Progress report: fire and rescue services
Updated 30 September 2025
© Crown copyright 2025
This publication is licensed under the terms of the Open Government Licence v3.0 except where otherwise stated. To view this licence, visit nationalarchives.gov.uk/doc/open-government-licence/version/3 or write to the Information Policy Team, The National Archives, Kew, London TW9 4DU, or email: psi@nationalarchives.gov.uk.
Where we have identified any third party copyright information you will need to obtain permission from the copyright holders concerned.
This publication is available at https://www.gov.uk/government/publications/grenfell-tower-inquiry-government-progress-report/progress-report-fire-and-rescue-services
Recommendations 29 and 30
| Recommendation number |
Inquiry reference | Status | Responsibility | Accepted |
|---|---|---|---|---|
| 29 | 113.51 | In progress | Government | In principle |
| 30 | 113.53 | In progress | Government | In principle |
Recommendations
29: That the government establish [an independent College of Fire and Rescue] immediately with sufficient resources to provide the following services nationally:
-
practical training at all levels supplementary to that provided by individual fire and rescue services
-
education in the form of lectures and seminars on different aspects of the work of the fire and rescue services in order to share experience and promote good practice
-
research into matters that may affect the work of the fire and rescue services, including major fires
-
the development of equipment, policies and procedures suitable for ensuring the effectiveness of fire and rescue services nationally and the safety of firefighters and the public
-
setting and maintaining national standards of managerial competence for senior managers, including control room managers, and providing management training for, and regular assessment of, senior ranks by reference to such standards.
30: That [the college] should have a permanent staff of sufficient size to manage its operations and develop its functions in response to the demands of fire and rescue services nationally and the requirements of the board. The college will need access to permanent facilities, including facilities for practical training and education. We envisage that much of the training and education will be delivered and led by firefighters of suitable experience drawn as the occasion requires from fire and rescue services around the country.
What we committed to doing
29: We recognise the importance of making sure that fire and rescue services are appropriately trained and that high standards are maintained. The creation of a college was also recommended in His Majesty’s Inspectorate of Constabulary and Fire & Rescue Services’ (HMICFRS) 2023 spotlight report on values and culture in fire and rescue services as a means of tackling challenges in these areas.
Establishing a college will require primary legislation and consultation is the necessary first step. From summer 2025, we will consult on the most appropriate functions for the college to fulfil and how it could best be structured and delivered, including consideration of all the functions recommended by the Inquiry. Engaging with and hearing from a wide range of people and organisations will strengthen our proposals.
An early priority will be to agree with sector partners the real-world outcomes that a successful college would deliver, to inform all further work.
30: See recommendation 29. This will be captured by the consultation on the most appropriate functions for the college to fulfil and how it could best be structured and delivered.
These recommendations will be complete when
A solution is set up to deliver the aims, functions and outcomes identified through the upcoming consultation on a college of fire and rescue. It will aim to deliver these functions to organisations across the fire and rescue sector.
What we have done
We intend to launch a public consultation by the end of this year to gather views on what a college of fire and rescue should be responsible for, how it could be set up and how it could be funded.
We continue to work with people and organisations across the fire and rescue sector to develop the proposals that will be included in the consultation. As part of this, we have established a working group to gather views from key partners. This group has now met twice and has considered a range of topics, such as the key aims a college should deliver and the functions it should fulfil.
Recommendations 31, 32 and 33
| Recommendation number |
Inquiry reference | Status | Responsibility | Accepted |
|---|---|---|---|---|
| 31 | 113.55 | In progress | HMICFRS | In full |
| 32 | 113.56 | In progress | HMICFRS | In full |
| 33 | 113.57 | In progress | HMICFRS | In full |
Recommendations
31: That His Majesty’s Inspectorate of Constabulary and Fire and Rescue Services (“the Inspectorate”) inspect the London Fire Brigade as soon as reasonably possible to assess and report on:
-
the extent to which the control room is now integrated into the organisation
-
the effectiveness of the arrangements for identifying the training needs of control room staff, delivering effective training and recording its outcomes
-
the effectiveness of the control room generally
-
the ability of the control room to handle a large number of concurrent requests for advice and assistance from people directly affected by fires or other emergencies
-
the quality and effectiveness of the arrangements for communication between the control room and the incident commander.
32: That as soon as reasonably possible the Inspectorate inspect the London Fire Brigade to examine and report on the arrangements it has in place for assessing the training of incident commanders at all levels and their continuing competence, whether by a process of revalidation or otherwise.
33: That as soon as reasonably practicable the Inspectorate inspect the LFB to examine and report on its arrangements for collecting, storing and distributing information in accordance with section 7(2)(d) of the Fire and Rescue Services Act 2004, and in particular its arrangements for identifying high-risk residential buildings and collecting, storing and distributing information relating to them.
What we committed to doing
31: His Majesty’s Inspectorate of Constabulary and Fire and Rescue Services (HMICFRS) most recently inspected London Fire Brigade in February 2024 on their effectiveness, efficiency and people management. The findings were published in November 2024.
Overall, HMICFRS found that London Fire Brigade had made significant improvements in their performance since their previous inspection in January 2022. London Fire Brigade has improved its understanding of risk, continues to respond quickly to fires and is seen as outstanding in responding to major and multi-agency incidents.
32: See recommendation 31.
33: See recommendation 31.
These recommendations will be complete when
31: All relevant parties – the inspectorate, MHCLG officials and ministers - have considered evidence related to this recommendation and are satisfied that the recommendation has been fully met.
32: All relevant parties – the inspectorate, MHCLG officials and ministers - have considered evidence related to this recommendation and are satisfied that the recommendation has been fully met.
33: Ministers have considered evidence related to this recommendation and are satisfied that the recommendation has been fully met.
What we have done
His Majesty’s Inspectorate of Constabulary and Fire & Rescue Services (HMICFRS) has published its findings to address the three Inquiry recommendations directed at them through their inspection of the London Fire Brigade (LFB). The findings were published in November 2024. HMICFRS’ view that their existing Round 3 inspection methodology covers the three recommendations around control rooms, incident commanders and operational planning. LFB also considers that it has made significant progress in these areas.
We continue to evaluate these recommendations on control room processes (31), Incident Commands (32) and HMICFRS review of high-risk building information procedures (33) to determine whether these can be formally closed and discharged. Once assessments are concluded with all essential parties, the progress made against these recommendations will then be considered before they can be formally closed.
Recommendation 34
| Recommendation number |
Inquiry reference | Status | Responsibility | Accepted |
|---|---|---|---|---|
| 34 | 113.58 | In progress | London Fire Brigade (LFB) | In full |
Recommendation
That the London Fire Brigade establish effective standing arrangements for collecting, considering and effectively implementing lessons learned from previous incidents, inquests and investigations. Those arrangements should be as simple as possible, flexible and of a kind that will ensure that any appropriate changes in practice or procedure are implemented speedily.
What we committed to doing
London Fire Brigade is committed to ensuring lessons from incidents are learned from and good practice is shared across the organisation and with key agencies.
The collection of learning and data from operational incidents has been improved, with a move towards a more open and supportive approach with regard to learning, which reflects best practice from other sectors such as health and aviation.
Significant and major incidents are prioritised for the purposes of learning, so that information is shared with staff as quickly as possible, should similar incidents occur again.
The Brigade has introduced a new bulletin, Operational News Flash, to promptly provide risk critical information direct to operational staff that also separates need-to-know from the nice-to-know in relation to operational learning and identifies operational risks.
This recommendation will be complete when
Completion of this recommendation will be aligned to the adoption and assurance of LFB’s updated Operational Learning Policy.
What we have done
The London Fire Brigade (LFB)
The Operational Policy and Assurance department is reviewing and updating LFB’s Operational Learning Policy, which includes the adoption of the National Fire Chiefs Council (NFCC) Fire Standards. This policy review is scheduled to conclude by the end of 2025. The revised policy approach, as part of continuous improvement, provides effective and uncomplicated arrangements, demonstrating a timely incorporation of operational learning and where appropriate, changes to working practices. LFB continues to utilise an improved and agile system for the adoption of new learning through the Operational News Flash (ONF) methodology.
The National Fire Chiefs Council (NFCC)
The NFCC has developed an action and delivery plan detailing how we will address the recommendations and shared this with key stakeholders, including MHCLG.
Since the May progress report, the NFCC launched an Organisational Learning Good Practice Guide consultation, which closed in July. The NFCC is reviewing feedback, and a final version of the guide is due to be presented to the Guidance, Learning and Scrutiny Panel for approval and publication in December 2025.
The NFCC has engaged with key stakeholders on developing an Organisational Learning Library to give fire and rescue services greater access to lessons learned from across the UK and internationally. The NFCC has designed an interim solution, which was published in September, with a future-state product. This could include a Learning Management System, becoming part of the wider digital transformation within the NFCC.
Recommendations 35 and 36
| Recommendation number |
Inquiry reference | Status | Responsibility | Accepted |
|---|---|---|---|---|
| 35 | 113.59 | In progress | Fire and rescue services (FRS) | In full |
| 36 | 113.60 | In progress | Fire and rescue services (FRS) | In full |
Recommendation
35: That fire and rescue services that continue to use low power intrinsically safe radios as part of breathing apparatus consider reserving them only for situations in which there is a real risk of igniting flammable gases and generally using radios of higher power, particularly in high-rise buildings.
36: That all fire and rescue services give consideration to providing all firefighters with digital radios.
What we committed to doing
The NFCC is surveying fire and rescue services to understand what arrangements are currently in place at a local level and what national support could be put in place to support services to meet this recommendation.
The NFCC will produce a delivery plan by the end of April 2025 to set out what actions it will take as a result.
These recommendations will be complete when
The NFCC has engaged with fire and rescue services regarding their radio provision, and supplemented this understanding with learning cases and feedback on radio performance in operational environments.
What we have done
The National Fire Chiefs Council (NFCC)
The NFCC has developed an action and delivery plan detailing how we will address the recommendations and shared this with key stakeholders, including MHCLG.
Since the May progress report, the NFCC has prepared materials for use at workshops with services to receive the technical information required to better understand the current position regarding radio provision in services. These one-to-one workshops will begin in February 2026 with all fire and rescue services being covered by the end of 2026.
The NFCC has identified previous learning cases and gathered relevant external research relating to emergency service radios. They have reviewed this information and are currently compiling a learning case combining fire and rescue service learning and academic research. This will ensure understanding of the extent of the radio issues and any specific challenges; the case will be published in December 2025.
The NFCC will follow up with services that responded to a survey completed in January to say they were using higher powered, digital radios to gather case studies or evaluations of their use. This will allow us to assess the impact on the tenability and performance of communications in operational environments.
The London Fire Brigade (LFB)
New dual function (analogue and digital) radio handsets have been introduced. They are intrinsically safe and operate at a higher power of 4 watts. These handsets can be connected directly to the facemask of Breathing Apparatus users, improving communications to the bridgehead, in line with Phase 1 recommendations.
The roll out has been supported by both online and in-person training, covering operation, function and use, channel usage and radio etiquette.
As of August 2025, over 80% of staff have completed the new e-learning modules on ‘managing communications at incidents’. Officers are working with area deputy assistant commissioners to raise this to an acceptable level. Officers are now focused on achieving a 90% completion rate for this training and expect to achieve this target by the end of 2025.
Since November 2024, the central training team have also delivered in-person sessions to complement the e-learning packages.
Once e-learning completion targets are met, which LFB anticipate happening by autumn 2025, they propose internally marking these recommendation as complete.
Recommendation 37
| Recommendation number |
Inquiry reference | Status | Responsibility | Accepted |
|---|---|---|---|---|
| 37 | 113.61 | In progress | Fire and rescue services (FRS) | In full |
Recommendation
Since radio communications are inherently unreliable in certain environments, we recommend that firefighters be trained to respond appropriately to the loss of communications and to understand how to restore them.
What we committed to doing
The NFCC has reviewed the content of national operational guidance and is surveying fire and rescue services to establish what additional measures could be provided to support awareness and training on how to respond to a loss of communications.
The NFCC will produce a delivery plan by the end of April 2025 to set out what actions it will take as a result.
This recommendation will be complete when
Operational guidance concerning radios and mitigating loss of communications is updated and published, and appropriate training materials and support are provided on FRS Learn and via the NFCC Implementation team.
What we have done
The National Fire Chiefs Council (NFCC)
The NFCC has developed an action and delivery plan detailing how we will address the recommendations and shared this with key stakeholders, including MHCLG.
The NFCC has identified the need to establish and test communication strategies at high-risk premises and to support fire and rescue services to ensure crews are familiar with common issues, radio limitations and how to overcome them.
Since the May progress report, the NFCC has begun a review of the current National Operational Guidance on fireground radios. Any proposed changes will need to be approved by the NFCC subject matter advisors. We expect the updated guidance to be published in June 2026.
The NFCC has requested that fire and rescue services share any learning materials they may have relating to loss of communications. These materials will be published by December 2025
The London Fire Brigade (LFB)
The roll out has been supported by both online and in-person training, covering operation, function and use, channel usage and radio etiquette.
As of August 2025, over 80% of staff have completed the new of e-learning modules on ‘managing communications at incidents’. Officers are working with area deputy assistant commissioners to raise this to an acceptable level. Officers are now focused on achieving a 90% completion rate for this training and expect to achieve this target by the end of 2025.
Since November 2024, the central training team have also delivered in-person sessions to complement the e-learning packages.
The current three-year high-rise training cycle, which began in October 2024, includes further dedicated communications training, specifically:
-
using the correct equipment and channels, understanding signal interference and how buildings impact this
-
restoring widespread loss of communications
-
setting up reliable communications systems
Once e-learning completion targets are met, which LFB anticipate happening by autumn 2025, they propose internally marking this recommendation as complete.
Recommendation 38
| Recommendation number |
Inquiry reference | Status | Responsibility | Accepted |
|---|---|---|---|---|
| 38 | 113.62 | In progress | Fire and rescue services (FRS) | In full |
Recommendation
That basic training on the structure and operation of the water supply system, including the different types of hydrants in use and their functions, be given to all firefighters. Training should also be given on effective measures to increase water flow and pressure when necessary.
What we committed to doing
The NFCC has reviewed the national operational guidance and is surveying fire and rescue services to establish what additional measures could be provided to support awareness and training on the water supply system.
The NFCC will produce a delivery plan by the end of April 2025 to set out what actions it will take as a result.
This recommendation will be complete when
Operational guidance concerning the water supply system, hydrant use, and increasing water flow and pressure is updated and published, and appropriate training materials are provided on FRS Learn.
What we have done
The National Fire Chiefs Council (NFCC)
The NFCC has developed an action and delivery plan detailing how we will address the recommendations and shared this with key stakeholders, including MHCLG.
We surveyed services in January 2025 and while adoption and use of the relevant national guidance is high, water supply issues is a theme in a significant number of organisational learning cases received. Water supply issues is also a theme noticed in evidence we have seen internationally.
Since the May progress report, the NFCC has asked fire and rescue services to share existing learning materials relating to water supply systems and the different types of hydrants. These will be assessed alongside any gaps in the national guidance. The potential need for the development of national learning materials will be identified by the end of October 2025.
Fire and rescue services have also been asked to share their learnings with the NFCC to review and consider publishing on the FRS Learn platform before the end of September 2025.
The London Fire Brigade (LFB)
Mandatory e-learning modules on ‘water management and planning’ were launched in two phases in January and April 2025 for all station-based staff and level 2 officers, with a target completion date of June 2025.
In August 2025, over 80% of staff had completed the training. As part of the learning cycle, staff are required to complete a knowledge check to demonstrate knowledge and understanding. Completion for this currently stands at 51%. Officers are working with area deputy assistant commissioners to raise this to an acceptable level, with a focus on achieving a 90% completion rate for this training, including the knowledge check. Officers expect to achieve this target by the end of 2025. Since November 2024, the central training team have also delivered in-person sessions to complement the e-learning packages.
Recommendation 39
| Recommendation number |
Inquiry reference | Status | Responsibility | Accepted |
|---|---|---|---|---|
| 39 | 113.63 | In progress | Fire and rescue services (FRS) | In full |
Recommendation
That all fire and rescue services establish and periodically review an agreed protocol with the statutory water undertakers in their areas to enable effective communication between them in relation to the supply of water for firefighting purposes.
What we committed to doing
The NFCC and fire service lead officers for water are discussing with water undertakers how to strengthen existing arrangements and with Ofwat to identify potential improvements to the interactions between services and water undertakers.
The NFCC will produce a delivery plan by the end of April 2025 to set out what actions it will take as a result.
This recommendation will be complete when
A template outlining the standard elements to be included in protocols between water undertakers and Fire and Rescue Services (FRSs) is incorporated into industry guidance; once agreement is reached on whether future guidance should be jointly badged by the NFCC; and following further engagement with Ofwat (or its successor) to continue raising awareness of the challenges faced by FRSs and to support positive change.
What we have done
The National Fire Chiefs Council (NFCC)
The NFCC has developed an action and delivery plan detailing how we will address the recommendations and shared this with key stakeholders, including MHCLG.
Since the May progress report, the NFCC submitted changes to Water UK for their National Guidance Document on the Provision of Water for Firefighting, and the addition of a new Confirmation of Adherence template. All changes were accepted by Water UK and the guidance has been published on Water UK’s website.
The NFCC shared the findings from a survey of fire and rescue services and water officers with Ofwat. It has also submitted evidence to the two inquiries currently underway on water sector reform by the Environmental Food and Rural Affairs Committee and the Independent Water Commission. In response to the Environment Agency’s consultation on proposed updates to the guideline for water undertakers on drought management plans, the NFCC raised the issues fire and rescue services are facing.
The London Fire Brigade (LFB)
Following the London Fire Commissioner’s letter to water company CEOs in February 2025, meetings have been held with Thames Water, Affinity Water, and Essex & Suffolk Water. Engagement with all three companies is ongoing.
LFB is working with the Learning and Professional Development department to involve water companies in reviewing and contributing to the training package, as outlined in the Commissioner’s letter. Affinity Water has provided data overlays for LFB’s geographical information system, iMapping, and mobile data terminals, helping operational teams identify water supply zones. Similar data from Thames Water is already in use.
A revised National Guidance Document on water provision for firefighting has been published. It supports stronger arrangements between LFB and water companies, including clear protocols for incident support, and details recommended training for firefighters and water company staff involved in incident response.
Recommendation 40
| Recommendation number |
Inquiry reference | Status | Responsibility | Accepted |
|---|---|---|---|---|
| 40 | 113.64 | In progress | British Standards Institution (BSI) | In full |
Recommendation
That the British Standards Institution amend BS 750 to include a description of the circumstances under which the flow coefficient to which it refers in paragraph 10.2 is to be measured.
What we committed to doing
It will amend BS 750 accordingly and expect to publish the revised standard, following the usual standards development process and a period of public consultation, towards the end of 2025.
This recommendation will be complete when
The amendment is published by the British Standards Institution (BSI) and the requirements can be implemented in the marketplace. This will happen once the proposed amendments have been drafted, and the text has been through the public consultation stages as required, likely around the end of 2025.
What we have done
The internal business case for the amendment of the standard has been approved. A drafting panel of experts has been formed, which has started work developing a draft for consultation.
Recommendation 41
| Recommendation number |
Inquiry reference | Status | Responsibility | Accepted |
|---|---|---|---|---|
| 41 | 113.65 | In progress | The National Fire Chiefs Council (NFCC) | In full |
Recommendation
That National Fire Chiefs Council (NFCC) consider whether, and if so in what circumstances, firefighters should be discouraged from departing from their instructions on their own initiative and provide appropriate training in how to respond to a situation of that kind.
What we committed to doing
Firefighters operate in an extremely high-risk and dynamic environment where responding to changes is essential to safe working practice. The ability to communicate changes in the operating environment, in real time, and the need to deviate from objectives at times, is essential.
The NFCC has reviewed existing relevant guidance on the briefing and debriefing of crews and is surveying fire and rescue services to determine what additional measures might support awareness and training in this area.
The NFCC will produce a delivery plan by the end of April 2025 to set out what actions it will take as a result.
This recommendation will be complete when
Operational guidance relating to decision-making for non-commanders has been reviewed, updated if necessary, and published, and learning materials to support firefighters to achieve operational objectives have been developed and shared with fire and rescue services, and provided on FRS Learn.
What we have done
The NFCC has developed an action and delivery plan detailing how we will address the recommendations and shared this with key stakeholders, including MHCLG.
The NFCC surveyed services in January 2025. Almost all services confirmed that appropriate training had been undertaken by firefighters and incident commanders, relating to the national guidance on effective communication, situational awareness and deployment of breathing apparatus wearers.
We are keenly aware that firefighters need to be able to respond to changing circumstances and that achieving operational objectives is based on clear briefing, confirmation of understanding, debriefing and real time communication on issues that might affect these objectives. Therefore, the NFCC has committed to reviewing the national guidance to ensure that directly relevant and complementary guidance addresses these issues adequately.
Since the May progress report, the NFCC has undertaken a review of the current national guidance on these specific topics, the review was completed in September 2025. Any proposed changes will need to be approved by the NFCC subject matter advisors. We expect the updated guidance to be published in June 2026.