The consultation submissions to the 2010 review of building regulations carried out by the coalition government show significant warnings were issued about the mounting risk from fire safety, seven years before 72 people were killed in the blaze at Grenfell Tower.
The documents were released after the intervention of the Information Commissioner, following a 10-month battle with the Ministry of Housing, Communities and Local Government (MHCLG) who declined an original request in July last year.
The ministry only released 14 of the 54 submissions to the review – titled
Future changes to Building Regulations – next steps – claiming the remaining 40 had been “deleted”.
The documents released contain calls for improved fire safety standards from three fire services, the Association of British Insurers (ABI) and other industry bodies.
In particular, the fire service responses warn of slipping standards in the building industry due in part to the rise of private-sector ‘approved inspectors’ (AIs), who are paid by developers to sign off buildings as compliant with regulations.
The Greater Manchester Fire and Rescue Services (GMFRS) raised concerns over what it described as “a culture within the construction industry of poor standards”.
It added: “This has led to established ‘stay put’ fire strategies being compromised through rapid fire and smoke spread.”
The review came at a time when the new government was committed to a programme of deregulation and cutting red tape.
Lord Andrew Stunell, the Liberal Democrat minister who carried out the review, told
Inside Housing there was “pressure” to “minimise regulation” but denied it was a missed chance to prevent Grenfell.
The major warnings included:
Sprinklers
Shropshire and Staffordshire Fire and Rescue Services and the ABI all called for tougher regulations to install sprinklers.
Shropshire called for sprinklers to be included in new affordable homes, saying: “Many of these houses are likely to be occupied by some of those in our society most at risk to the effects of fire; as such we believe a unique opportunity presents itself.
“By incorporating fire suppression systems into the design and subsequent construction, we can ensure new homes are not only consistent with government policy but also safe for their occupants.”
Staffordshire added: “Substantial evidence exists to demonstrate the fact that sprinklers can be an effective and cost efficient method of greatly improving the fire safety of a building… Sprinklered buildings do not burn down and usually the fire is confined to the room (or very often area of the room) where the fire originated.”
The ABI called for “a wide-ranging review of the case for sprinklers and effective fire compartments in new buildings”, noting that building regulations could mandate sprinklers “where the risk to life may be greatest, for example in high rise buildings”.
Approved Inspectors
In 1985, Margaret Thatcher’s government part-privatised building control to allow private players, AIs, to compete with local authorities to sign buildings off as compliant.
GMFRS presented evidence of “AIs not issuing final certificates for occupied/completed projects under their supervision”. It said it believed at least 561 buildings in Greater Manchester had not been given certificates, and warned AIs were not properly inspecting projects they were reviewing. “[We do not] believe that AIs are fulfilling their commitment to maintain standards in construction,” it said.
Shropshire fire service echoed these concerns, saying it was difficult to ensure buildings inspected by AIs were safe, adding that this was “largely because the applicant has paid the approved inspector to sign off the building as compliant”.
Eight years later, Dame Judith Hackitt
called for an overhaul of the AI system in her final report into the failures in the regulatory system that led to Grenfell.
The construction industry
The Passive Fire Protection Forum warned ministers of poor practices in construction. It said: “At all our meetings, and those of our member bodies concern is expressed at the lax attitude of general contractors to meeting the requirements of [Approved Document B].”
It warned that “fire safety is not a prime driver of design and tends to be neglected when it comes to procurement and construction”. The organisation gave the specific example of a building where fire doors only provided seven minutes resistance to flame, and warned “poor quality installation of many passive fire protection measures [is] endemic in the construction industry”.
GMFRS supported this view, saying: “GMFRS has experience of many domestic and non domestic premises being involved in fire and due to poor construction, not performing to the designed fire safety standard.
“This has led to established stay put fire strategies being compromised through rapid fire and smoke spread. Fire fighters are being put at significant risk where they expect a level of fire protection in a building of one or more hours, and this suddenly failing whilst they are in the building fighting a fire.”
Of the missing 40 responses, in its response to
Inside Housing’s Freedom of Infomation request MHCLG said that “we do not keep records indefinitely and in the usual course of events these would have been deleted by now”.
MHCLG was contacted for comment.