BARRIERS TO THE SUCCESSFUL AMALGAMATION OR REGIONALISATION OF ENGLAND S FIRE BRIGADES

Transcription

1 BARRIERS TO THE SUCCESSFUL AMALGAMATION OR REGIONALISATION OF ENGLAND S FIRE BRIGADES 1. INTRODUCTION The research was prompted by ongoing speculation over the future structure of the fire service in the UK. The government s 1997 Comprehensive Spending Review resulted in proposals for amalgamating or regionalising brigades (Home Office, 1997). Little followed these proposals, however the government subsequently introduced the Best Value review process, and their Modernising Local Government agenda (DTLR, 1998), followed by proposals for regionalised local government (ODPM, 2001). The Independent Inquiry into the Fire Service (the Bain Review [Bain, 2002]) did not recommend immediate consideration of amalgamation as anticipated, but did suggest that should regional government be introduced, it would be logical for the fire service to follow local government into the regional structure. Bain also suggested that fire brigades could consider amalgamation as appropriate. Amalgamation of some form is therefore likely in the not-too-distant future. For organisations to amalgamate successfully, it is useful to identify the potential barriers and obstacles prior to implementation. The research set out to identify such barriers. 2. RESEARCH HYPOTHESIS AND OBJECTIVES The research began with the hypothesis that: Proposals for the successful regionalisation or amalgamation of England s fire brigades cannot be met because there are too many barriers to overcome. The objectives to test the hypothesis were to: 1. Identify the background to the fire service regionalisation debate. 2. Identify environmental influences that may produce obstacles or barriers, including: Discussing theory on environmental influence. Ascertaining preferences of England s chief fire officers and fire authority chairs. Sampling chief officers who commanded amalgamated fire brigades in Wales. Identifying key stakeholders, their preferences, influence and reasoning over their stance. Identify barriers and obstacles to amalgamating fire services through an international study. 1

2 3. Analyse the resulting data and produce findings. 4. Draw conclusions. 5. Make recommendations 3. KEY LITERATURE The key areas from the literature review centred on influences on the organisation s internal and external environments INTERNAL ENVIRONMENT The cultural web is a representation of the taken-for-granted assumptions, or paradigm, of an organisation and the physical manifestations of organisational culture (Johnson and Scholes, 1999, p 73). THE CULTURAL WEB Stories Symbols Rituals and Routines PARADIGM Power Controls Organisation Johnson and Scholes (1999) An organisation s culture provides continuity and stability, which is positive (Leach et al., 1994). However, culture can have negative connotations. Failure to consider culture when reengineering will inevitably result in a collision with the organisation s formal cultures and informal sub-cultures, which are hidden from view in what is described as the organisational ice-berg (Senior, 1997). The issue of culture within subsumed organisations, and that despite change being a regular occurrence people will still react against it, are important issues in change management. 2

3 THE ORGANISATIONAL ICEBERG Senior, B. (1997) FORMAL ORGANISATION goals and strategy structure systems and procedures-products/services financial services - management INFORMAL ORGANISATION values, attitudes and beliefs - leadership style and behaviour - organisational culture and norms of behaviour - power, politics and conflicts - informal groupings Stakeholders have a significant role in organisational cultures, and have differing levels of power and influence on an organisation. Identifying these levels assists with successful organisational change, as the change will be assisted by facilitators or thwarted by blockers. Importantly, awareness of stakeholder positions can prevent those that were supporters moving to a position of blocking through a process of proactive management (Francis, 1999; Johnson and Scholes, 1999). Identifying where each stakeholder group sits is important as change can be subject to strategic drift if the principle actors are not fully involved (McAndrew, 1993). Understanding stakeholder positions helps improve decisionmaking; reduce conflicts or delays; and increase local cooperation (Francis, 1999). Power may be exercised negatively or positively - to create or prevent change. As stakeholder perception, rightly or wrongly, is their reality (Manring et al., 1990), consultation is important (Macfarlane and McIntosh, 2000). Organisational step change requires transformational leadership, where a vision is communicated to all personnel and a sense of urgency is established, and new cultural symbols are introduced (Kotter, 1996). Change agents, often not those that created the vision, should be employed to drive through such change (Kotter, 1984;Titchy and Devanna, 1996) EXTERNAL ENVIRONMENT Scanning the political-legal, economic, socio-cultural and technological environment (PEST), enables identification of key drivers or blockers of change, so that cognisance can be taken of them (Johnson and Scholes, 1999). These elements can be extremely political within the public sector (Haberberg and Rieple, 2001), and can lead to enforced strategic choice (Johnson and Scholes, 1999). Once all influences are identified, force-field analyses 3

4 can be utilised to assess them against each other to help quantify the forces (Lewin, 1951) and identify imbalances (Thomas, 1985). Experiences of amalgamations in Canada, Wales and South Africa have a striking similarity (Ellis, 2002). All have had problems pre and post amalgamation, experiencing parochial defence of the status quo and self-protectionism, as well as issues around combining different cultures. Other similarities include the role of local politicians (often negative), poor preplanning and a failure to recognise the issue of stakeholders. 4. DATA COLLECTION AND ANALYSIS The following groups were surveyed: Representatives of key stakeholder groups. England s chief fire officers and fire authority chairs. Two retired chief fire officers from Wales. Elected members and officers in Johannesburg and Cape Town Quantitative analysis of statistical data was carried out through the use of Statistica where correlations and levels of significance were sought. Analysis of qualitative evidence was undertaken to seek themes. 5. FINDINGS 5.1. UK KEY STAKEHOLDER GROUP PERSPECTIVES Office of the Deputy Prime Minister (ODPM) The government must be identified as the driver of change, having accepted Bain s findings in full. All stakeholders recognise the government s power and influence in the debate. Experiences in Wales indicate that the government will implement change as part of its modernisation agenda, with or without local government support or considered opinion. Local Government Association (LGA) The LGA, and elected members generally, are opposed to amalgamation and regionalisation, favouring increased collaboration, which they may see as a means to stave off the threat of the loss of local services, and possibly their control over a succeeding local authority service. The LGA s views do not always reflect fire authority councillors views, which indicate a surprising preference for regionalisation rather than amalgamation. 4

5 The role of elected members in parochially defending the status quo through defence of self and party interests has been raised. They have the ability to assist with a smooth transition, or effectively undermine all attempts to combine as was experienced in parts of Wales. Chief Fire Officers (Chiefs) and Fire Authority Chairs (Chairs) Not surprisingly, Chiefs and Chairs have different perspectives on some issues such as the best model of fire authority. What has emerged is that Chiefs tend to prefer a model other than the one they currently work for, which may indicate dissatisfaction with current arrangements, whereas Chairs are in favour of retaining the status quo, which may indicate self-protectionism. This difference is likely to be due to perception, rather than objective reality. Neither felt that combining brigades would create savings. Comparing responses from Chiefs and Chairs against the three models of fire authority identified by the respondents, using the Kolmogorov-Smirnov test identified a number of differences of views. These findings of significance, where the results are probably not due solely to chance and that some genuine factor is producing the observed difference are identified below: Brigade size: 81% of Chairs agreed or strongly agreed that the size of their brigade was appropriate, compared to only 61% of Chiefs. Whether the fire service is truly accountable to the electorate through the fire authority: Only 58% of Chiefs agreed or strongly agreed compared to 67% of Chairs. Whether regional brigades could maintain a local focus: 58% of Chiefs agreed, compared to 17% of Chairs. 36% of Chairs however, strongly disagreed. Regionalisation is more attractive than amalgamation: 67% of Chiefs agreed or strongly agreed, compared to 36% of Chairs. However, 28% of Chairs strongly disagreed. Any regional fire services should remain under local authority: 47% of Chiefs agreed or strongly agreed compared to 83% of Chairs. Further, 47% of Chairs strongly agreed. Amalgamated brigades would be able to maintain sufficient local focus: 64% of Chiefs agreed or strongly agreed, whereas only 36% of Chairs agreed or strongly agreed, with 19% strongly disagreeing. Closer collaboration is more attractive than amalgamation: 58% of Chiefs agreed or strongly agreed, compared to 67% of Chairs. However, 53% of Chairs strongly agreed. 5

6 Chief and Assistant Chief Fire Officers Association (CACFOA) CACFOA is keen to move away from direct local control, to a model of local accountability with higher levels of self-determination on operational matters, which contrasts sharply with 72% of chief officers in favour of remaining under local authority control. CACFOA favour sub-regional amalgamation rather than collaboration, whereas individual chief officers tend to believe their brigades are at an appropriate size, and that the current system for accountability is appropriate. However, Bain recommends (2002) that governance should remain at a local level. A further disagreement with CACFOA is that Chiefs tend to favour regionalisation rather than amalgamation, but their preferred choice is collaboration, which may also be a defence of the status quo. Despite this, individual Chiefs felt there is limited true-accountability to the electorate through the fire authority model, supporting CACFOA s view on a needed step change in governance. Chief officers having different opinions to the official CACFOA view is not surprising, bearing in mind that chief officers only make up approximately ⅓ of its membership. CACFOA seek a common constitution and funding for fire authorities, citing the current differences as creating inequality. Fire Brigades Union (FBU) The FBU are against a reduction in the number of brigades, and wish to maintain the current fire authority models and levels of accountability claiming an unsatisfactory outcome to the amalgamations in Wales. Most stakeholders identify the FBU as a blocker to change SOUTH AFRICA, CANADA AND WALES PERSPECTIVES A number of common themes were identified. Culture Culture is a key component in organisational re-engineering. Cultures continued from the amalgamated brigades and fire authorities become some of the sub-cultures of the new organisation, heavily influencing the organisation s new cultural web. The sense of being taken over or no longer belonging emerged. Consequently there was a tendency to try to maintain old cultures. There is a need to consider the whole issue of how individuals are dealt with, and how culture has a key role. Personnel remaining in denial can be a significant disruptor, but is inadvertently maintained through leaving symbols and rituals from subsumed organisations in place well after the amalgamation. In two cases there was a plan to combine a number of district and city brigades into 5and 6 larger brigades, and then later combine again into metropolitan brigades over a 9-year time frame. Each brigade maintained the chief officers, uniform and rank marking systems. This led to some disruption, a lack of ownership and allowed maintenance of old symbols, rituals and routines. Speed of Transition and Transitional Arrangements Due to the speed of transition, in more than one case, chief officers were only selected a few months before the transition. In one, other key senior personnel were not appointed until after 6

7 the transition. There was no vision as to where we were going or where the end was (Ellis, 2002, p71). Failure to set establishment levels and plan for transitional costs across the range of activities of the service was cited. Experiences indicate that significant issues materialise if planning (strategic, tactical and operational) has not been considered adequately. Planning time frames were identified as inappropriate for the size of the task, combined with limited recognition of the difficulties associated with amalgamating brigades. Complex organisations have been bought together and expected to function as a single unit with poor planning. Agendas were cited as too big and unrealistic, which led to a physical loss of personnel, equipment and property. Projects failed as too many were started at the same time. Some managers became disenfranchised and did not take ownership of the transition, or the new organisation. Some in fact deliberately sabotaged the transition. Local Government and Governance There were difficulties in establishing relationships, with the fire service being seen as low on the political agenda. There was no concept of establishment levels or ridership requirements. In some cases politicians, and officers, were hostile to the concept of amalgamation and redistribution of resources. In one case in Wales, elected members refused to accept the loss of their brigade and did not cooperate, instructing their chief officer not to participate in transfer arrangements. In two cases views on levels of subsequent success were identified as different between politicians and officers. Budget Setting Short to medium term financial savings may not be realistically achievable when amalgamating brigades without undermining effectiveness. Different parties have raised transitional costs and the need to build a new base budget. Experience has shown that in reality no savings can be expected over a 5-year timescale. Communication Communications were blocked due to culture. Sabotage was considered to be a real problem undermining the new organisation, demoralising personnel, with false stories in the media and deliberate damage to vehicles. Good communication was identified as vital to overcome it. Where communication was used well, there were definite attitude differences from personnel towards amalgamation. Procedures Bringing together procedures to create common standards is fraught with problems. If you adopt one set over the others then it is seen as being taken over by that authority, which leads to demoralisation (Ellis, 2002, p71). Providing common procedures proves expensive. 7

8 Effectiveness and Efficiency In most cases, senior officers felt that efficiency savings could not be made in the short to medium term. In fact they cited how much more the amalgamated brigades cost, due to transitional costs such as combining command and control systems, management information systems and operational equipment. In South Africa there was a view that the brigades were less effective due to problems with crewing levels, and the remoteness of the new brigade. There are differing views about whether a local focus can be maintained with large fire services. The majority feel that it can be maintained, as the service is delivered from within the community, rather than from a remote point. 6. CONCLUSIONS Future regional or sub-regional amalgamations of England s Fire Services appear likely. Individuals and stakeholder groups have the capacity to assist with a successful transition to amalgamation, or they have the capacity to cause significant damage. Stakeholder perception is reality is a key learning point here. Consequently early consultation is necessary to ensure education and objectives on the issue are communicated. Stakeholder groups need to be dealt with on an individual basis. Those with positive influence and high power are key players and need to be consulted and outcomes acted upon even if their views are not to be utilised. There is a danger that those with a negative influence can become more powerful and move to a position of unhelpfulness or confrontation. Opposition can be anticipated before, during and after any amalgamation. Relationships between disgruntled politicians and chief officers must be considered. Evidence has shown that this relationship can be unpleasant and unconstructive, and works against the efficient and effective delivery of the service. Stakeholder group blockers and drivers or facilitators of change have been identified through this research, as highlighted below. 8

9 Low INFLUENCE High High PREVENTERS DRIVERS Government POWER FBU LGA CACFOA Low POTENTIAL THORNS Local Chief CouncillorsOfficers The Electorate SUPPORTERS Ellis, Adapted from Johnson and Scholes (1999) A Vision is vital. Successful change will only come about if there is a creation, and clear understanding of a strategy for change. This strategy must be consulted upon. Once defined it needs to be clearly communicated to all stakeholders to maintain support and prevent deflection and potential undermining of the strategic aims. As a consequence key stakeholder groups need to be directly involved in the creation of the new organisation. Opportunities to involve stakeholders at an early stage, brief and consult meaningfully have been identified as important. This is particularly so where attitudes and habits are a strong element of a culture or sub-culture. To achieve step change, transformational leadership is necessary and change agents are needed to deliver and champion the new organisation. The difference between transactional and transformational leadership and management must be clearly understood by those acting as strategy creators, developers and change agents. Strategic planning plays a vital role in organisational change. Adequate time needs to be available for planning to occur. Short time scales inevitably lead to unsuccessful amalgamations. Financial planning is a key component. Insufficient time to plan for amalgamation; set and agree establishment levels; and establish structure will result in poorly constructed budgets. Experience shows that failing to set a realistic budget results in the brigade being under funded and put in a catch up position which is often difficult to achieve. Immediate efficiency savings are highly unlikely all things remaining equal. There are always high transitional costs as brigades attempt to establish common working practices 9

10 and procedures, and consolidate information and communication systems. High costs are also associated with establishing common corporate identities, an important element to success. Locally negotiated conditions of service of subsumed brigades and equality of opportunity need considering, if the new organisation is to establish common values and an equality culture in its early stages. Those brigades that did not move quickly enough to remove the symbols, rituals, routines, and control systems of subsumed brigades continue to struggle with the amalgamation. Taken for granted assumptions, rituals and routines which are key elements of an organisation s cultural paradigm should not be taken lightly. Despite significant similarities between UK fire services, individual paradigms will be different. Bringing organisational cultures together to create a new culture is a key element to successful change. Sub-cultures are likely to present the most significant problems. Failure to manage the cultural issues can result in strategic drift where the sub-cultures deflect or even prevent a strategic aim from being achieved in its entirety, particularly where managers may be an integral part of that sub-culture or are heavily influenced by it, and may not be committed to change. There are a number of forces for and against change, producing an interesting force-field analysis. FORCE-FIELD ANALYSIS Driving forces Restraining forces Government Determination and Power Can do Culture New Strategic Vision Supportive Stakeholders CACFOA some local authorities Long-term savings Existing modernisation culture Economies of scale Larger organisational resource P R E S E N T Organisational and sector culture/sub-culture Taken-over syndrome Rituals, symbols, routines Unsupportive stakeholders LGA FBU, some local authorities Transitional costs Fear of continuing change Self-protectionism Status quo defence Leadership V I S I O N

11 This research has identified that there are significant potential barriers to actually achieving a successful amalgamation of fire services. In spite of the difficulties that brigades have faced in different parts of the World, amalgamations do occur, and services continue to be delivered to the public. Consequently: It is the opinion of the author that the hypothesis has not been proven. However, to provide a successful amalgamation cognisance needs to be taken of the findings of this research. 7. KEY RECOMMENDATIONS The Office of the Deputy Prime Minister should: Provide a clear strategic vision for the fire service. Consult widely with all stakeholders prior to the move to regional fire services, and be cognisant that the LGA, FBU and some other individual stakeholders are likely to strongly oppose regional fire services. Ensure that adequate time is provided for the successful planning and transition from single fire authorities to combined or regional fire authorities. Provide adequate transitional funding. The Local Government Association should: Set a clear agenda for its members to follow, and provide training and education, to ensure a successful transition. Local Authorities should: Provide suitable and competent elected members to form the new fire authorities to ensure and demonstrate a commitment to the change. Fire Authorities should: Appoint chief officers at least 12 months prior to the creation of the new brigade to ensure adequate planning time. Consult widely with all local stakeholders at an early stage and be seen to act upon the consultation. Establish clear organisational aims and objectives, mission statements and core values to guide the new organisation. Ensure adequate briefings are provided to personnel, the public and the media to assist with a smooth transition. Ensure old symbols are replaced at the earliest opportunity, to help establish new values and beliefs. 11

12 Chief Fire Officers should: Be cognisant of the issues raised on cultures and sub-culture, and establish new symbols and values at an early stage to assist with the transition to a new culture. When formulating the new budget be cognisant of the hidden costs, such as support services, which may have been provided to county council fire services. Chief and Assistant Chief Fire Officers Association should: Work closely with the ODPM and the LGA to advise in the build up to the legislative phase, and subsequently in the planning and implementation phases. The Fire Brigades Union should: Participate fully in consultations to ensure their views are expressed and considered as part of the process 12

13 REFERENCES 1. Bain, Professor Sir George (2002) The Future of the Fire Service: reducing risk, saving lives [online, cited on 16 December 2002] Available from URL: 2. DTLR. (1998) Modern Local Government In Touch With The People. London, Stationary Office 3. Ellis, D.A. (2002) Barriers to the Successful Amalgamation or Regionalisation of England s Fire Brigades. BCC International Research Project, Fire Service College 4. Francis, P. (1999) Stakeholder Involvement in EIA and SEA: World Bank Experience in P.J. Scott, C. Wood, and C.E. Jones (eds) in EIA Newsletter 18. Manchester, University of Manchester [online, cited 30 th July2002] 5. Available from URL: 6. Haberberg, A. and Rieple, A. (2001) The Strategic Management of Organisation. Harlow, Prentice Hall 7. Home Office, (1997) Working Together An Examination of Some Options for Collaboration and Re-Organisation in the Fire Service. London, Stationary Office 8. Johnson, G. and Scholes, K. (1999) 5 th edn, Exploring Corporate Strategy. Harlow, Pearson Education. 9. Kotter, J. (1990) A Force For Change: How Leadership Differs From Management. New York, Free Press. 10. Kotter, J. (1996) Leading Change. Boston, Harvard Business School Press. 11. Leach, S. Stewart, J. and Walsh, K. (1994). The Changing Organisation and Management of Local Government. Basingstoke, MacMillan Press 12. Leckie, L. (1998) A Political Analysis of the British Fire Service. Leicester, Institution of Fire Engineers 13. Lewin, K. (1951) Field Theory in Social Science. New York, Harper and Row. 13

14 14. ODPM (2001). Modernising Local Government In Touch With The People. Government White Paper. [online, cited 20 November, 2002]. Available from URL: Macfarlane, M. and McIntosh, M. (2000) Stakeholder Consultation: Socialising Capital or Capitalising on the Social? [online, cited 30 th July 2002]. Available from URL: McAndrew, B. (1993) Changing Organisations. Harlow, Longman. 17. Manring, N., West, P. and Bidol, P. (1990) SIA and Environmental Conflict Management: Potential for Integration and Application. Environmental Impact Assessment Review, vol 10, pp Senior, B. (1997) Organisational Change. London, Pitman 19. Titchy, N. and Devanna, M. (1990) The Transformational Leader. New York, John Wiley & Sons. 20. Thomas, J. (1985) Force-Field Analysis: A New Way to Evaluate Your Strategy. Long Range Planning, vol 18, no. 6, p