one Public Affairs Officer.

The expectation of the new London Fire Commissioner working closely with the office of the Deputy Mayor for Fire and Resilience, is for increased engagement with London’s stakeholders and communities.

This follows recognition of the benefits good public affairs activity has provided in assisting public and policy makers understanding of fire safety matters at both a pan London and ministerial level.

With an expectation from the Grenfell Tower Inquiry, the Government, Mayor of London / Deputy Mayor for Fire and Resilience and Trades Unions for London Fire Brigade to provide frequent public reassurance on the measures being taken to meet the challenges set out above, there is a strong need for greater engagement with London’s communities and wider stakeholder engagement. To achieve this and ensure legal duties are met, adequate resources need to be made available for delivery.

Improving stakeholder and community engagement

Over the last decade the Brigade has increased its profile and influence as London’s fire and rescue service. There are a number of reasons for this including clearer understanding and expectations related to its functions under the Fire and Rescue Service Act (2004) and Regulatory Reform (Fire Safety) Order (2005). Polling and consultations managed by the communications department consistently demonstrate a strong recognition of the Brigade.

Maintaining this profile in the face of the current challenges will assist in its ability to promote fire safety both to the public and policy makers. In order to maintain its profile and influence, the Brigade needs to deliver even more engagement with London’s stakeholders along with the strategic management of community engagement.

​​​​​​​The Commissioner has set out his priorities in the coming year, which includes reaching out to all of London’s communities, and especially the Grenfell Tower community.

​​​​​​​Existing resources are fully engaged in already providing a wide ranging public affairs services. They deliver consultation activities, including: public affairs monitoring; coordinating responses to Mayor’s Questions; coordinating responses to public consultation; carrying out Brigade consultation where required; providing advice on on parliamentary, GLA and local authority procedures; developing and implementing public affairs strategies.

​​​​​​​Existing staff work with senior officers, including the Assistant Commissioner for Fire Safety and other senior officers, the Deputy Mayor for Fire and Resilience and staff from this office, and maintain effective relationships with a range of external agenices, including local authorities, other emergency services and Government.

​​​​​​​The small size of the current team limits the breadth of community engagement, public affairs and stakeholder and consultation activity that is possible and would be required to continue to support the Brigade’s functions and aims.

​​​​​​​A small team of two currently report to a Head of External Communications and Campaigns, who has extensive Public Affairs experience, but who is also responsible for all press office activity, digital communications and museum teams within the communications department, the latter requiring high levels of stakeholder engagement related to the development of a new museum.

​​​​​​​Based on current resource levels there are many elements of community and stakeholder engagement and public consulation that are not being met or could be developed more fully to provide a more comprehensive public service in support of the Brigade’s functions and aims.

​​​​​​​Since the Grenfell Tower fire, the Brigade has needed to manage and respond to greater levels of public scrutiny. The existing team has worked hard to ensure stakeholders (including policy makers) and London’s communities understand the Brigade’s role and position on a wide range of public safety matters. This has been effective in areas ranging from responding to major consultations on public safety and raising the profile of Brigade responses, to ensuring that briefings are available ahead of parliamentary debates, public meetings and media appearances. As explained above there are more opportunities the Brigade is not able to tap into.

​​​​​​​The creation of the LFC’s stakeholder and community engagement team will be instrumental in developing and maintaining these relationships, working in partnership with London’s communities, key stakeholders and external agenices including other emergency services and policy makers.

Proposed additional resource requirements

​​​​​​​​​​​​​​Appendix 1 of report LFC-0293z sets out a proposed structure, creating a Head of Stakeholder and Community Engagement at the lowest Top Management Group grade. This grade is proposed in order for the Head of Stakeholder and Community Engagement to effectively lead and direct an organisational approach. This senior and experienced officer will take a lead role for the Brigade in developing and coordinating engagment with stakeholders and London’s communities as well as leading the public affairs and external engagement activity for London Fire Brigade. Appointment to this post would be subject to normal competitive processes.

​​​​​​​​​​​​​​A new and separately funded advisor to the Commissioner will work closely with the Head of Stakeholder and Community Engagement.

​​​​​​​​​​​​​​The stakeholder and community engagement team will include a Community Engagement Manager to develop wider consultation activity, including plans for public consultation on the next Integrated Risk Management Plan working closely with the Strategy and Risk Department. Dedicated officers will develop and pracitcally deliver a wider range of engagment and consultation activity.

​​​​​​​​​​​​​​A flagship offering from the Brigade will be a new museum, not only celebrating the Brigade’s heritage and offering, but providing unique opportunities for community interaction and engagement. Subject to ongoing review as the museum project develops, the Museum Curator will report to the Community Engagement Manager. The team will work within the stakeholder and community engagement team managing liaison with the Mayor of London’s Culture Team, Lambeth Council, the local community and stakeholders from the museum industry.

​​​​​​​​​​​​​​It should be noted that museum fundraising requirements and commercial plans to develop merchandise for sale from the museum will be managed by the Head of Brand and Events.

​​​​​​​​​​​​​​Additional resources based on unit costs are outlined as follows. 1 x Top Management Grade (TMG) C at unit cost of £104,563, 1 x FRS F at a unit cost of £66,149, 2 x FRS E at a unit cost of £53,219 and 1 x FRS C at a unit cost of £40,387. The total staff cost is £317,537 per annum based on current unit costs. The new stakeholder and community engagement team will, in its first year of existence, develop and work to a strategy supporting the Transformation Delivery Plan. The resources detailed here are the only known and signficant costs for the new stakeholder and community engagement team. It is expected that any smaller resource requirments, for example public polling or consultation tool costs, will be contained within existing Brigade resources.

Further detail of how the proposed new resource will fit within existing structures

​​​​​​​​​​​​​​A department organogram presented on page 11 of report LFC-0293z shows how the External Engagement and Community Engagement team will fit within and strengthen the existing department structure.

​​​​​​​​​​​​​​The creation of a Head of Stakeholder and Community Engagement will not only introduce an appropriately senior resource to lead on stakeholder and community engagement strategy, but, as set out in paragraph 21 of report LFC-0293z, will also be responsible for the development of a new museum and all associated stakeholder and community engagement necessary for the successful delivery of this project.

​​​​​​​​​​​​​​In creating this new resource the existing post of Head of External Communications and Campaigns (see organogram set out in Appendix 1 of report LFC-0293z) will no longer hold responsibility for pubic affairs and the museum team (and new museum project), but continue to manage all media relations and digital communications (social media, website and other digital channels), and in addition take responsibility for the Brigade’s essential internal communications, which currently reports to the Assistant Director because no alternative reporting structure has been possible. The Head of External Communication and Campaigns post will become Head of Media (Digital) and Internal Communications.

​​​​​​​​​​​​​​Consideration was given to adding the additional duties and responsibilities explained in this report to the existing post of Head of External Communications and Campaigns. However, the current responsibilities and expected outputs from heading up media, digital communications, public affairs and the museum have already been unrealistic, and adding further stakeholder relations, public affairs requirements and new community engagement expectations would only add to this issue and not result in the additional outputs and service improvement needed.

​​​​​​​​​​​​​​It is therefore proposed that the Head of Stakeholder and Community Engagement reports to the Assistant Director of Communications, alongside an existing Head of Brand and Events, and Head of Media (digital) and Internal Communications.

Additional services provided by the External Engagement and Community Engagement team

​​​​​​​​​​​​​​Table 1 below offers an overview of how the Brigade would increase its public affairs and community engagement activity with the additional resource explained above, though further detail will become available as detailed stakeholder and community engagement are developed by the new team / resources.

​​​​​​​​​​​​​​Forming a properly resourced stakeholder and community engagement team within the communications department would lead to further advice and support for all Brigade departments carrying out external stakeholder and community engagment activities. It is very much the intention that the stakeholder and community engagement team maintains responsibility for the overall coordination of Brigade stakeholder and community engagement working closely with the Commissioner’s office, relevant departments and key external agencies. Creating a team with a more clearly defined remit seeks to assist and benefit the whole Brigade.

​​​​​​​​​​​​​​The creation of community engagement staff will provide the organisation with dedicated resource to lead on significant community engagement plans for a range of purposes, including following large or major incidents. Providing an immediate resource to consider how the Brigade should work with partners, community groups or individual affected, and liaising with key agencies and partners, including other emergency services, the Mayor of London and Deputy Mayor for Fire and Resilience and government departments.

​​​​​​​​​​​​​​The resource would also plan and deliver community liaison for key projects and take a lead role in developing plans for public consultation (not only on the Brigade’s four yearly Integrate Risk Management Plan, but also other consultations that are currently impossible to deliver in year), public opinion research and polling e.g. YouGov polling.

​​​​​​​​​​​​​​This activity is distinct from the community relations activity of firefighers conducting Home Fire Safety Visits or other forms of community safety interaction and also the services of community outreach officers based in the Community Safety directorate e.g. for equality / recruitment purposes. The additional resource would however provide the added benefit of providing key messages and ensuring they filter into other forms of community interaction, especially during periods of public consultation i.e. for the Brigade’s Integrated Risk Managent Plan proposals which would affect how the Brigade delivers all of its public services.

​​​​​​​​​​​​​​The addition of a Public Affairs officer to increase the existing resources to three people will ensure that there are sufficient resources to properly plan and increase this work, which as described above has provided significant benefits, allowing increased stakeholder relations and a full programme of activity working with borough commanders and others as presented below.

Table 1 – Examples of increased stakeholder and community engagement activity.

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Measuring outputs and impact

In 2020/21 the Assistant Director of Communications is introducing a range of performance measures to demonstrate the outputs and value of the different communications delivered by the Brigade, including its internal communications, digital communications and media activity / reach. The stakeholder and community engagement resource would include performance monitoring and reporting, not least of all to assess the quantity and impact of the activities listed above. Specific key performance indicators would be developed.

Timetable for recruitment

​​​​​​​​​​​​​​The reasons for resource requirements are outlined above and as a result of the corporate expectation, resources are needed at the earliest opportunity. Key stakeholder activity is already well underway, including work to ensure the Brigade reaches out to and works with the Grenfell Tower community and associated partners. This work cannot be delayed, but does mean that other essential activities and responsibilities are being affected e.g. media / digital planning, campaigns, improvements required to internal communications and media / digital monitoring and reporting.

​​​​​​​​​​​​​​The priority will be to appoint the Head of Stakeholder and Community Engagement, in order for the work described above to continue and develop properly and to provide the focus needed on both the museum project and plans for public consultation, with work starting now on the development of the new Integrated Risk Management Plan. The planned recruitment timetable is set out below:

The planned recruitment timetable is set out below:

The London Fire Commissioner and decision takers are required to have due regard to the Public Sector Equality Duty (s149 of the Equality Act 2010) when taking decisions. This in broad terms involves understanding the potential impact of policy and decisions on different people, taking this into account and then evidencing how decisions were reached.

It is important to note that consideration of the Public Sector Equality Duty is not a one-off task. The duty must be fulfilled before taking a decision, at the time of taking a decision, and after the decision has been taken.

The protected characteristics are: Age, Disability, Gender reassignment, Pregnancy and maternity, Marriage and civil partnership (but only in respect of the requirements to have due regard to the need to eliminate discrimination), Race (ethnic or national origins, colour or nationality), Religion or belief (including lack of belief), Sex, Sexual orientation.

The Public Sector Equality Duty requires us, in the exercise of all LFC’s functions (i.e. everything LFC does), to have due regard to the need to:

(a) Eliminate discrimination, harassment and victimisation and other prohibited conduct.

(b) Advance equality of opportunity between people who share a relevant protected characteristic and persons who do not share it.

(c) Foster good relations between people who share a relevant protected characteristic and persons who do not share it.

Having due regard to the need to advance equality of opportunity between persons who share a relevant protected characteristic and persons who do not share it involves having due regard, in particular, to the need to:

(a) remove or minimise disadvantages suffered by persons who share a relevant protected characteristic where those disadvantages are connected to that characteristic;

(b) take steps to meet the needs of persons who share a relevant protected characteristic that are different from the needs of persons who do not share it;

(c) encourage persons who share a relevant protected characteristic to participate in public life or in any other activity in which participation by such persons is disproportionately low.

The steps involved in meeting the needs of disabled persons that are different from the needs of persons who are not disabled include, in particular, steps to take account of disabled persons' disabilities.

Having due regard to the need to foster good relations between persons who share a relevant protected characteristic and persons who do not share it involves having due regard, in particular, to the need to —

(a) tackle prejudice, and
(b) promote understanding.

As stated above, in carrying out its function, the LFC must have due regard to the Public Sector Equality Duty and as part of that there is a requirement to foster good relations between people who share a protected characteristic. This enhanced team will support the LFC in meeting their obligations in relation to fostering good relations with and between a wide range of diverse community groups.

A further important outcome of having a dedicated stakeholder and community engagement function is to assist the wider Brigade plans for transformational change, including matters such as the introduction of a new behaviour framework and plans to further improve equalities. This work is especially relevant in relation to how Group Managers, Deputy Assistant Commissioners and senior officers will be supported and advised by the stakeholder and community engagement team on corporate priorities and messaging. Inclusion and equality issues are central to these revised cultural changes.

All new appointments as presented in Appendix 1 of LFC-0293z will be subject to a competitive recruitment process.

Workforce comments

Increased stakeholder engagement will assist the relationship with all Trades Unions, seeking to maintain and build on the improved relations that currently exist.

Representatives from all Trades Unions will form part of all stakeholder mapping and activity, as indicated in paragraph six above.

Changes to the staffing establishment will be subject to staff side consultation.
Sustainability implications

The implications of increased stakeholder and community engagement are that further resource is available to identify and advise on political implications and public consultation, and ensure that Brigade progress in this area is communicated to or between key stakeholders even more effectively.

There are no other direct implications on sustainability from the creation of this resource.

Report LFC-0293z recommends that the LFC approves the formation of a stakeholder and community engagement team, at a total revenue cost of £317,000 per annum for five posts. This additional growth did not form part of the budget submission to the Mayor, and if approved will be included as part of the final March 2020/21 LFC Budget report. The report also sets out examples of the increased stakeholder and community engagement, which could also result in additional financial pressures and will be contained within existing resources.

It should also be noted that the £317,000 budget only includes direct staff costs, and that desk space will need to be reviewed for the new posts. As these are full-year costs, expenditure in 2020/21 may be lower due to recruitment timelines. However, the annual cost is expected to increase each year in line with pay awards etc.

There are no additional financial implications for the GLA.

Under section 9 of the Policing and Crime Act 2017, the London Fire Commissioner (the "Commissioner") is established as a corporation sole with the Mayor appointing the occupant of that office. Under section 327D of the GLA Act 1999, as amended by the Policing and Crime Act 2017, the Mayor may issue to the Commissioner specific or general directions as to the manner in which the holder of that office is to exercise his or her functions.

Section 1 of the Fire and Rescue Services Act 2004 states that the Commissioner is the fire and rescue authority for Greater London.

By direction dated 1 April 2018, the Mayor set out those matters, for which the Commissioner would require the prior approval of either the Mayor or the Deputy Mayor for Fire and Resilience (the "Deputy Mayor"). Paragraph (b) of Part 2 of the said direction requires the Commissioner to seek the prior approval of the Deputy Mayor before “[a] commitment to expenditure (capital or revenue) of £150,000 or above as identified in accordance with normal accounting practices…”. The Deputy Mayor's approval is accordingly required for the spending detailed in this report.

Under section 6 of the FRSA 2004 the Commissioner “must make provision for the purpose of promoting fire safety in its area”. In making such provision the Commissioner must “in particular, to the extent that it considers it reasonable to do so, make arrangements for the provision of information, publicity and encouragement in respect of the steps to be taken to prevent fires and death or injury by fire”.

In accordance with Section 5A of the FRSA 2004, the Commissioner, being a ‘relevant authority,’ may do “(a) anything it considers appropriate for the purposes of the carrying-out of any of its functions (its “functional purposes”), (b) anything it considers appropriate for purposes incidental to its functional purposes, (c) anything it considers appropriate for purposes indirectly incidental to its functional purposes through any number of removes”.

Under section 112 of the Local Government Act 1972 (LGA 1972) the Commissioner (which is to be treated as a local authority for the purposes of s112 by action of s146A of the LGA 1972), “shall appoint such officers as they think necessary for the proper discharge by the authority of such of their or another authority's functions as fall to be discharged by them… An officer appointed … shall hold office on such reasonable terms and conditions, including conditions as to remuneration, as the authority appointing him think fit.”

The Commissioner is required, by sections 4 and 6 of the Local Government Act 1986 (LGA 1986), to have regard to the contents of ‘The Code Of Recommended Practice On Local Authority Publicity’ when undertaking any publicity. Section 6 of the LGA 1986 defines publicity as “any communication in whatever form, addressed to the public at large or a section of the public”. The proposals in this report comply with the requirements of this Code.