leadership & development - the national...

Consultation Paper

December 2005

Leadership & Development in the Fire and Rescue Service

Leadership & Development in the

Fire and Rescue Service

Consultation Paper

December 2005

Office of the Deputy Prime Minister: London

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December 2005

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CONTENTS

EXECUTIVE SUMMARY 7

SECTION ONE 9

Background

SECTION TWO 11

A Transformational Model

Styles of Leadership 11

Assumptions and Principles 12

Core Values 12

IPDS Rolemaps 12

Expectations 13

Leadership Contexts 13

Leadership Behaviours 14

The Elements of the Model 15

The Role of Elected Members 17

Delivering the Model for the Fire and Rescue Service 18

SECTION THREE 21

A Framework for Leadership Learning and Development

SECTION FOUR 23

Strategic Leadership Development in the FRS

Executive Leadership Programme 23

Selection and Access 25

Chief Officers/Chief Executives Development Programme 25

SECTION FIVE 27

A High Potential Management Development Scheme

Aim of the High Potential Management Development Scheme 27

Key Elements of HPMD 27

Managing and Delivering the Scheme 28

A Centre for Leadership 30

Line Managers 31

ODPM 31

Access to HPMD 31

Learning and Development 34

Progression 35

Multi-Tier Entry 35

Interface with the Strategic Leadership Development Programme 36

SECTION SIX 37

Investment in Leadership Development

APPENDIX 1 40

High Potential Management Development Scheme

Task and Finish Group 40

APPENDIX 2 41

Strategic Leadership Development Programme

Task and Finish Group 41

APPENDIX 3 42

Glossary

ANNEX A 44

List of individuals and organisations that have been invited to comment on this consultation document

ANNEX B 46

The consultation criteria

Status Of This Document 47

ANNEX C 48

Response to Consultation Paper – Questionnaire

Leadership and Development

in the Fire & Rescue Service

We are writing to invite you to participate in the consultation on a new approach to

leadership and development in the Fire & Rescue Service (FRS).

The proposals deal with leadership throughout the Service and make

recommendations for a new approach which embraces the principles of fair and open

selection and develops leaders capable of meeting the new challenges for the Service.

It is intended to complement IPDS and other aspects of the modernisation agenda.

This consultation document seeks views on:

• A transformational leadership model whose principles are applicable to all levels of

the service where leadership is required.

• A framework for leadership learning and development providing a structured

approach that ensures the development of current and future leaders and

managers.

• A Strategic Leadership Development Programme providing managed programmes

of learning and development for individuals identified as having the potential to

reach and succeed at the strategic manager levels. This will include an Executive

Leadership Programme and a Chief Officers/Chief Executives Development

Programme.

• A High Potential Management Development scheme providing accelerated

progression through a managed programme of learning and development for

individuals identified as having the potential to reach and succeed at middle

manager levels.

Subject to comments received in response to this consultation, we propose that the

FRS National Framework would make it clear that all English Fire & Rescue Authorities

(FRA) should ensure that all their staff have the opportunity to participate in and

benefit from the approach to leadership learning and development proposed in the

consultation paper.

Comments should be sent to Jill Adams at The Fire Service College by 13 March 2006

although earlier responses would be appreciated. A summary of the responses will be

available on the ODPM website within 3 months of the closing date of the consultation.

Yours sincerely

Brian Nash

Fire Service Improvement Team

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This consultation document sets out proposals concerning the introduction of a

transformational leadership model and a framework for leadership learning and

development in the Fire & Rescue Service. The document also proposes a Strategic

Leadership Development Programme and a High Potential Management Development

scheme.

Consultees are invited to:

• Identify any specific aspects of the proposals about which they have concerns

• Provide any supporting evidence which they consider would be useful

• Suggest amendments that might improve the document.

We consider that these proposals will place no (or in the case of the public sector,

negligible) extra burdens on business, charities, the voluntary and public sectors – and

therefore no Regulatory Impact assessment has been produced.

Comments on the consultation document should be submitted to Jill Adams, by e-mail

to [email protected] by 13 March 2006. Ministers have agreed to a 12

week consultation period.

The consultation document can be accessed from the website at

www.odpm.gov.uk/fire/consult

Any enquiries about this consultation should be directed in the first instance to Jill

Adams on the above e-mail address

After the deadline date of 13 March 2006, we will analyse the responses to the

consultation and produce a feedback document within 3 months of the deadline date

which summarises the:

• Received responses and comments

• Any amendments to the draft guidelines as a result of the consultation

All information in responses, including personal information, may be subject to

publication or disclosure under freedom of information legislation. If a correspondent

requests confidentiality, this cannot be guaranteed and will only be possible if

considered appropriate under the legislation. Any such request should explain why

confidentiality is necessary. Any automatic confidentiality disclaimer by your IT system

will not be considered as such a request unless you specifically include a request, with

an explanation, in the main text of your response.

A list of individuals and organisations that have been invited to comment on the draft

guidelines can be found at Annex A attached but comments are welcomed from

anyone. You are invited to bring this consultation to the attention of anyone else you

think might be interested.


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EXECUTIVE SUMMARY

1. Public services deserve excellent leaders. The Fire and Rescue Service (FRS) faces

current and future challenges, the scale of which demands clear leadership from

within. The nature and scope of the fire modernisation agenda requires an active and

positive response from the Service in order to meet the demand for continuous

improvement in standards. Historic traditions of strong, command-based models of

service leadership are evolving to meet new challenges posed both by the

modernisation agenda and the increasing expectations of those who use the service.

Increasingly flexible and varied working patterns, more diverse communities, an

increased range of risks and statutory responsibilities and a growing emphasis on

accountability and governance demand competent leaders with a new and flexible

blend of skills and experience to get results.

2. It is now widely recognised that achieving these objectives will require a new focus on

leadership development. The fire and rescue service has already made an historic

commitment to the Integrated Personal Development System (IPDS). The IPDS shifts

the focus – it puts people first and looks at the risks that can arise from workplace

activity. It then considers the options for risk reduction and management through

effective training and development arrangements. IPDS allows the fire and rescue

service to be confident that its leaders are actually able to do what is expected of them.

3. Risk reduction in its widest terms cannot be achieved through the prescriptive and

formulaic approaches to leadership training that the fire and rescue service has

traditionally employed. Instead, the fire and rescue service needs a more modern,

flexible, and risk-based approach to leadership development. This means that the FRS

must become much more outcome focussed and recognise that those outcomes are

best achieved by making sure that people have the skills, knowledge and

understanding to support competent performance. This is as true of our leaders – and

those who aspire to lead – as of anyone else. For this reason the suggestions contained

in this document integrate seamlessly with the vocational approach that forms the

foundation of the IPDS.

4. In many respects, the FRS is similar to many other public services. In areas such as local

government, health, and police, considerable advances have been made to develop

new approaches to leadership and we have drawn upon the lessons learned from those

experiences. At the same time, the FRS and the Government have devoted effort and

resources to developing key components of the modernisation agenda, particularly the

IPDS. The development of the new approach to leadership in the FRS accommodates

much of what is already available. A new leadership model will also support the

recruitment of talented people from outside the service to complement the wealth of

ability within it.

5. This consultation paper reflects the work of two Task and Finish Groups established by

the IPDS Project Board (IPDSPB) in 2004. These groups have included representatives

from the FRS, Chief Fire Officers Association (CFOA), the Local Government

Association (LGA), the Fire Service College, the Fire Brigades Union (FBU), HM Fire

Service Inspectorate, the Scottish Executive and ODPM.

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6. The proposals deal with leadership throughout the Service and make

recommendations for a new approach which embraces the principles of fair and open

selection and develops leaders capable of meeting the new challenges for the Service.

It is intended to complement IPDS and other aspects of the modernisation agenda. The

proposals in this consultation only apply to the FRS in England. However, the Scottish

Executive has contributed significantly to the development of the proposals and we

hope that these proposals will be considered suitable for adoption by all the Devolved

Administrations.

7. Achieving a national transformation in culture and approach, including a more diverse

workforce, requires a consistent approach to be applied at every level of the service.

Moreover, it is important to recognise the legitimacy of the leadership function so that

it is appreciated by those who are led, those who lead (or aspire to lead) and the public

who need and use the service. It is hoped and intended, therefore, that the model can

be used as a tool for developing fire and rescue service leaders in all roles.

8. We therefore seek your views on:

• A transformational leadership model the principles of which are applicable to all

levels of the service where leadership is required.

• A framework for leadership learning and development providing a structured

approach that ensures the development of current and future leaders and

managers.

• A Strategic Leadership Development Programme providing managed programmes

of learning and development for individuals identified as having the potential to

reach and succeed at the strategic manager levels. This will include an Executive

Leadership Programme and a Chief Officers/Chief Executives Development

Programme.

• A High Potential Management Development scheme providing accelerated

progression through a managed programme of learning and development for

individuals identified as having the potential to reach and succeed at middle

manager levels.

9. We believe that the model that has been developed, and the learning and development

framework which will underpin that model, should support current and future demand

for fire and rescue service leadership. It provides a new template which brings together

beliefs, behaviours, outcomes and contexts to form a coherent model against which

effective development leading to competent performance can take place.


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SECTION ONE

Background

10. Since 1999, a sequence of reports and reviews has consistently identified leadership as

a critical issue in the changing environment that confronts the service. These are now

reflected in the new direction for the service set out by the Government’s

modernisation agenda. The following gives a good flavour of the debate;

“Of all the issues arising out of this thematic review, it is probable that the mostimportant is that of leadership … Our view is that prerequisites for real and lastingimprovement must be a substantial reinforcement of the importance of leadershipand the enhancement of communication to confirm it.”

(HMFSI Equality & Fairness Thematic Review 1999)

“There is a need to create a robust and recognisable means of ensuring that theservice can produce and develop its leaders of the future. Established competencymodels themselves have to be altered in order to cope with complexity and change.Leaders now have to work with multiple stakeholders and partnerships, whichrequires an inclusive approach … it is apparent that there is a need to take action toproduce the principal fire officers of the future. There is a need to build on thestrengths that have produced today’s officers but to do so in a structured manner thatrecognises ability and then provides career development based on equality ofopportunity without artificial barriers to progress.”

(HMFSI “Bridging the Gap” 2001)

“Changes (are) required in the way the Fire Service manages itself and its people.Senior leaders of exceptional quality will be required to carry them through.”

(Independent Review of the Fire Service, 2002)

“Managers at all levels will also need to develop their skills in setting realisticobjectives, motivating staff, monitoring performance, giving feedback, taking actionto improve the performance of teams and individuals, analysing data andconsidering alternative ways of achieving what is wanted. Those are skills which gofar wider than those traditionally required in the fire service, so we want to ensurethere is the option of bringing in staff with outside experience as well as developingexisting staff. Other changes will also create demands for new skills, new ways ofworking and thus better management … All these new demands, and others yet toemerge, will require managers that are able to analyse what is needed, to identify theoptions available to meet those needs and to organise their staff and other resourcesto best effect in response.”

(White Paper: Our Fire and Rescue Service, 2003)

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“The (Fire Service) College will develop new thinking on senior management andleadership development issues by working with partners to develop a leadershipframework … There is a need for a developed leadership approach within Fire andRescue Authorities, both from authorities and senior managers within the Service.This will be underpinned by the effective development of staff aimed at preparingthem for management roles and ensuring that they have the necessary skills, such asfinancial and people management, to carry out their roles effectively. New entrantsfrom different disciplines will help develop a breadth and depth of approach that willadd to the existing and developing base within the Service. Multi-tier entry andtargeted development schemes will support this aim. The development of theleadership framework … will provide the focus for taking leadership issues forward.”

(Fire & Rescue National Framework 2003)

11. As well as focusing directly on the fire and rescue service, there are numerous, well-

documented cases where other UK public services have addressed similar issues, often

on a national basis. Notable examples include the Police Service, The National Health

Service, Education and the Local Government Leadership Centre. More recently, work

has been developed by the Fire Service College on a National Fire and Rescue Service

Learning and Development Strategy for England1 which provides a framework within

which a new leadership focus can be situated.

12. Since the publication of the first Fire and Rescue Service National Framework, the

relationship between a number of interdependent workstreams has begun to become

apparent; IPDS, the consultation on New Arrangements for the Recruitment ofFirefighter and the Progression of Operational and Control Managers in the Fire &Rescue Service2, the production of Core Values for the service, the HR Strategy and the

Local Government pay and workforce strategy. At the same time, the abolition of the

former Appointments and Promotions Regulations has opened up access to all levels of

the service to suitable candidates without any fire service background but who have the

skills and qualities to equip them for leadership roles within the service.

13. The proposals contained in this consultation paper have been developed against the

background of the vision for a modern fire and rescue service which:

• works with local communities and other agencies to promote community safety

and community well being, and to sustain those communities by reducing risks to

life, property and the environment from fire and other emergencies;

• intervenes promptly and effectively when fire and other emergencies occur;

• has a well equipped, skilled and motivated workforce, able to work safely and

whose composition reflects the diverse communities we serve;

• pursues continuous improvement in all its functions in order to deliver best value

and make efficient use of resources.

14. The development of an appropriate leadership model and framework will help to

decisively consolidate these elements in a very positive way.


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1 The National FRS Learning and Development Strategy for England can be found on the Fire ServiceCollege website : www.fireservicecollege.ac.uk

2 Consultation Paper, September 2005 can be found on the ODPM web site : www.odpm.gov.uk

SECTION TWO


15. Important questions to address concern the degree to which leadership in the FRS is

similar to that in any other organisation and the nature of the characteristics that the

service should be seeking in its leaders of the future. We have sought to understand

how other public service organisations – notably police, health, education and local

government – approach the leadership challenge. It is clear that, whilst dealing with

different environmental and task considerations, there is a high degree of

correspondence between the sort of leadership traits and characteristics that are

sought and developed across all of these sectors. Encouragingly, all sectors have

adopted a national approach, with both core elements and local additions to reflect

local circumstances. We do not seek to “reinvent the wheel” but we do need to

consider the question of whether there are aspects of leading in the FRS which are

sector-specific rather than general.

Styles of Leadership

16. We have looked at the latest developments in academic leadership studies, particularly

the work already done with some fire and rescue services by Dr Alimo-Metcalfe and her

colleagues on transformational leadership. We have concluded that a move away from a

traditional “transactional” model of leadership towards a transformational approach is

appropriate.

17. Put simply, the difference concerns the best way to motivate staff to perform well. The

more traditional transactional model is based on a belief that staff will primarily be

motivated by a structured approach to sanction and reward, where these are clearly

linked to measurable performance outcomes. Transformational leadership, on the

other hand, seeks to motivate by supporting and empowering staff to take on more

challenging and interesting work. This is not to say that transformational leadership

cannot accommodate a recognisable performance management framework; in fact, this

style of leadership complements the traditional activities of measurement and response

by inspiring better performance. Studies which examine staff perception of good

leadership confirm that if the employees providing a service are happy with the way

they are treated by the organisation, then their customers tend to be happier with the

service that they receive.

18. The other factor to be considered is the environment. The modernisation agenda for

the service is leading to a rapidly escalating internal rate of change. Other

developments in central-local government relations, the increasing use of partnership

models for delivering services locally, and the new models of governance all contribute

to a dynamic and demanding external working environment. Rule-based and directive

leadership styles are unlikely to be able to cope sufficiently with the developing range

of demands for effective service delivery. We have concluded that a greater degree of

flexibility and local responsiveness is both needed and expected by partners and the

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public alike, and that the flexibility inherent in a more transformational model of

leadership is more appropriate in such environmental circumstances (a conclusion

supported by other studies).

Assumptions and Principles

19. There are many existing aspects of the modernisation agenda that need to be taken

into account in developing a new leadership model. A leadership model and associated

framework would seek to bring these together in a coherent way.

Core Values

20. Valuable work has been completed and published on a core set of values for the

modern fire and rescue service and it is important that these underpin the leadership

model. As much of the work was informed by transformational models of leadership

the relationship is relatively easy to make. Core values, by their nature, guide

behaviours and will influence leadership actions and results.

IPDS Rolemaps

21. In October 2001 the Central Fire Brigades Advisory Council (CFBAC) endorsed a series

of role specifications and detailed rolemaps for all staff working in operational and

control jobs within the Service (Firefighter to Brigade Manager). This was mirrored in

Scotland by the SCFBAC in December 2001. The Fire Service Circular 9/2002 “The

Integrated Personal Development System” went on to introduce those rolemaps to the

FRS and explain the significance of the competence based approach to personal

development3. Rolemaps and other aspects of the IPDS have been further embedded

into the service through the June 2003 pay & modernisation agreement.

22. An essential component of the IPDS is the Assessment and Development Centre (ADC)

process that was designed to identify potential and thus form the basis of an effective

and equitable selection and development procedure. In seeking to develop a model of

leadership against which developmental activities can be set, it is important to place

indicators of potential into a wider context, partly to be able to show the similarities

and differences with other sectors, and partly as a visible and easily accessible model

for aspiring leaders.

Do you agree that a transformational model of leadership is moreappropriate for a modern FRS?Q1


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3 A role map is based on National Occupational Standards. It describes, in outcome terms, everythingpeople need to do in their role.

Expectations

23. We have concluded that the development of a model of leadership needs to be

informed by the expectations of major stakeholders.

24. Staff expectations were analysed to some extent in the work to produce the “Bridging

the Gap” report into managing the modernised fire service. Some clear gaps between

the views of fire service leaders and firefighters were evident but there were also some

areas of convergence, not least in the areas of public service and the value of

community-based activity. The report’s conclusions called for an agreed statement of

vision for the Service, timely development of future leaders, and the overhaul of the

Brigade Command Course.

25. Public expectations of leadership are less easy to discern and further investigation of

data held by Opinion Research Services has been done. Research and outcomes of

public satisfaction surveys reveal a service that is generally well-regarded with a high

degree of public trust. There are some detectable opinion shifts since the national pay

dispute which may indicate a greater degree of acceptance of change in terms of

“coming into line with normal working practices”. It is clear that the process of

modernisation requires leaders who are able to engage positively with the public in

explaining decisions and strategic direction. This has never been more important.

26. The other principal stakeholders are fire authority members. Leadership of the service

remains essentially a partnership between elected members (responsible for setting

policy direction) and executive officers (responsible for advising on, and delivering

policy objectives). It is important to consider this dimension particularly given the

outcomes of the Audit Commission’s Comprehensive Performance Assessment4.

Leadership Contexts

27. The development of slightly different approaches in different sectors reflects the varied

contexts within which leadership behaviours need to be exercised. We consider that

there are three principal contexts of leadership in the FRS; firstly, in the critical incident

management, or emergency response role; secondly, in the FRS as a local government

service; and thirdly, the team as the predominant mode of service delivery.

CRITICAL INCIDENT MANAGEMENT

28. Whilst not unique, the responsibility for resolving critical incidents is a specialised

aspect of leadership for the service. It remains a significant feature of public and staff

expectation of fire service leaders. However, this does not mean that it should form a

restrictive barrier to recruitment and selection for leadership roles. Current fire and

rescue service leaders at all levels will have undergone training and development to

become effective in managing critical situations – thus demonstrating it is possible to

train suitable candidates to fulfil these requirements effectively. It is likely that skills

acquired elsewhere can be adapted and deployed to good effect.


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4 The results of the CPA inspection for all Fire & Rescue Authorities in England can be found atwww.audit-commission.gov.uk

LOCAL LEADERSHIP

29. The FRS remains a local government service following the 2004 Act. Models of

leadership and capacity-building being developed for local government and elected

members are equally relevant to the FRS. We consider that the developing agenda for

local government – local governance and accountability, partnerships, public

consultation and community involvement – provides a significant element in the

leadership context. Recent developments in Public Service Boards and Local Area

Agreements mean that FRS leaders will be operating more and more in that wider

environment. Mutual understanding between partners will be critical in ensuring the

success of local initiatives for local people.

TEAM LEADERSHIP

30. The FRS is likely to remain an occupation where people, rather than technologies,

deliver the service to the public. Much of the work, for reasons of health and safety, is

best delivered by teams and it remains important for FRS leaders to be competent and

confident team leaders. The exercise of personal leadership skills constitutes a critical

context for FRS leadership, as it does in so many other areas. In relative terms this is

likely to be more distinctive in more junior leadership roles than at the strategic level

but it is important to acknowledge the personal-team context.

Leadership Behaviours

31. The transformational approach emphasises the importance of leadership behaviours in

motivating staff to improved performance. Leadership behaviours are linked to values;

with enabling cultural evolution and change in organisations and are critical in creating

more diverse and inclusive organisations. We consider that a leadership model for the

FRS should primarily be behaviourally-based.

32. While a high degree of correspondence between leadership in the FRS and leadership

in other public services is clear, there are some specific elements of context which

should shape the leadership model for the service. Because leadership is inextricably

bound up with a wider agenda for modernising the service, broadening its culture and

creating greater flexibility and innovation in service delivery, the emphasis must be on

developing FRS leaders capable of exercising behaviours likely to enable change and

get results.

Do you agree that the primary focus of the leadership model shouldbe behaviourally based?Q3

Do you agree with the 3 leadership contexts and/or are there otherswhich need to be included?Q2


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The Elements of the Model

33. The proposed model comprises four main elements:

CORE VALUES

34. The work to develop and agree core values for the FRS have been ratified by the

Practitioners Forum5 and draft core values were included as an appendix to the FRS

National Framework6. On this basis it seems safe to assume that core values – the

essential beliefs about what is important about the fire service and its role – will

underpin many of the other elements of the modernised fire service, particularly in

relation to people, their management and their development.

35. The National Framework lists the core values as follows;

• We value diverse communities

• We value our people

• We value innovation, change and learning

• We value our fire and rescue service

36. However, recent further work has refined these into

• We value diversity

• We value our people

• We value improvement

• We value service to the community

37. As the name suggests, the core values lie at the heart of the new leadership model.

PERSONAL QUALITIES AND ATTRIBUTES

38. The IPDS role maps were designed to reflect the different job requirements of

operational and control jobs in the service. These requirements are expressed in

measurable outcome-based terms and set out the competences through which people

deliver these outcomes. The national Personal Qualities and Attributes (PQAs)7 show

the underlying behaviours which will support effective performance against the role

maps. These PQAs are;


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5 The Practitioners Forum is the body through which practitioners and stakeholders in the fire industrywork together to provide advice to Government on policy development. Further information can befound at www.pforum.fire.gov.uk

6 The FRS National Framework can be found at www.odpm.gov.uk

7 The PQA framework was first published in Fire Service Circular 51/2004 and subsequently revised byCircular 34/2005. These can be found on the ODPM website at www.odpm.gov.uk

Commitment to diversity and integrity

Openness to change

Confidence and resilience

Working with others

Effective communication

Commitment to development

Problem solving

Situational awareness

Commitment to excellence

Planning and implementing

Political/organisational awareness

39. The relationship between core values and PQAs can be likened to the link between

beliefs and behaviours. The PQAs set out the behaviours that support effective

performance in operational or control roles; the core values are an expression of that

which is believed to be most important to a modern, healthy FRS.

LEADERSHIP CAPACITIES

40. Having established a link between values and behaviour in leadership terms, the next

element of the model is concerned with what is, and can be, achieved through the

exercise of those behaviours. The recent development of the Local Government

Leadership Centre (LGLC) has been very helpful and timely in proposing the latest

analysis of the leadership requirements for modern public services located in a local

government context. There are six key outcomes specified by the LGLC:

• Community leadership

• Delivering services

• Setting direction, priorities and resources

• Partnership working

• Organising and changing

• Personal and team skills

LEADERSHIP CONTEXTS

41. The final element of the model acknowledges the contexts within which fire service leaders

will need to operate; in other words, the different environments where achievement

(capacities) will be required. As indicated previously we consider that there are three

important contexts which distinguish leadership in the fire service from a generalist model;

• Critical incident management

• Local government leadership

• Team leadership


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42. For the purposes of the draft model these can translate as follows;

Critical Incident Management — Operational

Local Government Leadership — Political

The Importance of the Team — Personal

43. These require the exercise of one or more competences and PQAs to achieve the

specific task outcome. This helps not only in structuring training and development

activities but also in defining how the leadership model might be applied at the

different levels of the service.

44. Contexts are also important when viewed from the perspective of those who are led.

The Bridging the Gap report from 2001 identified strong relationships between

perceptions of professional and technical competence and good leadership on the part

of staff. Furthermore, the latest research into public opinion in relation to the fire

service tends to confirm public expectations of professional expertise in its leaders.

However, these perceptions should not be used to perpetuate an unreasonable “closed

shop” for fire service officers.

45. We consider that a model for leadership for the fire and rescue service is, therefore,

composed of four main elements; competence, core values, PQAs, and contexts.

46. These four elements are applicable at all levels of the FRS. The core values are

applicable to all staff, regardless of position or seniority but will vary in their expression

according to the context of the role. In the same way the PQAs will vary between levels

according to the requirement of the rolemap but many will be consistent. The

leadership competences will be broadly similar for all levels and all leaders will be

operating within the same three key contexts (albeit to different degrees). What will

vary is the extent to which the four key elements are exercised.

The Role of Elected Members

47. We believe that leadership in the FRS can be construed also as a partnership approach

between elected fire authority members and their executive officers. This recognises

also the Government’s increased emphasis on the local leadership agenda, reflected in

recent discussion papers. The adoption of the Local Government Leadership Centre

capacities model for officers creates an opportunity to consider the adoption of a

similar set of leadership capacities for elected members.

48. We would recommend further consideration of this issue as a way of extending the

partnership aspect of local leadership of the FRS.


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Delivering the Model for the Fire and Rescue

Service

49. The National FRS Learning & Development Strategy for England introduces the

concept of a Centre for Leadership which, to a degree, addresses the issue of

developing a Centre of Excellence, first suggested by the White Paper “Our Fire &

Rescue Service”. The vision for the Centre of Excellence is that it should be flexible and

accessible, bringing together fire and community fire safety-related institutions,

brokering partnership working and becoming a focus for expertise and advice. The

Centre of Excellence in particular should play a key role in supporting and maintaining

IPDS, developing quality assurance practices and systems, developing and maintaining

the Centre for Leadership and championing diversity across the FRS.

50. It is envisaged that the Centre for Leadership would improve leadership capability and

capacity in support of modernisation and service delivery. The establishment of such a

centre, to provide a focus for quality and innovation, is important to lend credibility to

a national programme and to support the development and maintenance of standards.

51. It is proposed that the Centre for Leadership effectively becomes the “custodian” of the

FRS Leadership Model, accountable to both the ODPM and FRS via suitable governance

arrangements. In relation particularly to developing strategic leadership capacity for the

Service, it is proposed that the Centre for Leadership play a key role in supporting

three key areas:

• A Strategic Leadership Development Scheme – Executive Leadership Development

and Chief Officer/Chief Executive Development

• The High Potential Management Development Scheme

• Building leadership capability at all levels through the provision of a leadership

toolkit based on the leadership model

52. Figure 1 is a simple visual representation of the leadership model for the fire and

rescue service.

53. Figure 2 shows how the leadership model can be simply mapped against the four main

IPDS levels (i.e. Firefighter, Supervisory, Middle and Strategic Management), providing

an opportunity to determine engagement with a development programme.


18


19

Setting

Directio

n,P

riorities &

Reso

urces

Par

tner

ship

Wo

rkin

g

CommunityLeadership

Delivering

Services

Ope

ratio

nal

Personal-team approach

CoreValues

PQAs

Political

Organising &Changing Personal &

Team Skills

Figure 1

Core ValuesService to the CommunityPeopleDiversityImprovement

Relevant OccupationalStandards fromEFSM Database

PQAsCommitment to diversity & integrityOpenness to changeConfidence & ResilienceWorking with OthersEffective CommunicationCommitment to DevelopmentProblem SolvingSituational AwarenessCommitment to ExcellencePlanning & ImplementingPolitical/Organisational Awareness


20

Figure 2

NFST

Supervisory

Middle

Strategic

ADC

LEVELS

IPDS

SECTION THREE

A Framework for Leadership

Learning and Development

54. Strengthening the leadership capability of aspiring and existing leaders is crucial to the

future success of the modernised service. The purpose of a Leadership Learning and

Development Framework is to raise the profile of leadership and management

development in the Fire and Rescue Service, providing an innovative framework that uses

the new leadership model as its foundation. The framework has been designed to

complement local and regional HR and Training Plans for leadership development. It will

provide an approach that encourages individuals to choose development that is most

appropriate to them and meets their personal development plans – one size will not fit all.

55. A Leadership Learning & Development Framework for the FRS, applicable to all

managers at every level, will be underpinned by the elements of the leadership model

• Core values

• Personal Qualities and Attributes

• Leadership Capacities

• Leadership Contexts

56. A number of strategic imperatives will also guide the implementation and delivery of

the framework:

Driven from the Top – a clear vision and purpose is required that is articulated and

supported from the very top of the FRS – high-level strategic alignment of the goals and

mission of the organisation

Top and Senior Manager Commitment – the leadership behaviours demonstrated

by top and senior management and a mechanism that ensures they are actively

involved in their own learning (CPD), and the learning of future leaders.

Individual Readiness – providing a range of appropriate diagnostic or assessment

tools for self assessment (360 degree feedback, climate and leadership style), that

support the preparation of individuals for development

A Principled Approach – all managers to embrace the four elements of the model,

demonstrating the key behaviours, beliefs and outcomes required in FRS, actively

seeking regular feedback on their performance

Supporting Diversity – an approach that values equality and diversity, ensuring

equality through a wide range of learning opportunities, supported by positive action

such as leadership development for women and minority groups

21

Talent Development – a process that identifies managerial and leadership success,

creating development solutions to build them, and providing accelerated development

pathways for people able to demonstrate a high potential to become leaders such as

the High Potential Management Development Scheme and Executive Leadership

Programme.

Valuing Qualifications – recognising the value of management qualifications such as

Chartered Manager, NVQ 3/4/5 in Leadership & Management, Diplomas in Executive

and Strategic Leadership & Management, Masters and MBAs, within the developing

National Qualifications Framework and as an effective adjunct to occupational

competence.

Consolidating Learning – ensuring that development activity is properly supported

and embedded, such as coaching, mentoring, shadowing, 360 degree feedback,

performance reviews, cross sector learning, action learning, stretch objectives and

challenges.

Evaluation – an explicit and shared basis of evaluation which includes a review of the

leadership development approach against the strategic imperatives; an assessment

process which measures whether FRS people feel they are getting the right kind of

leadership, including, for example, staff attitude surveys and assessment against

suitable models such as the competence framework, IiP Leadership Model and

inclusion in CPA evaluations.

57. The Leadership Learning & Development Framework, underpinned by the National

Occupational Standards, will provide a structured approach that ensures the

development of all current and future leaders and managers in the FRS, at the three

core leadership levels:

• Strategic: Area and Brigade Managers

• Middle Manager: Group and Station Managers

• Supervisory: Crew and Watch Managers

58. The framework will demonstrate how a range of leadership and management

development activities can be structured to achieve two different but complementary

objectives:

• Enabling and improving current, role specific leadership practice within the

defined role maps

• Developing future leaders

In addition to developing the future leaders of the FRS, the process will create

opportunities to support the continuing professional development of existing leaders

as they move the Service forward.

59. The FRS leadership model and framework, therefore, seeks to ensure the development

of competent managers by equipping them with the knowledge, skills and

understanding coupled with appropriate behaviours that lead to leadership

improvement and transformation.


22

SECTION FOUR

Strategic Leadership

Development in the FRS

60. One of the principle aims of a leadership model and framework is to ensure a pool of

talented individuals is being developed for the top leadership roles within an

organisation. The following two programmes will ensure that the FRS has a cadre of

leaders who are ready and able to compete for future leadership roles within the

service and the wider public sector.

Executive Leadership Programme

61. The Executive Leadership Programme will be the senior leadership development tool

available for the FRS. It will be designed around the four elements of the new model;

beliefs, behaviours, outcomes and contexts. It will deliver continuous professional

development and a learner centred flexible programme that challenges and stretches,

and brings about real work-based improvement to the individual learner as well as the

FRS. This approach to development should be highly valued and ensure that senior

managers in all areas of the service are able to prepare themselves for the highest levels

of FRS leadership and public service management. Whilst applicants from outside the

service are increasingly welcome at all levels, a key part of organisational development

concerns developing existing staff and this programme will help fulfil that.

62. The programme will be designed to cover the key areas in which top FRS leaders must

be competent and to explore the fundamental differences between management and

direction. It will include workplace assessment and formal assessment through an

appropriate accreditation (see figure 3).

OBJECTIVES OF THE PROGRAMME

63. The programme will be designed to enhance participants’ ability to:

• fulfil their roles, as laid out in the role maps, more effectively and confidently

• provide strategic advice and support to resolve operational incidents

• develop their personal leadership style through 360 degree feedback, and

executive coaching

• apply their enhanced skills and knowledge to improve business performance

• create a wider understanding of the corporate and political purpose of Fire and

Rescue Service supported through mentoring at the appropriate level

23

• gain a common set of business principles, values and vocabulary.

• achieve an increased understanding of the vital importance of effective team

working with both internal and external colleagues

• create a network of peer level delegates from across the organisation

• consider succession planning and benchmarking at the senior level through a

modular approach where candidates can pick and mix according to their need.

64. The proposed outline programme will combine challenging intellectual learning, work-

based development and assessment. To further maximise learning, a trained mentor

should support each learner during the programme. A pool of strategic managers could

be invited to provide this support. The programme will be delivered through a blended

learning approach utilising e- learning, distance learning and classroom based learning.

We consider that the programme would be best delivered through a consortium

possibly comprising the FRS Centre for Leadership, Institute of Directors, Accredited

Executive Coaches, and the Fire Service College.

Do you support the principles of the Executive LeadershipProgramme outlined above?Q4

Mentoring

Cross SectorialNetworking

WorkplaceAssessment

Cross SectorAction

Learning

ExternalSecondment

ExecutiveCoaching

AppropriateAccreditation

leading toCharteredDirector

Interchange

e-learning

Strategic incidentcommand

Figure 3 Executive Leadership Programme


24

Selection and Access

65. A recent ODPM consultation presents a number of options and questions in relation to

the implementation of National Firefighter Selection (NFS) and Assessment

Development Centre (ADC) processes for operational and control managers within the

Service. In particular the document asks whether the NFS and ADC processes should

be applied nationally, the extent of quality assurance which should be applied and how

renewal and maintenance might be achieved including who should be responsible for

that.

66. The Leadership Model and the Learning & Development Framework, together with the

Executive Leadership Programme and the High Potential Management Development

scheme, will support the development of people through the IPDS and good practice

elsewhere and as developed from this consultation.

67. To ensure a fair application process and focused FRS learning outcomes, we are proposing

that a Professional Reference Group (PRG) is established, facilitated by the proposed

Centre for Leadership, comprising key stakeholders from CFOA, ODPM, LGA, FSC, the

Programme consortium and the Scottish FSC. As the programme would contribute to

national and local succession plans by providing a pool of talent for future top vacancies,

the PRG could, for example, advise on numbers in relation to the rate of leavers at chief

officer level and also be responsible for the strategic direction and internal validation and

evaluation of this programme. External representatives can also add further objectivity to

the process, particularly around quality assurance, equality and diversity.

Chief Officers/Chief Executives Development

Programme

68. As part of the strategic leadership development level within the framework, we are also

proposing a Chief Officers/Chief Executives Development Programme that supports

and promotes continuous professional development (CPD). This should be linked to

the Development Objectives Database which is used with all existing development

programmes. The Centre for Leadership on behalf of Chief Officers/Chief Executives

could commission a number of providers for learning activities as demonstrated in

figure 4.

69. A number of framework contracts could be set up with “call off ” arrangements,

achieving value for money and economies of scale, enabling Chief Officers/Chief

Executives to access a wide range of learning opportunities, following their own

learning needs analysis and personal development planning. The Professional

Reference Group could oversee the management and evaluation of the contracts.

Do you support this approach to Chief Officer/Chief Executivedevelopment?Q6

Do you agree with the proposal to set up a Professional Reference Group forFRS Strategic Leadership Development?Q5

Strategic Leadership Development in the FRS

25

Mentoring

ExecutiveCoaching

Top ManagersProgramme

Cross SectorExecutive

ActionLearning

Professional Doctorate

LeadershipMasterclasses

WorkplaceAssessment

ExecutiveLeaders

ContinuousProfessionalDevelopment

Executive MBA

e-learning

Chartered Director

Figure 4 Chief Officers/Chief Executives Development Programme


26

SECTION FIVE

A High Potential Management

Development Scheme

70. As has been made clear throughout this paper, public services deserve excellent

leaders. For many public sector organisations a key element in helping to develop its

future leaders is the existence of schemes to assist in the progression of staff to senior

positions either through a traditional fast track programme or via a structured career

development programme. For example, the Police, the Prison Service, the NHS, Central

and Local Government all operate such schemes and they are seen as key to helping

deliver the challenges each of those organisations face. The FRS is no different to those

other public services and face current and future challenges, the scale of which

demands clear and unambiguous leadership from within. We consider that the time is

now right to introduce a High Potential Management Development Scheme to help

identify and nurture the future leaders of the FRS.

Aim of the High Potential Management

Development Scheme

71. The High Potential Management Development scheme (HPMD) will provide a

structured framework to facilitate the accelerated progression of new and existing Fire

and Rescue Service (FRS) personnel identified as having the potential to function

effectively in roles within the middle management level. HPMD will support and enable

scheme members to turn this potential into performance as soon as possible in their

career through a bespoke programme of learning and development. It will develop

their managerial and leadership skills, and provide a sound foundation for future

progression to the strategic management levels of the FRS. In conjunction with other

positive action schemes, it will seek to achieve the proper representation of women

and people from other underrepresented groups at managerial levels.

72. Key Elements of HPMD

• bespoke programme of learning and development

• open to new entrants and all serving fire service personnel at any level up to

middle management including people who are conditioned to part time working

and on retained conditions of service

• no entry requirement for formal educational or other qualifications

• test of potential for middle management through specially developed HPMD

Assessment Development Centre tools

27

• accelerated progression through the roles/managerial levels in line with the

principles of IPDS

• dedicated network of support including one to one mentoring

• regional management of the scheme with dedicated scheme managers and HR

support structure

• the proposed “Centre for Leadership” to provide central monitoring and review;

quality assurance and verification; central guidance to ensure consistency and

application

• access to further education and/or qualifications

• interfaces with Strategic Leadership Development

• will work in conjunction with the proposed National FRS Learning and

Development Strategy and may inform strategies in other Administrations

• is consistent with the principles of the Integrated Personnel Development System

(IPDS)

Managing and Delivering the Scheme

A REGIONAL APPROACH

73. The FRS National Framework places a responsibility on Fire and Rescue Authorities,

through Regional Management Boards, to draw up a regional HR strategy, including

recruitment and learning & development, and to identify and implement the most

efficient and effective means for the region to deliver these services, including through

lead authorities or outsourcing where appropriate. In accordance with this

responsibility, it is proposed that HPMD will be managed and delivered on a regional

basis using dedicated Regional Scheme Managers (RSMs) with the experience, skills

and competencies to ensure consistent implementation of the scheme within their

region. The RSMs should be senior personnel – recruited from within any FRA staff

group or externally – who report directly to the RMB or their nominated representative

with the authority and status to resolve any problems which may arise. Ideally they

should be professionally qualified so that they can advise upon and assess work based

assignments and projects, run workshops, action learning sets and seminars.

74. They will be supported by HR personnel within the region. The RMB, in conjunction

with the FRSs, should agree how best to provide this support. HPMD members will also

receive the normal HR support afforded to all personnel employed within a particular

FRS.

75. The regional scheme managers will be responsible for:

• assisting in the promotion and marketing of the scheme through attendance at

graduate career fairs and other job/career opportunities


28

• working with other stakeholders to promote careers in the FRS, in particular to

underrepresented groups

• ensuring appropriate implementation of the scheme and consistent standards

throughout the region

• drawing up and monitoring individual members’ development

programmes/progress

• providing effective liaison between those on the HPMD and senior staff

• providing advice and support including intervening in the case of practical,

personal or other problems

• developing line managers, mentors and assessors for their responsibilities in

relation to scheme members

• working with line managers in the development of HPMD members so full

potential is realised

• running networking events for members

• undertaking personal progress reviews every 3-6 months

• reporting on HPMD progress and identifying any deficiencies at regular intervals to

the RMB

• maintaining links with the Centre for Leadership to ensure cross fertilisation of

good practice and lessons learned as part of HPMD’s ongoing review

76. The Learning and Development Strategy proposes the establishment of a network of

regional champions to assist in the delivery of Centre for Leadership initiatives. The

RSMs are ideally placed to assist with this role. The establishment of a clear link with

the Centre for Leadership will help ensure a consistent application of the scheme

nationally and ready access to advice and support.

77. In order to fulfil the role, the RSMs will need to have the full backing and commitment

of the FRS Brigade Managers, the FRA and the RMB. Whilst the RSMs could be

employed by the Centre for Leadership we consider it preferable for the Regional

Management Boards or an agreed lead authority within a region take the responsibility

for arranging the employment of the RSM.

Do you agree with the Regional Scheme Manager concept and howthey should be employed?Q8

Do you agree with the regional approach or should the scheme benationally managed?Q7


29

A Centre for Leadership

78. HPMD should be regarded as part of the wider leadership agenda and whilst the day to

day management of HPMD will take place regionally, there will be a role for a central

body to provide co-ordination, advice, support and quality assurance, particularly in the

early years of the scheme. Other organisations such as the NHS, Police and Local

Government have all emphasised the importance of having a Leadership Centre

providing such assistance.

79. We have already mentioned the key role which we see the Centre for Leadership

playing in developing strategic leaders for the Service. Therefore, the Centre for

Leadership role in respect of HPMD would involve:

• issuing advice on how the scheme should best operate and maintaining/updating

that guidance

• being a source of advice on how best to fulfil the development needs of HPMD

members using its connections with learning and development organisations

• providing the option for membership of such organisations as the Chartered

Management Institute or the Institute of Leadership & Management

• liaising with RMBs/FRS on succession planning and with scheme managers on

vacancies

• being a catalyst for cross regional collaboration

• assisting in the marketing of the scheme including responsibility for the publication

and promotion of recruitment material such as an HPMD brochure

• considering, as part of the vision for the Centre of Excellence, the development

and management of a website providing access to general information about the

scheme, how to apply and providing hyperlinks to regional/local sites.

• being a point of contact for those with an interest in the scheme;

• reviewing and monitoring the strengths and weaknesses of the scheme and

arranging for corrective action where identified

• facilitating the quality assurance role


30

Line Managers

80. Scheme members are likely to experience short term secondments and work

placements across a number of departments (and possibly external organisations). This

means that a number of line managers will assume primary responsibility for managing

and supporting a scheme member and will be fully involved in all aspects of an

individual’s development including workplace assessment, coaching and mentoring.

Although this function is a mainstream component of any managerial role map, owing

to the criticality of HPMD, line managers supporting the scheme must be flexible,

willing and able to devote an appropriate amount of time to this aspect of their role. It

is imperative that line managers receive the appropriate development and support

needed to undertake this responsibility, for example, in understanding the value of

diversity and positive action principles. It may also be necessary, particularly in the early

years of the scheme, to identify and to develop managers/specialists with specific

qualities and experience who would be best able to develop members in particular

skills and knowledge.

ODPM

81. Looking to the future the role of ODPM in respect of HPMD is unlikely to be of any

great significance. Its principal involvement will be related to monitoring quality

assurance on delivery for ministerial assurance and on equality and diversity.

Access to HPMD

NEW ENTRANTS

82. Every potential entrant to the FRS will have the opportunity to indicate their interest in

the HPMD scheme by ticking a box on the relevant application form.

83. Once an individual has successfully passed the initial entrance test, be that the National

Firefighter Selection (NFS) or for other positions within the Service (at all positions up

to and including supervisory manager level), they would be invited to undertake a

specially developed HPMD Assessment to test potential to reach and succeed at roles

within the middle management level. Those candidates who are successful in the

HPMD Assessment will then access the scheme.

84. There is a need to ensure that no-one with potential is missed in the early stages of

their career. We consider that all the entry results are checked to identify candidates

who did not tick the box initially but whose performance in entry tests and/or in the

workplace (where entry tests were not a prerequisite to joining the FRS) suggest that

they should be approached and invited to consider the scheme and to attend the

HPMD Assessment.

85. The HPMD Assessment will test each candidate’s potential for development through

assessment against the national Personal Qualities and Attributes (PQAs) framework

established for middle managers. However, the HPMD Assessment is not intended to

be the equivalent of a full ADC for middle management level and whilst the PQAs will


31

form the basis of the assessment, the depth and intensity of the assessment will need

to be suitably adapted.

86. We want to see the FRS attract the best and brightest. We want to see graduates joining

the service and the RSM and the Centre for Leadership will play vital roles in selling the

FRS, as a career with clear managerial and leadership opportunities, through graduate

fairs and other marketing events. But we also recognise that non graduates have the

potential to succeed and we would not want to deny them the opportunity to prove

their capabilities and benefit from the scheme. We also consider that the FRS needs to

be able to attract exceptional people from a wide range of backgrounds. We are,

therefore, proposing that there will be no requirement for formal educational or other

qualifications.

87. A regional HR strategy will be critical as decisions will need to be taken about whether

there needs to be a limit on the numbers of staff who should be offered a place on the

HPMD. Succession planning is critical because much development is role specific. The

HPMD Assessment will have to incorporate a “pass mark” to limit the intake onto the

scheme. In such circumstances it will be important that consistency is applied across all

ADCs so that it is not easier to pass in one region in comparison to another where

suitable opportunities exist. Applicants who are successful in the HPMD Assessment

will normally be offered placements with the FRS in which they have already accepted a

post. However, where the RSM considers that an HPMD member would benefit from

either serving in another FRS either permanently or on secondment they will need to

work with the relevant line managers to reach an agreed solution.

JOINING THE HPMD AS A SERVING MEMBER OF STAFF

88. Existing staff will be able to join HPMD at any of the roles up to and including those at

supervisory level. All FRS personnel who apply would be required to undertake the

HPMD Assessment. If successful, the RSM will work with the appropriate line managers

to draw up a learning and development programme and establish arrangements for

overseeing that individual’s progress. It will be for each region to agree policy as to the

frequency of holding HPMD Assessments bearing in mind their HR strategy for

recruitment and succession planning.

Figure 5 provides an example of how to join the HPMD.

Do you agree that there should be no requirement for formaleducational or other qualifications?Q9


32


33

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Learning and Development

89. All personnel on the HPMD scheme will receive a bespoke programme of learning and

development using the Leadership Learning & Development Framework. This

programme, and the associated support, will be designed so that each member is able

to achieve a middle management position within a short timeframe. Typically we would

expect HPMD scheme members to reach the middle management level within 5 years

for someone joining the scheme as a firefighter or equivalent level.

90. The scheme will be designed to ensure that HPMD members can readily access

development opportunities that will best help them achieve competence in role

including, where appropriate, academic and professional qualifications. (The HPMD

learning and development programme will be provided in conjunction with the

broader National FRS Learning and Development Strategy and the proposed leadership

model and framework)

91. HPMD members will be expected to maximise the opportunities made available and to

meet the performance and development expectations required of them. HPMD

members can expect to be challenged and stretched as they gain the new skills and

knowledge associated with a higher role – so facilitating speedier progression. The

scheme, given the expected timeframe, the movement through the roles and possible

secondment and study opportunities, will be demanding and require strong personal

commitment from the HPMD member.

92. The HPMD programme will have the broader vision of providing the scheme member

with the skills and knowledge to succeed at middle management levels and potentially

beyond. In addition to developing core skills, there will be significant emphasis on

leadership development as well as people management and the ability to manage

change and risk. There will also be an expectation, in keeping with the philosophy of

HPMD that members should work towards an appropriate qualification which will

support the needs of the workplace. In undertaking such studies, the member will be

afforded the opportunity to enhance both their general management abilities and their

leadership potential with skills that are relevant and transferable at the higher levels. It

may also be part of the HPMD that terms of secondment are undertaken in, for

example, ODPM, local government, another emergency service or a business

administration environment.

93. HPMD members will have their progress continuously assessed by their line manager

against their development plan, and the RSM will in conjunction with line managers,

undertake a separate progress review at regular and agreed intervals – possibly every

3-6 months in the initial period. These one-to-one reviews will assist in identifying

future development needs.

Do you agree that HPMD members should work towards anappropriate qualification as part of the scheme?Q11

Is it reasonable to expect a scheme member to reach middlemanagement level in 5 years?Q10


34

94. HPMD members will have a dedicated network of support to call upon. As well as their

line managers and the RSM, each FRS (or in the future each Region) will have HR

personnel with specific responsibility for HPMD members. Mentors will also be

allocated to each HPMD member – an experienced person who can offer advice and

expertise on development needs and help build good relationships with other

colleagues.

95. The RSMs will also organise events (either within their own region or across regions)

where HPMD members can get together and establish support networks.

Progression

96. HPMD members will not be able to bypass the requirements of IPDS and its associated

elements. Progression will accord with the general principles set out in the consultation

on arrangements for the recruitment and progression of staff – interview when moving

within a managerial level or full ADC when progressing between managerial levels.

Such an approach will preserve the credibility of the individual and will deflect possible

allegations of favouritism or other equalities issues. Owing to the earlier indication of

potential, there will be a high expectation that scheme members will progress at a

faster rate than normal and may be better equipped to achieve the highest scores in a

full ADC. Equally, non-scheme members who score highly at an ADC may be offered the

opportunity to join the scheme by taking the HPMD assessment.

97. Competence in any role will be confirmed in ways that are consistent with the national

standards. If an HPMD member does not achieve competence in a particular role

within an expected time frame then the person may be asked to exit the scheme (but

only after being given every opportunity to prove their abilities).

98. Within 5 years of entering the scheme as a new entrant, it would be expected that the

HPMD member would obtain their first middle management position. This timeframe

will not be set in stone and some reasonable upper time limit may need to be applied

to ensure the credibility of the scheme and the individual member. A progressively

shorter timeframe should be expected for those joining the scheme from the

supervisory levels.

99. Once the appointment of an individual to a middle management position is confirmed

the RSM in conjunction with the Centre for Leadership and the line manager will take a

view as to the exit strategy to be adopted for the individual – some personnel may

remain on the HPMD for a longer period depending on the judgement of the RSM and

others.

Multi-Tier Entry

100. Having a HPMD scheme in operation means that individuals joining the service directly

at all levels up to and including middle management will have the opportunity to join

the scheme and receive the benefits that such a scheme brings in terms of support and

resources. Without such a scheme, direct entrants may receive locally arranged learning

and development opportunities, but they would, in effect, be more dependent on

experiential learning from other sources and need to rely on their own drive and

determination.


35

Interface with the Strategic Leadership

Development Programme

101. Developing a seamless leadership framework from new entrant to brigade manager

would send a positive message to those considering a career in the FRS. This could be

approached in a number of ways:

102. The HPMD could become an all encompassing scheme taking individuals right from

the point of entry to strategic managerial roles with the HPMD Assessment extended to

assess their potential to reach strategic management levels rather than middle

management. However, there are concerns about how reliable an assessment at a very

early stage would be to confidently warrant a long-term investment.

103. Alternatively, there would be two inter-related but separate schemes – the HPMD and

the Executive Leadership Programme. The HPMD would continue to operate to middle

management level. Those successfully progressing through that scheme would self-

evidently have certain managerial/leadership strengths and have benefited from the

investment afforded to them. The likelihood is, therefore, that HPMD members would

be better equipped to perform well when attending a Strategic level ADC. The HPMD

scheme will in effect provide a stepping stone to the Executive Leadership Programme

without denying opportunity to others progressing through normal incremental

routes.

104. However, it might be considered that the jump from middle manager to brigade

manager development is too large and therefore a personal transitional programme

may need to be developed. The Centre of Leadership would offer advice on the

component parts of such a programme.


36

SECTION SIX

Investment in Leadership

Development

105. A major study of management and leadership development, “Management

Development Works: The Evidence”, by Dr Chris Mabey, published by the Chartered

Management Institute, 20058, has provided key evidence of the links between

investment in leadership and management development and organisational

performance. The Study was conducted over an eight-year period with 500

organisations, both public and private. It measured impact, including organisational

commitment, performance and productivity, and provides evidence showing how

strategically driven leadership and management development, implemented over time,

makes a significant difference.

106. These findings in the study are key in that they show:

• How sustained management and leadership development can improve

organisational performance

• The need for leadership and management development to be driven strategically if

service delivery improvements are to be realised through improved people

management

• Growing demand for development activities that improve people skills and change-

management capabilities

• That the most effective forms of development are those connected directly to

managers’ experiences in the workplace. The belief that “leaders are born and not

made” has finally been eclipsed by the importance of job experience.

107. Investment in leadership development is critical if real improvements in performance,

sustained over time, are to be achieved. Investment in Leadership Development in the

Fire and Rescue Service will work best therefore when it is a clear organisational

priority and linked to the FRS National Framework and organisational development

processes such as IPDS, Comprehensive Performance Assessment and Recruitment and

Progression of Staff.

37

8 Management Development Works: The Evidence (January 2005) by Dr Chris Mabey published by theChartered Management Institute (ISBN 0-85946-335-4)

108. Effective implementation of the proposed approach to leadership and leadership

development outlined in this paper inevitably requires investment in the following

three areas:

• Developing and implementing the new model and framework, providing a

structured approach that ensures the development of current and future leaders

and managers.

• Designing, developing and delivering a new executive leadership programme for

individuals identified as having the potential to reach and succeed at the most

senior levels in FRS, and a scheme to provide continuous professional

development for chief officers/chief executives.

• A High Potential Management Development scheme providing accelerated progression

through a managed programme of learning and development for individuals identified

as having the potential to reach and succeed at middle manager levels.

109. At this stage costs associated with the development and implementation ofall the components contained in this consultation paper are difficult toaccurately identify. But it is possible to give some indication of the likelyoverall costs.

Development and implementation of the new model and framework110. Funding is being sought for the development and implementation of the new model

and framework through the capacity building fund. This investment will provide a

leadership toolkit, based on the new leadership model, that will include a bespoke 360

degree feedback process, diagnostic tools for leadership self assessment, open learning

workbooks linked to the model and access to a virtual learning resource centre. If

successful, 5000 copies of the Toolkit will be ready for implementation into the Service

from November 2006. This funding will also include the introduction and development

of a coaching culture that improves individual performance and develops the whole

organisation, training managers as coaches with HR and Training Professionals being

trained to provide facilitated 360 degree feedback.

Continuous Professional Development111. Developing a structured approach to continuous professional development for chief

and deputy chief officers, and equivalent executives, is seen as risk critical as the

development of the top leadership will be critical to the success of the modernisation

agenda and improvement in performance that is required. Research demonstrates that

there is a significant correlation between performance, including productivity, and

investment in top leadership development. There is much greater employee

engagement leading to improved performance. We would anticipate that the cost

would be in the region of £3000 per Chief Officer/Chief Executive per annum.

Executive Leadership Programme112. The proposed executive leadership programme for those with the potential to reach

the top leadership positions requires investment – without this, the FRS will not be

creating a cadre of future top leaders. Not investing in such a programme would put

the FRS out of step with other emergency service organisations such as the Police and

the NHS, where such investment is seen as essential. In addition to one-off

development costs of some £50,000, we would anticipate a programme involving 20

delegates per annum at a per capita cost of £15,000.


38

High Potential Management Development Scheme113. The High Potential Management Development Scheme will in essence be a fast track

scheme. No such scheme has existed in the Fire & Rescue Service for over 30 years.

This puts the FRS out of kilter with most of the public sector where fast track schemes

are seen as a vital element in developing the future leaders, for example, the National

Health Service, the Police, the Prison Service, Central and Local Government9.

114. Given that this will be a new scheme it will require the establishment of structural and

organisational components, for example, a specially developed test of potential. The

paper also recommends the appointment of regional scheme managers to support

scheme members and we would anticipate the need to advertise and market the

scheme.

115. The estimated cost, based on 50 participants accessing the scheme in year 1 at a per

capita cost of £3,000 per annum for their learning and development and £200,000 for

marketing, management etc, is £350,000 at the outset. Assuming a similar intake each

year, the costs by year 4 would be some £800,000. In addition to these costs must be

added the proposed regional and local support which on the basis of 3 Regional

Scheme Managers would cost around £150,000 per annum – assuming that such

individuals are newly appointed and not drawn from existing resources. In overall

terms, therefore, we would be looking at an annual cost once established of around

£950,000 per annum or the equivalent of @£20,000 per FRA.

116. It is evident that the cost of implementing and maintaining the proposed approach to

leadership development is considerable, and adequate resourcing will be crucial to its

success. FRAs already invest substantially in the training and development of their staff

but the evidence suggests that this investment is not delivering the leaders which the

service needs if it is to meet future challenges. Whilst it has not been possible to obtain

detailed information on current spending on leadership development by FRAs, we

consider that, for the most part, the proposals outlined in the consultation paper are

unlikely to represent a significant extra cost to individual FRAs.

117. A structured approach to leadership, with a model and framework underpinned by

specifically tailored programmes of development should achieve improved value for

money with the possibility for efficiencies, particularly, by encouraging greater regional

co-ordination in learning and development. It must also be recognised that the benefits

the new approach to leadership development would bring to the FRS are considerable

and will have a positive and long lasting impact.

118. However, the Government recognises that there are certain aspects, particularly in

respect of the High Potential Management Scheme, which will require a new delivery

mechanism. The Government is, therefore, willing to listen to, and discuss, what might

be done to assist the process.

We would welcome your views on the extent to which theproposals can be accommodated by a redirection of currenttraining and development programmes and through efficiencies,such as greater regional co-ordination.

Q12

Investment in Leadership Development

39

9 For further information see: www.futureleaders.nhs.uk; www.policehighpotential.org.uk;www.hmprisonservice.gov.uk; www.faststream.gov.uk; www.ngdp.co.uk

APPENDIX 1

High Potential Management

Development Scheme

Task and Finish Group

ESTABLISHED MAY 2004

Terms of Reference“To design a scheme, and produce an implementation strategy, that will facilitate thetargeted progression of Fire and Rescue Service personnel to middle managementlevel. The scheme will have regard to the National Workforce Development Strategyand to any proposed strategic leadership development programme.”

MembershipBrian Nash – ODPM/HM Fire Service Inspectorate (Chair)

Richard Bull, Chief Fire Officer, Tyne & Wear – Local Government Association (LGA) and

the Chief Fire Officers Association (CFOA)

Maggie Harte – The Fire Service College

Eamonn Barclay – The IPDS Hub

Sue Evans – The IPDS Hub

John McGhee – The Fire Brigades Union

Diane Lauder – The Scottish Executive

Chris Callow – The London Fire Brigade

Lindsey Broadway – The Police High Potential Development Scheme

Gill McManus – ODPM/Fire Service Effectiveness Division

Marilyn Tyler – ODPM/HM Fire Service Inspectorate (Secretary to the group)

40

APPENDIX 2

Strategic Leadership

Development Programme

Task and Finish Group

ESTABLISHED SEPTEMBER 2004

Terms of referenceWithin the context of the national Integrated Personal Development System, theproposed targeted development system and open recruitment at all levels of theservice, to develop a national framework to implement a scheme to identify, selectand develop suitable candidates for the strategic levels of fire and rescue servicemanagement.

MembershipCharlie Hendry – Deputy Chief Fire Officer, Kent Fire & Rescue Service (Chair)

Brian Nash – ODPM/HM Fire Service Inspectorate (Secretary)

John Bonney – The Association of Principal Fire Officers

Dave Hall – Chief Fire Officers’ Association

Ian Youll – Local Government Association

Max Hood – London Fire Brigade

Maggie Harte – Fire Service College

Sue Hopgood – Fire Service College

Sue Evans – IPDS Hub

Diane Lauder – Scottish Executive

Andy Gilchrist – FBU

Gerry Goldsack – ODPM/HM Fire Service Inspectorate

Richard Twyman – ODPM/Fire Service Effectiveness Division

41

APPENDIX 3

Glossary

COMPETENCE

An individual is competent when they can perform the activities expected in their role

to the National Occupational Standards. This involves demonstrating and being

assessed against the performance criteria, knowledge and understanding of each

element within their role map.

DEVELOPMENT PROGRAMME

Once an individual has shown that they have the potential to undertake a new role,

they can be put on a programme to help them develop into that role. This

Development Programme helps them acquire any new skills they need.

INTEGRATED PERSONAL DEVELOPMENT SYSTEM (IPDS)

The Integrated Personal Development System (IPDS) represents a complete change of

approach to workforce development for Fire and Rescue Authorities. Brought in as part

of the June 2003 pay and modernisation agreement for operational staff, IPDS

introduces a competence-based approach, and its system of development specifically

targets the needs of the individual.

NATIONAL OCCUPATIONAL STANDARDS

National Occupational Standards (NOS) define good practice in the way people work,

based on the functions of their job.

PERSONAL QUALITIES AND ATTRIBUTES (PQAS)

PQAs define the behaviours required for effective performance.

POSITIVE ACTION

A variety of measures designed to counteract the effects of past discrimination and to

help eliminate stereotyping. It may include initiatives such as the introduction of non-

discriminatory selection procedures, training programmes or policies.

42

New Arrangements for the Recruitment of Firefighters and the Progression of

Operational and Control Managers in the Fire and Rescue Service

PRACTITIONERS FORUM

The Practitioners Forum is the body through which practitioners and stakeholders in

the fire industry work together to provide advice to Government on policy

development.

PROCESSES

Includes ADC exercises, psychometric tests, physical tests, etc. and the systems for

using these within FRAs. The exercises and tests will need to be replaced and revised

periodically. The systems, once embedded, should become fairly standard.

ROLE MAP

A role map is based on National Occupational Standards. It describes, in outcome

terms, everything people need to do in their role.

STRUCTURED INTERVIEW

An interview where participants are asked to provide evidence of their performance

against the PQAs. Everyone is asked the same questions and there is a standard system

used to score the answers.

WORKPLACE ASSESSMENT

Workplace assessment is a process enabling work performance to be fairly and

accurately measured against clearly defined standards in order to demonstrate

competence in a given role.

Glossary

43

ANNEX A

List of individuals and

organisations that have been

invited to comment on this

consultation document

Adult Learning Inspectorate

Audit Commission

Association of Principal Fire Officers

Black and Ethnic Minority Members (FBU)

Cabinet Office Chief Fire Officers

Chief Fire Officers’ Association (CFOA)

Chief Executive, County Councils

Clerk to the Combined Fire and Rescue Authorities

Commission for Racial Equality

Convention of Scottish Local Authorities

Department of Education and Skills

Department of Health, Social Services, Public Safety, Northern Ireland

Disability Rights Commission

Edexcel

Emergency Planning College

Employers’ Organisation for Local Government

Equal Opportunities Commission

Fire Brigades Union

Fire Industry Council

Fire Officers’ Association

Fire, Rescue And Safety Vocational Standards Group (FRSVSG)

Fire Service College

Fire Service Examinations Board

General Municipal Boilermakers Union (GMB)

Government Offices (Business Change Managers)

HM Treasury

Heads of Human Resources in Fire and Rescue Authorities

Health & Safety Executive

Home Office

HR Practitioners Forum

Institute of Fire Engineers

Integrated Personal Development System (IPDS) Project Board (ODPM)

IPDS Co-ordinators

Learning and Skills Council

Local Government Association

44

London Fire and Emergency Planning Authority

National Assembly for Wales

National Association of Fire Officers

National Joint Council for Local Authorities’ Fire Brigades

Networking Women in the Fire Service

Northern Ireland Office

Practitioners’ Forum

Qualifications and Curriculum Authority

Chairs of Regional Management Boards

Retained Firefighters Union

Scottish Executive Justice Department

Scottish Fire Service Inspectorate

Scottish Fire Services College

Scottish Qualifications Authority

Sector Skills Development Agency

UNISON

List of individuals and organisations that have been invited to comment on this consultation document

45

ANNEX B


The Government has adopted a code of practice on consultations. The criteria below

apply to all UK national public consultations on the basis of a document in electronic or

printed form. They will often be relevant to other sorts of consultation.

Though they have no legal force, and cannot prevail over statutory or other mandatory

external requirements (e.g. under European Community Law), they should otherwise

generally be regarded as binding on UK departments and their agencies, unless

Ministers conclude that exceptional circumstances require a departure.

1. Consult widely throughout the process, allowing a minimum of 12 weeksfor written consultation at least once during the development of thepolicy.

2. Be clear about what your proposals are, who may be affected, whatquestions are being asked and the timescale for responses.

3. Ensure that your consultation is clear, concise and widely accessible.

4. Give feedback regarding the responses received and how the consultationprocess influenced the policy.

5. Monitor your department’s effectiveness at consultation, includingthrough the use of a designated consultation co-ordinator.

6. Ensure your consultation follows better regulation best practice,including carrying out a Regulatory Impact Assessment if appropriate.

The full consultation code may be viewed at

www.cabinet-office.gov.uk/regulation/Consultation/Introduction.htm

Are you satisfied that this consultation has followed these criteria? If not, or you have

any other observations about ways of improving the consultation process please

contact

Adam Bond, ODPM Consultation Co-ordinator, Room 2.19, 26 Whitehall, London,

SW1A 2WH;

or by e-mail to: [email protected]

46

Status Of This Document

This consultative document makes proposals concerning the introduction of a

transformational leadership model and a framework for leadership learning and

development in the Fire & Rescue Service. The document also proposes a Strategic

Leadership Development Programme and a High Potential Management Development

scheme.


47

ANNEX C

Response to Consultation

Paper – Questionnaire

Q1: Do you agree that a transformational model of leadership is more appropriatethan a transactional model for a modern FRS?

Strongly agree agree neutral disagree strongly disagree

Q2A: Do you agree with the three leadership contexts? Please delete as appropriate:

Critical Incident Management: Yes/No Local leadership: Yes/No Team Leadership: Yes/No

Q2B: Are there any others which need to be included? Please LIST below:

Q3: Do you agree that the primary focus of the leadership model should bebehaviourally based?


Q4: Do you support the principles of the Executive Leadership Programmeoutlined above?


Q5: Do you agree with the proposal to set up a Professional Reference Group forFRS Strategic Leadership Development?


48

Q6: Do you support the approach outlined for chief officer/chief executivedevelopment?


Q7: Do you think that the management of the HMPD scheme should beapproached:

a) regionally or b) nationally

Q8A: Do you agree with the concept of Regional Scheme Managers for HMPD?

Yes/No

Q8B: If yes, how should they be employed?

Q9: Do you agree that there should be no requirement for formal educational orother qualifications for entry to the HMPD scheme?


Q10: Is it reasonable to expect a scheme member to reach the middlemanagement level in 5 years?

Yes/No If ‘Yes’, what is an appropriate period?

Q11: Do you agree that HMPD members should work towards an appropriatequalification as part of the scheme?


Response to Consultation Paper – Questionnaire

49

Q12: We would welcome your views on the extent to which the proposals can beaccommodated by a redirection of current training and developmentprogrammes and through efficiencies, such as greater regional co-ordination

Comment:

Any additional comments:

If you are willing to be contacted further with regard to your responses please provide

contact details:

Name:

Tel. No:

E-mail:

Thank you for completing this questionnaire. Please return it to

[email protected] by 13 March 2006 or by post to:

Jill Adams

The Fire Service College

Moreton-in-Marsh

Gloucestershire

GL56 0RH


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