20 July 2005 SUBJECT: PUBLIC CONVENIENCE REVIEW BY: Executive Members for Environment and Community Development and the Head of Environmental Services

Agenda Item

TO: Executive DATE: 20 July 2005 SUBJECT: PUBLIC CONVENIENCE REVIEW BY: Executive Members for Environment and Community Development and the Head of Environmental Services. Classification: Unrestricted Summary: This report advises members of progress with the ongoing review of the Council Public Convenience service and sets out the priorities for future action identified by the Contract Review Working Group. Implications: The potential savings on existing budget depend on the option chosen e.g. for each unattended facility closed there will be a revenue saving of £5565. Manual opening/closing of the facility in Milton High Street will cost circa £5,000 per annum, this cost could be taken from the contract cost reduction. In addition it is recommended that a dedicated maintenance budget be established to maintain the standard of the retained facilities. Decision The following recommendations are made for consideration by Required: Executive:

(a) It is recommended that the facilities currently closed at The Mount and Love Lane Cemetery in Faversham remain closed and that the public reaction to this is monitored over a 6- month period and reported back to Executive. (b) It is recommended that the toilets at High Street, Newington, Church Road, Eastchurch and Rushenden Road, Queenborough be closed on a trial basis, following consultation with parish councils, and that the public reaction to this is monitored over a 6 month period and reported back to Executive. However, should it become apparent at an early stage that this is causing difficulties that officers be able re- open a facility after consultation and agreement with the Executive Member for Environment. (c) It is recommended that the Milton Regis facility be refurbished and then manually opened/locked with regular warden patrols to monitor and investigate the suspected anti- social behaviour occurrences. (d) It is recommended that the King Georges Playing Fields toilets remain under SBC control. (e) It is recommended that the Oare Gunpowder works toilet be retained within the contract. (f) It is recommended that notice be given to JC Decaux of the intention to terminate the automated public convenience at Minster, and that the other 2 automated public conveniences be

- 1 - closely monitored with the intention of terminating these contracts unless increased usage is apparent in the interim period. (g) It is also recommended that relocation of an automated public convenience to a suitable site in Milton Regis be investigated in order that the existing Milton Regis library facility can be closed. (h) Finally that where recommendations result in expenditure savings that a suitable sum be set aside for specific continued maintenance of public conveniences and that full responsibility for all maintenance and cleaning be delegated to Cleansing Services, who will have access to in-house expert building maintenance advice at all times.

Introduction/Background

1. The provision and maintenance of toilets in public places is at the discretion of local authorities who have a power, but not a duty, to provide public conveniences under section 87 of the Public Health Act 1936. Robert Long Consultancy Limited has been engaged to provide consultancy support in relation to its contracts for waste management services and grounds maintenance. Robert Long is now part of White Young Green (WYG). They have undertaken a review of the public convenience service and reported this to the Council’s contract review working group in May.

Main Report

2. The Waste Management contract commenced on 1st April 2005 and expires on 17th December 2006. The Public Conveniences Service forms an element of this contract. In preparation for the next contract, and as part of the Community Welfare Best Value action plan WYG have undertaken a review of the service. This review included the following elements

• Should the facilities, individually or collectively, continue to be provided? • If a facility should be provided is the current detail, specification and standard appropriate or are changes recommended? • Who should be responsible for managing and/or providing the facility.

3. The review included site visits and interviews with members of the public, Council Members and officers.

Current Service Level

4. The Waste Management Services Contract covers the cleaning of the public conveniences, including the provision of attendants where appropriate. Public Convenience facilities are made up as follows;

• Five attended facilities (one at Faversham, two at Sittingbourne, two at Sheerness @ £31,539.66 per annum each.

- 2 - • One attended facility on a seasonal basis (The Grove, Leysdown beach, Isle of Sheppey) @ £17,212.31 per annum. + £30,795.43

• 14 unattended facilities at Boughton (1), Faversham (4), Milton Regis (1), Newington (1), Queenborough (2), and other locations on the Isle of Sheppey (5) @ £5,565.07 per annum each.

5. In addition 3 automated public conveniences are provided at Teynham, Minster and Sheerness. These are provided through contract with JC Decaux Limited at a total cost of £49,890. Users of these facilities are charged 10p and contracts run to 2007 and 2009. Notification for any termination of the contract must be given at least 18 months prior to the contract end.

6. WYG has advised that the public convenience contract does not reflect the service as actually delivered, and the differences are significant in that two unattended facilities, the Mount at Faversham and Faversham Cemetery were not open, and Oare Gunpowder Works, Faversham will only be open for 20 weeks of the year during the high season from May till September. The contract had been tendered on the basis of these facilities being open all year and has now been varied to reflect these variances. In addition the unattended facility at Barton’s Point, opens at weekends only during low season and the attended facilities at the Forum, Sittingbourne; Rose Street, Sheerness are not open on Sundays or Bank Holidays. Variation orders have been issued to reflect this situation. The King George V Playing Fields Facility has been added to the contract, by way of Variation Order. Contractual opening times are as stated within the specification (Annex 1)

7. The contractor is responsible for minor maintenance as detailed within the specification; (Annex 2). Since the Council’s maintenance activities have been centralised Building Maintenance (Technical Services) has been responsible for all repairs outside the contract specification, and for programmed works including redecoration and replacement of fittings etc. The budget is often exceeded due to reactive repairs principally due to vandalism. Re-active maintenance costs for 2003/04 & 2004/05 were £27,050 & £10,099 respectively. The budget for 2005/06 identifies a sum of maintenance on the Public Conveniences of £25,000. (Annex 3)

Public Convenience Condition

8. WYG visited all facilities on several occasions and most were found to be of variable standard but usually either good or adequate. Those found to be of poor or less than adequate standard were The Mount at Faversham, High Street, Milton Regis, High Street, Newington, The Whitehouse, Minster, and The Spinney at Leysdown. WYG commented that there needs to be a better interface between routine monitoring and condition surveys, particularly given the extent of vandalism, the non- functionality of fittings and the general dilapidation at some of the facilities.

9. WYG also observed the illicit use of some conveniences e.g. evidence of drug taking at High Street, Milton.

- 3 - Signage and Signing

10. WYG made a number of comments with regard to ‘signage’ i.e. signs displayed in or around the facility and ‘signage’ i.e. directional signs advising the location of facilities. WYG commented that these were generally outdated and poorly located.These comments are accepted and will be corrected during the current year from existing budgets.

Subsidiarity

11. WYG gave consideration to whether facilities could be better managed at a town council/parish council level. The only conveniences where this is feasible are those in Leysdown, Boughton, Newington, Queenborough, Minster, Eastchurch and Teynham. Although this was not pursued with the individual councils WYG advised their concern that this could be perceived as ‘double taxation’ i.e. parishioners would be paying for both a local facility and also those outside the parish with no reciprocal agreement. In order to pursue this further it would be necessary therefore to consider a grant or dowry arrangement. It would also be necessary to ensure that any facilities below a good standard were improved prior to passing on responsibility.

Contract Monitoring

12. WYG are of the view that the Council has insufficient resource to carry out the level of monitoring necessary to maintain standards at public conveniences. They believe ‘that the situation at Swale is compromised by the sharing of monitoring duties for public conveniences and street cleansing; by a lack of clarity regarding division of responsibilities for building maintenance; and by split responsibility for leisure and environmental public conveniences. It should be noted that this review has been undertaken during a period of structural change for Environmental Services. In view of this, and the need to consider contract monitoring in the broader context of all of the waste functions it is recommended that any changes to resource level be considered when this is complete. It is expected that with the introduction of portable hand held computers for Street Wardens, who act as eyes and ears for the council, and with more effective use of the contract monitoring officers that these issues can be overcome. However, split responsibility for leisure and environmental service facilities, and building maintenance issues need to be addressed and a report will be presented to the contract working for further consideration.

Consultant Recommendations on Individual Facilities

13. WYG made specific recommendations including in some cases changes to hours of opening. Where comments were included with regard to maintenance the proposed response is attached within annex 3 to this report.

(a) Central Car Park, Bank Street, Faversham. – The facility is well used and presentation is at least acceptable and on occasions good. There is a clear case for continuing to provide the facility and Faversham Town Council could be approached to consider a transfer of management.

- 4 - (b) Central Avenue, Library Car Park, Sittingbourne. – The facility is well used. No changes suggested.

(d) Beach Services, The Grove, Leysdown. – The facility is well used. No changes suggested.

(e) School Lane, Boughton – Use of this facility during the review was low and generally found to be from passing motorists. However local residents who were interviewed valued the facility. The facility is unlocked and locked by the Parish Council to whom SBC pay an honorarium and a transfer of management responsibility could be explored. However, the low usage calls into question whether the facility should be provided. It is recommended that the present practice of Sunday and Bank Holiday closure continues.

(f) Recreation Ground Park Road, Faversham. This is a busy unit within a Recreation Ground. It is a well-used facility. No Changes recommended but transfer of management responsibility to the Town Council could be explored.

(g) Bridge Street, Sheerness. The facility is well used. No changes suggested.

(h) Rose Street, Sheerness. The facility is well used. No changes suggested.

(i) The Mount, London Road, Faversham. Facility is currently closed and is of a poor standard. Permanent closure could be considered.

(j) The Cemetery, Love Lane, Faversham. Facility is currently closed following extensive and repeated vandalism

(k) Oare Gunpowder Works. – This facility was closed during the period of review. WYG suggest that it may be worth investigating cleaning this facility under a different arrangement. High Street, Milton Regis – The facility was well used during a Saturday morning check. Evidence of drug use was apparent during the period of review. The standard of the facility is very poor. Suggested options are closure, refurbishment or closure and replacement with an automated public convenience.

(l) High Street, Newington – This facility was also of a poor standard and used little. WYG suggest that there is a strong case for closure. For re-active & planned maintenance (Annex 3)

(m) Queenborough Park – The facility is well used. No changes are suggested, but transfer to the Town Council could be explored.

(n) Rushenden Road, Queenborough. – This facility is little used and is of just acceptable standard. It is suggested that closure be considered.

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(o) Barton’s Point, Marine Parade. - No changes suggested

(p) The Whitehouse, Minster Broadway – The facility is well used at certain times particularly weekends, but is of a poor standard. No changes were suggested apart from considering opening hours and exploring whether the facilities could be closed by entering a partnership arrangement with the Whitehouse pub.

(q) The Cemetery, Halfway, IOS – No changes were suggested to this facility but the comment was made that it lacks facilities for the disabled. The facility is due to be demolished and the replacement building will need to include this provision.

(r) The Spinney, Leysdown Road – The facility is well used but is in poor condition. No changes are suggested.

(s) King George V Playing fields, Sittingbourne –. This facility was well used and valued by park users even though it is basic. WYG suggest that the Council continue to provide the facility unless it was to consider transferring the whole facility (park and toilet) to the parish council.

(t) Church Road, Eastchurch – This facility is not heavily used and is only of adequate standard. There are no disabled facilities and WYG evidenced illicit use during the review period. Operating costs for this facility are high relative to the level of use and WYG do not believe there is a strong case for the continued provision of this facility.

(u) Automated Public Conveniences – WYG question whether the expenditure on these facilities is justified by the use and whether the Council should continue to provide them in the long term.

Recommendations and Conclusions

14. The contract working group accepts the findings of the WYG review. Corrective action has been implemented with regard to variations between specified operational hours and actual practice. It is accepted that standards of maintenance in public conveniences has declined over recent years due to a number of reasons, but partly due to split responsibilities and partly due to pressures within a centralised maintenance budget. It is proposed that a specific budget for the establishment of a dedicated budget for the programmed replacement of fixtures and fittings be established. At the time of writing this report guidance is being sought on an appropriate level of budget and this will be advised to Executive verbally. The following recommendations are made for consideration by Executive:

- 6 - (b) It is recommended that the toilets at High Street, Newington, Church Road, Eastchurch and Rushenden Road, Queenborough be closed on a trial basis, following consultation with parish councils, and that the public reaction to this is monitored over a 6 month period and reported back to Executive. However, should it become apparent at an early stage that this is causing difficulties that officers be able re-open a facility after consultation and agreement with the Executive Member for Environment.

(c) It is recommended that the Milton Regis facility be refurbished and then manually opened/locked with regular warden patrols to monitor and investigate the suspected anti-social behaviour occurrences.

(d) It is recommended that the King Georges Playing Fields toilets remain under SBC control.

(e) It is recommended that the Oare Gunpowder works toilet be retained within the contract.

(f) It is recommended that notice be given to JC Decaux of the intention to terminate the automated public convenience at Minster, and that the other 2 automated public conveniences be closely monitored with the intention of terminating these contracts unless increased usage is apparent in the interim period.

(g) It is also recommended that relocation of an automated public convenience to a suitable site in Milton Regis be investigated in order that the existing Milton Regis library facility can be closed.

(h) Finally that where recommendations result in expenditure savings that a suitable sum be set aside for specific continued maintenance of public conveniences including programmed replacement of fixtures and fittings.

Author - Alan Turner Ext. 7285 Date 04 July 2005.

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