You are correct, it's a shame that it's going over to the punishment only type of advice & enforcement instead of being pro active, the HSE model is full of examples of the failings of this system - punishment is all well & good but it of absolutely no use to the dead, injured or disabled worker whose demise led to the punishment.
And whilst H&S accidents normally involve just one person (there are exceptions), fire usually lead to multiple casualties, plus far greater indirect costs as an accident doesn't normally stop trading, whereas a fire can put everyone on the dole.
My comment on the private sector is related to the fact that I now do more preventative enforcement & advice visits than your average FRS person seems to yet am in the private sector, which seems not as it should be