Agenda Item No. 4 (2) (e)

South Council

Report by Executive Director - Economy, Neighbourhood and Environment to Leadership Panel of 28 May 2014

Subject: Review of Public Conveniences

1. Purpose

This report seeks approval for proposals for public conveniences in which complements and improves upon existing publicly and privately provided conveniences and ultimately assists the development of a more effective and efficient service.

2. Recommendation

It is recommended that the Panel:

a) Approves the introduction of charging for the use of public conveniences and the inclusion of charging mechanisms (paddlegates) in the proposals 2b-2f below. b) Approves the refurbishment proposals for the Pavilion, Blackburn and Arthur Street facilities in at an estimated total cost of £872,000 c) Approves the development of new facilities at Seafront at an estimated cost of £86,000. d) Approves the demolition of the closed toilets at and the development of new facilities incorporating 3 direct access WC’s at an estimated cost of £66,000 e) Approves the construction of permanent public conveniences at Harbour, at a location to be confirmed, and at a cost of up to £90,000 f) Approves the installation of paddlegates to allow charging at The Flushes Girvan, Ainslie Park Girvan, Links Road , Church Street , St Meddans Troon at an estimated cost of £150,000. g) Funding for proposals (b) to (f) above to be funded 50% from Repairs and Renewals and 50% from Capital Expenditure provision for 15-16. h) Approves the increase in revenue costs resulting from increased opening hours and associated labour costs, across all facilities, at an additional cost of £171,000 to be funded from charge income i) Confirms the withdrawal of comfort scheme facilities in Girvan and with the funds released being put towards extended opening hours at other facilities.

3. Background

3.1 The provision and maintenance of toilets in public places is a discretionary function of local authorities who have the power under Section 87 of the Public Health Act 1936 to provide public conveniences. There is no statutory duty for local authorities to provide public conveniences.

3.2 In April 2005, Council considered all 39 public convenience facilities which were operational at that time. The closure of 25 was approved, and they were demolished, mothballed or sold and the remaining 14 were retained as current live operational facilities. An additional, automated facility was added following this review and is on a long term lease at Boydfield Gardens, Prestwick.

3.3 The Council‟s traditional stand-alone public toilets are no longer the sole facilities available for public use. Shopping Centres, supermarkets and others increasingly provide toilets for the public. Public expectations of what should be provided have also altered; for example, people now expect baby-changing facilities and the law requires disabled provision where practical.

3.4 The Leadership Panel, the Corporate and Community Planning Standing Scrutiny Panel and full Council considered a report Review Of Public Conveniences at their meetings of 5 November and 3 December 2013; 14 November 2013 and 19 December 2013 respectively.

3.5 The Council decision of 19 December was:

I. to approve the proposals contained within paragraph 6.1 of the report to the Leadership Panel on 5th November 2013 for a number of the existing public conveniences1 in South Ayrshire with the exception of:-

a. the recommendations to introduce charging for the use of public conveniences and to set the charge for use of facilities at 30p; and

b. the recommendation to allocate £210,000 from the repairs and renewals fund for the installation of paddle gates at 8 facilities;

II. to approve the development of schemes for current and potential additional facilities listed in paragraph 6.22 of the joint report, and request that Officers bring firm proposals to Leadership Panel for approval in Spring 2014;

III. to approve the installation of footfall counters in the existing public conveniences in order to provide exact visitor numbers, noting that the costs of these would be met from within existing budget; and

IV. to request Officers to report back to Leadership Panel in Autumn 2014 with a business case setting out options for charging at public conveniences noting that the business case should include consideration of levels of charges and costs of collection in relation to usage levels at different facilities

3.6 The current paper fulfils the commitment to return to Leadership Panel in Spring 2014 with firm proposals for facilities at The Pavilion, Blackburn, Arthur Street, Ayr; the Harbour Girvan and consideration of additional facilities at the Low Green, Barassie shorefront and Maybole.

3.7 This paper brings forward charging proposals now rather than waiting until a full summer season has passed. A decision on charging is relevant to proposals for refurbishment because if Council approves the principle of charging then paddlegate facilities to collect monies should be incorporated into the refurbishment proposals. The data so far from the footfall counters3 is sufficient to set out a business case regarding where charging should be introduced.

3.8 The paper approved by Council on 19 December 2013 required consultation with communities regarding withdrawal of current comfort schemes in Girvan and in Colmonell and proposed permanent closure of facilities in Maybole. Based on footfall information, there was also consultation regarding provision in . In addition, there was consultation regarding location and scale of facilities at the Harbour in Girvan. Consultation took the form of meeting with community councils in Girvan, Maybole and Ballantrae. A written request for views went to

1 , Ballantrae, The Flushes Girvan, Ainslie Park Girvan, Links Road Prestwick, Church Street Troon, St Meddans Troon and Barr

2 The Harbour Girvan, The Pavilion Ayr, Blackburn Drive Ayr, Arthur Street Ayr and Barassie Shorefront

3 This includes numbers of people using gents‟ and ladies‟ facilities and timing of visits. The footfall counters were installed at the end of January and are in place currently in all Council run public conveniences. The data used in this paper refer to the period end Jan to end April. the Community Council in Colmonell but no response has been received to date.

3.9 Consultation with communities covered comfort schemes, “traditional” public conveniences and also Automatic Public Conveniences (similar to that in Boydfield Gardens in Prestwick) and Semi-Automatic Direct Access toilets, which are cubicles that can be entered directly on payment of a charge, but which are not self-cleaning.

3.10 Discussion at Corporate and Community Planning Scrutiny Panel included consideration of level of charges, arrangements for handling cash, the importance of public conveniences to tourism, the requirement for quality facilities, longer opening hours and having staff present on site.

3.11 The proposals below include consideration of:

“direct access toilets”. These are individual cubicles which the customer enters from the street. The door is released on the payment of the charge.The charging mechanism is contained securely within the door. The design of these toilets can fit well into a variety of surroundings. Labour costs for these toilets are based on cleaning and resupply every day; but there are savings in labour compared to traditional toilet blocks because the facilities do not need to be opened and closed each day. Direct access toilets are available for public use 24 hours a day, but can be locked closed overnight if there is a risk of misuse. “Paddlegates”. These are turnstile entrances that allow access on payment of the appropriate charge. The charge can be altered by the Council at any time. The cash boxes are secure and are resistant to vandalism. Paddlegates are required at each traditional facility, and at both ladies‟ and gents‟ entrances. They are not needed for direct access toilets as these are operated via charging mechanism contained securely within the door.

3.12 Footfall counters were installed at the end of January 2014. The data noted in Appendix 1, which has information on detailed options considered for each site, is based on figures between end January and end April 2014, except for the temporary facilities at the Harbour, Girvan where the counters were installed in the 4th week of March. The footfall data includes number of customers using gents‟ facilities and those using ladies‟ facilities. The data show peak and average levels of usage. The figures have been used as the basis for estimating annual income levels, by calculating the weekly averages for February, March and April and multiplying those by 52 weeks. These months had reasonably good weather despite them being late winter and spring months and the holiday weekend in April was particularly warm. So they give a reasonable basis on which to estimate annual usage figures. The average for the Harbour in Girvan is calculated on data from 24 March to 18 May which is likely to overestimate annual usage.

4. Proposals

4.1 Charging

(a) Footfall counters were installed at Public Conveniences in order that the levels of usage could determined. Income estimates in Appendix 1 assume that the levels averaged from February to April of this year given a broad indication of potential usage throughout the average year and introducing charges does not lead to a reduction in level of usage.

(b) For some facilities, it is expected that the income could be higher than anticipated above due to increase in usage during peak times.

(c) Based on the information reported in Appendix 1, it is proposed to introduce charging at all facilities except Ballantrae, and Dunure where the very low levels of usage will not generate enough income to make the installation of paddlegates worthwhile.

(d) Initial charges are proposed to be 30p for staffed facilities and 20p for non-staffed, direct access WCs. This would result in an estimated income of £251,000. Charges elsewhere, for comparison are: - 30p, Fife - 30p, Dundee - 30p, Perth - 30p, – 20p, Borders - no charge, – 20p for automated facilities, and – 20p for automated facilities.

(e) Charges can be collected in a variety of ways, the most secure of which for both staff and cash is paddlegates. Paddlegates are robust and less prone to problems than turnstiles, and they also have a high level of acceptability and comprehension from the public. Paddlegates are now manufactured specifically designed for public toilets, with high capacity coin bags, changeable charges and RFID entry 4 which all help with the management of the business

(f) The daily/weekly uplift of the cash has been taken into consideration in costings and we have allowed for weekly uplifts during October to March, daily uplifts between April to June, twice daily uplifts between July and August and daily uplifts in September. The cost per uplift will be approximately £10.00. For security purposes, it is recommended that an external provider be contracted for the purpose of uplifting and banking of monies.

4.2 Proposals for Individual Facilities

(a) Details of usage levels, options considered, community council views and any other relevant information at each site is included in Appendix 2. The Pavilion, Ayr - It is proposed that Council approve the refurbishment and redesign of the existing facilities to increase provision from 16 WCs to 25 WCs within the existing footprint. Cost of the recommended option is estimated at £439,000.

(b) Blackburn Drive, Ayr – It is proposed that Council approve the refurbishment of the existing facilities at an estimated cost of £264,000.

(c) Arthur Street, Ayr – It is proposed that Council approve the refurbishment of the existing conveniences at a total estimated cost of £163,000.

(d) Maybole - It is proposed that Council approve demolition of the existing building and replace it with a new purpose built convenience block housing 3 direct access WC‟s containing an accessible/baby change facility, one female WC and one male WC at a total estimated cost of £66,000.

(e) Girvan, The Harbour – It is proposed that (1) the Comfort Scheme currently in place is withdrawn and (2) that funding for WCs in the Harbour area is approved at a location to be determined and at a cost not exceeding £90,000. The preferred location is attached to the south side of the proposed Harbour Master‟s accommodation which will be the subject of a future paper to Panel.

(f) Colmonell – It is proposed that Council approve the withdrawal of the comfort scheme in operation at Colmonell.

(g) Ballantrae – It is proposed that the Council proceed with already approved refurbishment proposals for the WCs and open discussions with the Community Council about the potential to transfer the facility to the community.

(h) Maidens – The position at Maidens is that capital works approved for Maidens continue to be held, as was reported to Council in 2013, pending outcome of marketing of the facilities.

(i) Dunure - An allocation of Capital funding of £70,000 was approved for the refurbishment of the facilities at Dunure. Instruction of the refurbishment work is imminent.

4 radio frequency identification devices (RFID) which allow freedom of access by convenience attendants

(j) Barassie shore – It is proposed that Council approve the development of new facilities at Barassie shorefront which would introduce a facility designed for watersports users including 5 direct access WCs and provision of external showers and footbath, at a total estimated cost of £86,000. Council closed provision in the area some time ago and the property has since been sold. Since the closure, watersports activity at the beach has developed significantly and the Tourism Strategy has been approved and identifies watersports as a key growth area for visitors. The survey results reported to Council in 2013 highlighted that provision was required there.

(k) Facilities at The Flushes Girvan, Ainslie Park Girvan, Links Road Prestwick, Church Street Troon and St Meddans Troon – it is proposed that Council approve the installation of paddlegates at these locations at an estimated total cost of £150,000 covering building alterations, purchase and installation of paddlegates. There are no further physical changes proposed for these facilities beyond the previously approved introduction of baby change units.

(l) Alterations to opening hours are proposed at a number of facilities. These changes are to increase hours and to increase the time staff are present on site. Details are given in Appendix 1. The total proposed revenue costs resulting from these proposals is £432,000, an increase of £171,000 on current revenue costs of £261,000.

5. Resource Implications

5.1 Financial

The existing annual budget for public conveniences noted in Appendix 1 is approximately £261,000 for labour, supplies and property costs. An additional annual budget of £28,000 also exists to fund the supply and maintenance of an automated public convenience at Boydfield Gardens, Prestwick, under an existing contract which expires in 2019.

The proposal to increase opening hours and labour hours at facilities will require an increase in the annual budget available. It is anticipated that revenue costs (labour, supplies and property) to accommodate longer hours will increase from the current £261,000 to approximately £432,000, an increase of £171,000.

The introduction of charges provides for better facilities and should also reduce the net revenue costs of running the service. Forecast income based on the usage levels noted in Appendix 1 is £252,000, an excess of £82,000 over the anticipated £171,000 additional revenue costs arising from additional staffing. It is proposed that the full balance of income over these additional revenue costs would go to the Repairs and Renewal Fund. If for any reason the income does not cover the additional costs, then charging and staffing levels would be reviewed.

The refurbishment and new build works proposed are expected to cost in the region of £1.1million. The cost of the works incorporates the introduction of paddlegates which will allow charging. The cost of installing paddlegates into facilities at The Flushes, Ainslie Park, Church Street, St Meddans and Links Road is estimated at £0.15million. It is proposed to fund these works totalling £1.25million from the Repairs and Renewals Fund and from the Capital Programme allocation for 15-16, from budget lines for “New Projects yet to be identified” and “Property Refurbishment”.

If funding is approved, it is anticipated the works will take place during 2015 and 2016. Refurbishment of beach facilities would take place during low season months.

5.2 Legal

There is no statutory obligation to provide public toilets.

5.3 Human Resources

The proposals will have implications for employees working within Public Conveniences where increased hours (Girvan, Prestwick, Troon & Ayr) are suggested. The additional hours required will also create employment opportunities. Should the increase in hours be agreed, the FTE will increase from 7.58 to 13.91, an increase of 6.33 FTE.

All employees will be fully consulted about their future, as will the appropriate Trade Unions.

Should Council proceed with the creation of new purpose built facilities in Maybole and Barassie, this will also create employment opportunities in these areas.

6. Risk

6.1 Risk Implications of adopting the recommendations

Council will be open to criticism and complaints due to the introduction of charging. Potential for usage numbers to drop due to charging being introduced, therefore generating less income Potential for actual refurbishment costs to exceed estimates. This will be managed via capital management programme.

6.2 Risk Implications of not adopting the recommendations

Council open to criticism and complaints around the standard and conditions of our public conveniences.

7. Equalities

7.1 The Public Convenience review will have an impact on communities and groups and therefore an EqIA was carried out and included in the report to Council in 2013.

8. Sustainable Development Implications

8.1 This report does not propose or seek approval for a plan, policy, programme or strategy or document otherwise described which could constitute a plan, programme, policy or strategy.

9. Link to Council’s Priorities / Improvement Programme

This report is focused on ensuring South Ayrshire Council continues to provide well maintained Public Conveniences and links to the following outcomes in the Council Plan 2014 -2017:

Ensuring that our Assets are fit for purpose Tourism, culture and heritage opportunities are developed and promoted A range of sport and leisure experiences can be accessed

10. Results of Consultation

(1) Public Consultation was carried out previously by means of a questionnaire through „Survey Monkey‟ and responses were covered in previous report in 2013. Girvan, Maybole, Colmonell and Ballantrae Community Councils along with the Portfolio Holders for Environment, Sustainability and for Policy, Performance and Resources were also consulted. All elected members were consulted on proposals. Responses from Community Councils are noted in Appendix 2. Responses received from elected members informed the consideration of the recommendations above.

Background Papers Report to Council Commercial and Business Services Committee on 6th April, 2005.

Report to Leadership Panel on 5th November, 2013 http://ww20.south- ayrshire.gov.uk/ext/committee/CommitteePapers2013/Leadershi p%20Panel/5%20November/LPAgenda5Nov13.pdf

Report to Corporate & Community Standing Scrutiny Panel on 14th November, 2013 (Call-in Item) http://ww20.south- ayrshire.gov.uk/ext/committee/CommitteePapers2013/Corporat e%20and%20Community%20Planning/14th%20Nov/CANDCP1 41113.pdf

Report to Leadership Panel on 3rd December, 2013 http://ww20.south- ayrshire.gov.uk/ext/committee/CommitteePapers2013/Leadershi p%20Panel/3%20December/LPAgenda03dec13.pdf

Report to Council on 19th December, 2013 http://ww20.south- ayrshire.gov.uk/ext/committee/CommitteePapers2013/South%2 0Ayrshire%20Council/19DecEilidhWirecopy.pdf

Person to Contact: Lesley Bloomer Executive Director – Economy, Neighbourhood & Environment County Buildings, Wellington Square, Ayr Tel: 01292 612182 E-mail – [email protected]

Jennifer Rodden Facilities Manager Burns House Ayr Tel: 01292 616045 [email protected]

Date: 20th May 2014

APPENDIX 1

Current and Proposed Opening Hours and Costs and Estimated Charging Income