Grey Book pay structure reform

The vision, aim and commitment of the Fire and Rescue Service National Employers.

What are we doing and why?

The National Joint Council for Local Authority Fire & Rescue Services is discussing reform of the pay structure for operational firefighters in the UK. This review is exploring questions around whether a new pay structure could better reflect the role of fire services today and in the future.   

The current pay structure within the Grey Book over 20 years old, it is a flat structure, with no spinal points or incremental progression. There is a lack of consistency about when and how employees reach ‘competence’ and a myriad of different locally agreed allowances. This discussion is exploring whether that’s the best way to recruit, retain and reward firefighters, particularly as the service responds to new and emerging risks.

As part of the pay agreement reached earlier this year, the National Employers set out their vision in relation to this project:

“The national pay and grading structure should reflect the demand and role of Fire and Rescue Services in 2025, that the Grey Book pay and grading structure should underscore firefighting as a highly skilled occupation, rewarding skills and knowledge (not simply time served in role), driving professionalised leadership and management at all levels.
The culture of Fire and Rescue services needs to sit at the centre of any discussions around reform, ensuring there can be no doubt about the sort of attitudes and behaviours that our sector expects in 2025 and beyond.”

(Source: NJC National Employers Pay Offer Letter 2025)

The shared principles, established via Joint Working Groups

Although we’re getting into some detailed discussions now, this work is not new, and forms part of an ongoing conversation around the NJC for the last few years.

Through joint working groups during 2023, the NJC established a shared understanding of the issues and subsequently agreed a number of high-level principles about what a modern pay structure within the Grey Book could look like and agreed the following broad principles which remain a good starting point for further discussion and development:

  • structuring around a principle of upskilling and developing in role
  • that development should be demonstratable over time
  • progression should be realistic and achievable
  • the system should be easy to understand and operate
  • delivering potential expansions to the role of a firefighter
  • applied across all services in the same way.

The working group also said that any new pay structure should:

  • be part of a package driving rewarding, fulfilling careers to firefighters (and all roles in the Grey Book)
  • underpin a nationally agreed and consistent system across all FRSs – that is transparent and justifiable.

Working with governments and stakeholders

The National Employers are working with all NJC stakeholders and partner organisations on this project, this includes all governments and devolved administrations across the UK, the National Fire Chiefs Council and partner organisations who are part of the Ministerial Advisory Group which is hosted by the Fire Minister, Samantha Dixon MP. 

There are numerous key questions we need to answer together as a sector. Perhaps the most important question is: what is the role of Fire and Rescue Services, now – and in the future, and how can the NJC support that?

The NJC sits in the middle of political leadership and governance, of operational leadership and direction, and of ministerial strategy and reform. 

The NJC doesn’t own all aspects of this (very wide) debate and this project has to be mindful of all sector stakeholders. Both sides of the NJC, the employers side and the employees side (represented by the Fire Brigades Union) have set out organisational commitment and vision in relation to this work. The challenge now is whether (working with all partners) we can agree what we mean by the word reform, modernise the pay structure, and underline the importance of the fire and rescue service, thus supporting the case for on-going and renewed investment into the sector. 

Research, consultation and feedback to aid discussion

The NJC launched a workforce survey over the summer of 2025, to gather an accurate set of data on workforce demographics and pay. 

In November the employers’ side secretariat ran a series of information and consultation sessions/round tables for ‘Chiefs and Chairs’ with two additional sessions for senior HR leaders. The purpose of these sessions is to update the sector on progress so far and to hear directly their views in relation to the current pay structure – what works well, what hinders progress and what they would like to see changed. You can view the slides used in those sessions and also read a summary of the feedback 

What next?

We will keep this page updated., We will also provide periodic updates to FRAs/FRSs through NJC circulars. The National Employers are happy to provide background, have discussions, explore ideas etc throughout this process.

So, if you’re interested and have a view, or want a discussion please reach out. We anticipate a more detailed consultation on any proposed changes should discussions get to that stage, which could be early or late Spring 2026, so please ensure your FRS is represented both operationally and politically at these events.

If you would like to contribute specific views or information or have any questions, please contact us at: [email protected]

Other resources

Highlighted pages

Circular NJC/1/26 - National Joint Council – Pay reform update

EMP circular 1/25 - Local Authority Fire and Rescue Services NJC “Grey Book” Pay Offer

Pay progression working group report to the NJC