Guidance

National co-ordination and advisory framework for England (accessible version)

Updated 11 March 2026

Applies to England

March 2026

7th edition

1. Foreword

Fire and Rescue Services (FRSs) play a vital and enduring role in protecting and supporting communities during major and complex incidents. As the risks associated with climate change, terrorism, public health emergencies, and other emerging threats continue to evolve, it is essential that we maintain a robust, resilient, and nationally consistent framework for mutual aid and coordinated support. In response to these pressures, we continue to strengthen our advisory capability, with recent additions including both Wildfire and Marauding Terrorist Attack (MTA) advisors.

The National Coordination and Advisory Framework (NCAF) provides the structure that enables FRSs to supply and receive essential resources during escalating or unexpected incidents that exceed local capacity. It reflects our collective commitment to supporting communities and colleagues across the country. The recent rise in significant wildfire activity has further demonstrated the value of sector-wide collaboration, with services nationwide working seamlessly to provide effective and timely mutual aid. The flexibility of the NCAF ensures that response arrangements are tailored, scalable, and centrally coordinated through National Resilience (NR). This approach enables government departments to implement plans that protect the public and maintain essential services during disruptive events.

As the complexity and intensity of incidents continue to place substantial demands on FRSs, the NCAF offers a reliable mechanism for mobilising both specialist and conventional assets. While we work closely with partners through Local Resilience Forums (LRFs) to prepare for foreseeable risks, the NCAF ensures we are equally equipped to respond to unforeseen or rapidly developing situations.

With extreme weather – such as flooding, heatwaves, and wildfires – becoming more frequent and severe, it is increasingly important for FRSs to identify, understand, and plan for these risks through comprehensive Community Risk Management Plans (CRMPs). Alongside environmental challenges, the sector has also experienced a rise in incidents of civil disorder, heightening community tensions and increasing operational demand. This growing complexity reinforces the need for accessible specialist support to ensure incidents are managed safely, effectively, and with the appropriate national coordination.

This guidance has been developed in partnership between the National Fire Chiefs Council (NFCC) and the Ministry of Housing, Communities and Local Government (MHCLG) and has been successfully embedded for many years. It provides essential advice to FRSs on the coordination of personnel, vehicles, and equipment before, during, and after major emergencies. The framework also sets out the vital situational awareness and reporting arrangements that support central government decision‑making, ensuring that local communities receive the highest standard of protection, reassurance, and safety during times of crisis.

The experience of responding to the Covid‑19 pandemic, alongside the extreme weather events that resulted in 14 major incident declarations in 2022, has reinforced the importance of sustained readiness and adaptable national arrangements.

Phil Garrigan OBE KFSM

Chair, National Fire Chiefs Council

2. Introduction

The NCAF is designed to provide robust and flexible response arrangements to major and large-scale emergencies that can be adapted to the nature, scale, and requirements of the incident. Fire and Rescue Services (FRS) must proactively engage with, and support, the NCAF arrangements including the National Fire Chiefs Council (NFCC) and the Fire & Rescue Service National Framework.

Most incidents to which Fire & Rescue Services (FRS) respond are dealt with using the assets that an FRS has at its immediate disposal. However, there may be times when an FRS requires specialist resources and equipment, or extra resources and assistance to deliver an effective response. An example would be a declared major incident which is defined as “an event or situation with a range of serious consequences which requires special arrangements to be implemented by one or more emergency responder agencies.” (JESIP Doctrine)

The Ministry of Housing, Communities and Local Government (MHCLG) is the Lead Government Department for Fire and will work with other government departments, partner organisations, and the devolved administrations during major emergencies to coordinate the deployment arrangements for Fire and Rescue assets.

The NCAF is part of the ‘National Mutual Aid’ mechanism that coordinates Fire & Rescue assets. MHCLG will work with other government departments, partner organisations, and the devolved administrations during “no notice” and “rising tide” events to provide policy reach back and advice, ministerial briefings, co-ordination across government and management of communications. NCAF enables decision makers, both locally and nationally, to receive clear and unambiguous operational advice on how best to co-ordinate the Fire & Rescue Service response to relevant emergencies.

NCAF supports:

• everyday assistance and collaboration between FRSs where specialist National Resilience capabilities can support the resolution of an incident
• the provision of specialist assistance to an FRS where an incident warrants it and it is available from elsewhere, or additional resources where the resolution of an incident is, or is likely to be, beyond a service’s own resources or capabilities
• the coordination of the combined FRS response to relevant incidents, and when required, the integration of other first responders, for example police, ambulance, and the military, at any geographical scale
• the recovery phase of an incident in which specialist resources and/or advice are required to assist with the subsequent investigation process

The Chair of the NFCC and/or the National Strategic Advisory Team (NSAT), who by exception will deputise for the Chair of the NFCC, will provide the Secretary of State for Housing, Communities and Local Government, the Fire Minister, and other ministers within the Cabinet Office Briefing Rooms (COBR), with expert timely advice in accordance with central government’s requirements.

Further explanation of this requirement is set out within the Fire & Rescue Service Supporting Guidance to NCAF.

The National Resilience Assurance Team (NRAT) Duty Officer supports the provision of information between the affected services, the NFCC, other agencies and government to enable the framework to operate effectively.

The framework details the functions, roles, and responsibilities necessary to coordinate National Resilience resources, as well as any specialist and/or conventional FRS resources that can be deployed before, during and after relevant incidents and sets out the direct lines of communication involved. This will ensure that the appropriate level of advice, guidance and assurance is provided when required.

The structure of the framework is designed to be flexible to adapt and develop against the nature, scale and operational requirements of an incident and support those involved in resolving it. The framework should be considered as a supporting aid and does not imply that all the components will be required on each occasion or be automatically activated for every incident that requires a national response or support.

The NCAF seeks to aid Fire and Rescue Services with their planning and operating methods. It will strengthen resilience during the planning, preparation and response phases of large-scale incidents that may require national coordination. It is designed to complement, support and reinforce local response arrangements – it does not replace them. The responsibility for resolving incidents effectively, safely, and for implementing safe systems of work through effective command and control arrangements, remains with the affected FRS.

The NCAF will be reviewed as necessary following National Operational Learning (NOL) and Joint Organisational Learning (JOL) taken from incidents, training and exercising. Importantly, this will include a review of incidents for which a formalised national capability does not exist but where specific or specialist FRS resources may be requested and mobilised nationally to assist other FRSs.

3. Emergency response

Fire & Rescue Services (FRSs)

The majority of emergencies in England are dealt with at a local level by the emergency services, local authorities, and local resilience partners without the need for direct involvement by central government or the implementation of these arrangements.

FRSs can draw on mutual assistance for both specialist and non-specialist resources, under Sections 13 & 16 of the Fire & Rescue Services Act 2004. These arrangements ensure continuity of service provision across authority boundaries.

There will be occasions where FRSs require assistance from, or provide assistance to, other authorities. Fire Service Circular 42/2006 National Mutual Aid Protocol for Serious Incidents outlines the provision of available resources and the collective agreement between services to allow for National Mutual Aid.

The effectiveness of NCAF arrangements is dependent upon on individual FRSs releasing resources for national deployment when requested to do so. It is recognised that during exceptional or widespread events, some individual authorities may wish to retain assets for deployment in accordance with risk assessments within their own CRMP.

However, each FRS is a signatory to the National Mutual Aid Protocol for Serious Incidents and are therefore expected to adhere to its principles and purpose. Given the national implications of such situations, FRSs should highlight the specific need to retain National Resilience assets from deployment with the NRAT Duty Officer/NSAT/NRFC on a case-by-case basis. Further explanation of this requirement is set out within the Fire & Rescue Service Supporting Guidance to NCAF.

Ministry of Housing, Communities and Local Government (MHCLG)

In some circumstances, the scale or complexity of an emergency is such that some degree of central government response, support or coordination becomes necessary. Government will not duplicate the role of local responders. A designated Lead Government Department (LGD) or where appropriate a Devolved Administration will be responsible for the overall management of the central government response.

MHCLG provides the cross Whitehall coordinating function for the response policy arrangements to emergencies involving the Fire sector. The Cabinet Office (CO) will provide support to MHCLG where required. The MHCLG will provide the cross Whitehall coordinating function for the recovery policy arrangements to emergencies involving the fire sector. The co-ordination of response policy arrangements across government within the Devolved Administrations will differ accordingly and are set out as individual addendums to the NCAF.

MHCLG’s response to major or noteworthy incidents will be delivered by the Resilience and Recovery Directorate for both no notice and rising tide incidents. National Resilience and Fire Safety Unit (NRFSU) will provide policy support to these arrangements. These arrangements are set out in Annex A. For Counter Terrorism (CT) incidents, as set out in previous iterations of the NCAF, this remains the responsibility of the Home Office and its relevant teams.

The defined UK Government response arrangements are set out in the government’s concept of operations documentation. These are large, often protracted, or complex incidents which may require a higher level of co-ordination and central government involvement, in response to an incident, and have been defined within three broad levels, which are:

Level 1 – Significant Emergency

Central Government support is provided through a LGD (or devolved administration) alongside the work of the emergency services and local authorities. This will usually be via the LRF for the affected area.

Level 2 – Serious Emergency

This level reflects an incident which has or threatens prolonged impact requiring sustained central government coordination. This coordination would likely be through COBR under the leadership of the Lead Government Department.

Level 3 – Catastrophic Emergency

These events present exceptionally high and potentially widespread impact and require immediate central government direction and support. The Prime Minister, or nominated Secretary of State, will lead the coordinated emergency function of central government to deliver a national response, or where emergency powers are invoked. COBR and the Civil Contingencies Committee coordinate activity, rather than the LGD

4. Functions

The NCAF is delivered by several key functions that have been developed to ensure the appropriate level of advice and coordination can be provided. These functions may not all be required simultaneously or be in operation during all emergencies.

Mobilisation, Co-ordination, and Monitoring of National Resilience Assets

The NCAF Electronic Support System (ESS) provides a 24/7 overview of the availability and distribution of National Resilience capability assets. On receipt of a request for assistance the NRAT Duty Officer supported by the relevant specialist capability officer will work with National Resilience Fire Control (NRFC) to facilitate the mobilisation of national assets for the duration of an incident. Depending on the nature and/or duration of the incident, the NRAT Operations Room may be established within NRFC. The Duty Officer will provide the central management function for an ongoing National Resilience mobilisation.

Multi Agency/Strategic Holding Areas (MA/SHAs)

These are pre-identified locations with suitable space and facilities to accommodate large numbers of crews, appliances, and equipment.

Should a MA/SHA be required it should be established under the provisions and coordination of the affected FRS and supported by the Enhanced Logistics Support (ELS) capability. Locations for a MASHA will also have been identified by each LRF. FRSs should ensure the availability of a dedicated person (SHA Liaison Officer) to oversee all Fire Service operations within the MA/SHA for the duration of the deployment.

The National Resilience ESS contains relevant information relating to the locations of MA/SHAs across the country.

MHCLG Response Centre

The MHCLG Response Centre enable strategic decision makers at a national and local level to carry out their role in an informed manner. The centre, which will be established by the Resilience and Recovery Directorate (RED) can be established in multiple locations. The Response Centre will comprise of government department policy officials and government liaison teams, who in consultation with the Chair of the NFCC and/or NSAT, will provide situational awareness to COBR and across central government departments. In addition, they co-ordinate advice for Ministers and engage with Government Liaison Officers (GLO) who enable Strategic Coordinating Groups (SCGs) in the affected FRS to have access to a single point of contact for central government assistance.

Dependent upon the scale of the incident, NSAT & NRAT assistance may be required to support the MHCLG Response Centre. If necessary, this will be agreed at the time between the Chair of the NFCC and/or NSAT and MHCLG.

Homeland Security Group Operations Centres

The Homeland Security Group Operations Centres will provide the cross-Whitehall coordination functions during no notice and rising tide incidents, as they relate to policing and homeland security, at times the MHCLG Response Centre may report into these teams to update them on FRS activity where Home Office take the lead, as set out within Annex A.

Cabinet Office Briefing Rooms (COBR)

COBR is the UK government’s central crisis response mechanism. Its role during emergencies is to coordinate a strategic, cross-government response to major incidents that impact national security, public safety, or essential services.

Summary of COBR’s Role During Emergencies:

• strategic coordination - brings together senior ministers, officials, and experts from across government departments and agencies to ensure a unified response
• decision-making hub - enables rapid high-level decisions on policy, resource allocation, and public messaging during national emergencies
• situational awareness - provides a central location for collating real-time information, risk assessments, and intelligence from responders, departments, and agencies
• multi-agency integration - facilitates collaboration between government, emergency services, military, devolved administrations, and external partners
• public communication - oversees strategic communications and media handling, ensuring clear, accurate, and coordinated public messaging
• resilience oversight - monitors the effectiveness of response measures and escalates issues requiring senior attention or additional resources

5. Roles

The NCAF contains a range of designated roles that provide levels of advice and coordination when National Resilience capabilities are required. These roles may not all be engaged in every emergency and will vary dependent upon the scale and nature of the incident.

National Resilience Lead Authority

The Home Office (now MHCLG) devolved the responsibility for the coordination and management of National Resilience to a Fire and Rescue Lead Authority Model. Merseyside Fire and Rescue Service has been the Lead Authority since 2016, and the Chief Fire Officer (CFO) is the National Fire Chief’s Council (NFCC) National Resilience Strategic lead.

The Lead Authority holds a central and strategic role in ensuring the effective provision of mutual aid across England and Wales. Through this function, Fire and Rescue Services (FRSs) are able to access and deploy critical resources to manage large-scale emergencies and complex incidents efficiently. The Lead Authority provides strategic leadership and coordination, fostering strong collaboration between the Fire and Rescue sector, government departments, and partner emergency responders to enhance and sustain National Resilience capabilities. Its remit encompasses four principal functions: Long-Term Capability Management (LTCM), Assurance, National Resilience Training (NR Training), and National Resilience Fire Control (NRFC).

The Lead Authority’s responsibilities also extend to maintaining national oversight of specialist capabilities and managing the National Resilience Assurance Team (NRAT) function. Through the delivery of training, assurance, and exercising programmes, the Lead Authority reinforces the principles of national mutual aid, ensuring that FRSs are equipped to assist one another in safeguarding lives, property, and the environment during major incidents.

National Resilience Fire Control (NRFC)

NRFC are based in the Lead Authority Fire Control. NRFC utilise the NR ESS to maintain a 24/7 overview of ongoing incidents and asset mobilisations. They are the first point of contact when reporting an incident or requesting assets or resources. On receipt of an incident via telephone or the reporting tool, NRFC will liaise with the NRAT Duty Officer and coordinate the request.

National Resilience Assurance Team (NRAT) & Duty Officer

The NRAT provide 24/7 operational cover with immediate access to capability specific expertise and advice through the team’s capability officers. A designated NRAT Duty Officer will work closely with NRFC in mobilising and coordinating national resilience assets. They will also monitor broader asset availability and other information that may affect an ongoing incident and will do so in collaboration with the NSAT.

The NRAT Duty Officer may support any elements of NCAF with the provision of expert advice on National Resilience capabilities. NRAT officers may be required to support any/all of the functions listed, as well as being mobilised to the scene of operations to assist and support the management of nationally mobilised resources. The NRAT Duty Officer will also provide timely situational awareness and incident information when requested, to the MHCLG Fire Duty Officer and Chair of the NFCC and/or NSAT.

Fire Duty Officer (FDO)

The MHCLG Fire Duty Officer (FDO) is the first point of contact in government for a range of responsibilities that are within the scope of the NCAF.

They will provide support to the Chair of the NFCC, NSAT, NRFSU, and MHCLG RED. The MHCLG FDO maintains close contact with the NRAT Duty Officer and other cross Whitehall government departments. They will monitor developing or emerging issues and incidents and provides the necessary advice and support into government.

National Strategic Advisory Team (NSAT)

The NSAT team will liaise with the NRAT Duty Officer to obtain information regarding how and what resources have been mobilised to an affected FRS.

The NSAT provides impartial peer support and professional advice that may be required by an affected FRS as a result of an incident’s scale or complexity. This advice can be obtained 24/7 365 via the NRAT Duty Officer/National Resilience Fire Control.

The NSAT team may also be called upon to provide broader strategic support to government functions, including COBR during serious and catastrophic emergencies.

Chair of the National Fire Chiefs Council (NFCC)

The Chair of the NFCC and/or NSAT provide professional advice on behalf of the FRS to partner agencies and government ministers including COBR. During significant emergencies, the NFCC lead (or a suitable appointed person) may assist with the coordination of assets from England into the devolved administrations and in the receipt of reciprocal aid.

The NFCC chair may instigate an FRS sector led ‘Gold Command’ structure during times of emergency.

Tactical Advisor (Tac Ad)

Tactical Advisors are trained officers and recognised specialists with specific references within local and/or National Resilience capabilities. They are available to provide advice and support to any incident irrespective of location. Tac Ads should be requested through NRFC.

6. Capabilities

National Resilience refers to the capacity and capability of FRSs to work together with other Category 1 and 2 responders (Civil Contingencies Act 2004) to deliver a sustained and effective response to major incidents, emergencies, and disruptive events. These may include (but are not limited to) those identified in the National Security Risk Assessment.

The NCAF National Resilience capabilities can therefore be divided into two categories:

i) specialist assets and skills that are an integral part of the National Resilience Programme:

• CBRN(e) (including Detection, Identification and Monitoring (DIM) and Mass Decontamination (MD))
• Enhanced Logistics Support (ELS)
• High Volume Pump (HVP)
• Urban Search and Rescue (USAR)
• Flood Rescue (Team typed assets with associated crews^{[footnote 1]})
• Marauding Terrorist Attack Specialist Response (MTA)

ii) specialist resources and skills hosted at a local level by FRSs or other agencies, which can respond if specifically requested to do so as a national capability and where incident timescales allow. For example, but not limited to:

• conventional and other specialist appliances
• bulk foam
• wildfire^{[footnote 2]}
• waste fire
• drones

Capabilities are located across a number of FRSs. Mobilisation of these resources is facilitated by the NRFC and NRAT. Other assets which may be available nationally which fall within the scope of NCAF if involved with a national event.

The diagram represents the NCAF as it operates at a strategic level, and how it is flexible in application depending on the nature of the incident and resources required.

7. Resource Deployment and Cost Recovery

Emergency preparedness and response occurs both prior to and during an emergency incident.

Pre-deployments

The term pre-deployment is used to describe the early movement of resources to assist with the mitigation of the impact of an identified event, or perceived threat based upon credible intelligence. Depending on the assessed scale of the response, an individual FRS can, through the Chair of the NFCC and/or the NSAT, seek the support of MHCLG to assist in meeting associated costs of pre-deployment. All requests for financial support will be considered by MHCLG on a case-by-case basis.

Post-occurrence

Post occurrence is when a Fire & Rescue Service is in the response phase of an incident. Resourcing and mobilisation of the emergency response will remain with the FRS, and supporting agencies, at the local level. Additional resource requirements will be determined by local commanders. Dependant on the scale of the response, FRSs can seek reimbursement of costs relating to response and recovery through existing finance schemes or those that are announced during and/or post incident by the Whitehall department responsible.

Cost Recovery

The NFCC Guidelines on FRS Charging for Mutual Assistance is a mechanism which provides guidance to hosting and receiving FRSs when mutual aid arrangements are activated. This guidance defines types of mutual aid and offers a standardised scale of charges that provide consistency and assurance to all FRSs. The document is updated annually following any pay award negotiation agreed through the National Joint Council. Updates to this document are circulated through a National Resilience Information Note.

National Fire Chiefs Council Guidelines on FRS Charging for Mutual Assistance

Bellwin scheme support

8. International Reciprocal Mutual Assistance

Incoming: International Reciprocal Mutual Assistance

National Resilience Planning within the UK is based on a general presumption of self-sufficiency. The National Security Risk Assessment sets out the government’s assessment of the likelihood and potential impact of a range of different risks that may directly affect the UK, which equates to a relatively small number of occasions where the UK would seek international assistance. In exceptional circumstances where an emergency is of sufficient scale to overwhelm UK capacity, or where highly specialised assistance is required, a request may be considered.

International assistance is requested on a case-by-case basis following His Majesty’s Government cross departmental consultation and can only be initiated following a formal request. Co-ordination of such requests should be facilitated through formalised structures or following a direct request.

Incoming assistance must be well co-ordinated to ensure rapid and effective integration into the national response. Precise co-ordination arrangements will depend on the given situation. However, plans should be prepared and communicated across a range of government departments, Local Resilience Forums, and agencies well in advance of arrival to ensure that arrangements are understood and work effectively. This will involve the NCAF arrangements and should be made in conjunction with Chair of the NFCC and/or the NSAT, the National Resilience Strategic Lead and the Lead Government Department.

Annex B provides an overview of the procedure for the approval of incoming international reciprocal mutual assistance.

Outgoing: International Reciprocal Mutual Assistance

On occasion, the UK FRSs are requested to respond to humanitarian disasters or other emergencies overseas. Foreign Commonwealth and Development Office (FCDO) have an agreement with the NFCC that in such an event they would utilise UK ISAR (United Kingdom International Search and Rescue) as their primary response. UK ISAR consists of search and rescue specialists from 14 Fire and Rescue Services. The mobilisation of UK ISAR sits outside of the parameters of the NCAF and would be initiated by the FCDO, Lead Authority for NR/ISAR, NFCC, MHCLG and NSAT/ISAT.

Following an overseas emergency, which does not fit the criteria for a UK ISAR deployment supported by FCDO, Ministry of Housing, Communities and Local Government may request an overseas deployment of UK FRS personnel, which would be coordinated through the NCAF arrangements supported by the Lead Authority for NR, NFCC and Capability Leads. Any deployment of UK FRS or NR capabilities must not mitigate the UKs ability to respond to a national scale incident on the UK mainland, with assurances provided to HMG by either the NR Lead or NFCC Chair.

Annex A: Central Government’s Response to Major Incidents

Central government’s response to major incidents will be managed by the relevant Lead Government Department, in relation to Fire Incidents this will usually be MHCLG.

For public order and CT incidents the PSG Emergency Response Team or Homeland Security Operations Centres in the Home Office would lead (respectively). The Homeland Security Group Operational Policy and Response Unit are the responsible lead for suspected or confirmed counter terrorist incidents.

In case of fires involving non-residential properties, for examples education, gas, and/or oil infrastructure the government response is likely to be led by the relevant LGD for these sites e.g. DfE, HSE, DESNZ.

MHCLG Emergency Plan

The following Concept of Operations sets out MHCLG’s response arrangements that will be implemented in the event of a major incident. This document refers to the term ‘critical incident’ which may be declared for an emergency as defined in the government’s Responding to Emergencies Concept of Operations (page 8).

When these arrangements are enacted support will be required from the NFCC and NRAT to ensure timely and accurate situational awareness is provided.

Introduction 

Purpose

This document sets out the Ministry of Housing, Communities and local government’s (MHCLG) arrangements for responding to and recovering from emergencies. An emergency, as defined in the Civil Contingencies Act (CCA) 2004 is “a situation or series of events that threatens or causes serious damage to human welfare, the environment or security in the United Kingdom”.

MHCLG’s Emergency Plan is intended to be ‘risk-agnostic,’ and its principles can be applied to the range of emergencies MHCLG may encounter. This document is accompanied by a series of risk-specific plans.

MHCLG has a range of responsibilities in relation to emergency response and recovery. When an emergency materialises, MHCLG will:

• act as the point of liaison between central government and local partners in order to understand local issues, priorities, and needs in relation to the emergency
• deliver policy, legislative and financial solutions to mitigate the impact of an emergency on the department and our sectors
• where relevant, execute our ‘Lead Government Department’ (LGD) responsibilities - an ‘LGD’ is a specific government department that is designated to take the lead in coordinating the government-wide response to a particular type of emergency

Further information on the role of Lead Government Departments can be found here

The MHCLG Emergency Plan is aligned with the principles and procedures outlined in the Cabinet Office’s ‘Concept of Operations’, ensuring consistency in how MHCLG operates during an emergency. The MHCLG Emergency Plan is also closely linked with the department’s ‘Business Continuity Plan’, which sets out procedures and information to help MHCLG maintain critical activities if an incident occurs.

This doctrine will be reviewed at 6-monthly intervals and following any large-scale response / recovery, with lessons from the emergency incorporated, to ensure that it remains fit for purpose.

Working together in an emergency

Under MHCLG’s ‘C3’ (Command, Control and Coordination) arrangements, teams across the department work together to fulfil MHCLG’s objectives in an emergency.

The overall departmental response / recovery is coordinated by a Gold Coordination Group (GCG) and an accompanying SILVER Working Group (SWG). The function of the GCG and SWG is summarised in the visualisation below.

Figure 1: GOLD and SILVER coordination

Responsibilities of the GOLD Coordination Group (GCG) and SILVER Working Group (SWG).

• GOLD Coordination Group (GCG)
  • Sets strategic direction for MHCLG’s response to / recovery from emergencies.
  • Serves as the point of escalation for critical issues and blockages related to the emergency.
  • Oversees departmental resourcing and (where necessary) the creation of new teams to support the emergency response / recovery.
  • Review’s MHCLG’s command, control and coordination arrangements to ensure they are proportionate to the emergency at hand.
  • DG-chaired with SCS attendance.
• SILVER Working Group (SWG)
  • Oversees day-to-day response / recovery activity, including work allocation and action monitoring.
  • Ensures MHCLG teams have sight of emerging intelligence from Strategic Coordinating Groups, Local Authorities, COBR meetings and other sources.
  • Ensures working-level colleagues understand the response ‘daily rhythm’ (e.g., upcoming meetings, key briefing deadlines).
  • Identifies and resolves tensions and issues affecting MHCLG’s policy response, and ensures alignment between different areas of response work.
  • Director-chaired with grade-blind attendance.

Staff from various MHCLG teams will attend GOLD and SILVER meetings to support the department’s response / recovery. The agendas will include regular items like local engagement, finance, communications, and resourcing, where teams will report on their work.

This grid expands on the roles and responsibilities of each MHCLG team in an emergency and how they collaborate to achieve the department’s goals.

Principles

The following principles should underpin all response / recovery activity undertaken by MHCLG:

• it is critical to stand up coordination arrangements early in a response, shifting these into the recovery phase at the appropriate point (though the two phases may coincide), and standing said arrangements back down as necessary
• clear communication between responders, supported by shared situational awareness, enables better alignment of activity between different teams engaged in response / recovery work
• effective response / recovery relies on the principle of subsidiarity, where each responding team within MHCLG is empowered to take decisions at the lowest appropriate level, supported by a clear understanding of one’s role within MHCLG’s broader response / recovery architecture
• responding flexibly to emergencies is crucial. Each response/recovery will manifest itself differently, and as such will require different response / recovery coordination arrangements.

Doctrines such as the Joint Decision Model (JDM) (see below) can also support MHCLG’s emergency responders to successfully navigate crises. The JDM identifies the key tenets of decision-making in an emergency:

Figure 2: Joint Decision Model (JDM)

Diagram of the Joint Decision Model, which identifies the key tenets of decision-making in an emergency.

The key tenets are:

• gather information and intelligence
• assess threats and risks and develop a working strategy
• consider powers, policies and procedures
• identify options and contingencies
• take action and review what happened

The diagram shows that central to those is:

• working together, saving lives, reducing harm

Managing an emergency: an operational guide

Incident notification and early situational awareness

MHCLG is alerted to incidents via several routes, including:

• incident response activation from Local Resilience Forums or other RED channels
• the escalation of policy risks and issues through policy teams
• intelligence gathered on an ad-hoc basis and reported via senior leaders, news media, press office etc.

An incident may be classified either as ‘rising tide’ (i.e. an incident that evolves to become an emergency over time), or ‘no notice’ (i.e. an incident which occurs with a minimal amount of warning).

The majority of incidents either require no action on the part of MHCLG or are ‘contained’ to a particular business area (e.g. RED or a risk-owning policy team). Other incidents, however, require cross-MHCLG coordination due to their scale, expected duration, and impacts on the department’s key sectors.

Where an incident has the potential to cut across multiple MHCLG business areas, RED may refer to a risk-specific playbook and/or the Resilience Policy Toolkit to help identify teams with an interest from across the department to bring into early conversations on incident response. This early engagement should focus on building a shared understanding of the unfolding situation and considering: the department’s responsibilities in relation to any potential response.

Depending on the scenario, RED may wish to notify a broader pool of departmental stakeholders (including relevant SCS and Ministers) that an incident has occurred via a ‘We Are Aware’ notice. In doing so, RED provides assurance that further investigation / monitoring is underway, and to equip teams with relevant information to support further investigation around an incident in the course of their BAU work (e.g. after notification, Local Government Engagement colleagues may begin to explore how / whether the incident is affecting local government stakeholders). ‘We Are Aware’ notices are typically issued by RED, who continue to provide updates on the incident by exception.

In relation to out of hours emergencies, RED maintains a 24/7 duty officer system to triage / manage incidents and ensure effective communication across government.

There may also be occasions where MHCLG is notified of sensitive incidents (e.g. cyber / counterterrorism / national security incidents), requiring the incident to be handled on a ‘need to know’ basis. In such circumstances, briefing, engagement, and document sharing / storage may be restricted.

Standing up response / recovery coordination arrangements

In scenarios where an incident is likely to have implications for multiple teams across MHCLG, the RED Director (in consultation with the SRO) may elect to convene a Senior Assessment Meeting’ (SAM), where a broader pool of SCS from across MHCLG are brought together to assess the unfolding incident and agree on appropriate coordination arrangements. RED serves as the Secretariat for the meeting.

The Senior Assessment Meeting represents a ‘checkpoint’ for senior decision makers and the opportunity to formalise decisions on coordination and response and take stock of departmental response activity already underway.

The objectives of the Senior Assessment Meeting are as follows: 

• to build a shared understanding of the facts around the unfolding incident, and how the incident is likely to unfold
• to consider the implications of the unfolding incident for MHCLG and our sectors
• to consider whether any coordination meetings should be established to support incident response
• to consider which teams need to be involved (at this stage), and to establish whether particular workstreams should be established to support the departmental response / recovery (e.g. finance, comms, local engagement)
• to agree any next steps

Leadership arrangements for the emergency are also agreed via the SAM. MHCLG adopts a Gold, Silver, Bronze (GSB) command structure: a hierarchical framework used in emergency response and recovery to ensure effective coordination of organisation-wide activity.

Figure 3: MHCLG’s GOLD / SILVER / BRONZE arrangements

Diagram of the Gold, Silver, Bronze command structure, including the responsibilities of its Commanders.

• The GOLD Commander chairs the GOLD Coordination Group, which sets strategic direction and defines objectives for MHCLG’s response / recovery. The GOLD Commander will also attend cross-government meetings on behalf of MHCLG and brief Ministers on MHCLG’s response / recovery activity.
• The SILVER Commander chairs the SILVER Working Group, which oversees the department’s day-to-day response / recovery activity. The SILVER Commander will also deputise for the GOLD Commander where appropriate (e.g., attending relevant cross-government meetings).
• The BRONZE Commander oversees the response / recovery activity of the Resilience and Recovery Directorate (RED), sets strategic objectives for RED and maintains relationships with key local partners. The BRONZE Commander will also clear key RED products (e.g., SitReps, briefings, submissions).

As the emergency progresses, it is critical that departmental coordination arrangements are continually and periodically reviewed to ensure arrangements remain appropriate as the response evolves. On a practical level, this will involve RED building regular ‘command and control reviews’ into agendas for the GOLD Coordination Group.

De-escalation and exit strategy

Emergencies will eventually pass, or no longer require ‘central coordination’ on the part of the RED. The GOLD Commander, in consultation with the broader cohort of SCS involved in the response / recovery, will consider the following questions when determining whether to transition the response onto a ‘BAU’ footing: 

• does there remain an emergency, or a number of concurrent emergencies that require significant co-ordination across MHCLG?
• does the core response / recovery now lie largely with a single team / Directorate?
• have central government structures been stood down and have meetings been discontinued (e.g. COBR meetings, Small Ministerial Groups, Commonly Recognised Information Picture commissions)?

Decisions on standing down central coordination arrangements (such as GOLD Coordination Groups) will be communicated to all SCS / staff at delegated grades involved in the response. Though MHCLG’s central coordination arrangements will be stood down at an appropriate point of the response / recovery, this does not mean that all workstreams related to the response will be paused / discontinued in parallel. Where required, individual Directorates will continue to grip / own residual work strands, engaging with other affected teams without the support of RED.

To support effective de-escalation, RED will develop and circulate:  

• a list of ongoing policy strands and owners (i.e. a comprehensive list of policy strands, and SCS agreement on owners)
• where appropriate, a register of residual risks

RED will host all-staff debriefing sessions (at SCS and working level) following the acute phase of the emergency in order to identify lessons on response coordination, resourcing, the policy response, and partnership working with the local tier. RED will produce a departmental debrief report, with a view to capturing key areas for learning ahead of future responses.

Government response to counter-terrorism incidents

1. Government’s 24/7 response and policy support arrangements will be provided by the Home Office Homeland Security Group for suspected or confirmed Counter Terrorist incidents.

2. The response functions provided by Homeland Security will include:

• managing communications
• situational awareness – ensuring Ministers and senior officials have a single, timely and accurate account of what is happening (CRIP)
• support to Ministers for COBR
• monitoring the situation
• coordinating actions across government, including any actions from COBR

3. Homeland Security will require 24/7 policy ‘reach back,’ including weekends and public holidays, but the threshold for making a call to a policy lead is high, although COBR actions may require policy support to start specific work streams. These points of contact will be the Ministry of Housing, Communities and Local Government Fire Duty Officer, and National Resilience and Fire Safety Unit Senior Unit officials, and RED.

4. Dependent upon the scale of the incident NSAT & NRAT assistance may be required to support Homeland Security. If necessary, this will be agreed at the time between the Chair of the NFCC and/or the NSAT and the HO.

Annex B: International Reciprocal Mutual Assistance

Incoming: International Mutual Assistance

The following procedure is to be adopted for the approval of incoming international reciprocal mutual assistance to the UK:

1. FRSs should have exhausted all mutual assistance arrangements/options under sections 13 & 16 of the Fire & Rescue Services Act and assistance that can be sourced via the NRAT Duty Officer from the UKFRS beyond 13 & 16 arrangements.

2. A request should be made by the Chair of the NFCC and/or NSAT to government for the exploration of other national capability options.

3. Where COBR is stood up requests should be made via this route. HO NRFSU MHCLG NRFSU and Civil Contingencies Secretariat (CCS) COBR Unit will prepare the brief for COBR.

4. Where COBR is not stood up, requests should be made to MHCLG NRFSU who will co-ordinate the arrangements with the CCS, COBR Unit. MHCLG NRFSU and CCS COBR Unit will agree and arrange the necessary Ministerial clearance procedure.

Once all national options have been exhausted ministers will approve incoming international mutual assistance requests.

Bibliography

Civil Contingencies Act 2004

Concept of Operations Response to Emergencies April 2013 Cabinet Office

Fire and Rescue National Framework 2018

Fire and Rescue Services Act 2004

Fire and Rescue Services (Emergencies) (England) Order 2007

Multi Agency Strategic Holding Areas – Civil Contingencies Secretariat

National Fire Chiefs Council Mutual aid charging protocol

National Mutual Aid Protocol – Fire and Rescue Service (2006) Fire Service Circular 42/2006

National Operational Guidance – Major Incidents 2018

NCAF Supporting Guidance

Glossary

CBRNe	Chemical, Biological, Radiological, Nuclear, Explosive
COBR	Cabinet Office Briefing Room
CRIP	Common Recognised Information Picture
DIM	Detection, Identification and Monitoring
ELS	Enhanced Logistics Support
ESS	Electronic Support System
FCDO	Foreign and Commonwealth Development Office
NRFSU	National Resilience and Fire Safety Unit
FRS	Fire and Rescue Service
GLO	Government Liaison Officer
HO	Home Office
HVP	High Volume Pump
JOL	Joint Organisational Learning
LGD	Lead Government Department
LRF	Local Resilience Forum
MASHA	Multi Agency Strategic Holding Area
MD	Mass Decontamination
MHCLG	Ministry of Housing, Communities and Local Government
MOU	Memorandum of Understanding
MTA	Marauding Terrorist Attack
NCAF	National Coordination Advisory Framework
NFCC	National Fire Chiefs Council
NOL	National Operational Learning
NRAT	National Resilience Assurance Team
NRFC	National Resilience Fire Control
NSAT	National Strategic Advisory Team
PSG	Public Safety Group
RED	Resilience and Recovery Directorate (formerly the Resilience and Emergencies Division and still referred to as “RED”)
SCG	Strategic Coordinating Group
USAR	Urban Search and Rescue

1. The Flood Rescue capability is funded by the Department for Environment, Food and Rural Affairs (DEFRA) and the flood register is hosted by National Resilience. ↩

2. National Resilience maintains a Wildfire NRAT advisor to provide support to affected FRSs during significant incidents. ↩