Introduction — Why Fire Safety Matters in Residential Care

Fire safety in nursing homes is not simply a regulatory obligation — it is a fundamental duty of care. Residential care settings house some of the most vulnerable members of our society, including elderly residents with reduced mobility, cognitive impairment, and complex medical needs. A fire in such an environment can have catastrophic consequences if proper safeguards are not in place.

In Ireland, nursing home fire safety is governed by a robust legislative framework, with the Health Information and Quality Authority (HIQA) playing a central role in ensuring that registered designated centres maintain adequate fire precautions. HIQA inspectors regularly assess compliance with fire safety standards, and deficiencies in this area remain among the most frequently cited findings during inspections.

This comprehensive guide examines every aspect of fire safety in Irish nursing homes. Whether you are a registered provider, person in charge, or a member of a nursing home management team, this article will help you understand your obligations and implement best practice across your facility.

The Unique Fire Safety Challenges in Nursing Homes

Nursing homes present fire safety challenges that are fundamentally different from those found in offices, retail premises, or even hospitals. Understanding these challenges is the first step towards developing an effective fire safety management system.

Resident Dependency and Mobility

The single greatest challenge in nursing home fire safety is the dependency level of residents. Many residents are unable to self-evacuate due to physical frailty, wheelchair dependence, or conditions such as dementia that impair their ability to recognise danger and respond appropriately. Some residents may be bedbound, requiring mechanical aids and multiple staff members to move them safely.

Unlike an office building where a simultaneous evacuation can be completed in minutes, evacuating a nursing home is a protracted process that demands careful planning, adequate staffing, and specialist evacuation equipment.

Night-Time Staffing Levels

Statistically, fires that result in fatalities in care settings are more likely to occur during night-time hours when staffing levels are at their lowest. A nursing home that may have twenty or more staff members during the day could operate with as few as two or three care assistants and one nurse overnight. The fire safety strategy must account for this reduced capacity and ensure that night staff can manage an emergency effectively.

Building Age and Design

Many nursing homes in Ireland are housed in older buildings that were not originally designed for residential care. These buildings may have been converted from domestic dwellings, period houses, or other commercial premises. Older structures can present challenges including inadequate compartmentation, narrow corridors, steps or level changes, combustible construction materials, and limited means of escape.

Electrical and Medical Equipment

Nursing homes contain a significant amount of electrical and medical equipment, including profiling beds, hoists, oxygen concentrators, suction machines, and pressure-relieving mattresses. Oxygen-enriched environments present a heightened fire risk, and the use of emollients and barrier creams can increase the flammability of bedding and clothing. Robust risk assessment procedures must address these specific hazards.

HIQA Regulation 28 Requirements

Regulation 28 of the Health Act 2007 (Care and Welfare of Residents in Designated Centres for Older People) Regulations 2013 is the primary regulation governing fire precautions in Irish nursing homes. It requires the registered provider to ensure that effective fire safety management systems are in place.

Under Regulation 28, the registered provider must ensure, by means of fire safety management and target fire safety checks, that:

Adequate arrangements are in place for detecting, containing, and extinguishing fires
Adequate arrangements are in place for giving warning of fires
Adequate arrangements are in place for the evacuation of all persons in the event of fire
Adequate arrangements are in place for the safe placement and maintenance of equipment including oxygen
Adequate fire equipment is provided and maintained
Suitable fire safety training is provided to all staff on a regular basis
A suitable premises-specific emergency plan is in place and is adequately rehearsed
Adequate precautions are taken against the risk of fire, having regard to the number and dependency levels of residents

HIQA assesses compliance with Regulation 28 during both announced and unannounced inspections. A finding of non-compliance in this area is treated seriously and can result in regulatory action, including conditions being attached to the registration of the centre or, in severe cases, cancellation of registration.

Fire Safety Management in Nursing Homes

Effective fire safety management in a nursing home requires a systematic and documented approach. It is not sufficient to simply have fire extinguishers on the wall and a fire alarm panel in the reception area. The management system must be proactive, regularly reviewed, and embedded in the daily operations of the facility.

Fire Safety Policy

Every nursing home should have a written fire safety policy that is signed by the registered provider and person in charge. This policy should set out the organisation's commitment to fire safety, define roles and responsibilities, and reference the specific procedures that support it. The policy must be reviewed at least annually and updated whenever there are significant changes to the premises, staffing, or resident profile.

Fire Risk Assessment

A suitable and sufficient fire risk assessment is the cornerstone of any fire safety management system. In Irish nursing homes, the fire risk assessment should be carried out by a competent person and should follow a recognised methodology such as PAS 79-1:2020 (Fire Risk Assessment — Premises Providing Sleeping Accommodation). The assessment must identify fire hazards, evaluate the risk to residents and staff, and recommend control measures to reduce risk to an acceptable level.

The fire risk assessment should be reviewed at least annually or whenever there is a material change, such as building works, a change in resident dependency levels, or following a fire-related incident. It is not a document that should sit on a shelf — it must be a living document that drives ongoing improvements.

Fire Safety Documentation and Record-Keeping

HIQA inspectors will expect to see comprehensive fire safety records during an inspection. At a minimum, the following records should be maintained and readily available:

Fire risk assessment and action plan
Fire alarm and emergency lighting test records (weekly, monthly, quarterly, and annual)
Fire extinguisher and fire blanket service records
Fire door inspection and maintenance records
Fire drill records, including outcomes and lessons learned
Staff fire safety training records
Personal Emergency Evacuation Plans (PEEPs) for all residents
Daily, weekly, and monthly fire safety check records

Evacuation Planning and Strategy

Evacuation planning is arguably the most critical component of fire safety management in a nursing home. The evacuation strategy must be realistic, achievable with the available staffing levels, and regularly practised through fire drills.

Progressive Horizontal Evacuation

The standard evacuation strategy for nursing homes in Ireland is progressive horizontal evacuation. Rather than attempting to evacuate the entire building immediately, this approach involves moving residents laterally from the fire compartment into an adjacent fire compartment on the same floor level. This is achieved through fire-resistant compartment walls and fire doors that provide a minimum period of fire resistance (typically 30 or 60 minutes).

Progressive horizontal evacuation is the preferred strategy because it minimises the distance residents need to be moved, avoids the use of staircases with dependent residents, and allows a phased approach that is manageable with reduced staffing levels. However, it requires that the building is properly compartmentalised and that fire doors are maintained in good working order.

Personal Emergency Evacuation Plans (PEEPs)

Every resident in a nursing home must have a Personal Emergency Evacuation Plan (PEEP). This document records the individual's mobility level, cognitive status, sensory impairments, and the specific evacuation method and equipment required to move them to safety. PEEPs must be reviewed regularly — at a minimum every three months — and updated whenever there is a change in a resident's condition.

Resident Dependency Categories

Residents are typically categorised based on their evacuation dependency level. Common categories include:

Independent — Residents who can self-evacuate with minimal or no assistance
Guided — Residents who need verbal prompting or light physical guidance to evacuate
Assisted — Residents who require the assistance of one staff member and possibly a wheelchair or walking aid
Dependent — Residents who are unable to evacuate without the use of specialist evacuation equipment such as ski sheets, evacuation mats, or evacuation chairs

The evacuation strategy must account for the number of residents in each dependency category within every fire compartment, particularly during night-time hours when staffing is reduced.

Staff Training Requirements

Staff training is one of the most important elements of fire safety in nursing homes. Even the most sophisticated fire detection and alarm systems are of limited value if staff do not know how to respond when an alarm activates. HIQA expects all staff to receive fire safety training at induction and at regular intervals thereafter.

Fire Awareness Training

All staff members, regardless of their role, should receive basic fire awareness training. This should cover the causes of fire, fire prevention measures, how to raise the alarm, the location and use of fire-fighting equipment, the evacuation procedure for the specific premises, and the actions to take upon hearing the fire alarm. Fire awareness training should be refreshed at least annually.

Evacuation Equipment Training

In addition to fire awareness training, staff in nursing homes require practical, hands-on training in the use of evacuation equipment. This includes ski sheets, evacuation mats, evacuation chairs, and any other specialist equipment held on the premises. Staff must be competent and confident in using this equipment under realistic conditions, including during simulated night-time scenarios.

Fire Drills

Fire drills are essential for testing the effectiveness of the evacuation plan and the competence of staff. HIQA expects fire drills to be carried out at regular intervals, including simulated night-time drills with reduced staffing levels. Each fire drill should be documented, recording the date, time, scenario, number of staff involved, time taken to evacuate the compartment, and any issues identified. An action plan should be developed to address any deficiencies observed during the drill.

Fire drills should test different scenarios, including fires originating in different compartments, fires during night-time hours, and situations where primary escape routes are blocked. The goal is to ensure that staff are prepared for any eventuality and can respond calmly and effectively under pressure.

Fire Safety Systems and Equipment

A nursing home's passive and active fire safety systems form the backbone of its fire protection strategy. These systems must be correctly specified, professionally installed, and regularly maintained in accordance with the relevant Irish and European standards.

Fire Detection and Alarm Systems

Nursing homes require an L1 category fire detection and alarm system as defined in IS 3218:2013+A1:2019 (Fire Detection and Fire Alarm Systems for Buildings — System Design, Installation, Servicing and Maintenance). An L1 system provides the highest level of protection for life safety, with automatic fire detectors installed throughout all areas of the building, including roof voids and cupboards. The system must be maintained and serviced in accordance with IS 3218, with weekly testing, quarterly inspections, and annual servicing by a competent fire alarm engineer.

Emergency Lighting

Emergency lighting must be installed in accordance with IS 3217:2013 (Emergency Lighting). It must illuminate all escape routes, exit doors, changes of direction, intersections, stairways, and final exits to ensure that residents and staff can evacuate safely in the event of a power failure. Emergency lighting requires monthly functional testing and an annual full-duration discharge test.

Fire Doors and Compartmentation

Fire doors are a critical element of the progressive horizontal evacuation strategy. They contain the spread of fire and smoke, providing protected zones into which residents can be moved. Fire doors must be self-closing, appropriately rated (typically FD30S or FD60S), fitted with intumescent strips and cold smoke seals, and maintained in good condition. Doors held open for operational convenience must be fitted with electromagnetic hold-open devices connected to the fire alarm system so that they release automatically upon alarm activation.

Regular fire door inspections should be carried out to check for damage, gaps, missing or damaged intumescent strips, defective self-closing mechanisms, and any obstructions preventing doors from closing fully. A programme of fire door maintenance should be documented and kept up to date.

Fire Extinguishers and Fire Blankets

Portable fire extinguishers and fire blankets should be provided throughout the nursing home in accordance with IS EN 3 (Portable Fire Extinguishers) and relevant guidance. Extinguishers must be serviced annually by a competent person and subject to an extended service at the intervals specified by the manufacturer. Staff should know the location of the nearest extinguisher and be trained in its safe use, though it must be emphasised that tackling a fire should only be attempted if it is safe to do so and after the alarm has been raised.

Common HIQA Fire Safety Findings

An analysis of HIQA inspection reports reveals a number of recurring fire safety deficiencies in Irish nursing homes. Being aware of these common findings can help providers take proactive steps to address potential issues before they are identified during an inspection.

The most frequently cited findings include:

Fire doors propped open or not closing fully due to damaged self-closing devices
Gaps around fire doors compromising smoke and fire resistance
Inadequate compartmentation, particularly in older buildings or where building works have been carried out
Incomplete or missing Personal Emergency Evacuation Plans (PEEPs) for residents
Insufficient fire drill frequency or failure to simulate night-time conditions
Gaps in staff fire safety training records
Obstructed escape routes or locked fire exits
Fire risk assessment not reviewed or updated following changes to the premises or resident profile
Inadequate storage of combustible materials, oxygen cylinders, or hazardous substances
Missing or incomplete fire safety records and maintenance logs

Addressing these common issues proactively demonstrates a commitment to fire safety and helps ensure a positive outcome during HIQA inspections.

Legislative Framework for Nursing Home Fire Safety in Ireland

Fire safety in Irish nursing homes is governed by several overlapping pieces of legislation and regulatory requirements. Understanding this legislative framework is essential for registered providers and persons in charge.

HIQA Regulation 28 — Fire Precautions

As discussed above, Regulation 28 of the Health Act 2007 (Care and Welfare of Residents in Designated Centres for Older People) Regulations 2013 is the primary regulatory instrument governing fire precautions in nursing homes. It places specific duties on the registered provider to ensure effective fire safety management.

Fire Services Acts 1981 and 2003

The Fire Services Acts 1981 and 2003 impose a general duty on persons having control over premises to take all reasonable measures to guard against the outbreak of fire and to ensure the safety of persons in the event of fire. The Acts empower fire authorities to inspect premises and issue fire safety notices or closure notices where serious deficiencies are identified. Nursing homes, as buildings used for the provision of sleeping accommodation, fall within the scope of these Acts.

Safety, Health and Welfare at Work Act 2005

The Safety, Health and Welfare at Work Act 2005 requires employers to ensure, so far as is reasonably practicable, the safety, health, and welfare of their employees. This includes the provision of emergency plans and procedures, adequate means of escape, and appropriate training. The Act also requires employers to carry out risk assessments, which should include fire risk.

Technical Guidance Document B — Fire Safety (2024)

Technical Guidance Document B (TGD B) provides guidance on compliance with Part B (Fire Safety) of the Building Regulations. The 2024 edition of TGD B sets out the minimum fire safety standards for the design and construction of buildings, including requirements for means of escape, fire resistance of structural elements, compartmentation, fire detection and alarm systems, and access for the fire brigade. While TGD B applies primarily to new buildings and material alterations, its principles inform the fire safety standards expected in existing nursing homes.

Health Act 2007 (Care and Welfare of Residents) Regulations

Beyond Regulation 28, the broader Health Act 2007 (Care and Welfare of Residents in Designated Centres for Older People) Regulations 2013 contain several other provisions that are relevant to fire safety, including requirements for governance and management (Regulation 23), premises standards (Regulation 17), risk management (Regulation 26), and the statement of purpose (Regulation 3). A holistic approach to compliance across all of these regulations will support better fire safety outcomes.

Frequently Asked Questions

How often should fire drills be carried out in a nursing home?

Fire drills should be carried out at regular intervals throughout the year. Best practice is to conduct drills at least quarterly, with at least one simulated night-time drill per year using reduced staffing levels. Each drill should be documented and followed up with an action plan to address any issues.

What is progressive horizontal evacuation?

Progressive horizontal evacuation is a strategy in which residents are moved laterally from the fire compartment into an adjacent protected compartment on the same floor, rather than attempting a full vertical or building-wide evacuation. This approach is safer and more practical for nursing homes due to the dependency levels of residents.

What is a PEEP and who needs one?

A Personal Emergency Evacuation Plan (PEEP) is an individual plan that records a resident's specific evacuation needs, including their mobility level, the equipment required to evacuate them, and the number of staff needed. Every resident in a nursing home should have a PEEP, and it must be reviewed regularly and updated when the resident's condition changes.

How often should the fire risk assessment be reviewed?

The fire risk assessment should be reviewed at least annually. It should also be reviewed following any significant change, such as building alterations, a change in the number or dependency levels of residents, a fire-related incident, or changes identified during HIQA inspections.

What fire detection system is required in a nursing home?

Nursing homes require an L1 category fire detection and alarm system in accordance with IS 3218. This is the highest category of life safety protection and requires automatic fire detectors in all areas of the building, including roof voids, cupboards, and other concealed spaces.

What should I do if HIQA identifies a fire safety non-compliance?

If HIQA identifies a non-compliance with Regulation 28, you should address the finding as a matter of urgency. Develop a detailed action plan with specific timelines for rectifying each deficiency. Engage competent fire safety professionals where necessary, particularly for issues relating to compartmentation, fire detection systems, or structural fire protection. Document all actions taken and retain evidence of compliance.

Can staff use fire extinguishers to tackle a fire in a nursing home?

Staff may attempt to extinguish a small fire using portable fire extinguishers, but only if it is safe to do so, the fire alarm has been raised, and they have received appropriate training. The safety of residents and staff must always be the first priority. If there is any doubt, staff should evacuate the area immediately and wait for the fire brigade.

How can Phoenix STS help with nursing home fire safety?

Phoenix STS provides a comprehensive range of fire safety services for nursing homes across Ireland, including PAS 79-1 fire risk assessments, evacuation planning, staff fire safety training, fire drill facilitation, and HIQA compliance consultancy. Our experienced team understands the unique challenges of residential care settings and can help you achieve and maintain full compliance with Regulation 28.

Enquire Now

If you are a nursing home provider seeking expert guidance on fire safety compliance, Phoenix STS can help. Our team of fire safety consultants specialises in residential care settings and can assist you with fire risk assessments, evacuation planning, staff training, and HIQA inspection preparation.

Contact us today to discuss your requirements:

Phone: 043 334 9611
Online: Enquire via our contact page

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Disclaimer

The information contained in this article is provided for general guidance purposes only and does not constitute professional fire safety advice. While every effort has been made to ensure accuracy, fire safety requirements may vary depending on the specific circumstances of individual premises. Readers are advised to consult a competent fire safety professional for advice tailored to their particular situation. Phoenix STS accepts no liability for any loss or damage arising from reliance on the information provided in this article.

Fire Safety in Nursing Homes — A Comprehensive Guide for Irish Care Providers