Guidance

Understanding fire risk appraisals of external walls in blocks of flats

Published 14 September 2026

Applies to England

Who is this guide for?

This guide is for responsible persons (usually the landlord or building owner) and residents of buildings that contain two or more flats.

It explains:

• the process for carrying out a fire risk appraisal of external walls (FRAEW)
• what information is included in an FRAEW report
• how to understand the findings and recommendations in the report

If you are responsible for arranging an FRAEW, you should also read the step-by-step guide to commissioning an FRAEW. It explains how to commission an appraisal, choose a suitable assessor and make sure you receive the information you need in the final report.

If you want a general overview of fire safety responsibilities in blocks of flats, see the Residents’ guide to fire safety in blocks of flats.

Buildings this guide applies to

This guide only applies to existing buildings in England.

New buildings must meet current Building Regulations and should not normally need an FRAEW. You can find more information about what counts as a new building in the guidance below.

Information for fire risk assessors

If you are a fire risk assessor and need guidance on carrying out an FRAEW, you should refer to PAS 9980:2026. This sets out the methodology for assessing fire risk of external wall systems.

Funding for remediation work

If you want to apply for funding for fire safety remediation work, including cladding remediation, follow the guidance for the Cladding Safety Scheme.

If you are not sure whether your building is eligible for funding, you can submit details to Homes England using the Tell Us… tool.

Fire risk assessments and FRAEWs

All residential buildings with two or more flats must have a fire risk assessment (FRA).

The FRA helps identify fire risks and the measures needed to keep residents safe. It is a legal requirement under the Regulatory Reform (Fire Safety) Order 2005. This is often called the “Fire Safety Order”.

The person responsible for fire safety in the building, known as the responsible person, must:

• arrange and record a suitable and sufficient fire risk assessment
• put fire safety measures in place
• maintain those measures
• review the assessment regularly and keep it up-to-date

The responsible person is usually the building owner, landlord, managing agent or housing provider, depending on who has control of the building’s common parts.

You can find more information about fire risk assessments and the duties of the responsible person in the Residents’ guide to fire safety in blocks of flats.

The Fire Safety Act 2021 makes it clear that a fire risk assessment must include the building’s structure and external walls, including:

• cladding
• insulation and materials within the external walls
• balconies
• windows

In some buildings, the FRA may recommend that a more detailed assessment of the external wall system is undertaken by a specialist. This is called a fire risk appraisal of external walls (FRAEW).

The findings of an FRAEW should be used to inform the building’s FRA. All blocks of flats should have an up-to-date FRA and, where needed, a supporting FRAEW.

What an FRAEW involves

A fire risk appraisal of external walls (FRAEW) is a detailed assessment of the risk of fire spreading through a building’s external wall system.

As set out in Building Regulations^{[footnote 1]} any reference to the external wall of a building includes a reference to:

• all the materials and construction comprising the walls which separate a building’s interior from the outside, such as cladding;
• anything located within any space forming part of the wall, such as insulation;
• any windows and doors in the wall (also including balconies); and
• (in some cases) any part of a roof pitched at an angle of more than 70 degrees which adjoins a space within the building where people have access.

Assessing the external wall system is important because the materials and construction used can determine how a building responds to fire and how quickly it can spread.

FRAEWs should be carried out by a suitably qualified specialist using the PAS 9980:2026 methodology.

What an FRAEW does not cover

An FRAEW only considers risks associated with the external wall system. It does not assess wider fire safety risks in the building. These are considered in the FRA.

When an FRAEW is needed

An FRAEW is usually needed when a fire risk assessor identifies concerns about the external wall system as part of the FRA. This may be because:

• combustible materials have been identified
• the wall construction is not fully understood
• more detailed investigation is needed

An FRAEW may be needed for blocks of flats of any height. It is not limited to medium-rise or high-rise blocks.

Buildings that are less likely to need an FRAEW

Buildings with traditional brick or masonry walls are generally unlikely to need a detailed FRAEW because the risk of external fire spread is usually lower. In such cases construction would need to be confirmed as brick or masonry and not, for example, brick slip over combustible insulation.

For buildings with brick and masonry wall systems, the FRA will often provide enough information and no further detailed assessment will be needed.

Existing and new buildings

FRAEWs are intended for existing buildings where there are concerns about external wall materials or construction.

New buildings^{[footnote 2]} should comply with current building regulations, including the ban on combustible materials in or on the external walls of relevant buildings, and should not normally need an FRAEW when they are completed.

For a new building, the owner should have a Completion Certificate from a building control body. This certificate confirms that the building complies with the applicable Building Regulations requirements.

A completion certificate does not permanently rule out the need for an FRAEW, several factors can trigger the need for one later on in the building’s lifecycle.

PAS 9980: 2026 provides guidance on how to approach existing buildings and produce short assessment reports which, provided the building’s external walls are expected to perform appropriately, will confirm that the external walls are of acceptable risk.

Code of practice to carry out an FRAEW (PAS 9980:2026)

Assessors should follow guidance set out in PAS 9980:2026^{[footnote 3]} to carry out FRAEWs.

PAS 9980:2026 is a code of practice that provides a consistent method for assessing fire risk in external wall systems. It is a technical document intended for use by competent professionals and helps them the assessor make proportionate recommendations based on risk.

The government sponsored the British Standards Institution (BSI) to develop the PAS 9980 guidance in 2022.

PAS 9980:2026 replaces PAS 9980:2022. The updated version provides a clearer and more structured assessment process but does not significantly change how risk is assessed.

If an FRAEW was completed by a competent assessor using PAS 9980:2022, it should continue to be valid until it needs to be reviewed or updated. A new FRAEW will usually only be required if there is a change to the building’s external walls, or it is recommended in a subsequent FRA.

What the FRAEW covers

The FRAEW looks at the risk of fire spreading through a building’s external wall system.

The assessor will consider:

• how combustible the external wall materials are
• how those materials would behave in a fire
• whether cavity barriers and other fire-stopping measures are present and effective
• whether there are hidden spaces or voids that could allow fire to spread
• the likelihood of a fire spreading from an external wall to other parts of the building (the likelihood of a secondary fire)

The assessor will also consider the potential impact on residents, including whether a secondary fire could:

• put residents at risk
• slow down or prevent a safe evacuation
• affect the ability of the fire and rescue service to respond effectively, including access challenges
• impact the effectiveness of existing fire safety mitigation or design measures (such as sprinklers, fire-resistant materials or alarms), assessing whether such measures can slow fire spread or accelerate evacuation.
• affect the extent and effectiveness of the building’s fire safety management arrangements, including ongoing maintenance and emergency preparedness.

The FRAEW only considers fire risk from external walls. It does not assess fire safety throughout the building, check compliance with building regulations or replace the need for a fire risk assessment.

You can find more information in the Step-by-step guide to commissioning an FRAEW. A more detailed explanation of what an FRAEW should consider and how it should be presented can be found in Recognising quality in your FRAEW: Guide for commissioners.

Understanding the risk outcome

The FRAEW report will give a risk outcome based on the likelihood of fire spreading through the external wall system and the potential impact on residents.

The risk outcome helps building owners understand whether action is needed and what level of response is appropriate.

Low risk

The external wall system is unlikely to contribute to external fire spread. No remediation work is needed.

Tolerable risk

The external wall system presents some risk, but fire spread is expected to be limited and/or suitable safety mitigation measures exist in the building to keep residents safe. No remediation work is needed.

Medium risk

The level of risk requires further assessment, mitigation or remediation. Action is needed to reduce the risk to an acceptable level.

High risk

There is a significant risk that fire could spread through the external wall system. Remediation work is strongly recommended.

Positioning on this scale is not purely numerical; it requires professional judgment that considers building design, occupancy, and fire safety measures.

The report should clearly explain:

• the risk outcome
• the reasons for that outcome
• any recommendations for reducing risk

Where works are recommended, they should be proportionate and address risks to life whilst avoiding unnecessary works.

If an FRAEW identifies risks associated with the external wall system, the building’s FRA should be updated to reflect the findings.

For more information, see the Step-by-step guide to commissioning an FRAEW or PAS 9980:2026.

Understanding recommendations and proportionality

PAS 9980:2026 uses a risk-based approach focused on risks to life from fire spread through the external wall system. The approach aims to manage risk, while making sure the safety of people in the building comes first.

This means recommendations should be based on the risk outcome identified, and the potential impact on residents.

The assessor should only recommend work that is proportionate to the level of risk.

Recommendations should focus on protecting people while avoiding unnecessary work that may be disruptive to people living in the building.  

Different buildings may need different solutions. For example:

• some buildings may need cladding to be removed and replaced
• some may need additional fire safety measures, such as improved detection or suppression systems
• some may need a combination of remediation and other risk-reduction measures

This approach recognises that every building is different and helps ensure that solutions are proportionate to the level of risk.

Fire safety laws and regulations

Responsible building owners must be aware of key regulations underpinning the fire safety of their buildings and ensure compliance.

Key Legislation

Regulatory Reform (Fire Safety) Order 2005  

This legislation requires fire risk assessments to be carried out in the common parts of multi-occupied residential buildings. It also sets out the responsibilities of responsible persons for managing fire safety.

The Fire Safety Act 2021

This Act makes it clear that fire risk assessments for multi-occupied residential buildings must take account of the building’s structure, external walls and flat entrance doors.

The Building Safety Act 2022

This Act introduced measures to improve building safety, including stricter regulations and oversight for higher risk residential buildings and strengthened protections for leaseholders. For more information about leaseholder protections in the Building Safety Act 2022, see What are my building owner’s legal obligations?.

Supporting vulnerable residents

The Fire Safety (Residential Evacuation Plans) (England) Regulations 2025 came into force on 6 April 2026.

They apply to high-rise (at least 18m high) and  residential buildings over 11 m high where there is a simultaneous evacuation strategy.

The regulations place duties on building owners and managers to consider the needs of residents who may need support to evacuate during an emergency.

Residential personal emergency evacuation plans (PEEPs)

Residents with disabilities or impairments may be entitled to a person-centred fire risk assessment to identify any support they need during an evacuation.

These arrangements are considered through the FRA rather than the FRAEW. The FRA is expected to be under constant review and take into account changes in residents’ needs.

Awaab’s Law

Awaab’s Law introduces requirements for social landlords to address serious health hazards, including damp and mould, within set timescales.

Enforcement and compliance 

Fire Safety (England) Regulations 2022

The regulations require information about a building’s external walls to be shared with the local fire and rescue service.

Remediation orders

Leaseholders and certain regulatory bodies may apply to the First-tier Tribunal for a remediation order.

A remediation order can require a landlord to fix relevant building safety defects within a specified period. A remediation order can include a requirement for a relevant landlord to complete an FRAEW.

Should a landlord or building owner refuse to meet their cost liabilities, an application for a remediation contribution order can be made with the intention of recovering costs incurred, or to be incurred, in remedying relevant defects.

The Building Safety Regulator

The Building Safety Regulator oversees higher-risk buildings in England and works to improve safety standards across the built environment.

In general, a higher-risk building is one that is at least 18 metres tall or has at least seven storeys, and contains at least two residential units, or is a hospital or care home.

Housing Health and Safety Rating System (HHSRS)

The HHSRS is used by local authorities to assess health and safety risks in residential properties. It covers numerous types of risks, not just those related to fire.

If a serious hazard is identified, local authorities have a duty to take enforcement action.

When carrying out an assessment, local authorities may take account of information from the FRA and FRAEW.

What is an external wall system (EWS1) certificate?

An external wall system (EWS1) certificate is not a government or regulatory document and is not a safety certificate.

Mortgage lenders or valuers may request an EWS1 form as part of a property sale or remortgage.

The form provides information about the external wall system and whether combustible materials are present.

Mortgage lenders decide when an EWS1 is needed and how they use the information.

Since January 2022, the Royal Institution of Chartered Surveyors (RICS) guidance has stated that investigations into external wall systems should follow PAS 9980. As a result, an EWS1 assessment may use evidence from an FRAEW. However, an EWS1 form does not replace an FRAEW.

For more information, see Cladding External Wall System (EWS) FAQs.

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1. Regulation 2(6) of Building Regulations ↩

2. A new building refers specifically to a building that is currently under design and under construction and before occupation.  ↩

3. A PAS Standard is a standard, specification, codes of practice or guidelines developed by sponsoring organisations. They are prepared following guidelines set out by BSI (British Standards Institution). ↩