Progress report: fire and rescue services
Updated 17 December 2025
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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:
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practical training at all levels supplementary to that provided by individual fire and rescue services
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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
As set out in the September progress report, we intend to launch a public consultation to gather views on what a college of fire and rescue should be responsible for, its delivery model and how it could be funded. We anticipate this will be achieved by May 2026.
Delaying the consultation from 2025 to early 2026 will give us more time to refine our proposals and collect stronger evidence from the public consultation.
The task and finish group continues to meet to gather views from key partners in the fire safety sector on proposals to include in the consultation. This group has now met 6 times and considered a range of topics including the aims that a college should deliver, the functions it should fulfil, and what delivery and funding models we should explore to ensure it is cost-effective.
Responsible department
Ministry of Housing, Communities and Local Government
Responsible person
Peter Lee, Director, Fire Policy
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:
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the extent to which the control room is now integrated into the organisation
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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
We are continuing to evaluate whether recommendations on control room processes (31), Incident Commands (32) and HMICFRS review of high-risk building information procedures (33) can be formally closed and discharged.
We had anticipated completing the assurance process by the end of 2025, but this will now happen in early 2026. We want to ensure that recommendations are implemented at the highest standard, and the additional time allows this to remain uncompromised.
Once we have concluded our assurance process with all essential parties, the recommendations will 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.
This recommendation will be complete when
It is aligned to the adoption and assurance of LFB’s updated Operational Learning Policy.
What we have done
The London Fire Brigade (LFB)
The London Fire Brigade Operational Policy and Assurance department has concluded its review and re-published its Operational Learning Policy, which includes the adoption of the National Fire Chiefs Council (NFCC) Fire Standards.
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 consultation period for the NFCC Organisational Learning Good Practice Guide was due to end in mid-July but due to the low number of responses, the deadline was extended. This means that the final version of the guide was not taken to the Guidance, Learning and Scrutiny Panel in September 2025 for approval as planned.
The panel met in early December, sign-off was agreed and the Good Practice Guide has now been published.
The NFCC Organisational Learning team has committed to developing an Organisational Learning Library to give services greater access to lessons learned from across the UK and internationally. An interim solution was published on the NFCC website in September 2025, using the tools and resources currently available.
A report was taken to the Organisational Learning Board in October 2025, recommending how a future state system could look, dependent on budget and resources in the next financial year.
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)
NFCC has developed Grenfell Tower Inquiry Two assurance workshop materials (including radio provisions in services) which are being used at fire and rescue service surgeries run by the Implementation Support Team. Six services have received assurance workshops so far, with a further 10 services scheduled, and we aim to have all services completed by Autumn 2026.
Following a review of previous learning cases and relevant external research relating to emergency service radios, NFCC has compiled a learning case report with the aim of enhancing understanding of the extent of the radio issues and any specific challenges.
The London Fire Brigade (LFB)
The roll out of new dual function (analogue and digital) radios has been completed and supported with additional computer based and face-to-face training sessions that cover operation, function and use, channel usage and radio etiquette.
In addition to the Central Training Team delivering face to face training on communications since November 2024, a new suite of four e-learning modules on managing communications at incidents has been rolled out to operational staff and all modules have a completion rate of above 90%, LFB has completed their work on these recommendations but NFCC will continue to report on these recommendations on a national scale.
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)
Since the September report, NFCC has completed a review of national Operational Guidance on fireground radios and new guidance is now being developed. The proposed new guidance will need to be approved by subject matter advisors and technical experts in April 2026 and is expected to be published in June 2026.
Fire and rescue services were asked to submit learning materials that they hold relating to loss of communications to NFCC, with a view to them being published for wider use. A limited number of materials were received, and a review suggests that training for loss of communications is incorporated in service exercising rather than bespoke loss of communication training. NFCC is therefore, developing new learning materials which will be ready for quality assurance and publication by the end of March 2026.
The London Fire Brigade (LFB)
New dual function (analogue and digital) radio handsets that are higher powered at 4 watts and are intrinsically safe, have been introduced. These handsets can be connected directly into the facemask of a Breathing Apparatus wearer to improve communications to the bridgehead as described in the GTI Phase 1 recommendations. The roll out of new dual function radios has been completed and supported with additional computer based and face-to-face training sessions that cover operation, function and use, channel usage and radio etiquette.
In addition to the Central Training Team delivering face to face training on communications since November 2024, a new suite of four e-learning modules on managing communications at incidents has been rolled out to operational staff and all modules have a completion rate of above 90%, LFB has completed their work on these recommendations but NFCC will continue to report on these recommendations on a national scale.
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)
Fire and rescue services were asked to share their learning materials relating to the water supply system and different types of hydrants to the NFCC. Only a very small number of materials were received, suggesting a gap in training provisions on this subject.
We had planned to share any learning materials by publishing them on FRS Learn in September 2025 but due to the low response rate and subsequent attempts to increase engagement, we have missed this deadline. The materials that were received, and a proposal for filling the gap identified by the review, will now be taken to the Operational Training and Education Group for consideration and approval in January 2026.
The London Fire Brigade (LFB)
The mandatory e-learning modules on ‘Water management & Planning’, for all station-based personnel and level 2 officers, were rolled out in two phases in January and April 2025 with a target completion date for all modules of 30 June 2025.
Further to the launch of the e-learning modules, a knowledge check was added and the completion threshold of 90% was achieved for the e-learning modules in October 2025. Over 90% of staff had completed the knowledge check to the necessary standard in December 2025.
The e-learning packages have been enhanced by face-to-face training, delivered by the Central Training Team, on water management and communications since November 2024. LFB has completed their work on this recommendation, but NFCC will continue to report on this recommendation on a national scale.
Recommendation 39
| Recommendation number |
Inquiry reference | Status | Responsibility | Accepted |
|---|---|---|---|---|
| 39 | 113.63 | Complete | 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.
What we have done
The National Fire Chiefs Council (NFCC)
Relevant NFCC teams have been discussing how we would approach a further, more extensive review of the National Guidance Document on the Provision of Water for Firefighting, if it was required. It was determined that there are accessibility and readability issues with the current guidance, and these would need to be addressed by way of the usual governance channels if NFCC and Water UK were to jointly badge the guidance in future.
Since the September progress update, NFCC have met with Ofwat representatives to discuss the issues facing fire and rescue services, as identified in the survey findings report. Ofwat agreed to raise the mains compliance concerns with the Department for Environment, Food & Rural Affairs, and to arrange follow up meetings to cover individual issues.
NFCC responded to the Ofwat Consumer Involvement in Company Decision-Making Rule Consultation in October 2025.
NFCC will be undertaking further engagement with key stakeholders following the publication of the Water Reform White Paper.
This recommendation is now complete and has been fully discharged.
The London Fire Brigade (LFB)
Following the London Fire Commissioner’s letter to water undertakers covering the London area, positive engagement continues with these utility companies to standardise protocols and reflect best practice, and there are ongoing regular exchanges of information, in conjunction with other FRS and the NFCC, to sustain continuous improvement by maximising collaboration opportunities.
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 draft for the consultation has now been developed by a panel of experts. We expect to publish the consultation shortly.
We expect to publish the amendment during the first quarter of 2026, but this will depend on the number of responses we receive.
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
Achieving operational objectives is based on clear briefing, confirmation of understanding, debriefing and real time communication on issues that might affect these objectives. As such, the NFCC has reviewed national guidance to ensure that directly relevant and complementary national guidance adequately addresses these issues.
The review was concluded in September 2025, and a change request process has been instigated which includes the addition of new hazard and control measures in the Incident Command guidance. The proposed changes and additions will be put forward for approval before April 2026 and the updated guidance is expected to be published in June 2026.