GRENFELL What Went Wrong?

esilience R Journal of the Emergency Planning Society Autumn 2017 INSIDE

TELE-MEDICINE: coming your way

CBRN RECOVERY: the expensive part

MEDIA: time to bring MEFs back?

SARTISS 2017: conference report GRENFELL What went wrong?

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Resilience Dear Member Contents 4 - 5: News update

6: Tele-medicine - the shape of things to come

7: SARTISS - conference reports

8: CBRN - the recovery phase

9: Media - return of the MEFs?

GRENFELL FEATURE 10 - 13: the community view

14 - 15: Countdown to tragedy

16 - 18: The impact of deregulation

19 - 21: Communication failure

22: Can firefighting go airborne?

23 - 26: EPS submission to the Grenfell Inquiry

WINTER ISSUE: Copy deadline for articles for the next issue will be WEDNESDAY 20 December Send to Bob Wade on:

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Resilience l 3 NEWS UPDATE

So farewell then, John...

JOHN PARKINSON has been a stalwart of the resilience structure in the UK for many years, as the Librarian at that bastion of the emergency planning community, The Hawkhills. Here he says goodbye:

IT WAS a crisp morning in the Autumn of 1991 when I first rode up the long drive into The Hawkhills to begin my career Public warned over as Librarian to the Emergency Planning College. always been economic ‘viewfinder syndrome’ The College was a very dif- pressures on the College, and selfies ferent place then, just begin- inevitably whenever such ning its transition from Cold pressures arise the library will THE Environment Agency has warned the public not to take War civil defence training, to come under scrutiny as some- ‘storm selfies’, where people put themselves at risk to get a peacetime emergency planning thing that can be cut back on. spectacular picture on their smart phone. During the recent training. The Library on day In defending the library’s role storms, the EA’s National Flood Duty Manager, Ben Lukey, one reflected that transition in I’ve many times been grateful said: “We urge people to stay safe along the coast and warn that it presented a mixture of to the emergency planning against putting yourself in danger by taking ‘storm selfies’ or Cold War and civil disaster community nationwide who driving through flood water.” related material, all neatly cata- have always stood behind me The obsession by some people to take pictures during danger- logued in a small card index. and behind the need for the ous situations was also highlighted recently during the terror My job then was to create a library’s services and re- attack on the tube train at Parsons Green, where members of the collection fit for the new age, sources. public actually stopped to take pictures of the half-exploded and to translate the catalogue However, all good things device while it was still on fire. from card to electronic format. come to an end, and so, as I There is currently debate that – like mainstream media camera As a (relatively!) young and look forward to retirement in a operators – the public obsession with selfies is producing aspiring librarian, I saw this few week’s time, I would like ‘viewfinder syndrome’: so focused are they on what they see on initially as a task that would to thank the whole of the emer- their screen, they are oblivious to the wider environment and its take me two to three years, gency planning community, dangers around them. after which I would move on to and the EPS in particular, for pastures new. But within the all the support that I’ve re- first few months both the Col- ceived over the years. New NHS guide on social media lege and my role there had got One of the proudest, and most under my skin, to the extent unexpected, moments of my NHS staff and terror attack which is not already in the that those plans quickly career came in 2012, when I victims and their families have public domain." changed. Emergency planning, was awarded the EPS been warned about the risks of It says: "Often in terror in all its many facets, grabbed ‘Emergency Planner of the using social media, in new incidents the receiving hospi- my interest in a way that my Year’ award (despite never guidelines issued by NHS tals are not named in the media previous jobs in the Ministry of having been an emergency England. straight away, so don't post that Agriculture, Fisheries and Food planner!). I will certainly miss The guide cautions that inter- you've had a busy shift dealing just hadn’t, and living in the the relationship I have built up net trolls may subject victims to with victims, as this will con- bucolic surrounding of North with emergency planners over "vile and upsetting abuse", as firm something which isn't Yorkshire just sealed the deal – the years, and I wish the EPS was seen after the Manchester already known." I was staying put. and the profession all best and London terror attacks. It reminds staff to maintain Not that there weren’t some wishes for the future. May you The NHS England guide also patient confidentiality and difficult times. There have stay resilient! issues specific advice to young- cautions them against tweeting er people, cautioning: "People rumours. will use your in- Deal for Resilience conference 2017 formation for their THIS year’s Resilience Conference 2017 – to be held in central own ends and London on 6 December - provides a platform to discuss the best when you're in the approaches for ensuring resilience against a range of threats, along heat of the with an update from policymakers in the Cabinet Office, DCLG moment you may and the National Fire Chiefs Council on resilience initiatives. say more than you Participants will have the opportunity to gain insights on how to intend or later work in collaboration to achieve resilience, enhance preparedness regret." and develop robust risk management strategies. The guide warns View the full agenda here (Link: https://goo.gl/tS1BT8) NHS staff against

"accidentally re- 20% discount for all EPS members. To claim your discount, please vealing something contact Daniel Evans on 0203 770 6621 or about the incident [email protected] and quote RESILIENCE20 to qualify. 4 l Resilience NEWS UPDATE

Upsurge in vehicle borne attacks in Europe

THERE has been an upsurge of measures to guard against such chief, Klaus Kandt, told report- terror attacks over the summer, attacks in high traffic areas, ers, defending against vehicles with asaillants using vehicles to such as New York’s Times was difficult because the num- ram pedestrians. Square, but surrounding every ber of soft targets is unlimited. These have included two ram- street with barriers is not a via- One step being deployed by ming attacks in Spain, one of ble solution. As Berlin’s police the Metropolitan Police in Lon- which targeted a popular don is the use of the ‘Talon’, a boulevard in Barcelona. A mobile, vast ‘stinger’ type vehi- van ran into people on Lon- cle disabling kit which can be don Bridge in June, before erected around key gathering the terror gang going on a places as they occur. stabbing spree, and other vehicular attacks in Berlin, The National Counter- Stockholm, and Nice. Terrorism and Security Office ISIS is not the only group to has informed the EPS that it will use vehicles for terror at- not be training any further EPS tacks. Palestinian attackers members in Project Griffin have carried out car ram- awareness, as they now have mings in Israel for years, and enough, and they are expecting more recently far-right a return on their investment of extremists in Britain and the 100 people briefed for each United States have used ve- trainer, per year. hicles for violent purposes. Many cities have erected  On guard in Paris, Italy and security bollards and other Spain - counter-terrorism Hostile Vehicle Mitigation measures have been stepped up throughout Europe

Counter-terror awards - In memory of now open for nomination Sir John Blelloch NOMINATIONS are now institutions. Communication Systems Award being taken for next year’s Counter Terror Information Sharing This award recognises communication Counter Terror Awards, Award systems and their potential to assist organi- Recognising an organisation which has sations in both threat detection and post- organised by Counter Terror developed and introduced an effective terrorism communication between govern- Business in association with information sharing strategy mental and emergency service organisations next year’s Security and Coun- Cyber Security / Counter Terrorism ter Terror Expo, to be held in Technology Award Forensic Science Award Presented to an organisation which has Presented to the practical application of a London on 6-7 March. developed effective technologies to protect product or procedure which can assist in There are 20 awards open to against the threat of cyber terrorism identifying and bringing terrorists to justice and has potential to bolster home- both the public and private Best Use of Information Technology in land security sector, for various categories Counter Terrorism This award recognises the project which Terrorism Research Award of innovative projects and makes best use of information technology Presented to an Academic Institution or products that have enhanced to assist in counter terror strategy Individual whose work has contributed to a better understanding of terrorist operations the counter-terrorism sector. Physical Security Award and ideologies Finalists will be invited to the This award recognises a product which, as part of an overall design, provides effec- Emergency Services Award Awards Ceremony to be held tive physical security to protect against and Presented to an Emergency Service on 6 March, during the Expo mitigate the effects of a terrorist attack (Police, Fire, Ambulance) which has implemented and tested a strategy to cope events. To find out more, go Perimeter Protection Award with terrorist attack to Presented to the private sector organisation which has designed and/or installed physi- Emergency Services Product Award www.counterterrorbusiness. cal security measures to protect buildings Presented to a product designed for the and individuals from terrorist attack emergency services which has the potential com/awards to mitigate the effects of terrorist attack THE funeral of Sir John Threat Detection Award Blelloch, former President and The awards are: This award recognises products which Private Sector Contribution to Counter assist in the detection and disruption of Terrorism Award EPS member, has taken place in Counter Terrorism Project (UK/ terrorist threats to the UK and its interests. Recognising an organisation or individual Dorset, where Sir John and his Ireland) in the Private sector whose efforts have Presented to a governmental organisation Airport Security Award furthered the understanding of terrorist wife Lady Pam had lived for the or public/private partnership which has Recognising the efforts of private and activities and assisted in developing developed and implemented an effective public sector organisations and the tech- effective prevention strategies past 30 years. counter terrorism strategy or awareness nology which assists in increasing security The Chair, Tony Thompson, campaign. at airports Public Sector Contribution to Counter Terrorism Award represented the EPS and spoke Counter Terrorism Project CBRNE Product Award Recognising an organisation or individual with Lady Pam, who recalled (International) Presented to the product which has the in the Public/Charity sector whose efforts Presented to an overseas governmental potential to provide effective protection for have furthered the understanding of terror- fond memories of attending organisation or public/ private partnership emergency services and/or civilians ist activities and assisted in developing which has developed and implemented an against attack from Chemical, Biological, effective prevention strategies many EPS conferences with effective counter terrorism strategy or Radiological and Nuclear weapons John. She asked to pass on her awareness campaign. Outstanding Contribution to Counter Counter Terrorism Education Project Terrorism best wishes to EPS members. Presented to an organisation or partnership UAV Product Award A memorial service for Sir John which has developed and implemented Presented to the most innovative product measures to help combat the threat of developed for the purpose of protection will be held in Chelsea, London radicalisation in educational or religious against hostile drones. on Tuesday, 18 January 2018.

Resilience l 5

SARTISS

Telemedicine: the Current Artificial intelligence futuristic shape

of things to come Data Data

Output Programme ONE of the fascinating presentations at this They have year’s SARTISS conference was by already de-

RONALD POROPATICH, of the Center veloped a Computer Programme Output Computer for Military Medicine Research in the US. medi-vac He told the conference much of what he drone -as would describe “sounds like science fic- have the tion”, but actually demonstrated what is Israelis – now possible in the world of tele-medicine, with two large movea- in particular the use Artificial Intelligence ble rotas giving it verti- and drones. cal take-off capabilities, He said we should not be scared by AI, it and a range of 400 km. was merely “intelligent behaviour by ma- Under development at chines”, to the extent that AI could now the moment is TRACIR replicate human thought for such tasks as – ‘Trauma Care in a inserting an injection in a casualty. Rucksack’. Utilising AI, He gave this basic explanation of how AI they are producing works (see diagram above). Smart Clinical Tools Currently, we put data and a programme and bio-sensors. into a computer, and it gives us an out- Basically, the rucksack come. With AI however, we give the ma- folds out into a stretcher chine the information and tell it what out- and the patient is then come we want, and the machine works out enveloped in the inflata- the programme. ble bio-sensors, inflata- Growth of use of AI telemedicine is ble torniquets, basic anticipated to grow by 400 per cent in the injections etc at the US he said, because it will cut costs in a same time transmitting country where there is a lack of affordable information back to the health care. medical centre to help He described one experiment carried out them prepare for the casualty. by the Center, where they pitted doctors The stretcher also has hooks so that a against AI machines. They input the data of drone can lift it out of the battle area.  ABOVE: Ronald Poropatich explains 10,000 heart attack victims into the AI Ronald said obviously the “bad guys” will the ‘trauma care in a rucksack’ project, machines. They then gave the doctors and learn how to block signals, so the challenge BELOW: operational troops face the the AI machines a series of patients to ex- was to make Smart Clinical Tools predic- ‘tyranny of distance’ if they get wounded in the more remote theatres of war amine, some of whom were displaying the tive, autonomous and be able to takeover possible symptoms of a heart attack. The operations. doctors scored a 73 per cent success rate in their diagnonsis – the AI machines scored 76 per cent. The other big challenge for the military was medical evacuations – medi-vacs – in the current theatres of conflict where ground forces faced the “tyranny of distance”. For example he said, Special Oper- ations forces in Somalia could be a thousand miles from the nearest medical centre. Speed was also a necessity. In Afghanistan in 2015, US forces carried out 1,200 medi-vacs, where the average flight time was 15 minutes to the ‘MASH’ unit. Of these, 147 needed critical interven- tions during the flight, mainly ventilatory support. They were looking at developments that could treat wounded soldiers in place, and also reduce the risk to helicopter and medical crews in combat zones.

6 l Resilience SARTISS

International conference looks at the new challenges facing THE annual SARTISS search and rescue conference in Europe Romania in October attracted the usual array of top international speakers, including members of the EPS. Set LUCIAN MIHOC from in the spectacular mountain region of Bihor, with 1,600 Hungary gave an insight into delegates and nearly 100 speakers organised into three the problems of the emergency parallel conferences, the event heard about the latest services suddenly being faced developments in telemedicine and the challenges that new with running a refugee camp in – and old – technologies can bring. their own country, following the influx of people fleeing Syria during 2015. New car safety technology It became an issue the emergency services had to deal with - rescue services must after Serbia closed its borders with Hungary, as migrants were learn to ‘peel to reveal’ passing through the country to KEVIN LENNON of the Scot- are needed to protect drivers try to get to Germany. tish Fire and Rescue Service, and passengers, they are far There was a quick learning outlined that car technology more difficult to cut open: curve, helped by a team from was making vehicles safer, but even the glass in vehicles these the Hungarian government’s these presented new challenges days are mainly polycar- Emergency Inspectorate travel- for firefighters when cutting bonates designed not to shatter Terrorism - civilian ling to Turkey to visit a huge free and removing the injured and are strongly bonded to the refugee camp, just 5 km from from crashed vehicles. vehicle frame. services must Aleppo across the border with The advent of the electric car A particular new danger for adapt to ‘war zone’ Syria. brought new dangers – they firefighters is the prevalence of It had a total of 35,000 refu- HENRI JULIEN, Surgeon can produce up to 500 volts: airbags – some of the latest General for the French Society gees living there, many having seven workers have already models can have up to 23 air- been there for eight years. of Disaster Medicine (above), been killed in the manufacture bags, including external ones spoke on the lessons and similar- Given the permanency of the of electric cars. The other dan- on the bonnet to protect pedes- camp, containers rather than ities of the terror attacks on the ger is the 30 – 40 batteries trians. Kevin said the watch- Bataclan theatre in Paris, and the tents were used, given the harsh typical electric cars carry, word for firefighters was ‘peel conditions in winter. attack on the nightclub in Orlan- which can produce toxic fumes to reveal’ – make sure you do, where 32 people were killed. Back in Hungary, they had a when heated up. know what you are cutting smaller scale issue to deal with, He said there were thousands of In-built safety design is also into. shots fired in each incident, setting up a camp for 500 peo- raising new issues. While they ple. But still, for the emergency demonstrating that this was not a normal civilian emergency, but services it was not within their  SARTISS is held every year in the spectacular mountain region of Bihor usual experience. - and you wonder why some of us go every year! more akin to war zones. Tents were used, but this Both countries had seen the could only be a temporary need for SWAT style paramedic measure during the summer teams, to get the wounded out period, as they would not be quickly. suitable for a Hungarian winter. But this brought new challenges It also needed to be close to the he said for paramedics – the border and away from cities, to ballistic protection was very ensure the refugees did not weighty: the vests weigh 23 ‘melt away’ in urban sprawls. kilos, the helmets, knee protec- The camp cost 160,000 Euros tors etc a further 35 kilos. to set up, with a further 4,500 Euros a day just for fuel alone. Sirens still key It fell to the Fire and Rescue to warning the Service to initially set up the camp, because they had the public expertise to set up emergency IN eastern Europe, sirens – a encampments for disaster vic- throwback from the Soviet era – tims. Many other agencies were are still in prevalent use involved though - the Border particularly in mountainous and Police for security, the Ministry rural areas. They are used to of Defence to deal with immi- warn of all dangers, whether gration issues, the health ser- That’s the way you do it! floods, forest fires or earth- vice for medical issues, and LAST year Romania held a no notice exercise – for the whole of quakes. Their advantage in areas Social Services to look after the country! Concerned that lessons had not been implemented where telephone and radio sig- welfare. from a previous planned exercise to respond to earthquakes, a nals are weak is that they can be Lucian said with so many government Minister for the Emergency Services Inspectorate heard for miles, where many may agencies involved, it needed to activated the process as though there had been a major earthquake be working in the fields, far from be established very swiftly of in the Bucharest area. Over 25,000 soldiers and emergency their villages and towns. which agency was in charge. services were mobilised. Resilience l 7 CBRN PROFESSIONAL WORKING GROUP

ceptable to people who consider their smart CBRN incidents - examing phone and car/house keys as some of the most important items in their life, but that the recovery phase doesn’t make it any less true. This doesn’t just apply to personal items, IN this, the last in the series of not the ‘mission’ is paramount. The but also to infrastructure. Therefore, if we articles from the EPS CBRN ‘mission’ may actually be to remediate the were to tell an international airport Board Professional Working Group, situation and recover the scene to that their contaminated landside terminal BARRY MOSS completes the natural ‘normality’. must be demolished and then rebuilt be- progression of a CBRN incident and Whilst there is a requirement for CBRN cause the emergency services decontamina- looks at the Recovery phase. knowledge to achieve this, the activity un- tion capability was placed to suit the need

IN THE last two editions of Resilience we INFORMATION MANAGEMENT have considered the initial non-specialist , Media Comms, Political Comms reaction - Model 1 - and the specialist response - Model 2 - both of which, respec- Mobilisation of Specialists

tively, receive a little, and a lot of, attention Monitoring, Area Decon and Remediation Public Control (Scene & off-Scene) Cordoning and contamination control during planning, training and exercising. Scene Management Traditionally, as the non-sexy end of the counter-CBRN spectrum (if there is such a thing), Recovery is virtually ignored and Further Contaminated body removal/victim yet is probably the most complex, of the identification longest duration, and is certainly the most Disposal of expensive element of all. Contamination and To some degree the lack of attention is Contaminated items understandable as, if the response phases Reinforce are managed well, and the prevention & measures are accurately planned and imple- Re-employ

mented, then recovery should be a breeze. Wind This is usually the case in exercises where

the attention is focussed on showing how RECOVERY & REMEDIATION well we can respond. For those of you who have read the previous articles in this series, you probably dertaken may not necessarily be by special- for water supply and run-off capture, and have an inkling as to what is coming ists; this equally applies to the previous two the consequence was that contaminated next….. phases. casualties had to trek through the building The response generalist who abdicates and concourse to reach the conveniently- YOU may recall that in Models 1 and 2, the dealing with a CBRN incident is under- sited MD4, there would be hell to pay. concerns postulated were around the expec- standable, as there is still a degree of ‘black A balance of response and recovery con- tation that the situation will unfold as art’ associated with CBRN. siderations is essential in this circumstance. planned, and that the capabilities deployed So perhaps the best way to think about Critically, and much misunderstood, is the will be able to cope with the situation. CBRN is as just another hazard with its expected desire of people to return to a As with any fluid, dynamic, and confusing own set of peculiarities. previously contaminated site. situation, there is no guarantee that the plan The military has a counter-threat frame- Just because the attack scene has been will progress accordingly. work that includes many different threats, decontaminated doesn’t mean people will Therefore, the ability to take the plan, and they are applied to the ‘mission’ such want to use it again. adapt it for the ensuing complexity and as ‘capture the key insurgent’ or ‘secure the The distrust in what ‘the Man’ tells us village’. The fact that they may encounter regarding the cleanliness of the site, plus ‘Recovery is probably the most IEDs, and small arms or indirect fire does the choice of using another scene that has not change the mission; so why should never been contaminated, may result in the complex, longest duration and CBRN? public staying away. expensive element of them all’ The age-old question of ‘how clean is THE Recovery model unfortunately under- clean’ is perhaps to be preceded by ‘who confusion, and then proactively and dynam- represents the scale of activity required to cares ….’ ically deal with the consequences, is criti- return the scene ‘to normal’ although The CBRN PWG can offer presentations cal; this applies equally to the Recovery ‘normality’ is a much-misrepresented term. and discussion sessions for EPS Branches, phase. When we hear the phrase and for other interested organisations. If If the consequences of response can be ‘decontamination’ we expect that the situa- this appeals, please contact us at bar- negated by intelligent application of re- tion will revert to what it was before the [email protected] sponder procedures, then the need to invest incident; that is impossible. heavily in recovery could also be reduced. The ability to decontaminate items and For example, the profligate and unintelli- infrastructure in a cost-effective and timely gent use of ‘life-saving’ techniques - with- manner is questionable, and is obviously out an understanding of the consequences - Barry Moss is currently: Acting Chair of tempered by the need to do so. the EPS CBRN Professional Working can lead to additional recovery problems To take personal possessions from con- that would not have been prevalent had the taminated victims (jewellery, mobile Group, a military reservist CBRN spe- ‘live-saving’ activities been tempered by a phones, keys etc.) will be difficult, as they cialist, an Emergency Planner for the sensible approach; more in a moment on will consider these items inviolate. NHS, and a busy Company Director. He this. To then say that the cost of decontamina- also sweeps the floor. Furthermore, the realisation that CBRN is tion is not cost-effective may not be ac- ‘ 8 l Resilience MEDIA MEETING

THE EPS is taking a key role in this year’s UK Security Expo, to be held Media Emergency Forums: at the Olympia Grand Hall, London, on 29-30th November. Alongside a stand at the exhibition, time for a replacement? the EPS will also be giving a presentation at the ‘Protecting • hold debriefs after major incidents to Crowded Places conference’, held identify lessons for both sides; Joint EPS/Society of Editors forum, during the event on 30 November, • to act as a ‘broker’ in disputes between speaking on ‘How should Category 1 emergency responders and the media; Henley Room, London Olympia, responders warn and inform the • where possible, provide an operational 2.15pm, Wednesday 29 November public better?’. role to brief the media under the Chat- It will also be holding a joint meet- ham House rule; ing with the Society of Editors, on • to alert the media to forthcoming events contracted dramatically – they have neither ‘Security and the Media’. for media diaries. the staff or resources to devote time to the This ‘closed door briefing’ will be RMEF or much else. held in Henley Room 4, at London The debriefs held after major incidents Olympia on Wednesday 29 Novem- were the most valued by emergency re- Looking ahead ber. The briefing will start at 2.15 pm sponders and media – these were held after The briefing will consider options for im- and last about one hour. the major incidents with a direct regional proving and rebuilding arrangements for impact, such as the Morecambe Bay cockle improved local responder and media en- Purpose of Briefing pickers disaster, Carlisle floods, ‘White gagement before, during and after emer- IT is becoming increasingly apparent that Friday’ in Cambridge, Birmingham torna- gencies and incidents such as terrorist at- there is a need for a more structured inter- do, mass evacuation of Birmingham city tacks. This will include reinstating the face between emergency responders and centre, Exercise Horizon, Bird Flu, etc. RMEF model, possibly on a trial basis to the media prior to, during and after a major For example, one of the legacies of the test its effectiveness. incident, and notably where terrorism is a debriefs, is the business continuity plans Today, one advantage is any such factor. the BBC (and to an extent ITN) still have in ‘RMEF’ style formation could respond to The briefing will examine current arrange- place which followed the RMEF debrief on events when required, rather than being tied ments for engagement and argue that these the evacuation of Birmingham, which in- to a rigid timetable. As such, responders are inadequate in fast-moving incidents, cluded the BBC’s Mailbox, which proved a may see sudden opportunities to get the against a background of a tidal wave of wake-up call on the importance of business media on side, which the media would social media posts by those frequently continuity management. value in news terms, either pre-event or caught up in an incident. For the media, it demystified the emer- post-event, but only if it was a major event Emergency responders have statutory gency services, whilst it broke down the or big news story. responsibilities for warning and informing obsession for secrecy by past generations This would be a different beast to the old the public in the event of an emergency of emergency responders – the media par- RMEFs, and look more like a detailed press although there are currently no arrange- ticipating in exercises these days for exam- briefing like those held in the Swine Flu ments for checking whether responders are ple, is now considered quite routine. days in 2009. In terms of the Chatham compliant with the law. Although rarely used operationally, the House rule, the terms of reference could be Speakers will suggest ways in which a RMEF played a major part at the outset of that the rule applies during the meeting, but more structured approach to engagement the 2009 Swine Flu outbreak in educating if the media present think there is an angle between the media and emergency respond- the media, dampening down media hyste- they can use they can request an on-the- ers will provide significant benefits to the ria, alerting the public not to attend acci- record interview with the relevant respond- public, and help responders demonstrate dent and emergency departments, and get- er after the meeting. they are meeting their statutory responsibil- ting the media onside to stop the victimisa- The briefing on 29 November will con- ities. tion of the first Swine Flu victims. sider various options for improved engagement between emergency responders and Background Past Problems with RMEFs the media, and will subsequently make In the 1990s a National Media Emergency Precisely because of its success in demysti- recommendations to Government. Forum was formed, bringing together na- fying resilience structures and needs, and tional media representatives and the heads the relationships built between the two  The RMEFs helped calm the media after of communications in government depart- sides, the media began to lose interest in ments. headlines such as this from the Times during taking part in RMEFs. the Swine Flu outbreak Based on the same model, Regional Me- LRFs began establishing ‘Warning and dia Emergency Forums (RMEFs) were Informing’ groups (WIGs), and emer- established in 2003, initially in the West gency responders saw the RMEF as just Midlands, and subsequently rolled out to all duplicating what they were already English regions. Similar arrangements were doing at local level – the WIGs began to set up in Wales and Scotland. supplant the RMEF in terms of relationships with local media. The Forum’s main role was to: The Government’s Central Office of • provide a voluntary interface between Information (COI) acted as the RMEF the media and emergency responders to secretariat – but with the COI closure help foster better understanding of each and public sector cutbacks, other organi- other’s needs during a major incident; sations appear reluctant to take on this • build relationships through such initia- responsibility. tives as inviting the media to participate The most significant problem, however in emergency exercises; is the media itself. The BBC aside, the commercial media in the regions has Resilience l 9 GRENFELL

‘We are all worth more’

In this special feature, Resilience looks at the issues around the Grenfell disaster - from voices in the community, the warning signs that were missed, the challenges around tall building emergencies, and the EPS submission to the forthcoming Public Inquiry

10 l Resilience GRENFELL

MELANIE PHELAN is a local resident who stepped forward as part of the community response to the horror of Grenfell. Here she gives a voice to her community, outlining what they went through and are still going through, and the questions they want answered about the response:

HAVING lived and worked in and around the North Kensington community for the last twenty years, from student to designer, to creative industries business owner, to mother, I have witnessed and been a part of an ever growing wonderful- ly diverse, multi-cultural, socially mixed, sometimes infuriating society. We live cheek by jowl with rich, poor and every shade in between. I am bringing my daughter up in a highly creative, stim- ulating, community orientated environment with the world’s best educational institutions, museums, galleries, music academies, opera house, theatres, parks - all within a bus, tube or taxi ride away. Some are able to make full use of these great assets, some rarely leave their neigh- bourhood feeling more secure in their treasured communities, be they Moroccan, Somalian, Eritrean, Greek, Caribbean, Irish... the list goes on. We have all lived well together. Our area retains a large number of artists, musicians, actors, designers, creatives. There are many small businesses buzz- ing away in various studios, galleries, grand houses and bedsits. It is a luxury to live here and we all will stay for as long as we possibly can. I fear for the future of our area. This fear has been fermented and cemented since the 14 June 2017, and the Grenfell Tower fire. I woke up after a fitful sleep to a running screen full of messages. My daughter was six years old, she turned seven exactly a month later. I remember. We all congre- gate on the 14th of each month to silently march in remembrance of our families, friends, loved ones, or simply faces we no longer see.

IT was shocking. We had heard the buzz- Shock. Disbelief. Horror. ing of helicopters nearby and there were sirens, hence the fitful sleep but nothing could prepare us for the immense devasta- the fire was still burning, Anger. Resilience. tion of the atrocity that was unfolding. flames emanating from the centre of the I dropped my daughter to school locally tower. You could see the plumes of smoke Community. and started the walk towards the tower. I for miles around and the stench. All life had no plan, no idea what help I could within the tower had been decided on at stopped at a crossroads. Staring up, disbe- give. I suppose I envisaged helping sur- this stage. If you weren't out, you were lieving, absorbing the shock and the reali- rounding people out, perhaps helping with never coming out. At least, not breathing. sation of the scale of disaster. directions, local knowledge, collecting The immense structure was breath- The media were already all over it. There and delivering goods etc. taking. The scope of the loss of life, the was an eerie quiet in the community, yet Walking in a direct line towards the tow- loss of humanity, struck us all. Those of helicopters with cameras, noisy and irri- er had a huge impact. It was morning, but us who had made it that far automatically tating, were constantly directly overhead. Resilience l 11 GRENFELL

I wasn't far from the tower yet the only where to go or what to do. ‘They will never get police visible were cordon police, on duty I went to a church that had the fore- on streets they barely knew. They couldn't thought to open their doors during the that smell out of their direct people as they didn't have any direc- night in order for people to have a place to uniforms’ tions. When anyone asked how to get to come and to rest. We directed people here certain areas they had no idea what to say and to another community club on the THE firefighters changing shift was a scene or do. same street. We were very close to the fire. to behold. Big strong men, shattered by There was a lot of confusion about stop- There was space to sit, food and drink many hours of gruelling work, deciding on ping people from entering the surrounding available. life and death. Decisions that no-one should area but I found that by walking confident- Someone had quickly thought of setting have to make. Climbing over the sea of bod- ly and stating that you live in the area, you up a charging point for phones and laptops. ies sweeping down the single stairwell. The could get to where you needed to go. We were to learn that our phones and com- place that many people breathed their last It took a good while to walk a short way munication equipment would be constantly breath. as people were stressed and disorientated. in use, constantly needing recharging. There was a big group walking down the Many had been up all night and were still A4 sheets of paper were up on the walls. road, heads down, helmets in hand. I will going on adrenaline. They were asking People were walking in and leaving their never forget the smell off them. It lingered where to go and what to do. I started by details along with descriptions of rooms, down the street and as I walked away from asking the cordon officers who had no places to stay at their homes for anyone them, in the direction they came from, information whatsoever. When I asked to who needed to come and rest. To eat, seek I could smell that stench all the way up the help saying that I could take people to a bed. street. It clung to the air, to the air thick with relief centres, I was told continuously that Other sheets listed peoples’ numbers and death and ashes that we were all breathing in. they (the police) didn't know where they descriptions of loved ones they were look- I remember thinking that they will never be were or which buildings had been as- ing for. They were constantly being revised able to get that ground-in ash, that smell, out ‘ and updated. It was heart- of their uniforms. It was morning but the fire was still breaking to see but no time It was unreal. I thanked them. It seemed to stop. ridiculous to me but what else to say? I know burning...All life within the tower had been We were by now deluged decided on at this stage. If you weren’t out, that some firemen have been signed off sick by goods. The church hall with trauma. They deserve a break. They you were never coming out’ floors were covered as was have been through hell too. They have been every available space. Peo- revisiting the area at night, in the early hours, signed. I walked further into the fray and ple were walking in with food. A chef saw some after their shift, to quietly stand and so began the deluge of donations from well that volunteers hadn't stopped and brought look for some time, up at the tower, lost in -wishers. Goods - much needed at first but us in a meal he had cooked - people mak- thought or meditation. they came in quickly , constantly and in ing us stop to eat. It was kind and appreci- Many of them stayed on for days, working huge amounts. ated. His way of helping. in the burnt out and dangerous tower, sleep- I was picking them up, placing them in Everyone was pitching in. I called local areas and working out how to move things, supermarkets to request donations of boxes ing in their rigs, being fed by the community. where. There were still many people won- and tape. Not all wanted to donate at first - dering around, dazed. People were finding not recognising the awful scale of what survivors who had walked away from the was unfolding - but were persuaded that told him what he needed to say to his offic- fire in distress and had been walking donating to their customers who would be ers in order to calm the crowds. It was around the area for hours not knowing made aware of their generosity or not was ridiculous at times. a good incentive. Local men were on the Volunteers were now flooding in. We scene with vans and literally said 'Here we started to have people that had worked in are, tell us what to do.' They were a God- the camps at Calais and Greece. We were send. They helped me clear the overflow- already organised, sectioning goods etc but ing streets that were filled with goods, now we were sectioning more efficiently, people and media cameras everywhere. to box things up and marking them ready People couldn't move and the atmosphere to go to wherever they were needed. was becoming dark with frustration at there As people started to leave after a couple being no action. Twice we just about of hours shifts there were a few of us left avoided rioting. It took a lot of effort on organising and working. We had naturally the community’s side. taken up the slack where needed. There There was nothing that the police could were many decisions to be made and no- do that helped at this stage. I asked a few one else to make them. We made up a police what were their orders, where were small working committee at the church and they telling people to go, what information it was eventually running like clockwork. did they have. There were a few hundred We had people with many skills helping. people on the streets, many women and A lot of people were giving interviews at children sitting on the pavements and road. this stage, which was incredibly annoying They shrugged, said they had no ‘ idea where to tell them to go and had no idea what to do. I spoke to a People were stressed...they were still police Community Liaison Officer going on adrenaline. They were that I had miraculously found and asking where to go and what to do’ told him to tell the highest ranking policeman he could find to come and speak to his officers. He was however so we asked all media cameras to be re- locked in a building which had closed its moved so that people could sit in peace and doors to the public due to a fracas. I then we could work.

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I went to the Westway Relief Centre There was a 'Humanitarian which was designated the main relief cen- Team' put in place. I was told ‘A building, engulfed tre, This centre, like all others had been they would be in touch months opened and started by community respond- ago. I am still waiting. There from top to bottom, in ing volunteers. It is a sports centre and was have been initiatives, some flames’ the largest relief centre in the area. It had mildly successful, some not at been filled with mattresses and was a all. When I have discussed ide- MORE than 200 makeshift shanty town but people felt safe as they have often been taken firefighters and 40 and they could wash and be fed while they away from me and implement- engines fought the desperately searched for their loved ones. ed ineffectively because it is not blaze at Grenfell. They were gradually moved out to hotels. understood how to apply them The London Fire There was little police presence. What to our community. Commissioner, was there was unfortunately ineffective due As such, no effective structure Dany Cotton, said: to a lack of local knowledge and under- was put in place - there was no “I have never seen standing. There was also some unnecessary structure, what there was, was such a phenome- blustering from some officers. There were and is shambolic. Community nal fire, a building also officers trying their very best to help groups were allowed space to engulfed top to where they could. In general the issue was form and take over sections of bottom in flames. the response. This “Committing has led to no coher- hundreds of my ‘There were people who tried their best ent response from firefighters into a but witihout any cohesive response, the authorities, building that at strategy or understanding, it was lingering suspicion points looked like impossible for them to function of them and a doubt it couldn’t possibly that they can cope stand up due to efficiently’ the level of fire - I with anything very actually felt much at all. This physically sick with that nobody had any idea what to do. Eve- has led to an issue with commu- anxiety about what rything was led by the community. When it nity members being understand- was happen- wasn't, it was a mess. ably sought out and clung to, ing.” (Associated We arranged food supplies ourselves. We with the difficulty of stepping Press 24.06.17) arranged everything ourselves. Personally, away. as well as taking care of many people, their There are now many factions needs and requests, I dealt with clearing and groups that have applied for the streets, using my hands and locals to charitable status in order to clear, pack, load into donated lorries and acquire funds. We are now beginning to too. They have all worked tirelessly, vans and take vast amounts of goods to monitor this ourselves in the community as albeit that some of the police response was donated spaces and warehouses, ready to there has been little help in sorting this out. lacking on the ground in the aftermath. hand out when needed. We had thought Many of these organisations are not from However, there are community police that that the council would soon kick in to help our own community. Many of us have have been great. Who have worked with but this was a long way from happening. worked tirelessly without any funds in scant resources to serve their communities. RBKC Council were totally unprepared. order to avoid tainting ourselves in contro- The hospitals, the GP's. The Forensic Sci- It was astounding, shocking and a realisa- versy. entists, the Police Recovery teams. The tion that if another disaster were to happen We are starting to bring the community police dogs sent up to check the unsafe even today, they do not have the necessary back together but it is a long, arduous task. structure. The funeral parlours. The skills or acumen to deal with a crisis. There We are working out our own structures and churches and mosques. The community. is no strategy. There is no response. There ways forward. We all deserve more respect. We are all are no trained responders. There is no co- Perhaps as well as looking at trying coun- worth more. ordination. The pan-boroughs do not work cil and government employees as emergen- well together. cy responders, we should include civilians Not coming from a public service back- - they should be re- ground, I had a very quick induction in spected and valued as a institutionalised rationale. This was from precious resource and above mid-management down. It wasn't back-up. They have good above that level either. There were proven their worth and people who tried their best but without any need in dire circum- cohesive response, strategy or understand- stances. ing it was impossible for them to function We have a very varied efficiently. This is still an issue today. I am community. It needs to still being called back in to deal with per- be responded to hu- sonal crises of survivors and their families. manely and with com- There was no Emergency Response Team. passion. It is a gem of a None at all. Nowhere. I asked. Requested. community and should Ordered. Begged. No approach helped. I be nurtured, not left out called and spoke to the local government to dry by the authori- and national government. Everyone was ties we vote in, try to wary of stepping on someone else’s toes. believe in, trust. No-one made any meaningful or helpful The Fire, Police and decisions. Overall it was a fully fledged Ambulance services farce. It still is. deserve better than this Resilience l 13 GRENFELL

2005 – UK: The Regulatory Reform Timeline: the countdown to (Fire Safety) Order becomes law. This ended the requirement for Fire tragedy Authorities to certify that buildings met fire codes and issue a Fire Certificate, 1953 – Pittsburgh, USA: the first use 1999 – Ayrshire: a instead shifting to a system of self- of Aluminium cladding, on the high-rise resident is killed in a policing by building owners/users. headquarters of the Aluminium Company fire at Garnock Court, of America (ALCOA). a 13-storey social housing building. The fire spread rapidly over several floors externally, and cladding and new uPVC windows were blamed. 1974 – London: Grenfell Tower is constructed, incorporating the architectur- al style called ‘Brutalism’, like many other social housing tower blocks across the UK.

2000 – UK: the mineral wool industry (which produces the more expensive but safer alternative to the plastic based material used in combustible cladding) 2009 – London: six residents are killed 1990s -noughties: refurbishment commissioned a report by Gordon Cooke, in a fire at Lakanal House, Southwark. programmes begin on social housing a leading fire safety consultant. Mr Cooke The investigation found that cladding on tower blocks built in the 1960 – 70s to reported that “…the use of plastic foam the external walls did not provide fire improve insulation. cored sandwich panels … is difficult to resistance. justify when considering life safety” and that they could “…contribute to the severity and speed of fire development.” (Guardian 15 June 2017)

1991 – Liverpool: a fire in a refuse area of Knowsley Heights surprisingly spreads 2010 – rapidly up the side of the tower block. It Southampton: had recently been refurbished, including two firefighters the addition of external thermal installa- 2003 – UK: following concerns about are killed in a tion cladding. It raises concerns with calls the Garnock Court fire four years earlier, fire at Shirley for change to the testing of external clad- the change to test methods used for exter- Towers. While ding systems and uPVC window frames. nal non-loadbearing cladding systems – the cabling was BS8414-1 – is published. fire resistant, the clasps holding them in place were not. The firefighters – Jim Shears and Alan Bannon - became entangled in the cabling as it collapsed onto them.

2005 – Stevenage: two firefighters – Michael Millar and Jeff Worn- ham - and a 2012 – France: a fire in a tower block resident are in Roubaix (which was just under 50 killed in a fire at metres in height and therefore compliant Harrow Court. with using combustible cladding on There are calls external walls under French building for sprinklers to regulations) engulfed the building within 1998 – USA: improved safety regula- be installed in all minutes. tions introduced, with building regulators high-rise build- beginning realistic fire tests on any ings. materials used on buildings higher than a firefighters’ two storey ladder. Since then, the aluminium cladding of the type used on Grenfell Tower has never passed the test in the USA.

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Tall buildings - ‘time to change our Building Research Establishment – contracted by the Department of Local thinking’ Government and Communities to work on

fire investigations, warned that manufactur- IAN CAMERON reports back from ers’ attempts to innovate with insulation the Tall Buildings Network was leading to an “…increase in the vol- meeting at the recent Emergency ume of potentially combustible materials being applied” to buildings. Servicers Show:

THE GRENFELL tragedy provided a sombre backdrop to a session at this year’s Emergency Services Show in September, on the ‘New Realities of Tall Building Fires’. Russ Timpson, founder of the Tall May 2017 – London: The London Fire Building Safety Network, explained 2014 – Australia: the Lacrosse building Brigade wrote to all social housing land- how the organisation had grown to now in Melbourne caught fire, igniting combus- lords in the city, following a fire at Shep- having 750 members in 22 countries, tible cladding. Investigations found the fire herd’s Court in Hammersmith in 2016, and has held four international raced 13 floors in 11 minutes. where replacement glazing had contributed conferences. to the external spread of the fire. The LFB He said that the Grenfell fire meant we warned that they had “…seen a number of needed to look not only at existing reg- cases where it appears…. that the level of ulations, but what lessons needed to be fire protection to the external face of the learnt for design, and to change our building did not comply with the require- thinking. ments of Part B of the Building Regulations Areas to be considered included: 2015 – Dubai: the appropriately named insofar as they seek to limit the speed with ‘Torch Tower’ – the world’s tallest residen- which a fire can travel and spread over the Stairways: we need to reconsider the tial block – is rapidly engulfed by fire due external face of a building or may contrib- one staircase policy – at Grenfell, fire- to external cladding (the building will catch ute to a fire.” The LFB urged landlords and fighters were trying to go up stairs with fire again - after Grenfell - in August 2017 housing companies to consider these issues firefighting kit while people were trying for exactly the same reasons, with 40 floors as part of their risk assessment processes. to come down the same stairway to being destroyed). escape.

Signage: Dot-matrix LED signage on stairwells at regular intervals need to be considered – it is very frightening for people to be stuck on a staircase in the dark and smoke, not knowing why there

is no movement on the stairway, or 14 June, 2017 – London: the Grenfell what floor they are on. Tower tragedy takes place, with so far 79

residents being confirmed dead. Lift policy: the policy of not using lifts should be reconsidered: if they can be hardened against fire, it is a much faster way of evacuating a building.

Sky bridges: where there are adjoining 2016 – Dubai: a 63 storey luxury hotel is towers such as the Petronas twin towers engulfed on New Year’s Eve. Combustible in Kuala Lumpur, sky bridges can help exterior cladding is blamed. people escape to the neighbouring building.

Assembly points: a problem at Grenfell was the burning cladding ‘planed’ down to the ground below over long distanc- 2016 – Westminster: Housing Minister es, putting people at risk. Lots of heavy, Gavin Barwell pledges to review the Hous- sharp and burning debris was falling ing Regulations 2010, following a public onto the assembly point where the fire outcry after the inquest into the deaths at crews had parked their vehicles. For Lakanal House, six years earlier. Reports of evacuees, an ‘Evacuation and Disperse’ the review are still awaited by 2017, when policy should move people right away the Minister loses his seat in the General from the building. Election. Cramming and hoarding: given the soaring cost of property in London, the low paid sleep on friends’ floors. (continued on page 17) 2016 – Westminster: a report by the Resilience l 15 GRENFELL

wards, as burning droplets fall from the Poor regulation and building. To stop such fire spread, fire barriers deregulation: the questions should be placed in the cavity between the wall and the cladding at each storey level. However, the Technical Director of the Fire that need to be asked Protection Association, Dr Jim Glocking said that if during refurbishment the fire barrier was breached by a pipe or vent, “…a chimney effect may quickly develop that will cause the very rapid consumption of insulation and expansion of the damage area” (Guardian 15.06.17). It will also emit noxious gases, in particular hydrogen cyanide. During the Grenfell fire, 12 year old Luana Gomes and her sis- ter and mother, were treated for the effects of cyanide poisoning (BBC 12.07.17). However, the PE cladding works out at around £2 cheaper per tile than the more robust products. Shouldn’t such combustible material be prohibited? Unfortunately, that is where confusion reigns. After the Grenfell fire, the Chancellor, Philip Hammond, told the BBC’s Andrew Marr Show that “…this flammable cladding which is banned in Europe and the US, is also banned here.” A Treasury spokesperson then later clarified the Chancellor’s remarks, saying PE cladding should not be used on buildings over 18 metres in height – Grenfell tower is 67 metres high. So, an open and shut case? Not quite. The two key bits of regulation are Building Regulation Part B, and also Approved Doc- ument 7. Stephen Ledbetter, a senior lectur- er at the University of Bath who works for the cladding industry’s Centre for Window and Cladding Technology (CWCT) points to the vagueness of the regulations. He said: “Hammond’s claim that the type AS the 21st century arrived, external to drain away. of cladding used on Grenfell Tower is cladding appeared as the answer to the Rainscreens can be of many materials, banned in the UK is nearly correct because legacy of the mass housing construction right up to natural stone, often seen on up- of the less well-known Approved Docu- programme of the 1960s and 1970s. In market hotels and city offices. The poorer ment 7. But neither this document, nor those decades, local authorities threw up sections of society however, get the cheap Building Regulation B specifically bans the high rise tower blocks throughout the coun- stuff. The most commonly used on social use of PE core ACM panels. try – today, 4,000 still remain. housing are ‘Aluminium Composite Materi- “Building Regulation part B in England The tower blocks were prone to condensa- als’ or ACM. This comprises of two metal requires that all insulation and filler materi- tion and mould, leaving low income com- skins, usually aluminium, sandwiched als – a term that is not defined – in the wall munities with the burden of heavy heating around the insulation material. There are of a high-rise building are of limited com- bills. On the international stage meanwhile, three main types of such insulation material bustibility. The ACM panels do not fulfil the world was looking to reduce its carbon manufactured. The two higher performance the role of insulation and have no particular footprint. grades – called FR and A2 – are based on a insulative properties. It is commonly ar- The constructions – built to what archi- mineral or mineral wool content and gued, then, that they are not fillers. This tects call the ‘Brutalist’ style – have con- perform well in fire reduction. crete or blockwork walls with only a thin The worst performer in terms ‘Confusion is understandable - in the UK layer of insulation internally. Applying a of combustability however, layer of external insulation improves the has a Polyethylene (PE) base. for example building regulations are temperature inside, thus reducing heating These were the type used on different in Scotland from those in bills and heating consumption, which in Grenfell. A PE core subject to England and Wales’ heat will melt and catch fire, ‘It is not right to wrap a and burns rapidly, creating a similar effect confusion and the resulting loophole in the building in plastic’ to burning diesel fuel. As one architect told regulations mean that polyethylene core the Guardian (15.06.17): “I only use the ACMs have been used on high-rise build- turn assists the global battle against climate mineral wool ones because your gut tells ings ostensibly in compliance with Building change. To protect the external insulation you it is not right to wrap a building in Regulation B, as is the case at Grenfell from the weather, it is covered by panels, plastic.” Tower. called a rainscreen. A cavity is left between Once the cladding is alight, it will spread “Approved Document 7 of the Building the wall and the panels to allow rainwater upwards, but also be a fire hazard down- Regulations requires that: ‘Materials are of

16 l Resilience GRENFELL

a suitable nature and quality in relation to The Blair government set up the Better the purposes and conditions of their use.’ Regulation Task Force in 1998 to comb (continued from page 15) This fitness-for-purpose is not well defined through each industry sector to weed out in the regulations. However, the manufac- what it saw as ‘obstructive’ pieces of regu- The authorities are aware of lots of over turers of ACM state that the PE version is lation. crowding in tall rise buildings – called not suitable for use above ten to 15 metres The mantra of the time called for the elim- Cramming – with subsequent breaches of on a building because of its fire risk and ination of at least one regulation for each fire and safety regulations. There is also also make mineral core alternatives that are new one introduced. In this climate for the issue of individual hoarders in high suitable” (The Conversation website, example, the Regulatory Reform (Fire rise blocks, piling up rubbish and items in 26.06.17). Safety) 2005 was introduced in 2006, the flat and on the balcony – if a neigh- However, the limited combustibility re- which included ending the need for Fire bour raises concerns, should fire officers quired of such materials can be demonstrat- Authority inspectors to certify a building have the right to enter the flat to inspect ed by testing materials in accordance with had met fire safety codes and issue it a Fire for fire hazards? BS8414 and satisfying the performance Certificate, instead shifting responsibility to requirements set out in BR135. Celotex, the self-policing by the sector. Counterfeit products: following the insulation used in the Grenfell cladding, RRFS Order 2005 said Fire authorities Lacrosse fire in Melbourne, investigators said that it met the above standards and so would no longer issue Fire Certificates, the found counterfeit building products had it could be used above 18 metres height onus of ensuring fire safety instead falling been used. In the UK, checking for coun- (www.celotex.co.uk/products.rs5000) – it on the shoulders of the ‘Responsible Per- terfeit products is the responsibility of has now withdrawn the product and says it son’ for the building, who could be one of local authority Trading Standards units – will co-operate fully with the investigation four categories: are they the appropriate body to carry out and the Inquiry. • The employer such checks? The confusion can be summed up by the • The managing agent or owner sales pitch for the cladding used on Gren- • The occupier, such as self-employed Russ said all these issues needed to be fell Tower, Reynobond PE, manufactured people or voluntary organisations, embraced because of the current trends in if they control the building urbanisation across the world of con- ‘FIREX 2016 - it may have to come to a • Any other person who has structing tall buildings. major disaster before things really some control over part of a • China is about to amalgamate three premises. cities into the world’s first mega-city shift’ Where expertise to carry out such of 100 million. a risk assessment is lacking, this • 400 new tall buildings will built in by the Aluminium Company of America process may be passed to a ‘Competent London over the next few years, in- (ALCOA), renamed Arconic last year. For Person’. None the less, the Responsible cluding one plan to build a 300 metre European countries, Arconic spell out in its Person will still be responsible, in law, for high build in timber. meeting the order. sales literature on guidance for its use that • China is currently constructing ‘Sky The ‘Competent Person’ at Grenfell tower “…as soon as the building is higher than City’ – a 838 metre tall building in was CS Stokes Associates, who carried out the firefighters’ ladders, it (the cladding) Changsha, that will accommodate the last risk assessment on the tower on has to be conceived with an incombustible 30,000 people and contain a hospital, behalf of the Kensington & Chelsea Tenant material.” However, for the UK Arconic schools, police and fire stations, Management Organisation (KCTMO), in can only say the use “…depends on local shops and workplaces – architects say 2016. They told Inside Housing magazine: building codes.” The confusion is under- residents technically would have no “ It is very important to stress that these standable – for example, in the UK, build- need to ever leave the building. assessments focused on the common parts ing regulations in Scotland differ from of the building to the requirements of the those for England and Wales. Russ said that as buildings got higher, Regulatory Reform (Fire Safety) Order The vagueness of the regulations is possi- new issues are raised. Sky City for exam- 2005, rather than the building’s refurbish- ple, is so tall it can harness water from ment or structural changes.” the clouds. But height also brings strong The KCTMO added: “All winds – for example, a door expected to fire risk assessments are burn through in 30 minutes can be de- conducted in accordance stroyed in only three, if fire is driven by with statutory and regulatory strong winds creating an effect equivalent requirements. This means to the blast from a jet engine. that (they) focus on commu- However, he said there were encourag- nal areas such as stairwells, ing developments in the world of Build- lift lobbies, lift shafts, risers ing Information Management, or BIM, and walkways etc, as con- which will be a game changer. BIM ex- firmed by those undertaking trapolates every aspect of information these assessments” (Inside contained within Computer Aided De- Housing, 29.06.17). sign, and can be used with virtual reality Last year at ‘Firex 2016’, and augmented reality equipment. the trade event for the fire Systems are being developed where you safety sector, a panel of ex- can hold an I-pad to a wall in your apart- perts was hosted, to assess ment, and it will read information within the impact of the RRFSO, as the building through the temperature of it reached its tenth anniversary. bly the result of successive governments pipes and cables for example, and so can The panel said that deregulation had creat- since 1997 bowing to pressure of the busi- advise people whether to stay put or what ed some ‘spectacular failings’ (https:// ness community, who complained they is the best way to evacuate, and can also www.ifsecglobal.com/the-fire-safety-order- were ‘drowning in red tape’, and that de- be linked to activating sprinkler systems. regulation would help economic growth. act-10-years-on/) The most prophetic statement was made

If you are interested in finding out Resilience l 17 more about any aspects of the DRIVER project, including the full programme of events and experiments, or in joining the DRIVER Community, please GRENFELL

by Colin Todd, of Fire advice: ‘stay put’ or ‘if in CS Todd Associates, doubt, get out…’? who said: “It might THE Grenfell tragedy has now raised the debate on whether the standard ‘stay put’ have to advice from the Fire Service for people in high-rise residential blocks still holds true, come to an issue the Public Inquiry will no doubt consider. another For the overwhelming majority of residential tower blocks this still remains true. The major policy was reviewed after the Lakanal House fire in Southwark, and it was agreed disaster the policy should not be altered. before things really shift. If that happens, In the absence of ‘inflammable’ cladding, the design should ensure a fire in a flat who knows – they might just introduce a does not spread in the time that it takes firefighters to get there, while a panic evacu- formal framework. Or – you guessed it – ation by all tenants would cause dangers on smoke-filled stairways. reintroduce Fire Certificates.” However, as Grenfell demonstrated, external fittings and internal refurbishment can He said that between 2007 – 2014, there compromise fire safety. Certainly, those blocks that have had substantial refurbish- had been 473 prosecutions under the order ment - both internally and externally - should be re-inspected and the advice amend- in England and Wales, where owners had ed for each individual building where appropriate. not fulfilled their obligations for fire safety For the majority, the previous advice still holds true. As a report by the Local under the order. Colin Todd added: “For Government Association in 2012 pointed out, of the 8,000 fires in high-rise residen- large enterprises who thought they could tial blocks between 2009-10, only 22 required more than five people to be handle the new protocol much better in- evacuated, before the fire was put under control. house, it wasn’t five minutes before some of the biggest prosecutions in history, with one large petroleum company being fined nies did not hesitate to supply the British fell disaster, the Chancellor Philip £300,000.” market.” (NYT, 24.06.17). Hammond said: “There are two separate The main shortcoming the panel said how- Last year, the Housing Minister Gavin questions. One: are our regulations correct, ever, was that the available guidance meant Barwell said the Government would review do they permit the right kind of materials to help premises owners to complete fire the Housing Regulations 2010, in wake of and ban the wrong kind of materials? The safety risk assessments was of variable the Southwark inquest into the deaths at second question is: were they correctly quality. Andy Jack, Head of Enforcement at Lakanal House. Unfortunately, he lost his complied with?”. the London Fire Brigade, said: “Some of seat in the recent General Election, so news These are questions it is hoped the Public the guidance available wasn’t the same of what progress the Government has made Inquiry will find answers to. force as the government guidance… What’s on tower block safety is still awaited. more, part of it hasn’t been reviewed in ten On the Andrew Marr Show after the Gren- years.” He added that some of the language used in the legislation is ambiguous, giving rise to different interpretations by practitiioners, which led to confusion. A further problem was the lack of regulation of the ‘Competent Persons’. Ross Newman, Principal Technical Officer at Exova Warrington, said: “There is currently no national register for risk assessors and their qualifications. There are several different lists but nothing unified and nothing of a compulsory nature.” The panel called on the Home Office to urgently review its guidance. This culture was continued by the Coali- tion Government, and by the current admin- istration. Addressing a building industry sector conference in 2011, the government’s senior civil servant for drafting building regulations, Brian Martin, told delegates: “If you think more fire protection would be good for UK business, then you should be making the case to the business community, not the government.” He added that the Prime Minister, David Cameron, wanted to greatly reduce the burden on industry (New York Times, 24.06.17). As the New York Times commented: “Promising to cut red-tape, business friend- ly politicians evidently judged that the costs concerns outweighed the risks of allowing to wrap residential apartment towers… from top to bottom in highly flammable materials, a practice forbidden in the US and many European countries. And compa-

18 l Resilience GRENFELL

BOB WADE, editor of Resilience, looks at the failures in RBKC’s Getting ‘Warning and communications response

THE BASIC strategy for reassuring and Informing’ wrong at Grenfell communicating wit the public during a crisis is as follows: • Online communication - social media upset the borough’s social housing tenants • PREPARE: before the event, risk engagement, emails, website when he described the local Worrington Green estate to the Kensington & Ham- assess likely crisis issues, identify your • Direct communication - local signage, spokesperson, media train them, and exer- mersmith Times as a “ghetto”. electronic notice boards etc, and even Such comments helped generate the feel- cise the crisis scenario. postal post-event During the event: ing that their local authority saw social • Internal communication - established • Co-ordinate responses with key housing tenants as a blight on this ex- comms streams within organisations tremely rich London borough, where partners – the multi-agency response - to AVERAGE property prices are £1.5 million minimise conflict and confusion around • Opinion formers - MPs, councillors, for flats, £4.2 million for terraced houses, your messages. community groups and £5.8 million for semi-detached houses. • Monitor the effects the media – • Networks - voluntary groups, service user groups, business groups, trade Indeed, during the council meetings to including social media – is having on the plan the refurbishment of Grenfell Tower, community and general public, and groups tenants were further antagonised by the address any negative impact the media is authority’s wish to ‘beautify’ their estates having. Clearly during the Grenfell tragedy, the Royal Borough of Kensington & Chelsea purely for the benefit of their richer • Recognise the positive role the (RBKC) failed on all counts. This failure neighbours. media can play in warning and informing stems from the fact that they had clearly In 2014 the plans for the Grenfell refur- the public. not grasped the first point – preparation. bishment made several references to the • Maintain and enhance the image of There appears to have been little prepara- “appearance of the area”, and stated: “Due the agencies involved – this maintains tion for responding to a to its height, the tower is visible from the public confidence. catastrophic event. ‘Trust cannot be built overnight and Had they properly risk- unfortunately RBKC did not have a good The key strategic communication assessed the threats they relationship with its social objectives during any incident are to: could face, then drawn up housing tenants before the tragedy’ • Raise awareness of risks. the communications re- • Alert people to immediate danger. sponses that would entail, identified who would respond on the organisation’s be- adjacent Avondale Conservation Area to • Provide information for avoiding harm half, media trained and exercised them, the south and the Ladbroke Conservation and obtaining assistance. they could have been better prepared to Area to the east.” • Advise on steps being taken to handle reassure the public. Instead they were de- It added: “The changes to the existing the situation. voured by both media and public within tower will improve its appearance espe- the first few days, their reputation in tat- cially when viewed from the surrounding • Explain steps taken to recover and area” (Independent, 14.06.17). Under- return to normality. ters. The most important attributes of your standably, the tenants can be forgiven for wondering for whose benefit the refurbish- There are six key audiences during a major spokesperson during a crisis are threefold: • The people trust what you say, because ment really was. incident: With that backdrop, Cllr Fielding-Mellen • Survivors/ victims you are open and honest about the situation. did not last two days as their spokesperson, • Possible victims who need to take and indeed had to move out of the area • They see you have the situation under after threats and vandalism of his local action to avoid further harm control. • Those in the area who may not be £1.3 million home. • Your spokesperson must demonstrate Next up was the authority’s leader, Cllr harmed but will be disrupted by the the ability to outline the consequences ‘WIIFY factor’ – what’s in • Those not directly affected but are it for you, the public, friends or relatives of those who have ‘why you will benefit been from the message I am • Those not directly affected but are giving you’. concerned or alarmed about the wider consequences Trust cannot be built over night of course, and unfortu- • Key opinion formers who can enhance nately RBKC did not have a the message good relationship with its social housing tenants well When identifying which audience group before the Grenfell tragedy. is to be communicated with, then the most Following Grenfell, the suitable communication channel can be first spokesperson RBKC selected, which may be a combination of Before the Grenfell put up was the Deputy tragedy, the RBKC councillor responsible several. The main communication Leader and council member channels are: for housing had already upset local social housing responsible for housing, Cllr tenants by calling one such estate a ‘ghetto’ in the • Media - broadcast and print Rock Fielding-Mellen. Un- local newspaper fortunately, he had already Resilience l 19 GRENFELL

‘No organisation ever has enough press fell apart, the authority’s Cllr the press office in an emergency. Their officers. That is why you prepare what Ken Taylor-Smith went on TV ‘day job’ was to man the information points resources you have before the and complained the local au- dotted around the airport to assist travellers. thority only has two Commu- During an incident however, a section of media storm hits’ nications Officers, and they them would be drafted into the airport’s were “swamped” by media Media Centre. Armed with a central script Nicholas Paget-Brown who took over front- enquiries. Unfortunately, that’s what hap- by the Press Office, the public information ing interviews. This did not last long either, pens in a major news story. Most staff would then man the phones to deal particularly after the media were banned organisations have not had armies of press with the initial enquiries from the media. from attending a crucial Council meeting. officers for decades. The media storm Any new questions or more difficult que- Leaving aside the ‘right to know’ and con- should be anticipated, particularly in an ries would then be passed onto the experi- stitutional arguments, it once again did not iconic London borough such Kensington & enced press officers. It filters out the bulk demonstrate ‘openness and honesty’, the Chelsea, even just from a counter-terrorism of routine questions from the media, giving essential ingredient to build trust. Cllr Paget perspective. the PR specialists a breathing space to man- -Brown was soon gone. No organisation ever has enough press age the communications strategy and plan The third attempt was Cllr Elizabeth officers when the storm hits. That’s why the next steps. Campbell who was elected the new leader, you prepare. This has been standard prac- but this proved another PR disaster on day tice for about three decades now. In your Case study 2: In 2005, two days after the one, when she admitted to the BBC that she Emergency Plan should be the tactics to be 7/7 bombings in London, Birmingham city had never actually visited a tower block in employed to meet the media and social centre was evacuated after it faced a her borough. media avalanche – e.g identifying other ‘credible threat’ after three suspects were Even when very little is known about an officers who, with training, can be taken on sighted there acting suspiciously. It was a incident in its initial stages, your spokes- during an emergency to greet the first wave huge media story – but West Midlands people should be well trained to at least of media enquiries, answering from a cen- Police only had a small press team of six. give the ‘Three Ps’ statement – Pity, Praise, tral script provided by the PR team, with They too though had their back up plan, Pledge. the queries they can’t answer being passed and had trained their front desk reception • Pity – you show empathy for the up to the PR team– you use them as a filter team – who usually interface with the pub- victims, survivors and their families. precisely to ensure your communications lic – to take all initial media calls, again specialists are not ‘swamped’. working from a central script, and filtering • Praise - maintain and enhance the Here’s two examples from my own out those enquiries that didn’t need a more image of agencies involved, to instill public experience: detailed answer from the professional me- confidence dia team. • Pledge – you give a firm Case study 1: In January 2002, an execu- commitment to work with the authorities tive jet crashed on take off at Birmingham Social media openly to find out what has gone wrong, Airport, killing five people. The airport had THE other role of the extra staff is to moni- demonstrating you are open and honest. only two press officers available, but fortu- tor media and social media, to help the nately had a well-rehearsed plan, where it comms team formulate their responses. You do not need any of the facts to deliver utilised its public information staff to assist Precisely because of the lack of the above, but it gives an immediate demonstration to the public that you are ‘on the case’ to help with reassurance. Using social media for intel This basic response though would have been difficult for RBKC. People did not AN immediate source of real-time believe their empathy, because of their previous comments about social housing information and intelligence about an tenants, or that they had never visited a unfolding incident can be gleaned from tower block. various monitoring platforms that are RBKC could hardly praise its handling of free to use. One such platform is the the tragedy, given the mess being made ‘onemilliontweets map’ which can show about even the most basic task of setting up a Reception Centre for the evacuated, then tweet traffic of the current past one having a public spat with the Red Cross million tweets posted anywhere in the after they spent two days trying to offer world, and allow you to read public support of the kind already incorporated in messaging. the vast majority of local authority Emer- On 15 September, the author went on gency Plans, or that the DCLG Secretary of State had to intervene and RBKC’s Chief this platform as news began to break ExecutiveI encourage had to all resign. those with an interest in community recovery about an ‘incident’ at Parsons Green Asto for take the a pledge, look at given our report their historical which can be found on our website tube station. It immediately showed that responsibilitieswww.foresightsolutions.net for Grenfell Tower along- there had been an explosion and the side their inability to demonstrate openness, emergency services were on scene. all suchOr by claims contacting would beme viewedat by the public with suspicion. [email protected]. LEFT: example of the tweets picked up Crisis Communications within minutes of the news breaking It is also available in the EPC library. strategy about the attack at Parsons Green. BASICALLY, for RBKC, there doesn’t appear to have been one. In an attempt to defend itself, as the leadership of RBKC

20 l Resilience GRENFELL

engagement by RBKC, the public filled the vacuum with their own interpretations, on social media. One area that came into its own, were the broadcast platforms such as Periscope and Snapchat, with the public making their own broadcasts and giving a running commentary on what was happening. These made up the mainstay of the mainstream media’s early coverage. A good example can be found on the Sun newspaper’s website. (https://www.thesun.co.uk/video/ news/live-periscope-video-shows- devastating-effect-of-west-london- In the initial grenwell-tower-blaze) stages you need to There are many useful and free aggregators herd all and platforms that can help responders get commen- useful real time intelligence. One such tool tators to here is ‘onemilliontweets’ – this free plat- your web- form allows you to target an area, see the site where twitter traffic and read what people are you have tweeting. They would have had real time your mes- evidence of what the people of Grenfell sages, were saying. It is not deep analysis, but advice gives a ‘quick and dirty’ flavour of the and in- public mood. structions, With such monitoring, this would help the pumping comms team formulate responses. out the When the social media platforms begin to link to as many platforms as possible. The  If you do not take the lead on the thunder, you cannot possibly attempt to respondents, even hostile ones, will retweet/ communications front, the media and social answer every individual – there will be pass on the link through their networks, media will fill the vacuum thousands upon thousands of them. creating rapid viral spread. There is no question that the severity of at ‘X’ plant, resulting in ‘X’ the Grenfell tragedy initially caught every- • A full investigation is now underway The need to combat one off-guard, including the emergency under the supervision of the Independ- Fake News responders. But that is why you need to ent Police Complaints Commission. prepare your communications strategy for • At this stage the CNC will not speculate THE need for responders to monitor social such eventualities. media is especially important today, given on the outcome of the investigation. This is particularly true of a wealthy and • Further details will be provided as soon the rise of ‘Fake News’, spread by either iconic area such as Kensington and Chelsea demented individual trolls, or organised as the facts can be substantiated. in these days of asymmetric terrorism. In groups such as the Far Right, ISIS or the the initial stages of an incident when cause Russian Information Offensive. This was then agreed with the Chief Con- cannot be confirmed and effect is still being stable, with permission for the relevant As Principal NATO spokesperson Oana assessed, the dynamics of your response is Lungescu has said, fake news “…is a way, Duty Superintendent to issue it with the basically the same – so after risk-assessing ‘X’s filled out, immediately following an not to convince people, but to confuse them, the likely communications issues that could incident, rather than hours wasted formulat- not to provide an alternative viewpoint, but hit your organisation, holding statements to divide public opinions and to ultimately ing words, tracking down relevant senior responding to them should be drawn up in officers to clear it (usually in the middle of undermine our ability to understand what is advance, to be tweaked accordingly to the going on.” the night), and all the while the media and actuality of the events as they unfold. social media filling the vacuum with specu- These elements were at it during the Gren- Once again, an example from my lation and misinformation. fell tragedy, such as this tweet spotted by the experience, during Manchester Evening News (15.06.17): my time with central ‘The need to risk assess the communications government. I was Posted on Twitter at 4.12am: "WHERE seconded to the Civil issues likely to hit your organisation - and then ARE THE FIREFIGHTERS? WHAT THE Nuclear Constabu- prepare for them - are paramount , and should F*** IS TAKING SO LONG!? Fire getting lary when it was first be a routine part of any Emergency Plan’ out of control, people still trapped in Gren- formed. They are the fell Tower, Latimer Road." armed police who Such immediacy also demonstrates you She then added: "One woman said it took guard civilian nuclear installations. When them 2 hours to arrive when their station is are ‘in control’ and are being open about risk-assessing likely events, obviously one what happened. 2 blocks away." is a CNC officer shooting a suspect, in de-

fence of the nuclear plant. That is why they The London Fire Brigade were of course on Such communications measures as out- are there and have guns. lined above alongside preparation should be site within six minutes. As the Manchester So I drew up the holding statement we Evening News pointed out, the expression ‘2 a routine part of an organisation’s Emergen- would immediately issue, should this event cy Plan. However, it is clearly questionable blocks away’ is not an English but a US one, take place, made up of four basic points: or at least someone who has learnt English in whether the RBKC’s whole Emergency the US style. • Confirmation that shots had been fired Plan was fit for purpose. Resilience l 21 GRENFELL

Can firefighting go airborne? There’s good reasons why not THE Grenfell tragedy and other high level landing. Escaping smoke and firesWho has raised were public debate the as Provo’s?to whether flames tend to cling to the sides of firefighting should go airborne for roof-top the building in what is known as rescues and high-level fires. the ‘Coanda Effect’ – the rule of The most famous such rescue was during physics where a jet stream stays Al-Qaeda’s first terror attack on the World attached to a convex surface – Trade Centre in 1993. They exploded a van thus obscuring visibility of any packed with explosives in the underground obstacles in and around the building. garage of the North Tower, hoping to top- Certainly, the dense smoke during the  The Grenfell blaze clearly demonstrated the ‘Coanda Effect’, making an ple the building. That failed but it sent a Grenfell fire made such a rescue airborne rooftop rescue impossible column of thick black smoke up through impossible. the building - 28 people, some fearing the • Updrafts from an intense fire creates of water dropped in a waterbomb is around base of the building was on fire while turbulence, again making landings three tons. others had medical conditions and could difficult. Also, as firefighters understand, it is the not make the long descent, climbed onto • The downdraft from a helicopter’s rotas base of the fire that needs to be attacked the roof. could exacerbate the fire. rather than a scattergun burst from above. A NYPD helicopter, rushing to the scene • A pilot cannot be sure the building is Airborne firefighting may be a factor in after the report of the explosion, lowered stable or that the roof has not been the near future; all around the world, build- two officers onto the roof, cutting down ings are getting higher, particularly in areas compromised by the fire. obstacles and antennae to make a landing of the world where land for urban develop- area, and people were airlifted to safety. • The numbers that the small type of heli- ment is at a premium. However, there was not universal approv- copter capable of landing on a rooftop The Russians have developed the new Ka- al of the tactic, particularly from the New could carry is very limited, of between 8 32A 11BC helicopter which can include a York Fire Department (although, as New – 10 people. water cannon. However, the limitation is Yorkers will tell you, the rivalry between • Airborne hoists of the type used in air-sea the amount of water an aircraft can carry. the NYPD and the NYFD is legendary, the rescue are very limited, being able – if For example, a typical water cannon ground joke being that the only thing the two de- possible in dense smoke - to rescue one vehicle used for riot control only has four partments can ever agree on is the date of survivor at a time, a slow process in what minutes’ worth of water. the annual Boxing competition between the would be a very fast moving incident. In Dubai, they have developed a ‘strap-on’ two services). • It would involve upward evacuation up drone that can take a (very brave) firefight- The NYFD argued there were many dan- stairs, with people more prone to mobility er up to a thousand feet with 60 litres of gers attempting air rescue in built up areas, issues and fatigue, compared to down- water. And hopefully a parachute too. while the owners of the World Trade Cen- ward evacuation. However, given the hit or miss nature of tre – the Port Authority of New York and • Manoeuvring an aircraft into a high den- airborne rescue – although still always an New Jersey – rejected a NYPD request for sity, urban area would create more risks option – the solution must be in building in a heli-pad on the North Tower, and to the public than perhaps the actual fire. fire safety measures from the start. reinstated the much-needed The crash by a police helicopter into a One example to follow may be Los communications antennae. pub in Glasgow in 2013 killed 10 people Angeles. The Fire Department there recent- When the Twin Towers were attacked and injured scores more. ly relaxed ‘LAFD Requirement No 10’, again on 9/11, two NYPD helicopters were first introduced in 1958, which demanded immediately on the scene, one of them a So with such a risk assessment, it can be the city’s tallest buildings must include heli Bell 412 equipped with a 250 foot hoist, seen why there is reluctance to invest in -pads for the Fire Department’s helicopters. and capable of carrying 10 passengers. this type of rescue. That said, the drones In response however, the buildings’ owners However, this time there was no-one on the being developed by the US military (see must include ‘compensatory measures’ roof as the access doors had been kept article on page 6) may raise such possibili- including more stairways, elevators, sprin- ties in the future, with drones doing the kler systems and safety cameras. ‘Helicopter rescues from dangerous work. blazing buildings are for The other possibility is whether fire- Hollywood’ fighting capabilities can be delivered from  An early prototype of the medi-vac the sky, but this too is limited. The vast drones being developed by the military locked for security reasons. quantities of water dropped by aircraft in in both the USA and Israel So is helicopter rescue an option? Fire- forest fires (called fighters think not. Safety Advisor to the ‘waterbombing’) does not Fire Brigades Union Dave Sibert said that need pinpoint accuracy and is the general consensus about such an option in unpopulated areas. By com- was that the negatives outweigh the posi- parison, a burning tower block tives, adding that such rescues from high is a miniscule target – if the rise buildings was “…something that hap- pilot missed there would be pens in Hollywood, not real life.” damage to surrounding buildings not to mention danger for The reasons cited are manifold: the firefighters, emergency • It would be rare in a high-rise fire for the services and local public on conditions to be suitable to execute a safe the ground: the average weight 22 l Resilience GRENFELL INQUIRY

THE EPS was asked to contribute to the Terms of Reference submission, The Grenfell Tower Inquiry: for the Inquiry being chaired by Sir Martin Moore-Bick. the EPS Submission Over 30 EPS members contributed suggestions for our submission. Interestingly, with over 500 submis- Before the Fire sions to the call for Terms of Refer- ence, the mainstream media seized 1.1 This phase should upon the EPS’s contribution, making it examine the history of lead items on ITN News, and appear- Grenfell Tower from ances on Newsnight. its construction until Here is the EPS submission in full: the date of the fire. Assuming there will be some documentary evidence to track it from construction, through modifications In our submission, we have broken down our and any modernisation examination into four headings: works, the Inquiry should consider the • Before the Fire relevant building and fire regulations applied • During the Fire during construction and through any varia- • After the Fire tions, and whether the relevant regulations should be considered: • Emergency Preparedness, Response and were properly enforced. Recovery Q: Did the deregulation of fire safety intro- In looking at these areas, we aim to give use- 1.2 During this phase prior to the fire, the duced by the Regulatory Reform (Fire Safe- ful guidance for the formulation of questions Inquiry should determine the role of the ty) Order 2005 contribute to a reduction in the Inquiry should consider, drawing on statu- local council and all the various organisa- fire safety standards in Grenfell Tower, and tory requirements and advice which includes: tions that had a role in the building, its if so, to what extent? upkeep and its maintenance. We would Civil Contingencies Act 2004, supporting expect a detailed timeline of events to be Q: Are the building and fire safety regula- Regulations and guidance; prepared, charting activities and key events tions that relate to residential buildings where they are supported by evidence. such as Grenfell Tower easy to understand Regulatory Reform (Fire Safety) 2005; and apply? Are changes required to make 1.3 We would expect a detailed considera- sure that standards are understood, applied Identifying people who are vulnerable in a tion of building construction and fire safety crisis: Guidance for emergency planners and correctly, recorded accurately and en- standards as they were applied to Grenfell forced through a regime of testing, inspec- responders (Cabinet Office, 2008); Tower during its lifetime. tion and compliance checks? Home Emergency Plan (Royal Borough of 1.4 We understand that Grenfell Tower was Kensington & Chelsea, 2011); subject to a major refurbishment, which included the application of an external facia 1.7 Supplementary questions are: London Humanitarian Assistance Plan or ‘cladding’ to the building. We would Q: What are the implications for fire safety (London Resilience Partnership, version 4.0, expect a detailed review of the whole de- standards in the United Kingdom arising 2013); sign and approval process for the cladding, from the deregulation arrangements intro-

and the type of material approved for in- duced by the Regulatory Reform (Fire Safe- Local authorities’ preparedness for civil emer- stallation, and its subsequent fitting. As this ty) Order 2005? gencies: a good practice guide (Department was a relatively recent period of work, we for Communities and Local Government and would expect detailed plans, assessments Q: Do the current financing arrangements the Society for Local Government Chief Exec- and standards to be produced and assessed of public housing make it difficult to meet utives, 2014); so that the Inquiry could determine whether the repairing and improving obligations the refurbished building complied with all that councils have? A councillor’s guide to civil emergencies necessary design, construction, mainte- (Local government association, May 2016); nance and fire safety standards, and if it did not so comply, what were the reasons for 1.8 The London Risk Register is produced Human Aspects in Emergency Management: non-compliance? by the London Resilience Partnership, and Guidance on supporting individuals affected contains a summary of the main risks af- by emergencies (Cabinet Office, October 1.5 We also suggest that the Inquiry seeks to establish were there any other factors or fecting Greater London. It is an important 2016); tool in the emergency planning arrange- physical conditions within Grenfell Tower that contributed to the fire, and its spread? ments for London. It is a publicly available Exercise Unified Response – evaluation report document. The current version is 6.0 and (London Fire Brigade, April 2017); 1.6 We understand that the Regulatory was issued in February 2017. The Inquiry is Reform (Fire Safety) Order 2005 led to invited to note that fires in residential Dealing with civil contingencies: emergency significant changes to the way fire safety in buildings or in high-rise towers do not fea- planning in the UK (House of Commons buildings is regulated, noting that the cur- ture in the London Risk Register, so a ques- rent regulatory regime is substantially one tion to consider is: Briefing Paper Number 08016, 11 July 2017 – of self-assessment. We consider these issued post Grenfell Tower fire). changes have relevance throughout the Q: Is there a need to review the risk assess- land, so we suggest that these questions ment arrangements for London following the Grenfell Tower fire? Resilience l 23 GRENFELL INQUIRY

advice, if any, was pro- Q: How, where and why did the fire start? vided to the residents of Grenfell Tower, the Q: How was it able to spread so quickly nature of the advice, throughout the building? when it was given to Q: How effective was the combined emer- them and by whom. gency response? This extends not just to 1.13 Examination of all the emergency services, but to those records of safety inspec- organisations with statutory responsibili- tions, fire and emergen- ties under the Civil Contingencies Act cy equipment, emergen- 2004. cy drills, alarms and Q: Was the London Fire Brigade suitably emergency signs for prepared for an emergency response to a residents should form fire of the scale of Grenfell Tower, in terms part of the Inquiry, in- of availability of equipment, training, com- cluding the languages mand and tactics? and infographics used for any written signs and messages. 2.2 Tower evacuation strategy 1.14 Advice given to 2.3 This is an area for detailed scrutiny, residents on what to do because the emergency preparedness ar- in an emergency is cen- rangements, such as they may have exist- tral to how they responded, are now put to the test. There appears ed when the fire started to have been a period where residents who to spread, and must be called the emergency services from Gren- examined. The Royal fell Tower were advised to stay in, and Borough of Kensington and Chelsea dis- then this advice was changed to ‘get out’ tributed a guidance document in English 1.9 The Cabinet Office published a guid- by which it seems it was impossible for described as a ‘Home Emergency Plan – A ance document for local authorities to con- residents on the upper floors to safely es- guide’ to ‘all households’ in the Borough duct a vulnerability assessment of residents cape. There will be a wealth of information in March 2011 (source: Report dated 18th within buildings for which it has legal available from the telephone recordings April 2016 to the Council’s Cabinet and responsibility, and a duty of care. The held by the emergency services. The ques- Corporate Services Scrutiny Committee, document is publicly available on the Gov- tion therefore should be: ernment’s website and it titled: from the Council’s Contingency Planning ‘Identifying People Who are Vulnerable in Manager, paragraph 3.2). It is not known Q: What was the London Fire Brigade’s a Crisis: Guidance for Emergency Planners whether the ‘Home Emergency Plan’ emergency response and evacuation strate- and Responders’. It was issued by the Cab- reached residents of Grenfell Tower, but gy for the residents of Grenfell Tower? the advice it contains on page four of the inet Office Civil Contingencies Secretariat in February 2008. The purpose of the guid- 12-page guidance document states: ance is to assist in the development of local 2.4 This will lead to sub-questions during action plans for identifying groups of peo- the Inquiry itself, such as: ple who may be vulnerable in an emergen- ‘Emergency first steps … Q: What were residents in the Grenfell cy. The guidance indicates that there is an Unless you have been told not to by the expectation that this work will be conduct- Tower who contacted the emergency ser- emergency services, in most cases you vices via the ‘999’ emergency telephone ed by local authority departments (most should follow the following guidelines: If notably emergency planning and social system told, why, by whom, and at what the danger is inside, get out and stay times? What advice was given? care) and their partner health authorities to out.’ meet the planning and response needs of their statutory responsibilities under the 1.15 This guidance is broadly helpful, but Civil Contingencies Act 2004, namely to appears to conflict with the initial advice 2.5 Details of strategic policy and tactical plan for and meet the needs of those who given to Grenfell residents by the London decisions made at the time should be rec- may be vulnerable in emergencies. Fire Brigade which was to remain inside. orded on a log held by the London Fire This disparity of advice needs to be ex- Brigade at their operations centre, and at 1.10 The question to be asked is: plored by the Inquiry so that appropriate their on-ground command centre. Q: Did the Royal Borough of Kensington action can be taken to provide clear advice 2.6 Rooftop evacuation options and Chelsea conduct a vulnerability as- and training to those who may be in similar sessment of residents in Grenfell Tower in situations in the future. So, a question Several residents commented about heli- accordance with the guidance document, should be framed along the lines of: copters circulating and hovering close to and if so, how did it use this data for the Grenfell Tower. This raises the issue of Q: What written advice regarding emer- whether rooftop evacuation, or the applica- purposes of emergency preparedness and gencies and emergency evacuation was the response to the fire? tion of water on the building with the in- provided by the authorities to residents of tention of extinguishing or reducing the Grenfell Tower prior to the fire, and was it spread of fire were part of the London Fire a help or a hindrance? 1.11 Advice to tenants of Grenfell Tower Brigade’s tactical options at that time. This about emergency preparedness and indicates that the following questions could be considered by the Inquiry: actions to be taken in the event of an During the Fire emergency. Q: Were helicopters considered as part of 2.1 Key questions are: 1.12 The Inquiry should consider what the emergency response to the fire for the purposes of rooftop rescue from the top of

24 l Resilience GRENFELL INQUIRY

authorities in the Plan was issued in 2013, and gives very immediate aftermath clear and detailed guidance on how the of an emergency is plan is activated in London, and the type the care of people. of assistance that will be provided. Re- This is often referred sponsibility for triggering the plan, and to as humanitarian leading on humanitarian assistance, lies support, or the with the local authority of the relevant ‘human aspects’ of geographical area, and in the case of Gren- emergency manage- fell Tower, this is the Royal Borough of ment. Under the Kensington and Chelsea. The aim of the Civil Contingencies Plan is to ensure that humanitarian care is Act 2004, and asso- delivered in an effective manner that meets ciated guidance, the the needs of those affected by major emer- responsibility for gencies. caring for people lies with the relevant 3.7 Key aspects of the London Humanitar- local authority, and ian Assistance Plan were tested in a major, at Grenfell this is the live emergency exercise, part-funded by Royal Borough of the European Union which was hosted by the London Fire Brigade over four days Kensington and th rd Chelsea. from 29 February to 3 March 2016. The final evaluation report for the exercise, known as ‘Exercise Unified Response’ identified many shortcomings with the 3.2 Consideration humanitarian assistance response, and of the humanitari- findings (paragraph 3.6.4) were: an response arrangements The Survivor Reception Centre (SRC) was slow to be activated and SRC guidance Grenfell Tower, and for assisting in the Human aspects issues are centred around should be made clearer on activation of application of water to the fire? the physical, emotional and psychological partner agencies; support given, that should have been giv- Q: Could the use of helicopters be a tacti- en, or is planned to be given to all in- Some SRC elements were overly process cal option for rooftop rescue in high-rise volved. This includes: focussed and lacked a sense of ‘personal tower in future emergencies of this type? touch’; The bereaved, residents, survivors and injured; Roles and responsibilities of individuals and agencies were not always clearly de- 2.7 Command, control and coordination The emergency responders of the emergency response fined or shared; 3.3 The requirement to provide support in In any emergency response, command, Joint working could be improved to ensure various forms will extend over a lengthy a more effective response; control, coordination and communications period, and probably many years. are vital components for an effective re- The vulnerable were not identified as sponse within individual agencies, and 3.4 A range of actions should be immedi- quickly as they should have been or given especially between agencies working in a ately put in place to provide practical and the necessary priority; multi-agency response. The key question emotional support for people most directly for the Inquiry is: affected by an emergency, and current There was often a lack of leadership and guidance is contained in the document direction in the SRC; Q: How did all the responding agencies ‘Human Aspects in Emergency Manage- cope with the unfolding and developing ment: Guidance on supporting individuals There was a lack of familiarity amongst scale of the emergency? This should in- affected by emergencies.’ It was issued by key agencies in the process for setting up clude an examination of available evi- the Cabinet Office in October 2016, and the SRC; dence on command structures and multi- updated earlier government guidance on The Human Aspects Strategic Group meet- agency working. humanitarian assistance. ings often were not sufficiently focussed 3.5 There are also other relevant docu- on the needs of the people affected by the incident; 2.8 Budget reductions ments under preparation but these have not been finalised by the Cabinet Office. There was a lack of information for the Q: To what extent has funding and budget These are: public; reductions impacted on the ability of ‘Category One Responders’ (under the Managing and working with spontaneous Some processes were not followed end to Civil Contingencies Act 2004) to fully volunteers – we understand that this docu- end, including vulnerability processing and discharge their statutory functions at the ment is near completion, awaiting final information sharing between organisations. Grenfell Tower fire, and across the United approval;

Kingdom? Unlocking the Potential: Voluntary Sector 3.8 It appears that the poor performance & Faith Groups – we understand that this document is ‘work in progress’. identified with the humanitarian support tested in Exercise Unified Response was 3.6 In London, in addition to the Cabinet repeated for real some 15 months later at After the Fire Office guidance document there is a Lon- the Grenfell Tower fire. So, key questions don Humanitarian Assistance Plan which for the Inquiry should be: 3.1 Humanitarian aspects is produced and maintained by the London One of the most important tasks for the Resilience Partnership. Version 4.0 of the Q: What action did the authorities in Lon- Resilience l 25 GRENFELL INQUIRY

don take to address the lessons identified in the fire at Grenfell Tower, the humanitarian aspects tested in Exercise and the information provided Unified Response, and improve their indi- to the public? vidual and combined capability to respond in a real emergency? Q: To what extent was the final evaluation 3.12 These arrangements have report on Exercise Unified Response made relevance to all emergency available to the public? responders across the United Kingdom. Q: Were there enough trained and competent staff available with the Council to re- 3.13 It appears that it may not spond quickly and effectively to an emer- be possible to trace all the gency of the scale and complexity of the fire residents of Grenfell Tower, at Grenfell Tower? and this will make the identification process for the de- Q: What training and exercising did the ceased a major challenge. A officers and elected members of the Royal question for the Inquiry to Borough of Kensington and Chelsea reconsider is: ceive prior to the fire? Q: Is there any way that public housing providers can establish who is regularly 3.9 The previous questions relating to living in properties that have trained and competent council staff, and been bought under ‘right to elected members, is one which should be buy’ schemes and subsequent- that emergency responders with duties extended to all authorities throughout the ly rented out? United Kingdom. under the Civil Contingencies Act 2004 are Emergency Preparedness, Response and discharging their statutory duties, and are Recovery appropriately funded? 3.10 The role of the voluntary sector and In the United Kingdom, the relevant author- spontaneous volunteers: ities are required to plan, prepare and re- Q: Does the evidence emerging from this spond to civil emergencies in accordance The issues are discussed in ‘Unlocking the Inquiry indicate that emergency planning, with the Civil Contingencies Act 2004, Potential: Voluntary Sector & Faith and the response to large-scale emergen- supporting Regulations, statutory and non- Groups’ and official guidance is awaited. cies in London should come under the di- statutory guidance. There are many associ- The response from faith and other local rect responsibility of the London Mayor? groups and individuals from the community ated guidance documents that clearly set and elsewhere was reportedly out how authorities and organisations pre- 4.4 Lessons identified, and lessons ‘outstanding’. It also appeared to over- pare for emergencies, through assessing learned, from previous safety and emer- whelm the local council. The response of risks, planning, testing, training and exer- gency response recommendations from these groups should be not only recognised, cising. Key documents are shown on pages public inquiries, inquests and emergency but examined by the Inquiry to identify one and two of this paper. exercises lessons that can be transferred to official 4.2 The Act provides a framework for Learning lessons from past emergencies guidance, and applied in future emergen- emergency planners and responders and its and disasters are vital for organisations and cies. introduction in 2005 positively changed the authorities, so that errors and omissions are Q: To what extent did the response of spon- emergency planning landscape. In the not repeated. This means that appropriate taneous volunteers contribute to the hu- round, it is a very successful piece of legis- changes to policies, procedures and re- manitarian support for those affected by the lation, but it has no enforcement capability, sponses are made, people are better trained fire, and how should community volunteers and all those bodies subject to specific stat- and more competent to respond. utory duties under the Act are not liable to be better integrated into emergency plan- 4.5 A tragedy such as the fire at Grenfell ning arrangements for future emergencies? any form of inspection to assess their compliance with these duties. This Inquiry Tower is always followed by comments should now take the opportunity to deter- such as: ‘We must learn lessons from this mine whether an independent inspectorate, disaster and make sure that it does not hap- 3.11 Identification and tracking of people or authority, is needed to measure compli- pen again’. Simple and well-intentioned affected ance with the Act, and oversee emergency words, but often we do not learn the les- The Metropolitan Police Casualty Bureau preparedness across the United Kingdom. sons, and organisational memory of han- had the responsibility for recording the dling such incidents often lasts whilst the 4.3 Questions for the Inquiry should be personal details of those reported missing. individuals who have the practical experi- framed along the lines of: The Royal Borough of Kensington and ence remain in the organisation. Chelsea had lead responsibility for the reg- Q: Does the Civil Contingencies Act 2004, 4.6 It is suggested that the Inquiry consid- istration of people at rest centres and asso- its supporting Regulations and guidance, ers to what extent the relevant authorities ciated places, with links to the Casualty provide an effective mechanism for ensur- who responded to the Grenfell Tower fire Bureau for sharing information. The effec- ing the readiness of all emergency respond- took note of relevant past recommenda- tiveness of how this worked in practice ers to deal with an emergency of the scale tions, and how they implemented them. We should be reviewed by the Inquiry, and the and complexity of the fire in Grenfell Tow- can provide a detailed analysis of all rele- following question should be considered: er? vant recommendations from public inquiries and inquests dating back many years. Q: How effective were the arrangements Q: Does the evidence emerging from this for the reporting, identification, registra- Inquiry support the case for an independent tion and tracking of individuals affected by civil emergencies inspectorate, to ensure

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