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The Minister for Schools (Mr Nick Gibb)
It is a pleasure to serve under your chairmanship, Mrs Gillan. I congratulate my hon.—and redoubtable, it appears— Friend the Member for Southend West (Sir David Amess) on securing this important debate, and pay tribute to his passion for the subject and his long-standing commitment to these issues through the all-party parliamentary group on fire safety and rescue, in the Chamber and outside, more generally. I pay tribute to my hon. Friend the Member for Eastbourne (Caroline Ansell) for her passionate contribution to the debate based on some real and tragic experiences that she has encountered in her constituency. I also pay tribute to the hon. Member for Rutherglen and Hamilton West (Margaret Ferrier) for her powerful exposition of the case for sprinklers in schools.
My hon. Friend the Member for Southend West was right to start the debate by paying tribute to our firefighters and to praise the work of the Children’s Burns Trust. He is also right to highlight the importance of the highest standards of fire safety in schools. Keeping pupils safe is the most fundamental responsibility of the education system. It is therefore vital that, where possible, we prevent fires from starting and spreading, and ensure that schools are able to evacuate pupils swiftly when necessary. Fire safety is also important to avoid the disruption and distress caused by fires, and to protect the significant investment, over many years, in the school estate—a point that my hon. Friend also made. Implementing measures to minimise the damage caused by fires to school buildings is therefore an important priority.
The context to the debate is a very welcome reduction in the number of fires in schools over the past 15 years. In 2001, there were 1,300 fires in schools. By 2014, the number had fallen by more than half to just 600. The tireless work of campaigners including my hon. Friend the Member for Southend West, alongside preventive efforts from schools and fire services, has no doubt made a significant contribution to the improvement. Indeed, there have been no fatal casualties caused by fire in schools from 2000 to 2014, which is the most recent year for which we have data. Securing further reductions in the number of fires, and in their impact when they do occur, remains a priority for the Department for Education.
Newly constructed school buildings, as well as extensions and major refurbishments of existing blocks, must comply with part B (Fire safety) of the Building Regulations 2010. The Department applies the regulations to schools in more detail through “Building Bulletin 100”, which sets rigorous standards to ensure that works make sufficient provision for the health and safety of their occupants. The design must include adequate means of escape, firefighting equipment, automatic detection systems and fire signage provisions. The construction materials used must be fire-resistant. Suitable fire doors to contain the spread of any fire must be used throughout the building. A written fire safety management plan is required to be produced as part of the documents to be provided to the school before the occupation of the school building.
The Department plans to consult on a revised “Building Bulletin 100” in 2016, which will incorporate revisions to relevant regulations. In addition, all school buildings, including those already built, must comply with the Regulatory Reform (Fire Safety) Order 2005, which requires all schools to be maintained to ensure adequate fire resistance and resistance to the spread of flames. There should be adequate fire precautions in place to allow the safe escape of occupants in case of fire. The order also requires them to conduct regular termly drills, so that pupils and staff can evacuate the school quickly in the case of fire. The school’s fire safety systems require regular maintenance and testing, with the activities recorded in the school fire safety logbook by the responsible person in the school.
Schools are required to implement measures to ensure that pupils or staff with sensory or mobility impairments are kept safe. “Building Bulletin 102” sets the relevant standards in those circumstances. People with visual and hearing impairments, for instance, need a choice of visual, audible, or voice announcement systems. Suitable additional visual alarms should be provided in areas where a person may be alone, such as toilets. When a disabled person cannot make their own way out of the building, it is the responsibility of management to ensure their safe escape, and personal emergency egress plans—PEEPs—will need to be developed in consultation with them. Escape plans should be posted throughout the building.
My hon. Friend the Member for Southend West made a compelling argument for the inclusion of sprinkler systems in all new buildings. He knows that these are not required under the current building regulations or the Department’s building bulletin standards, which set out measures for the purposes of health and safety, not for the protection of property. The value of sprinklers is in limiting the damage to buildings caused by fires. They are less useful in protecting the occupants of buildings, because they are no substitute for well-functioning alarms, sufficient evacuation routes and effective emergency procedures. Sprinklers are activated only by intense, direct heat. The sprinkler must reach 68°C before being activated—I believe that happens by wax melting in the mechanism—by which point the temperature of other parts of the room will be significantly higher. They are therefore not an immediate fire suppression system, and they are not activated by smoke, which is the most significant cause of injury and deaths from fires. The building regulations and building bulletin therefore include provision for the use of sprinklers and other fire suppression systems where the risk justifies their use, rather than a blanket requirement that they must be included in all new schools.
The number of deliberate cases of arson in schools has fallen from 746 in 2004 to five in 2012-13 and one in 2013-14. There has been a significant drop in the numbers of fires started deliberately in schools but, as my hon. Friends the Members for Southend West and for Eastbourne would say, one is one too many.
In circumstances where there is a significantly higher risk of fire—perhaps because of local problems with arson, for example—a local authority may reach the view that it is appropriate to include sprinkler systems in a new or refurbished school building for a maintained school. In such circumstances, the Department is prepared to include sprinklers in the specification for a school built under the priority schools building programme, but would expect the local authority to meet the additional cost of installing them. If, following a risk assessment, an academy being rebuilt through the priority schools building programme were deemed to require sprinklers, the Department would meet that cost.
This approach represents a careful balancing of the risk of fire damage to school buildings with the significant cost of installing sprinklers. Including sprinklers in new school buildings would add between 2% and 6% to the cost of works. This year alone, we are spending £2 billion on new school buildings, so that would therefore represent an extra cost of between £40 million and £120 million. If we were to go even further, adding sprinklers to a major school refurbishment project would typically add about 10% to the cost.
The Department’s assessment is that the additional spending would significantly outweigh any relatively modest saving from preventing some damage to school buildings. That is especially the case as we continue to prioritise work to prevent school fires. We therefore hope that the overall number of fires declines even further in future years. I am, however, very happy to arrange a meeting with my hon. Friend the Member for Southend West and other members of the all-party parliamentary group, either with me or with Lord Nash, the Minister with direct responsibility for this policy area, so that we can further discuss the details of the case my hon. Friend is making for installing sprinklers in all schools.
I am grateful to my hon. Friend for raising this important issue today. I hope that he is fully assured that the Government continue to prioritise work on fire prevention, even if I am not in a position to go as far as he would hope in committing the Department to install fire sprinklers in new buildings. I am confident that our other work—to promote prevention, to enforce rigorous building standards, and to require schools to have effective evacuation plans—will continue to keep pupils safe and minimise the damage and disruption caused by fire.