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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
Product code 05 FRSD 03543
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
5
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.
Leadership & Development in the Fire and Rescue Service
6
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.
7
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.
Leadership & Development in the Fire and Rescue Service
8
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)
9
“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.
Leadership & Development in the Fire and Rescue Service
10
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
A Transformational Model
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
11
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
Leadership & Development in the Fire and Rescue Service
12
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.
A Transformational Model
13
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
Leadership & Development in the Fire and Rescue Service
14
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;
A Transformational Model
15
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
Leadership & Development in the Fire and Rescue Service
16
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.
A Transformational Model
17
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.
Leadership & Development in the Fire and Rescue Service
18
A Transformational Model
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
Leadership & Development in the Fire and Rescue Service
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.
Leadership & Development in the Fire and Rescue Service
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
Leadership & Development in the Fire and Rescue Service
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
Leadership & Development in the Fire and Rescue Service
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
Leadership & Development in the Fire and Rescue Service
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
A High Potential Management Development Scheme
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
Leadership & Development in the Fire and Rescue Service
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
A High Potential Management Development Scheme
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
Leadership & Development in the Fire and Rescue Service
32
A High Potential Management Development Scheme
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
Leadership & Development in the Fire and Rescue Service
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.
A High Potential Management Development Scheme
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.
Leadership & Development in the Fire and Rescue Service
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.
Leadership & Development in the Fire and Rescue Service
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 consultation criteria
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.
The consultation criteria
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?
Strongly agree agree neutral disagree strongly disagree
Q4: Do you support the principles of the Executive Leadership Programmeoutlined above?
Strongly agree agree neutral disagree strongly disagree
Q5: Do you agree with the proposal to set up a Professional Reference Group forFRS Strategic Leadership Development?
Strongly agree agree neutral disagree strongly disagree
48
Q6: Do you support the approach outlined for chief officer/chief executivedevelopment?
Strongly agree agree neutral disagree strongly disagree
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?
Strongly agree agree neutral disagree strongly disagree
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?
Strongly agree agree neutral disagree strongly disagree
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
Leadership & Development in the Fire and Rescue Service
50