JESIP programme Summary JESIP JOINT EMERGENCY SERVICES INTEROPERABILITY PROGRAMME Working Together Saving Lives
JESIP programme Summary
Contents Introduction 4 Project Vision, Aims & Objectives 5 Programme Scope & Stakeholders 6 Drivers for Change 7 Programme Governance Overview 8 Programme Governance Overview 9 Programme Governance Overview 10 Programme Phases 11 Programme Phases 12 Programme Phases 13 JESIP Work Streams 14 JESIP Work Streams 15 JESIP Work Streams 16 JESIP Work Streams 17 What will success look like? 18 Next Steps 19 Appendix One - JESIP Deliverables Summary 20 Date of publication June 2013 3
Introduction The Joint Emergency Services Interoperability Programme (JESIP) has been established to address the recommendations from reports such as Operation Bridge into the 2010 Cumbria shootings, the Hillsborough Independent Report; Lady Justice Hallett s Report following the July 2005 London bombings; and the Pitt Report into the 2007 floods. These reviews have identified recurrent themes where the emergency services could work better together to ensure that as many lives as possible are saved. It is important to recognise that our Police, Fire & Rescue and Ambulance Services are admired and respected around the world for the services that they provide. The significant challenges in 2012, such as the Olympic and Paralympic Games and the Queen s Diamond Jubilee, have provided them with opportunities to demonstrate their outstanding professionalism. However, one catastrophic major event, such as a criminal attack or a natural disaster, could quickly change that perception. The Coroner s inquest following the London bombings stated that the lack of inter-agency training led to the initial chaos, confusion and carnage. The Pitt review of the 2007 floods identified a lack of clarity about who was responsible for flood rescue and the Cumbria shootings highlighted the different risk thresholds employed by the three services. These are just a few of the compelling reasons why JESIP is so important. We must ensure that the three services do not continue to train in isolation and work to single operating protocols when working together to improve our joint response in future. The Programme aims to save as many lives as possible and to do this we must ensure that our initial response to major incidents is much more organised, structured and practiced. The success of the programme will be measured by the resulting change at the operational ground level but, for any change programme to be successful and sustainable there must be a clear vision of the future and a coherent plan for getting there. The structured programme of work runs until September 2014. However, it will also leave a legacy of lessons learnt and a longer term vision for future opportunities to progress interoperability through technology and collaboration. JESIP has Government support and the commitment of the three services at the most senior level and there will never be a better opportunity to achieve significant improvements. 4
Project Vision, Aims & Objectives JESIP Vision Working Together Saving Lives. JESIP Aim Ensure that the blue light services are trained and exercised to work together as effectively as possible at all levels of command in response to major or complex incidents, including fast moving terrorist scenarios, so that as many lives as possible can be saved. JESIP Objectives JESIP has the following objectives: 1. To establish joint interoperability principles & ways of working (doctrine) 2. To develop greater understanding of roles, responsibilities and capabilities amongst tri-service responders 3. To improve communication, information sharing and mobilisation procedures between services including their control rooms 4. To implement training strategy for all levels of command 5. To implement a joint testing & exercising strategy for all levels of command to ensure lessons identified progress to learning and procedural change 5
Programme Scope & Stakeholders What is JESIP? JESIP is a two year programme that aims to improve the ways in which the three blue light emergency services work together at major and complex incidents. The programme is funded by the Home Office until September 2014 and has the support of the following Government Departments: Home Office > > Office for Security and Counter Terrorism > > Crime and Policing Group Cabinet Office > > Civil Contingencies Secretariat Department of Health Department of Communities and Local Government The programme also has the full support of the Professional Associations that represent each of the blue light emergency services: Association of Ambulance Chief Executives (AACE) Association of Chief Police Officers (ACPO) (including the College of Policing); and Chief Fire Officers Association (CFOA). JESIP is also cognisant of the remit and roles of the following: The Police and Crime Commissioners and the National Strategic Policing Requirement; The impact of NHS Commissioning Boards; the Care Quality Commission; FoundationTrusts; Monitor and the NHS Commissioning Framework; and, The National Fire Framework and the role of Local Government and Fire Authorities. JESIP acknowledges and recognises that there are many examples from across the UK where Police, Ambulance and Fire services have worked well together at a local level. JESIP is not about creating interchangeable services. JESIP intends to build on what exists already and provide support to generate more effective ways of working. The priority for JESIP is to improve the response from the three blue light services at major and complex incidents. It will do this through developing joint working principles, sharing tools and establishing memorandum of understanding between the three blue light services. The Devolved Administrations (DAs) are closely involved with the programme and are represented on the Strategic and Programme Boards to encourage the development of corresponding capabilities and sharing of best practice. 6
Drivers for Change 1987 - Kings Cross Fire How the emergency services operate together has come under some intense public scrutiny following the findings from a number of major incident reviews. These reviews show that there is a need for greater integration and co-operation between the three services during routine operations through to major or complex incidents to ensure the response is confident, assured and in place at the earliest opportunity to save life. 2005-7/7 Bombings The Blue Light Interoperability and Preparedness Review from Her Majesties Inspectorate of the Constabulary (HMIC), supports this and brings these recommendations together. We need to act on the findings from a number of incident reviews. These have been summarised below: 2007 - Floods 2010 - Cumbria Shootings Challenges with initial command, control and coordination activities on arrival at scene (sometimes called the Golden Hour ) A requirement for common joint operational and command procedures Roles of others, especially specialist resources and the reasons for their deployment, not well understood between services Misunderstandings when sharing incident information and differing risk thresholds not understood Difficulties with communication between control rooms, between on scene commanders and issues with radio use Acronyms, jargon and differing call signs resulting in hampered communications 7
Programme Governance Overview Programme Governance JESIP is owned and governed by the Emergency Services. The Programme Board will oversee and provide governance of the programme team. The Programme Board will report to the Strategic Board, which in turn will report to the Ministerial Oversight Board. Programme Structure 8
Programme Governance Overview The Ministerial Oversight Board This board will meet bi-annually and provide ministerial oversight to the JESIP Programme. It is chaired by the Home Secretary, Rt. Hon Theresa May, and its members include: Home Secretary Minister for Policing and Criminal Justice Minister for Security Secretary of State for Health Minister for the Cabinet Office Fire Minister Director Generals and Directors from the following Government Departments: > > Home Office»» Office for Security and Counter Terrorism»» Crime and Policing Group > > Cabinet Office»» Civil Contingencies Secretariat > > Department of Health > > Department of Communities and Local Government ACPO Head of Uniformed Operations and Strategic Interoperability Lead CFOA Director of Operations and Strategic Interoperability Lead AACE President and Strategic Interoperability Lead JESIP Senior Responsible Officer Deputy Senior Responsible Officer Chief Fire and Rescue Adviser Her Majesty s Chief Inspector of Constabulary 9
Programme Governance Overview The Strategic Board This board will meet on a quarterly basis and will provide strategic leadership, direction and coordination to the JESIP Programme. It is chaired by Chief Fire Officer Roy Wilsher and its members are: Government Department Directors and representatives from the following offices: > > Home Office»» Office for Security and Counter Terrorism»» Crime and Policing Group > > Cabinet Office»» Civil Contingencies Secretariat > > Department of Health > > Department of Communities and Local Government Chief Officers from ACPO, CFOA and AACE JESIP Senior Responsible Officer Deputy Senior Responsible Officer Her Majesty s Inspectorate of Constabulary (HMIC) The Programme Board This board will meet on a monthly basis and provide governance and co-ordination of all work commissioned by the programme. It is chaired by the JESIP Senior Responsible Officer, and its members are: Government Department Representatives from the following offices: > > Home Office»» Office for Security and Counter Terrorism > > Crime and Policing Group»» Cabinet Office (Civil Contingencies Secretariat) > > Department of Health > > Department of Communities and Local Government JESIP Deputy Senior Responsible Officer JESIP Senior Lead Fire JESIP Senior Lead Ambulance JESIP Senior Users JESIP Engagement Manager JESIP Programme Manager Her Majesty s Inspectorate of Constabulary (HMIC) 10
Programme Phases JESIP has the challenge of delivering to over 100 organisations, meeting the requirements of the National Strategic Policing Requirement; the Fire and Rescue National Framework and NHS England. JESIP has three distinct phases: 1. Programme Development 2. Delivery and Implementation 3. Legacy and Sustainability Programme Development Initial work has involved scoping out the identified areas for improvement and shaping a programme plan to consolidate activity into a number of deliverables with timescales and milestones. These deliverables have been grouped into workstreams each lead by a team member. In addition, stakeholder analysis has been carried out to identify the many and varied organisations that may be impacted at some stage by JESIP. This analysis has informed our communications and engagement activity. In each workstream research and development work has taken up the first few months of the programme. The following are the priority deliverables for the programme: JESIP Priority Deliverables JESIP Doctrine > > Joint Working Principles and Ways of Working > > Models for establishing effective shared situational awareness JESIP Training & Awareness Packages > > On-scene & tactical command > > Control room Quality assurance methodology and framework Recommendations for sustainability Workforce Interoperability Survey In partnership with Skills for Justice (the sector skills council for Police and Fire services) we will be carrying out a workforce interoperability survey during the summer 2013. This will be the first ever survey of its kind and will help assess the current knowledge, perceptions and experience of interoperability across all three services. This survey will be aimed at operational command staff and control room staff. The results will help inform the JESIP workstreams and create an interoperability knowledge baseline. 11
Programme Phases Delivery & Implementation Work is in progress to scope and establish a feasible plan to deliver the outcomes of the programme. JESIP intends to work with existing networks and structures where they exist. Local Resilience Forums (LRFs) and the blue light cells within many of them, are recognised as a potential engagement mechanism. By working with LRFs, JESIP hopes to refine its delivery and implementation model. JESIP will work closely with LRFs and the respective service governance structures to ensure effective consultation, delivery, exercising, testing and evaluation. It will engage with staff associations and other stakeholders throughout consultation periods, during table top testing and exercising events to engender ground up cultural change and local support. With the support of the Resilience and Emergencies Division (RED) of the Department of Communities and Local Government, along with the Civil Contingencies Secretariat, there will be a number of regional events held in the summer of 2013 to initiate local engagement. We will seek to identify single points of contacts in all services and forming a JESIP network nationally. We will discuss potential implementation and delivery plans with this network over the coming months. More details about these events and how to get involved will be sent to each blue light organisation. 12
Programme Phases Legacy & Sustainability A number of aspects from our work programme fall within this phase of the programme.this includes a sustainable governance model, improved and on-going joint organisational learning, a testing and exercising strategy as well as evaluation and assurance. One of the priority deliverables is to establish a Tri-Service Governance Board. We shall look to discuss options with services once the JESIP network has been established. In the longer term there will be a requirement to show that services continue to improve and effectively interoperate. Interoperability needs to become embedded and part of training programmes throughout the career paths of those in all three services and as part of continuous professional development. Considerations are being made about the potential role of LRFs. In addition we are in discussion with Her Majesties Inspectorate of the Constabulary (HMIC) along with the Chief Fire and Rescue Advisor (CFRA) and the Ambulance sector to help inform and support a future assurance framework and methodology. It is envisaged that regular joint testing and exercising will be the most effective way to ensure that levels of interoperability knowledge and competence are maintained. JESIP will look to integrate with as many existing exercising structures as possible as it develops a testing and exercising strategy. 13
JESIP Work Streams The programme of work has been divided into four main workstreams supported by programme management, engagement and communications activities: Doctrine and Organisation Operational Communications Shared Situational Awareness Training and Exercising An overview of each workstream is provided below, more details and updates can be found on the JESIP website. Doctrine and Organisation The three blue light services are distinct organisations with policy, procedure and plans to underpin their operations. The fundamental requirement is for a well-understood set of principles to guide the conduct of joint operations at all levels of command resulting in effective joint command and control of major or complex incidents. Key deliverables include: Develop generic Joint Operating Principles for interoperability Produce a JESIP kitemark / framework to assure future doctrine against interoperability requirements (Tri-Service National Quality Assurance Methodology and Framework) Establish a Tri-Service Governance Board to sustain interoperability and implement future interoperability priorities Develop strategy for capturing and sharing lessons learnt What does success look like? Future doctrine will contain appropriate references / guidance on interoperability to support joint working. There is consistency and read across of doctrine across the emergency services. Generic Joint Operating Principles leave enough flexibility to respond to the changing threat and for decisions to be made by those in command. There is a joint approach to shared situational awareness, decision making and hazard assessment. All lessons are, where practicable, taken from identified through to learnt, with an appropriately empowered governance board overseeing the process. On-going effective tri-service governance of interoperability. 14
JESIP Work Streams Operational Communications This workstream is focussed on improving communication and information sharing between operational staff and between control rooms. This includes reviewing current training modules for radio use and incorporating specific elements into the JESIP training and awareness packages. This workstream will also seek to improve communications between the national coordination centres which operate when a major incident is declared. Key deliverables include: Review and revise national tri-service Airwave doctrine and guidance produce a simple aide memoir Progress Airwave training modules for induction in JESIP training and awareness packages Carry out a tri-service Command and Control review Develop a tri-services mobilisation MoU between national coordination centres for improved deployment What does success look like? (within lifespan of the programme) The emergency services adopt a common strategy to the use for Airwave during a major incident, ensuring reliable and effective communication. Multi-agency Airwave talkgroups are quickly established and used by commanders and responders in the event of a major incident. Information will be rapidly and accurately shared and disseminated between the services. There will be multi-agency tactical advisors to provide technical guidance on use and provision of Airwave service and talkgroup selection. 15
JESIP Work Streams Shared Situational Awareness This workstream will focus on the early establishment of shared situational awareness (SSA) to improve initial blue light response. JESIP will be looking to establish how blue light services can share or adopt joint hazard assessment and joint decision making models. Much of the work in this area is linked to the Doctrine & Organisation workstream and will be delivered via the training strategy. Each of the Services has well established processes and practices regarding information gathering, risk or hazard assessment and decision making. Our intention is to complement these particularly when the Emergency Services are required to provide a co-ordinated response to major and more complex incidents. Key deliverables include: Develop Shared Situational Awareness Framework Establish Joint Dynamic Hazard/Risk model Agree and implement Joint Decision Making Model Develop guidance for multi-agency information and intelligence sharing Establish easier identification of on-scene commanders for Police What does success look like? The availability principles and ways of working that, with effective training and exercising, will facilitate an earlier and more accurate establishment of shared situational awareness amongst Blue Light services. This will better enable an effective and co-ordinated deployment of available blue light resources working together seamlessly to mitigate the consequences of emergencies. 16
JESIP Work Streams Training and Exercising This workstream will focus on developing the content of JESIP training and awareness packages. It will be informed by the work undertaken in all other workstreams. Key deliverables include: Develop multi agency on-scene commanders and tactical commanders courses Embed agreed terminology through training (Lexicon and map symbology) Develop an Interoperability Awareness package for all responders Develop training package for control room staff regarding role, responsibilities and capabilities of other services Establish a Joint Exercising Programme across services What does success look like? Interoperability guidance / generic joint operating principles are embedded in blue-light services behaviours through regular, joint training and exercising. The emergency services more routinely speak the same language, there is a shared understanding of guidance, respective roles, responsibilities and capabilities and less confusion. 17
What will success look like? JESIP intends to make a step change in the way services approach working together. Once the programme has been completed, it is intended we will have achieved the following: 18
Next Steps How will JESIP affect me? If you work in one of the 105 organisations that make up the emergency services in England and Wales, you can expect the JESIP products to be introduced into your service before the end of 2014. If your role involves either on-scene command or control room activity, then you can expect to receive some form of interoperability training. If your role involves organisational learning or training either at a delivery or strategic leadership level, you should expect to become involved with consultation on, engagement with, dissemination and potentially delivery of JESIP products. What action should I take? JESIP is currently researching and developing a plan for how we can reach the relevant people within each service at the right time with the right level of information. Over the coming months you can expect to see more correspondence or communication from JESIP via a number of channels. There will be opportunities to see us present at various sector events. We will be working with the three professional bodies as well as other partners such as DCLG s Resilience Emergencies Division and the Local Resilience Forum network in running more focussed engagement events during June and July 2013. If you are taking the time to read this information and possibly more on the JESIP website, you will be taking the first steps in engagement with this programme. Thank you! Get involved. If you are in a role that involves on-scene command or control room work, please take part in the Workforce Interoperability survey. If you are responsible for operational, command or control room training, please ensure your service is represented at our JESIP Engagement Events. Invites will be sent to all blue light services. See the JESIP website for more details. 19
Appendix One - JESIP Deliverables Summary Doctrine & Organisation Shared Situational Awareness 1. Complete the revision of ERR Chapter 4 and embed the into doctrine and training materials 2. Gain commitment from blue lights to ensure interoperability is referenced in future doctrine and training materials (MoU) 3. Conduct interoperability capability assessment 4. Develop generic Joint Operating Principles (JOPs) for Interoperability 5. Produce a JESIP kitemark / framework to assure future doctrine against interoperability requirements (Tri-Service National Quality Assurance Methodology and Framework) 6. Establishing a Tri-Service Governance Board to sustain interoperability and implement future interoperability priorities 7. Strategy for capturing and sharing lessons learnt Operational Communications 8. Review and revise national tri-service Airwave doctrine and guidance produce a simple aide memoir 9. Progress Airwave training modules 10. Develop a regular standard Airwave test for incident commanders 11. Develop tri-service Airwave training for Tactical Advisors 12. Progress a tri-service common call sign structure 13. Carry out a tri-service Command and Control review 14. Develop a tri-services mobilisation MoU between national coordination centres for improved deployment communication 15. Develop Shared Situational Awareness Framework 16. Establish Joint Dynamic Hazard/Risk model 17. Agree and implement Joint Decision Making Model 18. Develop guidance for multi-agency information and intelligence sharing 19. Establish easier identification of on-scene commanders for Police Training & Exercising 20. Develop multi agency on-scene command course 21. Develop multi agency tactical command course (Silver) 22. Undertake baseline analysis to identify training opportunities 23. Embed agreed terminology through training (Lexicon and map symbology) 24. Review Inter-agency Liaison Course 25. Develop an Interoperability Awareness package for all responders 26. Develop training package for control room staff regarding role, responsibilities and capabilities of other services 27. Establish a Joint Exercising Programme across services 20
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JESIP JOINT EMERGENCY SERVICES INTEROPERABILITY PROGRAMME Working Together Saving Lives JESIP website: www.jesip.org.uk JESIP email: jesip@homeoffice.x.gsi.gov.uk HO_02046_G