Fire Risk Assessors Consultation

Overview

Title: Fire Risk Assessors Consultation

Scope of the consultation

Topic of this consultation:

This consultation seeks views on proposals relating to the fire risk assessor (FRA) profession. It covers the following areas:

• The future development of the FRA profession
• The powers needed to regulate the FRA profession, and
• Implementation approaches for competency requirements in the FRA profession.

 

Geographical scope:

These proposals relate to England only.

 

Impact assessment:

Not required; we will use feedback from the consultation to inform our assessment of the impact of the measures.

 

Basic Information

Body/bodies responsible for the consultation:

Ministry for Housing, Communities and Local government

Duration:

This consultation will last for 12 weeks from 26/03/2026 - 18/06/2026

Glossary:

A glossary, information about this consultation (including the complaints procedure) and information regarding your rights and the information you are entitled to under UK data protection legislation can be found in the consultation document: https://www.gov.uk/government/consultations/fire-risk-assessors-profession

 

Enquiries:

For any enquiries about the consultation please contact:

FireSafetyUnitconsultations@communities.gov.uk

 

How to respond:

You may respond by completing an online survey by clicking 'Begin survey' at the bottom of this page.

Alternatively, you can view this consultation online here and email your responses to: FireSafetyUnitconsultations@communities.gov.uk

If you are responding in writing, please make it clear which questions you are responding to.

Written responses should be sent to:

Fire Risk Assessor Consultation
Attn: National Resilience and Fire Safety Division,  
Fry Building,
2 Marsham Street, 
Westminster, 
London, 
SW1P 4DF

When you reply it would be very useful if you confirm whether you are replying as an individual or submitting an official response on behalf of an organisation and include:

- your name,

- your position (if applicable),

- the name of organisation (if applicable),

- an address (including postcode),

- an email address, and

- a contact telephone number

 

 

Ministerial Foreword

The events at Grenfell Tower, and the deaths of the 72 innocent people it caused, were a national tragedy which must never be repeated. Grenfell, together with earlier tragedies such as the 2009 Lakanal House fire, exposed longstanding weaknesses in a regulatory system that should have kept people safe in their homes. The Grenfell Tower Inquiry’s detailed examination laid bare the scale and seriousness of those systemic failings. For this reason, this government has accepted the principle of all the Grenfell Tower Inquiry (GTI) Phase 2 recommendations and is acting decisively to secure their implementation. Ensuring the safety of people in their homes and communities is, and will remain a top priority.

This consultation is an important step in delivering our commitments in relation to FRAs. Ministerial responsibilities for all fire-related functions, including policy relating to FRAs, transferred to the Ministry of Housing, Communities and Local government in April 2025. I am pleased this work therefore forms part of a wider suite of departmental publications on a range of Grenfell Tower Inquiry recommendations to deliver professional, regulatory and institutional reform relating to fire safety and the built environment. These include the publication in December 2025 of the Single Construction Regulator Prospectus[1] and an Authoritative Statement and Next Steps Statement on Fire Engineers[2]. Further, a call for evidence on professions working on the safety of the built environment and a consultation on the development of a College of Fire will shortly be published. I would encourage everyone who reads this consultation to also consider those publications as they are issued.

FRAs perform a critical fire safety role, keeping people safe – not only in blocks of flats, but in almost every non-domestic building from workplaces to care homes to nightclubs.   Their assessments help identify hazards, ensuring effective fire safety precautions are in place to protect those who live in, work in, or visit buildings across England. Despite this, the FRA role is not currently a regulated profession. There is no single professional body overseeing the industry, no consistent definition of the role, no clear consistent career pathway for those who wish to enter the profession and no mandatory training, qualifications or certification. This lack of consistency means that those occupying or responsible for fire safety in premises lack assurance that FRAs are always competently undertaking these vital fire risk assessments.

Everyone is entitled to feel safe in their home, and in the buildings they use. As the Secretary of State has made clear, this government is committed to ensuring every family can access a safe, decent and affordable home. We want an FRA profession which helps deliver our vision: with consistently high levels of competency, a strong and diverse pipeline of skilled practitioners, transparency, and rebuilt trust and confidence for those who rely on their expertise. These principles underpin the government’s ambitions for the wider built environment and for fire safety.  

I welcome the steps already taken by industry to improve competency standards, including the development of the British Standard BS 8674 in 2025.[3] Continued collaboration between government and industry is essential and I strongly encourage the fire safety sector to continue its important role in driving improvements. While many FRAs are highly competent, we must continue to raise standards across the board. The government is therefore acting on the GTI’s recommendation to establish consistent and mandatory competency requirements.

This government is determined to drive improvements in fire and building safety. The reforms we are taking forward - including those outlined in this consultation – are an important part of ensuring communities across England are protected. I urge all stakeholders to engage in this consultation and help shape a stronger, more competent and accountable FRA profession which consistently delivers its vital fire safety role.  

Minister Samantha Dixon MP

 

Executive Summary

For non-domestic premises including the common parts of blocks of flats, Responsible Persons (RPs) (see Glossary for definitions) are under a duty to make a suitable and sufficient fire risk assessment to identify general fire precautions. RPs can currently undertake this assessment themselves, and they may appoint someone, known as an FRA, to assist them in doing so.

Fire risk assessments, and those who undertake them, play a key role in making sure those who live in, work in or visit buildings are safe. However, FRAs are not a regulated profession, lacking common definitions, structures and career pathways. Concerns about the conduct of fire risk assessments have been raised over the last two decades, including following major fires.

Following the events of 14^th June 2017 at Grenfell Tower, a series of reports and consultations have further illustrated the need for action to ensure consistent competency in the FRA profession. Dame Judith Hackitt’s Independent Review of Building Regulations and Fire Safety, published in 2018, found that a new, coherent competence framework was required to allow those with duties under the FSOs to satisfy themselves of the competence of an FRA.[4]

The Grenfell Tower Inquiry Phase 2 report recommended that government “establish a system of mandatory accreditation to certify the competence of fire risk assessors”. The government accepted this recommendation in full. The report also recommended that government establish a regulator undertaking a range of functions, including the “accreditation of fire risk assessors”. The government has accepted this recommendation and is making progress in implementing it.[5]

Important work has been undertaken by the fire safety sector both prior to and following the Grenfell Tower tragedy to strengthen the profession, including the publication in 2025 of British Standard BS 8674 which sets out the skills, knowledge, experience and behaviours that industry considers FRAs should possess. 

The proposals presented in this consultation identify opportunities to go further in ensuring the best possible public safety outcomes. The vision proposed for the future of the FRA profession through this document is one where there are consistent standards of competency, excellent career opportunities, and effective regulation of the profession. These reforms will mean that those with duties under fire safety legislation, residents, leaseholders, building users and developers will have greater confidence in the quality and consistency of fire risk assessments, and therefore the safety of the buildings they use, live in and build.

To achieve this vision, this consultation sets out proposals relating to:

• defining the role of FRAs,
• considering the RP’s ability to conduct their own assessments,
• developing competency frameworks and standards,
• establishing clear career pathways,
• providing appropriate regulatory powers, and
• ensuring effective implementation of measures introduced.   

Informed by the findings of this consultation, we will seek to legislate when parliamentary time allows.

FRAs form part of a complex and fragmented fire safety, building safety, and construction landscape, however it will be vital for the various professions and regulations to form a coherent regulatory regime. To support greater coherence, the Single Construction Regulator Prospectus and consultation was published in December 2025.[6] The Prospectus committed to a new framework to underpin the competence, skills and conduct of those working in the industry, which will be the subject of a call for evidence in 2026.

Also published in December 2025, the Fire Engineers Authoritative Statement and Next Steps Statement included commitments to consider the relationship between fire engineers and FRAs during the occupation phase of a building given the important links between these fire safety professions.[7] Responses to this consultation will help us explore this relationship.

 

Introduction

Existing Legislation

The Fire Safety Order

The Regulatory Reform (Fire Safety) Order 2005 (FSO) is the principal legislation covering fire safety in non-domestic premises in England and Wales. This includes the common parts of blocks of flats. [8]

Article 9 of the FSO places a statutory duty on RPs [9] to "make a suitable and sufficient assessment of the risks to which relevant persons are exposed for the purpose of identifying the general fire precautions they need to take to comply with the requirements and prohibitions imposed on them by or under this Order”.[10]

The fire risk assessment is therefore vital to ensuring people’s safety, given these assessments are the foundation for the fire safety precautions in any relevant premises.

RPs can currently undertake fire risk assessments themselves, and statutory guidance is available to assist them in the discharge of their duties under the FSO.[11] All of this guidance advises that, if the RP is unable to apply the guidance, they should seek expert advice from a competent person, and that more complex premises will probably need to be assessed by a person who has comprehensive training or experience in fire risk assessment.

Article 5 (3) of the FSO may extend the Article 9 duty to every person who has, to any extent, control of the premises so far as the requirements relate to matters within their control. This might include a person who assists the RP with the fire risk assessment if they meet the requirements in Article 5.

Background and Supporting Legislation

For certain types of premises, particularly those where significant fires have occurred in the past, other legislation may place additional duties on those conducting a fire risk assessment. A non-comprehensive list is given below:

 

The Fire Safety and Safety of Places of Sport Act 1987

Introduced partly in response to the Bradford City Stadium fire of 1985, the Act requires the RP to apply for a safety certificate as a condition of their license to operate, which must not contravene the fire risk assessment duties under FSO Article 9.

The Dangerous Substances and Explosive Atmospheres Regulations 2002

Dangerous substances present unique risks from fire and explosions – the most notable UK example being the 1974 explosion at the Flixborough chemical plant that led to the deaths of 28 people. Premises where such substances are liable to be present have additional risk assessment duties under these regulations – the findings of which should be used to inform the more general assessment made under FSO Article 9.

The Licensing Act 2003

This Act builds on preceding legislation that was enacted in response to several significant fatal fires in these types of licensed premises (e.g., nightclubs, cinemas, theatres). The Act requires those applying for mandatory licenses to operate to submit evidence that they’ve met their fire safety objectives, of which the FSO Article 9 risk assessment is an essential component.

The Health and Social Care Act 2008 (Regulated Activities) Regulations 2014

Care providers are required to assess the potential health and safety risks to their users (FSO Article 9 for fire safety). Failure to do so can lead to prosecution and the removal of provider’s ability to operate. This legislation was partly in response to the 2004 Rosepark Care Home fire, which resulted in the deaths of 14 residents.

The Fire Precautions (Sub-surface Railway Stations) England Regulations 2009

Those fire risk assessing sub-surface railway stations must ensure that their recommendations comply with additional duties under these regulations, which were originally introduced in response to the King’s Cross fire of 1987.

The Building Safety Act 2022

The Building Safety Act 2022 (BSA) sets out duties and responsibilities for those involved in the design, construction, maintenance and management of higher-risk buildings (the person with duties and accountable persons). For the purposes of the BSA, higher risk buildings are premises at least 18 metres or 7 storeys in height, containing two or more residential units[12].

Relevant persons with duties and accountable persons are identified and have duties to cooperate, including with the RP under the FSO, to coordinate with each other and be competent (have the skills, knowledge, experience and behaviours) for design and building work they undertake.

 

Fire Risks Assessors - The Case for Change

The tragedy at Grenfell Tower in 2017, which took 72 lives including 18 children, was preventable. The failings it exposed, including the impact upon the most vulnerable, demand fundamental change. It was preceded by a series of serious fires, including the fatal fire at Lakanal House in 2009.

In the wake of the events of 14th June 2017, the government invited Dame Judith Hackitt to carry out an Independent Review of Building Regulations and Fire Safety. In her final report, published in 2018[13], she made a series of recommendations for fundamental change that directly led to the government legislating through the BSA. In relation to FRAs, she found that the approach to competence was incoherent, specifically in relation to competence levels and the experience and qualifications required. In particular, she said fire risk assessments ‘often consist of little more than a ‘tick box’ exercise undertaken by someone without demonstrable competence of fire safety’ and noted that the scope of the existing frameworks used within the industry did not extend to include requirements for the enhanced levels of competence needed to assess high rise residential buildings.

In 2020, the previous government ran a consultation on proposals to strengthen fire safety through reform of the FSO. Of those who responded, an overwhelming majority (96%) agreed that those assisting RPs should be subject to mandatory competency requirements. Most respondents also believed that competence can only be demonstrated through relevant qualifications and accreditation.[14]

There is a significant lack of data about those who conduct fire risk assessments professionally, linked to the lack of agreed professional definitions, structures and pathways. A first step was made to address this when the Home Office (previously holding responsibility for fire safety policy) published the results of a 2023 survey of FRA competency and capacity in September 2024. Of those who responded, only 46% belong to a certification or registration scheme, and 50% undertook no formal refresher training.[15] 

The Grenfell Tower Inquiry Phase 2 report, published in 2024, found that the FRA appointed by the Kensington and Chelsea Tenant Management Organisation (TMO) had misrepresented both his experience and qualifications (some of which he had invented), and was ill-qualified to assess buildings of the size and complexity of Grenfell Tower, let alone the entire TMO portfolio. The Inquiry identified serious shortcomings in the fire risk assessments produced, including failures to identify critical fire safety hazards and to verify that previously identified risks had been addressed. Despite London Fire Brigade raising concerns about the competence of the FRA, the Inquiry found that the TMO continued to rely uncritically on him, a situation which they concluded made the danger more acute in the absence of any arrangements for assessing the quality of his work.

The Grenfell Tower Inquiry Phase 2 report recommended that, to address these issues, the government should ‘establish a system of mandatory accreditation to certify the competence of fire risk assessors by setting standards for qualification and continuing professional development and such other measures as may be considered necessary or desirable. We think it necessary for an accreditation system to be mandatory in order to ensure the competence of all those who offer their services as fire risk assessors.’

The government accepted this recommendation in full, committing to legislate to make it a mandatory requirement for FRAs to have the competence to perform this critical role.

The Building Safety Regulator’s (BSR) Industry Competency Committee (ICC) is a statutory body tasked with overseeing and facilitating the improvement of competence across the built environment.  As part of its remit, the ICC has helped identify the fundamental challenges facing the sector; where professional bodies provide oversight and certification, these can vary widely in terms of legal status, governance and public interest functions, and there is no consistent definition or enforcement of competence or standards for public accountability. As a result, there is generally insufficient recognition and benefit for those who do the right thing and limited consequences for those who do not, with wider implications for skills, development, safety, and overall productivity.

Professional and Institutional Reform

Fire risk assessments, and those who undertake them, play a vital role in a wider fire safety, building safety and construction professional and regulatory landscape. However, the Inquiry exposed a fragmented regulatory system, with multiple gaps in standards and assurance across building regulations, products and professions.     

The final report of the Grenfell Tower Inquiry made a number of recommendations regarding the regulation of the construction industry and professions which have safety-critical roles in relation to buildings. Alongside the recommendation above on FRAs, in relation to fire safety professions and their regulation, these included:

• government drawing together under a single regulator identified functions relating to the construction industry;
• that, for higher-risk buildings, a statutory fire safety strategy must be produced by a registered fire engineer and submitted with building control applications;
• introducing new legal protections for the fire engineering profession, supported by an independent body responsible for regulation, registration and standards.

The government wholly accepts the findings of the Inquiry and remains committed to delivering these recommendations. We recognise that these reforms need to be delivered as part of a cohesive strategic approach to fire safety and building professions.

To support greater coherence, the Single Construction Regulator Prospectus: Consultation Document was published in December 2025.[16] The Prospectus set out proposals for a new long-term strategy for the building professions, including wider trades and occupations. The aim of this strategy is to provide long-term benefits for building safety, quality and productivity, as well as supporting greater capacity, skills and investment in the workforce. Government will publish a call for evidence in spring 2026 to seek views on proposals for reform. We then aim to publish an overarching strategy for the built environment professions in spring 2027. This will include detailed design of a new framework for regulation, oversight and enforcement, alongside consideration of other, non-regulatory levers, including options to support skills, sustainable business growth and consumer advice.

In response to the Inquiry recommendations on fire engineers, the Fire Engineers Advisory Panel (‘the Panel’) was established in April 2025 to provide advice to government on the fire engineering profession. The Panel has developed an Authoritative Statement of the knowledge and skills to be expected of a competent fire engineer and advice on the implementation of the Inquiry’s wider recommendations for fire engineers. This was published in December 2025 alongside government’s Next Steps Statement on fire engineering.[17] The Next Steps Statement committed to further analysis of Panel proposals relating to production and the contents of the fire safety strategy, the periodic review of the fire safety strategy during occupation and the relationship with the role of the FRA.

The evidence and feedback from this consultation will provide a key contribution as the government works with professions across the built environment to design a coherent framework of regulation for fire engineers and for FRAs.

 

Our Vision for the Profession

Government is committed to building a country where everyone has access to a safe, affordable and decent home. Fire safety professionals including FRAs have a vital role to play in delivering this outcome, ensuring that people are safe within their homes, and the places where they work and visit. Building on the reports, consultations and recommendations above, the proposals in this consultation provide a clear direction to build a formally recognised FRA profession which achieves the vision for the future set out below.     

Consistent Competency

We want to see an FRA profession with consistently high and demonstrable standards of competency so that RPs are always capably supported when they employ an FRA. It is imperative that our communities can always have confidence in the competence and character of FRAs, given the crucial life safety role they hold.  

Clear Standards

We intend to embed a system where there are clear competence frameworks, qualifications and standards of behaviour and practice.  This will allow FRAs to demonstrate their skills, knowledge, experience and behaviour (SKEB) through a robust method of verifying competence.

We want to see a coherent approach to the certification of fire engineers and FRAs, within a wider framework of regulation for the building professions that ensures clarity and effective delineation of roles.

Excellent Career Opportunities

The government intends that this competence framework should provide an established and recognised career pathway with access to learning and progression that will attract new people, create a more diverse workforce and deliver career opportunities across the country. We consider this could include:

• the development of apprenticeships to provide a clear route into the FRA profession;
• a route for proficient existing workers, essential to ensuring that those who already work as FRAs (or in related professions) have a clear pathway to demonstrating their competence; and
• an effective, four nations approach which supports professionals to operate across the UK with minimal hindrance, and which looks to facilitate mutual recognition internationally.

Sector-Wide Coherence

As set out above (‘Professional and Institutional Reform’), fire risk assessment is just one component of a range of services provided by fire safety professionals. Regulating FRAs must sit coherently within the regulatory framework for wider professions and must recognise the ongoing relationship with other roles. This includes fire engineers and those who install protective fire safety measures as part of a broader regulated fire safety profession landscape. This consultation is a key step in understanding and managing those interactions and includes a number of questions that will help the government understand existing relationships and overlaps to inform future work.

 

Effective Regulation

We recognise that effective oversight will need to be underpinned by a properly empowered regulator. Our intent is that regulation of FRAs should sit within the new integrated regulatory system for the built environment, as set out in the Single Construction Regulator Prospectus, supported by primary legislation when parliamentary time allows. More information on proposals for oversight of the regulation of professions can be found in that Prospectus which was consulted on earlier this year.[18]

A Sustainable Workforce

We want to see sustainable capacity in the sector, so that there are always sufficient FRAs to undertake necessary assessments and a robust market for certified FRAs. To support this aim, this consultation asks questions about rollout approaches to support a smooth transition for the profession based on a clear understanding of present and future capacity requirements.

Future Delivery

We will seek to legislate when parliamentary time allows, to deliver the vision set out in this consultation, subject to the responses we receive and within the wider context for the regulation of professions. Subject to parliamentary approval, we will work closely with the regulator to ensure that appropriate secondary legislation is put in place and will collaborate with all affected parties as we develop the detail of plans for the future of the FRA profession.