London Borough of Barking and Dagenham
Notice of Meeting
THE EXECUTIVE
Tuesday, 28 May 2002 - Civic Centre, Dagenham, 7:00 pm
Members: Councillor C J Fairbrass (Chair); Councillor C Geddes (Deputy Chair); Councillor J L Alexander, Councillor S Kallar, Councillor M E McKenzie, Councillor B M Osborn, Councillor J W Porter and Councillor T G W Wade.
Declaration of Members Interest: In accordance with Article 1, Paragraph 12 of the Constitution, Members are asked to declare any direct/indirect financial or other interest they may have in any matter which is to be considered at this meeting
22.5.02 Graham Farrant Chief Executive
Contact Officer Steve Foster / Barry Ray Tel. 020 8227 2113 / 2134 Fax: 020 8227 2171 Minicom: 020 8227 2685 e-mail: [email protected]
AGENDA
1. Apologies for Absence
2. Minutes - To confirm as correct the minutes of the meeting held on 14 May 2002 (Pages 1 - 16)
Business Items
Public Items 3 and Private Item 15 are business items. The Chair will move that these be agreed without discussion, unless any Member asks to raise a specific point.
Any discussion of a Private Business Item will take place after the exclusion of the public and press.
3. Attendance at Chartered Institute of Housing Conference (Pages 17 - 18)
Discussion Items
4. Annual Report of the Director of Public Health: Presentation (Report to follow on 24 May 2002)
BR/04/03/02 5. Draft Race Equality Scheme (Pages 19 - 108)
6. Best Value Review of Waste Management: Final Report (Pages 109 - 162)
7. Best Value Review of the Library Service: Final Report (Pages 163 - 266)
8. Parks and Green Spaces Strategy (Pages 267 - 310)
9. Digital Radio Network for Emergency Services (Pages 311 - 312)
10. Future of Barking and Dagenham Magistrates Court: Response to Consultation (Pages 313 - 322)
11. Any other public items which the Chair decides are urgent
12. To consider whether it would be appropriate to pass a resolution to exclude the public and press from the remainder of the meeting due to the nature of the business to be transacted.
Private Business
The public and press have a legal right to attend Council meetings such as the Executive, except where business is confidential or certain other sensitive information is to be discussed. The list below shows why items are in the private part of the agenda.
Discussion Items
13. Education Transport Matter (restricted circulation)
Concerns an individual child (paragraph 6)
14. Organisation and Management of Education, Arts and Libraries (restricted circulation)
Concerns a staffing matter (paragraph 1)
Business Items
15. John Perry Primary School: Replacement of Demountable Nursery (to follow on 24 May 2002)
Concerns a contractual matter (paragraphs 7, 8 and 9)
16. Any other confidential or exempt items which the Chairman decides are urgent
BR/04/03/02 AGENDA ITEM 2
THE EXECUTIVE
Tuesday, 14 May 2002 (7.00 - 8.15 p.m.)
Present: Councillor C J Fairbrass (Chair), Councillor C Geddes (Deputy Chair), Councillor J L Alexander, Councillor B M Osborn and Councillor T G W Wade.
Also Present: Councillor M W Huggins, Councillor T J Justice, Councillor M E McKenzie and Councillor J W Porter.
450. Minutes (23 April 2002)
Agreed, subject to the following:
By Minute 441, it was agreed that the Mayor, accompanied by her consort and chauffeur, will attend the dedication this June of the memorial to the 2nd Battalion, the Essex Regiment, in Bayeux. The report omitted mention of the need for the Mayor's attendant to accompany the delegation and the Executive has now agreed this officer's attendance at an additional cost of approximately £600.
451. Standing Advisory Council for Religious Education - Annual Report for the School Year 2000/2001
Received the above report.
Agreed, in order to support the provision of religious education in schools:
1. the continuing funding of SACRE and any further costs to meet the publication of the new syllabus and the supplement;
2. the provision of the necessary INSET and support for the work of the Borough's Advisory Teacher for Religious Education as detailed in the report;
3. support for the Christian Education Movement (CEM), which provides a national service for schools on all aspects of Religious Education;
4. funding of the "Bibles for Schools" project.
452. * Appointments to the Political Structure 2002/03
Considered a report regarding appointments to the Council's political structure for the municipal year 2002/03.
(a) Membership
Agreed to recommend the Assembly to agree that the membership of the Executive, the Scrutiny Management Board, the Development Control
BR/04/03/02 Page 1 Board, the Panel for the Regulatory and General Matters Board, the Panel for the Personnel Board, the Standards Committee and the Community Forums be as set out in Appendix 'A'.
(b) Appointment of Chairs and Deputy Chairs
Noted that the Constitution automatically provides for the following positions:
Chair Deputy Chair
Executive Leader of the Council Deputy Leader of the Council Council Mayor Deputy Mayor
Agreed to recommend the Assembly to agree that Chairs and Deputy Chairs for the other Council bodies be as set out in Appendix 'B'.
In relation to Community Forums, the Executive recommend that Chairs for 2001/02 be reappointed for 2002/03; where there is a vacancy, the recommendation is that the Community Forum Members meet as soon as possible to select a Chair and that the Chair's appointment be ratified by the Assembly.
The Executive instructed that the Deputy Chairs of the Community Forums, which the Assembly has previously agreed be drawn from the community, be appointed as a matter of urgency.
(c) Co-opted Members
Agreed to recommend the Assembly to agree that the following persons be appointed as co-opted Members on the Scrutiny Management Board for such times as education matters are considered:
Reverend R Gayler representing the Church of England Mrs G Spencer representing the Roman Catholic Church
Mr P Carter is already elected for a four-year period as a Parent Governor representative for Primary schools and as such will similarly be co-opted to the Scrutiny Management Board for education matters. The Parent Governor representative for Secondary schools is vacant and the successful candidate will be co-opted to the Board as soon as he/she is appointed.
(d) Best Value Reviews
Noted that the Scrutiny Management Board has deferred consideration of the membership of Best Value Review groups for 2002/03 until the end of May in order to take into account recent changes to the Best Value regime, the implications of which are not yet clear.
BR/04/03/02 Page 2 (e) Representatives on Miscellaneous Bodies
Agreed to recommend the Assembly to agree that representation be as set out in Appendix 'C'.
(f) Appointment of Trustees to Local Charities
Agreed to recommend the Assembly to agree:
Dagenham United Charity
That Councillors Bunn and Davis be reappointed as trustees for the period 24 May 2002 - 24 May 2005 (remainder of three year term of office).
That Mr F Tibble and Councillor Wainwright be reappointed as trustees for the period 24 May 2002 - 24 May 2003 (remainder of two year term of office; it has been agreed they will serve a further four year term after this).
Barking General Charities
That Councillors Mrs Bruce and Porter be appointed as trustees for the municipal year 2002/03.
Barking and Ilford Charities
That Councillors Mrs Bradley and Mrs Flint be appointed as trustees for the municipal year 2002/03.
The Eva Tyne Trust Fund
That the Chief Executive, in consultation with Councillor Jones appoint trustees to the fund for the period ending 30 September 2004.
(The Executive asked to be advised on the current position of the Uphill and Waters Educational Foundation, an educational charity established for the benefit of children and young persons in the Borough.)
453. Draft School Organisation Plan 2002
Received the draft School Organisation Plan, which sets out the Council's proposals to provide school places within the Borough.
Agreed the Plan and its submission to the School Organisation Committee, in accordance with statutory requirements.
The Executive was unanimous in its view that the Plan is of the very highest standard. It commended the Director of Education, Arts and Libraries and his team for their excellent work.
BR/04/03/02 Page 3 454. A Cemetery Site Strategy and Outcome of Public Consultation
At its meeting on 25 September 2001 (Minute 161), the Executive received a draft Cemetery Site strategy. This set out potential options for meeting future burial needs against the background that, at present rates of burial, the Council's cemetery space will be exhausted in 6 to 8 years. The Executive commissioned an extensive consultation process to find out the community's views on this issue.
The Executive has now received a report setting out:
• the feedback from the consultation – the majority of respondents wish the Council to provide additional burial facilities in the Borough; • the results of a study of potentially suitable sites in the area; • a revised and updated version of the Cemetery Site strategy for formal adoption; and • proposed next steps.
Agreed, in order to progress this issue and taking into account the results of the consultation, the study and the recommendations of the Cemeteries Service Best Value Review:
1. that the Council's long-term aims should be to secure adequate burial space for its residents within the Borough's boundary;
2. that the Cemetery Site Strategy be adopted; and
3. that feasibility studies are undertaken to test the suitability for burial purposes on 6 sites, namely:
• Hainault Road (former allotment site - Crown owned land) • Gale Street (section of former allotment site) • Rose Lane (former school playing field north of Chadwell Heath Cemetery and vacant allotment site as a potential extension of Chadwell Heath Cemetery) • Eastbrookend (land adjacent to existing cemetery as a potential extension) • Central Park (Pitch and Putt Golf Course) • The Oaks Centre and Adjoining Fields (Crown owned land). In this case, the Executive asked that the officers approach the Crown Commissioner to establish whether the Council would be able to procure this land if it wished to pursue this option. The feasibility study is subject to the outcome of these discussions.
455. Regeneration of Church Road/Tanner Street, Including the Clevelands, Bloomfields and Wakerings Estate, Barking
Received a report on the above regeneration project. The Clevelands, Bloomfields and Wakerings estate is one of three identified for comprehensive action within the Council's Housing Strategy and the Barking Town Centre regeneration proposals. The overall aim of this is to improve and promote the
BR/04/03/02 Page 4 quality, choice and diversity of housing, whilst meeting need; to help tackle deprivation and support the longer term regeneration of the Town Centre.
The report sets out the possible options for the future of the estate, the outcomes from the consultation that has taken place with residents and proposed project planning and management arrangements for delivering the regeneration of the area. There are two main options:
• to refurbish the three blocks that make up the estate; and • to demolish the blocks and redevelop the cleared site - the recommended option;
The report advised that demolition and redevelopment appears to be the most cost effective option and has been strongly supported by residents. It would also offer a significant opportunity to open up this area north of the Town Centre and link the redevelopment with the adjoining Tanner Street area to create a key gateway into Barking.
Agreed, in view of the above,
1. the demolition of the estate and redevelopment of the cleared site as part of the regeneration of the area;
2. the project planning and management arrangements detailed in the report and the project management targets set out below:
• Assess existing residents re-housing needs (June/July 2002) • Finalise the development brief for the whole area (July/August 2002) • Consult on the development brief (September 2002) • Resident decant process (September 2002 onwards; to be confirmed) • Tender process to identify partnership/delivery vehicle to redevelop estate and potentially facilitate regeneration of wider area (September-December 2002) • Physical start on site (Summer 2003)
456. * Neighbourhood Co-ordination Pilot
At its meeting on 26 June 2001 (Minute 33), the Executive received a report regarding Neighbourhood Management and agreed to fund a project to start to develop this in Barking and Dagenham.
It has now received a report recommending that the Council establish two pilot Neighbourhood Co-ordination schemes within the Abbey, Gascoigne & Thames and Wellgate Community Forum areas. These schemes are intended to deliver change on the ground; empower local people to influence service delivery; assist service providers in changing delivery to meet the needs of the local community and help the local community deliver local projects.
BR/04/03/02 Page 5 Agreed, in order to further progress the development of Neighbourhood Management in the Borough:
1. To implement the above schemes on the basis detailed in the report; and
2. To report progress to the Barking and Dagenham Partnership and seek its support for the development of action plans to involve all relevant agencies.
457. Designs on Democracy
Received a report proposing that the Council takes part in 'Designs on Democracy', a national programme sponsored by the Institute for Public Policy Research (IPPR) and the London School for Economics (LSE). The aim of the programme is to make the buildings used for decision making more 'user friendly' to encourage greater public participation in local democracy. IPPR and LSE will consult local people and produce designs for improving the Council's 'democratic space' at the Town Hall (the Council Chamber and the Committee Rooms).
Agreed to join the 'Designs on Democracy' programme on the basis set out in the report, in order to improve public participation in Council activity and local democracy.
458. * Thames View Neighbourhood Nursery
Received a report setting out the current position on the new Thames View Neighbourhood Nursery, which will replace the demountable nursery accommodation at the Thames View Infants School.
Agreed, in order to progress the scheme in accordance with the Thames View Sure Start Delivery Plan:
1. The allocation to the scheme of £405,610, from Seed Challenge and Nurseries in Disadvantaged Areas budgets, and the redirection to the scheme of £250,000 of capital funds, as detailed in the report, in order to bring the overall budget to the required level;
2. To proceed with the creation of a combined 39 place Nursery and 50 place Wraparound Daycare Facility at Thames View Infants School pending the identification of further funding;
3. To appoint Cameron Taylor Bedford as Project Manager to deliver the scheme, on the terms and conditions detailed in the report.
459. * Health and Safety Action Plan
Received a report on the recent Health and Safety Executive (HSE) inspection of Social Services. The report examines the implications for Social Services and the Council as a whole and sets out an action plan in response.
Agreed the action plan, in order to address the HSE's recommendations.
BR/04/03/02 Page 6
460. Private Business
Agreed to exclude the public and press from the remainder of the meeting, as the business was confidential.
461. Little Highwood Re-provision
Received a report regarding the identification of sites to provide independent living accommodation for borough residents from Little Highwood Hospital, which is due to close in the near future. The Council has appointed Kelsey Housing Association, a registered social landlord, to provide this accommodation; two sites are required to provide 8 bedded homes in two blocks of four beds. Two sites were identified in 2000, at Manor Road/Vicarage Road and Shafter Road, but it has not proved possible to proceed with these. The report identifies two suitable alternative sites, one next to Bartletts House in Vicarage Road and the other in Bromhall Road.
Agreed, in order to provide accommodation for the above residents, the disposal of the above sites to Kelsey Housing Association on the terms set out in paragraphs 3 and 4 of the report.
462. Refurbishment of Kilsby Walk, Dagenham
Noted a report advising that the Director of Housing and Health has awarded contracts to Breyer Group PLC, in the sum of £69,924.25, for the renewal of the flat roof covering and associated works, and to Walker Construction (UK) Limited for the provision of a new sub-station base and associated works, as part of the ongoing refurbishment and structural repair of Kilsby Walk, Dagenham.
463. Refurbishment of Henderson House, Dagenham - Appointment of External Consultancy Practice
Noted a report advising that the Director of Housing and Health has awarded a contract to Kennedy Haywards, in the anticipated sum of £33,680, for the provision of surveying/contract administration services in respect of the refurbishment and structural repair of Henderson House, Kershaw Road, Dagenham.
464. Housing Repairs Service
Received a report seeking approval to extend the existing appointment of JSS Pinnacle to manage the above service.
Agreed to extend the appointment of management support from the above company until 31 December 2002, on the terms and conditions set out in the report, in order to ensure that the progress made in implementing the Best Value Improvement Plan is maintained during the market testing of the service, which is due to be completed in the autumn.
BR/04/03/02 Page 7 465. Eastbrookend Country Park Beam Valley - Extension of Contract
Received a report seeking approval to extend the existing contract for Phase 1 of the Beam Valley Extension of the Eastbrookend Country Park in order to allow work for part of Phase 2 to be carried out.
Agreed, in view of the above, to authorise the acceptance of the negotiated extended tender from Southern Landscapes Limited, in the sum of £151,582.41, for the construction of the Dagenham Village Trail.
466. * Education Legal Matter
Received a report regarding a claim against a contractor who had been engaged on an education project.
Agreed to authorise the Director of Education, Arts & Libraries and the Solicitor to the Council to take the action detailed in the report as appropriate, in order to progress this matter.
467. * Broadway Theatre Project Manager
Received a report asking the Executive to agree that Mr Bill Box continue to be employed on a consultancy basis as the Project Manager of the Broadway Theatre Scheme until the Learning and Skills Council has made a decision on the scheme and a further report is presented on the financing of the project, including the Project Manager post.
Agreed the above proposal, on the terms and conditions set out in the report, in order to ensure continuity in the management of this project.
* Item considered as a matter of urgency with the consent of the Chair under Section 100 (4)(b) of the Local Government Act 1972.
BR/04/03/02 Page 8
APPENDIX 'A'
MEMBERSHIP OF COUNCIL BODIES 2001/02
THE EXECUTIVE
Councillors Alexander, Fairbrass, Geddes, Kallar, McKenzie, Osborn, Porter and Wade
SCRUTINY MANAGEMENT BOARD
Councillors Barns, Mrs Bramley, H. Collins, L. Collins, Mrs. Conyard, Denyer and Mrs Twomey
DEVELOPMENT CONTROL BOARD
Councillors Barns, Ms Baker, Mrs Blake, Mrs Bruce, Cook, Cooper, Mrs Cridland, Dale, Denyer, Fani, Mrs Flint, Gibbs, Jamu, Jones, Kallar, McCarthy, Mrs Rawlinson, Smith, Summerfield, Thomas, Wainwright, Waker and Mrs West
REGULATORY AND GENERAL MATTERS BOARD
Councillors Mrs Bramley, Bunn, Cook, Mrs Cridland, Mrs Cooper, Fani, Huggins, Jeyes, Miles, Waker and Mrs West
PERSONNEL BOARD
Councillors Mrs Bramley, Bunn, H Collins, Cook, Mrs Conyard, Curtis, Fani, Felton, Geddes, Jeyes, Justice, McCarthy, Miles, O'Brien, Osborn, Porter, Mrs Rush, Mrs Twomey, Wade and Waker
STANDARDS COMMITTEE, including Independent Members
Councillors Curtis, Porter and Smith
Independent Members:- Reverend Stephen Poole and Fiona Fairweather
Page 9
COMMUNITY FORUMS
ABBEY, GASCOIGNE AND THAMES
Councillors Alexander, Barns, Bramley, Fani, Mrs. Flint, Miles, McKenzie, Mrs. Rawlinson, Mrs. Rush.
EASTBROOK, HEATH AND ALIBON
Councillors Bunn, L. Collins, Davis, Fairbrass, Kallar, McCarthy, Osborn, Summerfield and Wade
EASTBURY, MAYESBROOK AND LONGBRIDGE
Councillors Ms. Baker, Mrs Blake, Mrs. Bramley, Cook, Mrs. Conyard, Cooper, Mrs Cooper, Felton and Ms Hunt
PARSLOES, BECONTREE AND VALENCE
Councillors Mrs. Bradley, Mrs Bruce, H Collins, Mrs Cridland, Geddes, Jones, O'Brien, Mrs Osborn and Wainwright
RIVER, VILLAGE AND GORESBROOK
Councillors Best, Dale, Huggins, Jamu, Porter, Smith, Thomas, Mrs. Twomey and Waker
WELLGATE AREA
Councillors Curtis, Denyer, Gibbs, Jeyes, Justice and Mrs West
Page 10 APPENDIX 'B'
CHAIRS AND DEPUTY CHAIRS 2002/03
Chair Deputy Chair
Assembly Councillor Davis Councillor Best
Scrutiny Management Board Councillor Mrs Twomey Councillor H Collins
Development Control Board Councillor Mrs Bruce Councillor Jamu
Standards Committee To be selected by Standards Committee and ratified by the Assembly
Abbey, Gascoigne and Thames To be selected by Forum To be appointed Community Forum Members (and ratified by the from community Assembly)
Eastbrook, Heath and Alibon Councillor Kallar To be appointed Community Forum from community
Eastbury, Mayesbrook and Councillor Mrs Bramley To be appointed Longbridge Community Forum from community
Parsloes, Becontree and Valence To be selected by Forum To be appointed Community Forum Members (and ratified by from community Assembly)
River, Village and Goresbrook Councillor Thomas To be appointed Community Forum from community
Wellgate Community Forum To be selected by Forum To be appointed Members (and ratified by from community Assembly)
Note: Membership reflects Wards.
Page 11 APPENDIX 'C'
REPRESENTATION ON MISCELLANEOUS BODIES 2002/03
Organisation Representation Representation Required
Age Concern 2 Councillors Mrs. Bruce / one vacancy
Association of London Government:
Leader's Committee 1 plus deputy Lead Member Health & Social Services Panel 1 plus deputy Lead Member Housing Panel 1 plus deputy Lead Member Education Panel 1 plus deputy Lead Member Culture & Tourism Panel 1 plus deputy Lead Member Community Safety & Policing Panel 1 plus deputy Lead Member Economic Development Regeneration & 1 plus deputy Lead Member Europe Panel (There was a Deputy in 2001/02) Lead Member for Equalities 1 plus deputy Lead Member Grants Committee 1 plus deputy Lead Member (There was a Deputy in 2001/02) London Caribbean Partnership Group 1 Councillor McKenzie Greater London Magistrates Courts Authority No representation Transport and Environment Committee 1 plus deputy Lead Member (There was a Deputy in 2001/02)
Greater London Provincial Council 1 Councillor Mrs Twomey
Barking & Dagenham Citizens Advice Bureau 2 Councillors Davis/Osborn
Barking & Dagenham Council for Voluntary 1 Councillor in 2001/ Fani / Rush (subject Services 02 to confirmation that two representatives are allowed)
Barking & Dagenham Gospel Oak Line 1 Councillor Jones Committee
Barking & Dagenham Primary Care Trust 1 Councillor Lead Member
Barking & Dagenham Racial Equality Council 2 Councillors Fani / H Collins
Page 12
Barking & Dagenham Sports Council 10 Councillors Barns / Bunn / Cridland / Davis / Flint / Jamu / McKenzie / McCarthy / Miles / O'Brien / Smith / Summerfield / Twomey Barking & Havering Joint Planning Board 1 Councillor Lead Member
Barking College Corporation 2 Councillors Bramley / Jamu
Barking College Corporation Search Committee 1 Councillor Osborn
Barking Reach Development Company Limited 2 Councillors Leader and Lead and Enabling Board Member
Barking Town Centre Partnership Lead Member Chair of Development Control Board - Mrs Bruce 1 Ward Councillor from Abbey, Gascoigne and Thames
Borough Liaison Group 17 Ward Councillors Not appointed 2001- 02; Status to be confirmed at Assembly
Business Link Board 1 Councillor Lead Member
Community Health Council 5 Members Bunn, Davis, Mrs. Flint, Mrs Osborn and Mr A Ramsey
Community Legal Services 1 Councillor Lead Member
Community Safety Strategic Partnership 1 Councillor Lead Member
Community/Police Consultative Group 1 Councillor Lead Member
Dagenham Village Partnership 3 Ward Councillors Best, Dale and Waker
Early Years Development Childcare Partnership 1 Councillor Mrs. Bramley
East London Waste Authority 2 Councillors Lead Member/one vacancy
Page 13
East Thameside SRB Board 2 Councillors Lead Member and Mrs. Bruce
Education Business Partnership Managing Group 2 Councillors Lead Member and Curtis
Employee Joint Consultative Committee 9 Councillors Davis, Fairbrass, Geddes, Hunt, McCarthy, McKenzie, Thomas and Mrs Twomey
Excellence in Cities Partnership Board 1 Councillor Lead Member
Faircross Community Complex Management 3 Councillors Ward Councillors Group Not appointed 2001-02 Status to be confirmed at Assembly
Futures Charitable Trust 1 Councillor Lead Member
Greater London Employers Association Limited 1 Councillor Mrs. Twomey
Greater London Enterprise 1 Councillor Lead Member
Heart of Thames Gateway Partnership 2 Councillors Leader and Lead Member
Housing Area Contract Panels - Not appointed 2001/02; to be reconstituted. Barking Dagenham Becontree
Independent Custody Visiting Panel 1 Councillor Lead Member
Joint Safety Committee 7 Councillors Bunn, L. Collins, Curtis, Davis, Kallar and Jamu
Kingsley Hall Settlement 1 Councillor Jones
Local Government Association:
General Assembly 4 Councillors Membership not appointed in 2001/02 Public Protection Committee 1 Councillor Membership not appointed in 2001/02
Page 14
Urban Commission 2 Councillors Geddes / Kallar Social Affairs and Health 1 Councillor Membership not appointed in 2001/02 Housing 1 Councillor Membership not appointed in 2001/02 Leisure and Tourism 1 Councillor Membership not appointed in 2001/02 Planning 1 Councillor Membership not appointed in 2001/02 Police 1 Councillor Membership not appointed in 2001/02
London Accident Prevention Council 1 Councillor Bunn
London (North East) Valuation Panel 2 Councillors Barns plus one 6 Non-Councillor vacancy J Brandon, H Copsey, E Keller, R Little, C Ramage and A K Ramsay
(Currently 1 vacancy, require 1 nomination subject to application via the Tribunal)
Non Domestic Rate Consultation Meeting 3 Councillors Leader, Deputy Leader and one vacancy
Public Transport Liaison Group 2 Councillors Lead Member and one vacancy
Reserve Forces and Cadets Association for 1 Councillor Bunn Greater London School Organisation Committee 3 Councillors Lead Member - including Admissions Forum Wade, Jones and Curtis
Sector Police Working Parties (for To be reconstituted Barking, Dagenham & Marks Gate) Social Services Children & Families Permanence 1 Councillor Mrs. Bramley Panel
Social Services Independent Inspection Advisory 2 Councillors Lead Member and Group one vacancy
Social Services Task Centred Fostering Panel 1 Councillor Huggins
Social Services User/Carer Forum 1 Councillor Lead Member
Page 15
South Eastern Museum Service 1 Councillor Mrs Bramley
Stort Valley Housing Association 2 Councillors Leader and Lead Member
Superannuation Fund Investment 2 Councillors Bramley and Panel Thomas Two further nominees to be put forward by Lead Member
Thames Chase Joint Committee 3 Councillors Waker and letter to be circulated to Ward Members seeking one nomination per Ward
Thames Gateway London Partnership 1 Councillor Lead Member - Community Safety Strategic Board 1 Councillor Lead Member
Thames Water Barns (Details to be supplied on any other nominations to water organisations)
Town Centre Forum - Heathway 6 Councillors Smith and Mrs Twomey and one from each Ward Not appointed 2001-02
(From May 2002 proposed Lead Member plus two Councillors from each Ward (Alibon, River and Village))
Unitary Development Plan Group Executive Members Alexander, Fairbrass (voting Members) and Osborn
Development Mrs Bruce and Control Board Kallar Members (by invitation only)
Page 16 AGENDA ITEM 3
THE EXECUTIVE
22 MAY 2002
REPORT OF THE DIRECTOR OF HOUSING AND HEALTH
ATTENDANCE AT CHARTERED INSTITUTE OF FOR DECISION HOUSING CONFERENCE 2002
Summary
The Executive is asked to agree representation at the Chartered Institute of Housing Conference 2000
Recommendation
That the Executive agrees representation at the Conference on the terms set out.
Contact Officer: David Woods Director of Housing and Tel: 020 8227 5700 Health Fax: 020 227 5705 Minicom: 020 7227 5755 e- mail:[email protected]
1. Background
1.1 The Chartered Institute of Housing Conference is held annually in Harrogate and regarded as a valuable conference, promoting the Institute’s purpose to maximise the contribution housing professionals can make to the wellbeing of communities.
1.2 This year’s conference is being held 11th – 14th June and is based around the theme “Beyond the Boundaries” – moving social housing away from an isolated service to one which interacts with other providers, promoting innovation, delivery, meeting the need, bridging the skills gap and managing the business.
1.3 Conference cost for two delegates is £1,078.66 (inc. VAT), plus accommodation and travel.
1.4 The Executive is requested to agree attendance at the Conference for the Director of Housing and Health and one other officer.
Background Papers
None
Page 17 Page 18 AGENDA ITEM 5
THE EXECUTIVE
28 MAY 2002
REPORT OF CHAIR OF THE CORPORATE EQUALITIES AND DIVERSITY STEERING GROUP
THE COUNCIL’S DRAFT RACE EQUALITY SCHEME AS FOR DECISION REQUIRED BY THE RACE RELATIONS (AMENDMENT) ACT 2000
This report has been submitted to enable the authority to meet its duty to publish a Race Equality Scheme by the statutory deadline of 31 May 2002. This requirement arises from the provisions of the Race Relations (Amendment) Act 2000.
Summary
This report puts forward the final draft of the Council’s Race Equality Scheme (RES), as required by the provisions of the Race Relations (Amendment) Act 2000. The approach followed by the Scheme conforms to that previously approved by the Executive (12 March 2002) in approving the ‘Beyond Lawrence’ Report.
The Commission for Race Equality (CRE) have advised that local authorities must publish their draft RES on their intranet/internet sites in order to meet the statutory deadline of 31 May 2002.
After the deadline, there remains the scope to further refine the Scheme. The Council’s Scheme is virtually finalised, but it will be necessary to carry out some further work to aspects of it, particularly the prioritisation of services, functions and policies attached as an appendix. This work will take place during June 2002.
The final Scheme will be formally published by the end of June 2002, along with an Executive Summary in a plain English format. It is intended that the Executive Summary of the Scheme will be the subject of a round of consultation meetings with the community over June-July 2002.
Recommendation
The Executive is asked to approve the Council’s draft Race Equality Scheme and endorse the proposals for meeting the 31 May 2002 statutory deadline, refining the draft, prior to formal publication and undertaking a further round of community consultation on the Scheme.
Contact Officer: William A. Coomber Corporate Equalities and Tel: 020 8227 2105 Diversity Adviser Fax: 020 8227 2806 Minicom: 020 8227 2685 E-mail: bcoomber@barking- dagenham.gov.uk
Background Papers: Report to TMT (12 March 2002) - ‘Beyond Lawrence Report’
Page 19 Page 20
Draft Race Equality Scheme
Year 1 2002 - 2003
Page 21 Page 22
LB Barking and Dagenham - Race Equality Scheme (Year One)
Structure and Contents
1. Introduction and Context Barking & Dagenham - An Increasingly Diverse Community
2. The Background - Equalities in Barking and Dagenham
3. 'Beyond Lawrence' - The Local Context of the Race Equality Scheme
4. Equalities and Diversity - Our Principles, Values and Standards
5. Race Equality - Our Principles, Values and Standards
6. The Race Relations (Amendment) Act 2000 - how we are meeting the general and specific duties
7. Our Action Plan and Timetable (Year One)
8. Monitoring
9. Communicating Our Plans
10. Conclusion
Appendices
Appendix A - List of Functions and Policies [Attached] Appendix B - Summary of Audit [Incomplete] Appendix C - Complaints Procedure [To be Added]
Page 23 Page 24
Section One
An Increasingly Diverse Community – A Borough Profile
1.1 Approximately 166,000 people live in Barking & Dagenham - women and men, disabled people and people who are able-bodied, old people and young people, people from the indigenous white community and people from minority ethnic communities, people who are heterosexual, lesbian and gay, people from faith and non-faith communities.
1.2 The life experiences of these communities overlap. People’s sense of themselves is changing and evolving. This is particularly so for the borough's black and minority ethnic communities, many of whom have recently settled here. The Borough is becoming more diverse and this will be reflected in the 2001 Census data when it is published.
This new data is also likely to indicate that :
• Approximately 85% of the population of the borough are white British. • 12-15% of Barking and Dagenham’s population are from minority ethnic communities including Black African, Black African-Caribbean, Chinese, Indian, Pakistani, Bangladeshi, Somali, Turkish and Albanian/Bosnian. • Between 3,500-5,000 local people are refugees or asylum seekers. • Over 50% of the local population are women. • Approximately 20% of the local population are estimated to have a physical or mental disability (including those with mental health problems) • Just under 25% of the local population are aged 50 plus.
Additionally, national research suggests that between 5-10% of the national population are lesbian or gay and this is likely to be true of residents in the Borough. 1.3 Barking & Dagenham is an increasingly diverse part of one of the most diverse/multi-cultural capital cities in the world. This trend is a huge bonus to the borough and the Council is committed to carry out positive work to fulfill its community priority, 'Promoting Equal Opportunities and Celebrating Diversity.'
1.4 The Borough's diverse communities will increasingly contribute to the cultural life of local area, its business activity and the delivery of local services. However, increasing diversity and serious disadvantage continue to co-exist in Barking & Dagenham.
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There is much stubborn deprivation and disadvantage which is reflected in:
• A continuing problem with racial harassment/attacks and domestic violence • High numbers of lone parents on benefits and pensioners living on low incomes • High levels of long term structural unemployment • The lowest household income levels in London • The lowest number of people holding graduate qualifications in the country • Serious skills gaps amongst the local working population • Adult literacy problems • High rates of ill health and mortality
1.5 Deprivation impacts upon large sections of the local community, particularly the local white working class population, members of ethnic minorities, women, disabled people and older people. Complex sets of factors have created this situation, including industrial decline, economic restructuring, social exclusion and discrimination.
Section Two
The Background – Equalities in Barking and Dagenham Council
2.1 Barking & Dagenham Council adopted a policy statement on equalities in employment in 1993. Until 2000/01, the Council tended to adopt a piece-meal approach to equalities. We reacted to statutory requirements in areas such as sex discrimination and disabilities, rather than developing a coherent and systematic approach to the broad range of equalities issues.
2.2 In the absence of a coherent approach and corporate policy framework, individual departments/services developed policies and initiatives in isolation. However, without a corporate framework this work lacked clear strategic direction.
The absence of a corporate equalities strategy and framework was identified as a major deficit by a number of inspection and funding regimes. It was further highlighted in the ID&eA review of Council carried out in March 2000 as a major organisational weakness. The authority responded by developing a corporate strategy and framework on equalities which was included as a major commitment in the 2000/01 Best Value Performance Plan.
2.3 A major outcome of this work was the agreement of essential concepts and principles. A vision statement resulted in the formulation of a new community priority: 'Promoting Equal Opportunities and Celebrating Diversity'
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This initial report established the approach and the vision. The second, implementation report in 2001 provided the means by which the Council proposed to achieve its vision. The Executive agreed a strategy based upon the achievement of key strategic objectives within a three year time-scale.
2.4 From the outset, the Council has taken a very clear position. Race Equality is one vital, central plank of a broad based approach to equalities and diversity. This is reflected in the three year corporate strategy, which includes specific objectives in response to the Lawrence Inquiry recommendations and complying with the provisions of the Race Relations (Amendment) Act 2000.
The Council is committed to maintaining this policy stance with a pro-active response to forthcoming sex discrimination legislation and the implications of European Union Article 13.
Section Three
“Beyond Lawrence” - the local context of the Race Equality Scheme
3.1 In response to the report of the Lawrence Inquiry, Council Officers followed the Local Government Association guidelines and assessed their progress against the checklist. The implementation of the Inquiry’s recommendations was co-ordinated by a Working Group (The Lawrence Inquiry Officers’ Working Group, which reports to the Corporate Equalities and Diversity Steering Group). Amongst its achievements have been the organisation of well-attended conferences on the amended Race Relations Act, the production of posters and training materials and the publication of the “Learning from Lawrence” newsletter.
3.2 In preparation for the production of the Race Equality Scheme, the Lawrence Inquiry Officers’ Working Group commissioned an independent consultant to evaluate progress and identify areas for future development which would be prioritised in the Scheme. The consultant conducted some preliminary consultation through the Race Equality Council (REC) and Ethnic Minorities Partnership Agency (EMPA) as well as evaluating all existing internal data, primarily sourced through the LGA audit and relevant committee reports. Her published report “Beyond Lawrence” has formed the basis of the community consultation which underpins this Race Equality Scheme and will be used as a model for communicating the authority’s plans and activities on equalities and diversity in the future.
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3.3 Many of the significant achievements which were highlighted in this report resulted from the authority’s commitment to mainstreaming equalities and diversity. The emphasis in Barking and Dagenham is on building improvement through a corporate approach which lays responsibility on staff and managers at all levels. In response to local need, we have opted out of the departmental approach which may have worked for some authorities. We have opted instead for a joined-up strategy which links to initiatives on continuous improvement, for example Best Value and the Balanced Scorecard.
3.4 Some examples of early successes are:
a) The definition of a racist incident from the Lawrence Inquiry Report has been adopted by the Council and is now the starting point for investigating cases of racial harassment and discrimination.
The definition of institutional racism has been re-affirmed and informs decisions about policy development and strategic planning.
b) Barking and Dagenham has adopted a corporate policy statement on Equal Opportunities and Diversity - plus a specific policy statement on Black and Minority Ethnic communities which meets level 1 of the Commission for Race Equality (CRE) standard. c) Race equality issues have been explicitly integrated into Departments’ Best Value Reviews and are being included in Balanced Scorecards. d) In response to community need, the Council has produced and distributed a series of publications encouraging people to report racist incidents, has expanded practical support to victims and actively participated in developing a multi-agency strategy on racist incidents in the borough. Such incidents are monitored as part of the community safety strategy and statistics on racial harassment are included in Crime Audit. All departments now submit returns on the number of racist incidents and on subsequent action. This data is analysed following the CRE guidelines e) Barking and Dagenham has started to play a central role in developing multi- agency initiatives on race equality, including an active contribution to the Ethnic Minority Strategy Group - in partnership with Health and the voluntary sector f) All requirements of the Local Government Association checklist have been achieved in relation to customer care and complaints.
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Page 28 g) Recognition criteria for tenants and community groups now include racial equality and valuing diversity and mainstreaming Equal Opportunities and valuing diversity are now standard conditions for voluntary organisations to win grant aid. There has been some progress in encouraging black and minority ethnic groups to formalise their status as voluntary organisations, particularly through the Council’s support for the Ethnic Minority Partnership Agency. h) By April 2003 all contracts will include a clause on the Race Relations (Amendment) Act and this will be introduced on renewal of existing contractsi) There is clear feedback from black and minority ethnic communities that the process for recruiting staff has radically improved and there are very few complaints. The authority is now monitoring the selection process in line with the recommendations of the Lawrence checklist. j) The Stephen Lawrence Training Pack will be published in May 2002 for use with all staff. k) There are plans in place to comply with all the Local Government Association guidelines on employee relations by the end of 2002. l) A support group for black staff has started meeting and will continue to develop in line with the equalities strategy. The group has agreed short and long-term objectives and identified some initial issues which they feel that their employers should address if the group is to have any chance of success.
3.5 Departmental successes to date
Much of the pioneering work on service delivery was initiated by staff within the Housing and Health Directorate, which has demonstrated full compliance with the LGA checklist.
This includes:
* the removal of racist graffiti and regular review of racial harassment cases * food hygiene training in the most common community languages * monitoring using the CRE code of practice * agreed criteria for tenants and residents includes equalities issues * monitoring the take up of grants and allocations * mandatory training on equalities and diversity
3.6 The Asylum Seekers’ Unit has won awards for its work with refugees arriving in the Borough
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3.7 Education, Arts and Libraries has adopted the CRE Standard for Youth, published an Ethnic Minority Achievement Action Plan for Schools and started to:
- analyse statistics and monitor feedback, complaints and racist incidents - implement new procedures for the continual assessment of pupil performance amongst black and minority ethnic groups - analyse the ethnic background of pupils permanently excluded and develop a new strategy on the over-representation of excluded black and minority ethnic pupils - develop the specialist Language Support Service to provide English language teaching for new arrivals and help to raise the achievement of black and minority ethnic children. - host an annual awards ceremony to celebrate academic success amongst black and minority ethnic pupils
3.8 Monitoring the take-up of cultural and leisure activities by ethnicity helped the Department of Leisure and Environmental Services (DLES) to identify barriers to take up amongst, for example, women from minority ethnic communities. In response the authority is gearing publicity material towards under-represented groups, organising more “women-only” sessions and training more female lifeguards
3.9 The Social Services Department is fully compliant with the monitoring, analysing and review of Looked After Children, people sectioned under the Mental Health Act and those in the care of the youth justice system. In response to a Best Value Review, the service specification for the provision of meals requires the new provider to meet the specific needs of black and minority ethnic elders. Day Services are being configured to meet the needs of BME communities with some specifically targeted services, for example, Age Concern is providing day services to Afro-Caribbean elders.
3.10 Beyond Lawrence
The “Beyond Lawrence” review concluded that the major pre-requisite for the successful implementation of the Race Relations Amendment Act in Barking and Dagenham was for the whole community to share the Council’s vision - one of empowerment for the whole community. Central to this would be the need for Barking and Dagenham to demonstrate clearly its commitment to achieving this vision. Members of the Council have endorsed this view and, based on consultation with the local communities, have decided to continue with a corporate strategy on Race Equality, taking a themed approach to the prioritisation of action. In line with the CRE’s code of practice, the authority is using this themed approach to plan and implement change which will maximise the promotion of race equality.
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Page 30 3.11 Through her research, the consultant identified three key areas in which improvements need to be made -
- meaningful engagement with local communities
- the management and development of human resources (staff and contractors)
- service delivery
We wish to publish a Race Equality Scheme which explains our current thinking and details a strategy for making progress in these priority areas. Working in partnership with local communities should mean that we can fulfil our statutory duties in the most effective way . This demands a corporate approach which may differ from other authorities’ needs to take a departmental approach working from service to service.
3.12 Consulting local communities, we identified a strong view that the authority should “put its own house in order” before attempting meaningful dialogue and partnership. Members of the minority ethnic communities still see the authority as a “white” employer. Although changes in procedures are welcomed, these will only be successful if the staff implementing them are recruited, trained and managed effectively.
To engage with the community, officers need to prove that they understand and challenge discrimination and that they are committed to promoting racial equality and valuing diversity. Credibility depends on managers being committed to upholding these objectives, ensuring that they are mainstreamed in all people management and development practices. These practices will inform the way that we serve the community and work in partnership and will include:
- the drawing up of person specifications to include clear equalities statements - promoting anti-discrimination through supervision and personal appraisal - opportunities for development and training - personal/team development plans - appropriate anti-discrimination training and coaching
The priority for the next twelve months will be to work with managers to re-assess their practices and achievements and implement and plan improvements. At the same time, the Council will start developing a longer term strategy for community involvement and service delivery. Local people lack confidence that the Council's workforce is consistently equipped with the skills, knowledge and commitment that will be required if the Act is to implemented in a meaningful way which benefits all the local communities.
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3.13 We are complying with the code of practice by prioritising on a year by year basis but starting from a real need to develop and manage staff prior to creating the meaningful dialogue with local communities which will allow us to continue identifying and implementing appropriate changes in policy and practice.
3.14 The structure of our Race Equality Scheme is therefore built around this themed approach, which reflects initial consultation and will be developed through further consultation over the next six months.
Our Action Plan (see Section Seven) lays out concrete steps for success in Year One with a primary emphasis on the management and development of all our human resources - whilst recognising that much preparatory work will start immediately on the Year Two/Three priorities
3.15 To test a range of models for working with the many different communities in the borough, we have invited feedback on the initial report “Beyond Lawrence” through a number of channels and will evaluate the effectiveness of these in providing informed comment from as wide a cross section as practically possible.
3.16 These consultation methods included:
- discussions with representatives of local groups such as the REC, EMPA and the Black Workers Group - a written questionnaire sent out by the Ethnic Minority Partnership Agency to all their members - a four-page full-colour newsletter to be inserted in the local (free) newspaper with a feedback form - an open meeting hosted by the Race Equality Council - commissioning a series of one-to-one interviews to be conducted by the EMPA (Ethnic Minorities Partnership Agency) development officer
Section Four
Equalities and Diversity - Our Principles, Values and Standards
4.1 Corporate Equalities & Diversity Policy Statement (published May, 2001)
One of Barking & Dagenham Council’s seven community priorities is ‘Promoting Equal Opportunities & Celebrating Diversity.’
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Page 32 The Council has an unequivocal commitment to the principle and operation of equality in terms of the delivery of quality services to all of the people of the borough and this includes contracting/procurement, public consultation/engagement and our employment practices. We also wish to encourage a positive approach to celebrating the diversity of people in the borough and the Council’s workforce.
In 2001, the Council adopted the following statement to demonstrate its commitment to promoting equal opportunities & celebrating diversity:
In the employment of staff, delivery/accessibility of all services, contracting/procurement strategies and public consultation/engagement, Barking & Dagenham Council will actively promote equality of opportunity and seek to celebrate diversity.
The Council will treat all people equally and fairly whether they are:
• Seeking access to or using Council services or those provided on the Council’s behalf
• Contracting to supply goods or services to the Council
• Applying for employment with the Council or already employed and seeking access to promotion and training/personal development opportunities
• Involved in public consultation/engagement with the Council regarding its services, community priorities or strategic plans
The Council will strive to eliminate both direct and indirect discrimination and will find ways of celebrating the diversity of our workforce and the local community that they serve. In particular, we are committed to eliminating discrimination on the specific grounds of class, age, race & ethnicity, gender, disability, sexuality, HIV status, health, marital status, nationality, religious belief, caring responsibilities for dependants, or unrelated criminal convictions.
We aim to ensure equal access to services for citizens on the basis of need and to deliver them in a manner that is sensitive to the individual. We will represent the needs of our increasingly diverse community to other agencies and make equal opportunities a guiding principle in our work with strategic partners. We will strive to ensure that our workforce reflects the community that it serves and we will adopt pro-active strategies, such as target setting, to achieve our objectives.
The Council has adopted a ‘mainstreaming’ approach to equality of opportunity. Under this it is the responsibility of every employee and member of the Council to uphold and implement this policy and the direct responsibility of managers to realize it by adopting sound practices, in employment, consultation,
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Page 33 contracting/procurement and service delivery planning, in keeping with the Council’s objectives. The emphasis is upon ensuring that fairness and equality of opportunity is a mainstream not a peripheral activity and that it is the responsibility of managers and service providers.
The Council will use monitoring data and proactive measures to eliminate discriminatory institutional practices within its own organisational culture & structures, procurement policies, service planning/delivery mechanisms and public consultation/engagement strategies. In this way we will create a discrimination free work environment, fair and transparent processes and practices, relevant & fully accessible services and active consultation/engagement with all sections of the community. In the course of doing so we are committed to developing equalities and diversity objectives and targets, consultation and need/impact assessment, monitoring, audit and scrutiny/overview.
We will celebrate diversity in the community and the Council workforce and recognise it as a strength. The Council anticipates the trend towards increasing diversity within the locality and the future implications of this in terms the composition of the Council’s workforce, the way that we fulfill our many functions and deliver services. It is an approach that embraces and celebrates ‘difference’ in its very broadest sense, across age, disability, ethnicity/race, culture, gender and sexuality. In doing so, the Council prizes communal cohesion, social justice and the contribution of ‘difference’ to the life of the borough. Having a representative workforce makes us better equipped to respond to change and understand the needs of diverse populations and client groups. This, in turn, will make us a more adaptable and effective organization.
The Council will demonstrate its community leadership role by working with strategic partners and the community to achieve agreed equalities and diversity objectives within the locality. In doing so the Council will emphasize both the importance of equality of opportunity and the value of the borough’s increasing diversity and the benefits that this brings to the Council workforce and the overall life and vitality of the local area.
4.2 The Council’s Equal Opportunities and Diversity Vision Statement (published November, 2001)
In 2001,the Council agreed the following vision statement which attempts to outline the type of Equalities and Diversity organization that the Council wishes to become:
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Page 34 We wish to create and pursue a vision of Barking & Dagenham Council as a modernised local authority, that through its Equalities and Diversity strategy:
• Maintains a discrimination free work environment; • Values and develops its employees skills and abilities regardless of gender, race, disability, age or sexuality • Delivers relevant, culturally sensitive and fully accessible services to all sections of the local community; • Monitors and tackles inequality in service delivery via the targeting of services to excluded social groups; • Consults, engages and is aware of the views of the whole of the community; • Celebrates cultural and other forms of diversity and recognises how this enriches the life of the borough • Has open and transparent contracting and procurement processes based upon equality of opportunity and provision • Uses the energies and creativity of the voluntary/community sector to provide culturally specific services and makes equalities a fundamental condition of grant-aid and service level agreements for all funded organisations; and • Provides strong community leadership in the pursuit of equality and diversity objectives in the borough as a whole and uses multi-agency and partnership working to secure those objectives
Section Five
Race Equality - Our Principles, Values and Objectives
5.1 Corporate Policy Statement of Principles, Values and Standards on Race Equality (published May, 2001)
One of Barking & Dagenham Council’s seven community priorities is ‘Promoting Equal Opportunities and Celebrating Diversity.’ As a part of this we have a commitment to the principal and operation of equality of opportunity in terms of the delivery of quality services to our customers, and all of the people of the borough, public consultation, procurement and employment practices. A central plank of our equalities & diversity strategy is our determination to effectively tackle all forms of discrimination, whether based on race, gender, disability, sexuality or age, that exists both within the Council and the local community.
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The Council is committed to:
• Opposing the socially divisive and harmful effects of racism, which subjects black and minority ethnic people to negative attitudes and treatment resulting in racial discrimination, hatred and harassment. The end effect of racism is to deny equality of opportunity to black and ethnic minority people.
• Working to eliminate racism within its internal structures and organisational culture as well as encouraging non-discriminatory behaviour and attitudes. In this way we will seek to eradicate institutional racism in its many forms, including words, conduct or processes that advantage or disadvantage people because of their colour, culture or ethnic origin. For this purpose the Council has formally adopted the Lawrence Inquiry definitions of institutional racism and a racist incident.
• Working to eliminate both direct and indirect discrimination against black and ethnic minority people in its policies, procedures and practices, both in terms of service provision and employment. We will also ensure that future policies, procedures and practices are equal opportunities based in terms of race equality issues.
• The provision of equal access to its services and equal treatment of its employees, job applicants and the people who use its services, regardless of their colour or ethnic origin. We will also take the necessary steps to ensure the views of the black and ethnic minority communities are taken fully in to account as an integral part of the Council’s consultation processes. The necessary corporate and departmental monitoring, evaluation, policy review and consultation mechanisms to achieve these objectives.
• Utilising its community leadership role and various partnership arrangements to work collaboratively with all the communities in the borough to combat racism within the community. In doing so, the Council will highlight the enormous benefits of increasing cultural diversity in enriching the borough, making Barking & Dagenham a more vibrant and enjoyable place to live and work.
• Encouraging the celebration of the diversity of the people of the borough, including the advantages arising from ethnic and cultural difference. The Council will strive to ensure that the increasing diversity of the locality results in a representative workforce, in recognition that this will create a stronger and more effective organisation.
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Page 36 • Recognizing that racial discrimination and disadvantage impact adversely upon different communities in different ways and that this results in issues of different relevance to the various black and ethnic minority communities. The Council accepts its responsibility to identify the needs of the different black and ethnic minority groups to ensure that service delivery and employment practices are response and relevant to all black and ethnic minority groups.
• Acknowledging that black and ethnic minority people can also experience other types of discrimination or disadvantage and, in the pursuit of racial equality and social justice, it will ensure full consideration of the needs of disabled people, lesbians and gay men, women, older people and other relevant disadvantaged groups.
5.2 Race Equality Strategic Aims (published 2001)
• We aim to implement as quickly as possible, all the recommendations flowing from the Stephen Lawrence Inquiry and prepare to comply with the provisions of the new Race Relations (Amendment) Act 2000
• Every part of the community is entitled to have access to and receive good quality services, and to have a say in how they are provided
• We will strive to find ways to consult and work with all sections of the community; to obtain views on the quality and appropriateness of our services
• As a Council we will take steps to ensure that our processes for contracting and employment of goods and services are open and fair
• As a Council, we will use our community leadership role to take the lead in strongly opposing all forms of racism. It divides local people and denies equality of opportunity to part of our community. This will be a consistent theme with key strategic partners and the Borough Partnership
• We will work to overcome institutional racism and direct and indirect discrimination, both in the services that we provide and those provided by other organisations/bodies on our behalf
• We will strive to create a discrimination free work place and encourage a workforce representative of the borough, so that as a Council, we are in a position to better identify and respond to the needs of the community
• We will celebrate cultural and other forms of diversity, as this enriches the life of our borough
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5.3 Race Equality - Our Statement of Intent
From now on, we will mainstream race equality by working on four fronts:
Forging Partnerships Developing Shared Vision Providing Leadership Shifting Public Perceptions
To achieve our strategic aims we will focus on three aspects of our work over the next three years:
Year One 2002/3 - Human Resource Management and Development
Our priority for Year One will be to ensure that the right people are working within the organisation and that they are properly equipped to meet the needs of all the local communities. If we can demonstrate to local communities our commitment to “putting our own house in order” we will be able to engage with those communities to build partnerships that are robust enough to support future work on race.
There are two areas of concern which we will address in the first year of our Race Equality Scheme:
One is the lack of cultural diversity in the workforce, particularly in the more senior management posts and the way in which this may be interpreted in terms of institutional racism.
The second is the need for targeted training and development for staff, and advice to contractors to equip them to engage with the community and forge meaningful partnerships that result in improved services for all.
This work will continue throughout all three years of the Scheme.
A great deal of preparation work on community involvement will also take place throughout Year One, together with the research that will underpin Year Three’s work on improving service delivery. Managers of services which have been identified as High Priority in the Race Equality audit (see Appendix) will be expected to be particularly active in formulating action plans for the detailed impact studies that will be required to inform the work in subsequent years.
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Page 38 Year Two 2003/4 - Community Involvement
We will take a new creative approach to consulting the community, focusing on meeting people where they are and on their terms We want to involve local people so that they can make a difference. We will set targets which will prove our commitment and then achieve them in partnership with the people of Barking and Dagenham.
Our priorities for the year 2003/4 are: - to ensure that all communities are aware of the Council’s commitments on race equality - to improve the public’s view of the local authority - as an inclusive multi-ethnic organisation which listens to the community and values diversity - build public confidence in the Council’s ability to deal sensitively with racially motivated incidents - to join more effective multi-agency initiatives on race equality - to encourage effective community-led initiatives to address racism and contribute to policy development - to support more local events to explore cultural diversity - to support tenants’ and community groups to work effectively on race equality and valuing diversity - to develop more voluntary organisations which represent all the communities in Barking and Dagenham, irrespective of their ethnic background - to encourage black and minority ethnic involvement in partnership initiatives, specially funded area and zone activities and central government initiatives
The work on Human Resource management and development will also continue throughout Year Two, with an emphasis on revising policy and practice in response to what is learnt in Year One.
Year Three 2004/5 - Service Delivery
People who face discrimination in their daily lives deserve public services which champion their fight to play a full part in society. We have demonstrated our ability to assure Quality and Equality in some of our work and will try to bring all our services up to the same high standards so that they meet the needs of all the local communities.
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Page 39 Based on the comprehensive impact studies which will result from the community involvement of Year Two, the authority will seek to ensure that all of the services designated High or Medium Priority will produce and implement an improvement plan for Year Three and that this will be integrated in the Best Value process and included on Balanced Scorecard.
From April 2004, our priorities will be: 1. Frontline managers to monitor the take-up of, and satisfaction with, services by ethnic background 2. Frontline managers to identify under-representation and consult local people on possible reasons 3. Service managers to produce a strategy for consulting local communities to identify pockets of exclusion, gaps in services and areas for improvement. 4. Departments to collate information and use it in planning future services 5. Frontline managers to produce annual action plans, based on community consultation, to counteract the identified barriers to equality 6. Each department to produce an annual review summarising: - take-up of existing services by ethnic background - feedback from back and minority ethnic communities - results of research conducted with under-represented groups - feedback on unmet need and gaps in services - information about communities currently excluded from mainstream services - plans for overcoming barriers to equality and counteracting discrimination - implications for policy development and corporate planning 7. Annual review to be evaluated corporately and priorities identified for continual improvement in line with the Council’s Race Equality Scheme, Best Value and the Council's Balanced Scorecard 8. Race equality issues to be integrated into procurement and contracting
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Section Six
The Race Relations (Amendment) Act 2000 - how we are meeting the general and specific duties
6.1 The Council’s general duties under the Race Relations (Amendment) Act are to:
Eliminate unlawful racial discrimination
Promote equality of opportunity; and
Promote good race relations
6.2 We are keen to ensure that all our work around Equalities and Diversity is built into the Best Value review process so that it is perceived as integral to the core work of the authority.
Furthermore, as one of the first tranche of authorities being inspected under the Audit Commission’s Comprehensive Performance Assessment we want to demonstrate that our corporate approach to Equalities and Diversity is robust enough to stand up to scrutiny. The feedback from this CPA is due in December, 2002 and will inform our approach and future strategic planning around equalities and diversity - including future reviews of this Race Equality Scheme
6.2 As part of the “Learning from Lawrence” strategy, the authority started assessing the likely impact of its policies and practice on the promotion of race equality.
We have now completed an audit of the authority’s functions, using an assessment grid based on that recommended by the CRE in its Good Practice Guide.
At the same time, public consultation around the report “Beyond Lawrence” has started to give a clear indication of the concerns of local black and minority ethnic communities.
6.3 In order to meet the general duty of the Race Relations (Amendment) Act, it will be necessary to consider the results of this audit and the initial response of the local communities. To this end a preliminary consultation exercise was undertaken through the Ethnic Minority Partnership Agency and the Race Equality Council and the views expressed have assisted with the prioritisation of action.
6.4 A summary of the audit is found as Appendix and indicates that there are very few areas of the council’s work which are deemed irrelevant to discrimination, equal opportunities or race relations.
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Department Little or no relevance Little or no relevance Little or no relevance to eliminating to promoting equal to romoting good race discrimination opportunities relations Social Services Performance Man Performance Man Performance Man IT Systems IT Systems IT Systems Research, Archiving Research, Archiving Education TBA Catering Catering Inspection and Advisory Service TBA TBA TBA TBA TBA TBA TBA TBA Leisure and IT Support IT Support IT Support Environmental General Office post General Office post General Office post service, development service, development service, development and streamlining of and streamlining of and streamlining of services using services using services using computer based computer based computer based technology technology technology Report co-ordination for Report co-ordination for Report co-ordination for Executive, Assembly Executive, Assembly Executive, Assembly etc etc etc Research, resource Research, resource Forward Plan - detail and reference point for and reference point for co-ordination committee procedures committee procedures Research, resource and reference point for committee procedures Housing and Environmental Policy Environmental Policy Environmental Policy Health
6.5 Those functions which are the most relevant to tackling discrimination, promoting equal opportunities have been the focus of much of the work undertaken in response to the Lawrence Enquiry report and will continue to be the areas that are prioritised in the impact assessments to be conducted in preparation for Years Two and Three.
6.6 Policies and procedures are being overhauled and the response from local communities has been documented as positive. There is, however, a strong feeling that those implementing the policies sometimes lack commitment and that the authority will continue to fail in its attempts to challenge all forms of discrimination until it ensures that all staff understand the barriers to equality
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Page 42 which result in discriminatory practice - and are equipped to support all local people in challenging these.
6.7 At a large public meeting called to discuss the priorities for the Race Equality Scheme, it was even proposed that each member of staff should be asked to sign a statement of commitment on anti-racism as a condition of employment in the Council. This indicates the strength of feeling amongst some members of black and minority communities but the idea was not widely supported and the authority would not find it appropriate to introduce such a policy. There is, however, almost universal support for the introduction of anti-discriminatory practice as an area of core competence and for performance indicators to include clear measures linked to good practice guidelines on race. This is how the authority intends to proceed and has been integrated into the action plan for Year One.
6.8 It is clear that, while managers have identified those functions which are particularly relevant to eliminating discrimination, it will be most important to spell out the way in which the authority is demonstrating commitment in a practical way through changes in the development and management of Human Resources - through induction, performance management, coaching, training, selection, promotion and retention.
Whilst the legislation requires the authority to have “due regard to the need to tackle racial discrimination, promote equality of opportunity and promote good relations”, here in Barking and Dagenham we wish to demonstrate a total commitment to equalities and diversity which enables the development of a shared vision with our different local communities. Meeting the duties of the Act will underpin the work of each and every team and their performance will be measured by their success ensuring that their work meets the needs of all local people, acknowledging those who may previously have been discriminated against.
6.9 Those functions which have been identified as ‘Priority One” for action will be targeted within the action plan for Human Resource Management and Development in Year One . In addition, the managers of these services will be required to produce (by the end of September 2002) supplements to their annual service BSC which indicate how they propose to assess and address the needs of the communities which they are currently failing.
These services are:
Department Division Review/Action Social Services Children with disabilities Day Opportunities Service Community Learning Disability Team
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Page 43 Department Division Review/Action Court service Parenting Supervision of young offenders Victim liaison Final-warnings reprimand Social Services Resettlement Bail supervision Report writing Education Lifelong Learning Division Literacy and Cultural Service Literacy Support Services Human Resources CIACS Teachers' Professional Development Governor Training Children's Support Exclusions Leisure and Parks and Leisure Development of Partnership Environmental opportunites with the community and private sector on service development and improvements General Admin Group 1 Departmental complaints handling/ monitoring All aspects of customer care General Admin Group 2 Security and crime prevention advice for council property Operational assistance to all departments , joint operations with Police to obtain evidence for audit, disciplinary and harassment issues. Housing and Health noise patrol Submission for government grant funding Emergency Planning Operation of 24 hour communication centre 24/7 social alarm service for elderly and vulnerable residents Intruder and fire alrm monitoring for Council property Out of hours emergency response service for all departments CCTV monitoring of 8 borough shopping and residential areas Civil defence and peacetime emergency plann Consultation and liaison with
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Page 44 Department Division Review/Action external agencies, including Cabinet Office, adjoining boroughs and pan London Training all council staff to prepare for and deal with major incidents
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Page 45
Housing and Housing Strategy Health Chief Policy and Planning Division Best Value Reviews and Executive Improvement Plans Public consultation Community Strategy Corporate Equalities and Diversity Corporate Equalities and Diversity Policy Framework and Strategy Corporate Equalities and Diversity Balanced Scorecard Corporate Consultation strategy Crime and Disorder Strategy Inter-agency work on drugs Inter-agency work on Hate Crimes Public consultation Regeneration Strategy Neighbourhood renewal Strategy Neighbourhood Management Public consultation Community development Workforce Development Strategy Project Appraisal Dealing with press inquiries Public communication Communication materials Publicity & Promotional Campaigns Effective Communication with Residents Democratic and Legal Services Customer Care Complaints Scrutiny/Overview Standards and Ethics Whistleblowing Electoral Services Community Forums Corporate Legal Advice Departmental Legal Advice Data Protection Freedom of Information Partnership
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Page 46 Housing Social Services Education Community Legal Services Safer Services Employment Local Government Law Procurement Statutory Nuisance Assaults on Staff Disturbance at Schools Possession Proceedings Breach of Tenancy Conditions Injunctions Child Care Proceedings Domestic Violence Geographical Information Corporate HR Equalities and diversity in employment strategy Welfare services Training and development policy/services Use of Psychometric Tests Policy Recruitment/Selection Policy/Operational Requirements Disciplinary Procedures Dealing with Harressment Policy Violence and Aggression Policy/Procedure Organmisational Development Plan Valuation work Facilities Management Finance E-Government Web-Site Management Rent Accounts Recovery Council Tax Recovery Housing Benefits Housing benefits Verfication/Fraud Business Rates Recovery Income and Collections Legal Enforcement Support Services (Complaints)
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Page 47 Appeals Financial Analysis and Advice Financial Planning Financial Systems Programmed Audits Audit Planning Cycles Standards and Codes of Conduct Whistleblowing investigations Fraud and Disciplinary Enquiries Input in to Best Value Review process
6.10 Barking and Dagenham’s corporate approach aims to ensure that the authority meets its duties under the Act by mainstreaming race equality. In line with the CRE guidelines, we have examined how the specific duties are addressed by our strategic plan, as follows:
6.10.1 Monitoring - see section 8
6.10.2 Access to Information and Services
The Council has recently appointed a Corporate Equalities and Diversity Adviser and Equalities and Diversity Officers in each of the five service departments. These posts allow the Council to build strategic capacity at departmental level whilst ensuring strategic direction and corporate approach.
The work programmes of the Equalities and Diversity Officers are based upon a combination of corporate and departmental priorities. A key area is consultation and engagement and service delivery. In year one of the scheme the Equalities and Diversity Officers will contribute to corporate work on methods of consultation-engagement and building the vital interface between Council services and service users in the local community. Simultaneously, the Corporate Adviser is developing a programme of bridge building with key sectors of the local community. This will include greater contact with faith groups via institutions such as local Churches, the Barking Mosque and Gurawara, forging stronger links with local BME organisations via EMPA and the REC and developmental work via the Council's Community Development Team.
The Council is seeking to appoint a specialist BME and Hard to Reach Community Development Worker, joint funded by the Council and the Neighbourhood Renewal monies, to undertake specific developmental work with the local black and minority ethnic communities. To ensure a consistent,
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Page 48 strategic approach the work of the post will be overseen by a small steering group consisting of the Council's Corporate Equalities and Diversity Adviser and Community Development Manager, the Director of EMPA and a representative of the Primary Care Trust (PCT). The focus of this Steering Group will be to establish priorities, set targets and monitor progress. The work of this post will make a major contribution to mainstreaming race equality in to Community Development and make a major contribution to the preparation of years two and three of the Race Equality Scheme and feed in to the Council's wider work on community engagement and communal cohesion.
As part of its mainstreaming approach, the Council will ensure that race equality is integral with regard to building the capacity of the local Third Sector and all of the major structures and plans that interface with the local community.
This will include, amongst others:
- Strategic regeneration - Neighbourhood Renewal - Neighbourhood Management - Tenants’ participation - The new Community Housing Partnerships - The Barking and Dagenham Borough Partnership - Community Strategy Neighbourhood Renewal Strategy - The Community Forums.
6.10.3 Employment and Staff Development - integrated into the Year One Action Plan (see section 7)
6.11 Community Consultation
As has been noted in the report “Beyond Lawrence”, there is little history of meaningful engagement with the communities in Barking and Dagenham and this is highlighted as a priority immediately following the planned Year One focus on HR Management and Development.
6.12 Prior to drafting this Race Equality Scheme, officers met with representatives of the black and minority ethnic communities to discuss ways of developing dialogue with as wide a cross section of the community as possible. With the help of EMPA and the REC, some new approaches were piloted and the authority will build on and develop these over the next twelve months to prepare for the Year Two focus on Community Involvement.
6.13 Current and planned vehicles for community consultation, which are being evaluated, include a wide range which aim to ensure the inclusion of black and minority ethnic communities:
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Page 49
Developing closer partnerships with EMPA and the REC, who are also allocated places on the Corporate Race Equality Monitoring Group
Targeted mail shots, information in community languages on request
Consultation meetings at, for example, the Barking Mosque and Gurawara
Open meetings hosted by the Race Equality Council
Commissioned research involving group and individual interviews
Consultation through Council officers who work with groups in the community
Integrating the theme of “Celebrating Diversity” in to the Town Show
Outreach work to start laying the foundations for the drive towards Community Involvement as the Year Two priority
Liaison with the Trades Unions and Black Workers’ Group
6.14 We will monitor and evaluate this year’s consultation process to ensure that we are reaching all groups within Barking and Dagenham. As part of our corporate equalities policy, we will ensure that the process is accessible to women and men, older and younger people, disabled people, people with mental health problems, refugees and any other groups who may have specific needs which are not being met.
6.15 From the audit results(see Appendix), it is clear that some teams have more established systems for public feedback and comment and we will build on their experiences to help those sections of the authority who may be finding it difficult to assess the impact of their services on black and minority ethnic communities.
6.16 In addition, Promoting Equal Opportunities and Celebrating Diversity is included as one of the Council’s Community Priorities, which should ensure that all current and planned consultation processes will address the race equality issues of proposed changes in policy or practice. The Citizens’ Panel and Community Forums will be encouraged to participate in planned impact studies.
6.17 Our scheme has been designed to work on four fronts:
Forging Partnerships Developing Shared Vision Providing Leadership Shifting Public Perceptions
The themes which we have identified for the first three years are:
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Page 50 Managing and developing human resources Community Involvement Service Delivery
6.18 By equipping all staff in Year One to start working in much closer partnership with he local communities, we hope to build the confidence of the black and minority ethnic communities in the council’s commitment. This has been clearly identified as a pre-requisite to effective community involvement. In the meantime, however, we will ensure that we use all of the above strategies to involve all relevant stakeholders and explore other creative ways of assessing and consulting on the impact of policies and practice on people from ethnic minorities.
Section Seven
Our Action Plan and Timetable
Action Target Completion Date
Audit all existing Human 100% of existing HR 31 March 2003 Resources policies, policies, procedures and procedures and practices, practices audited and both written and unwritten, impact assessments and carry out impact completed. assessments.
Arrangements put in place to policy proof all future A clear policy proofing 31 March 2003 policies for race equality mechanism put in place to impact. This will form part ensure race equality is of the corporate equalities mainstreamed in to all and diversity policy future HR policies. proofing arrangements that will be put in place during 2002/03.
Analyse results and draw A report on HR impact 31 April 2003 up plans to amend either studies produced. immediately or during Immediate action taken or years 2 and 3 of the RES action plans in place for and report. implementation.
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Report findings on impact The report on HR impact 31 May 2003 onwards and proposals for change is the basis upon which and consult with BME the Council consults with groups both in the staff and the community. workforce and the community
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Consult with BME Views arising from the 31 December 2002 communities on current consultation on the wider 5 five strategy on Equalities year strategy are and Diversity in considered and feed in to employment - Assess proposals. perceived and actual impact and amend proposals accordingly
Address the lack of cultural diversity in the workforce, particularly in higher management posts.
With a view to this, Specification drawn up for 31 October 2002 commission a research the project, objectives project to determine identified and consultant priorities for action to commissioned. facilitate the creation of a representative workforce at all levels. Issues to be considered by the consultant will include:
- Trainee Schemes - Targeted advertisements - Outreach projects - Profile raising - Reputation management - Positive action initiatives
Report findings to the Project completed and a 31 January 2003 workforce and community report produced which and take appropriate puts forward action. recommendations for action.
Consultation commences 31 February 2003 with staff and the community.
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Page 53 Remedial action plan in 31 April 2003 place and implementation begins
Ensure that the A study on the options for 31 October 2002 specification for above positive action initiatives is research project includes project planned and the evaluation of positive commenced. action initiatives by other local authorities and A report with detailed 31 January 2003 recommendations on the recommendations is development of new produced. innovative schemes to encourage a more The report is consulted 31 April 2003 representative workforce upon with BME staff and at all levels. Thus, appropriate action equipping us to be planned. increasingly responsive to the needs of all our local communities.
Race equality to be integrated in to all:
- New person Corporate HR to take the 31 May 2003 specifications necessary action and - Core competencies for proof the race equality managers content in these key - Personal appraisal areas. - Performance management Appraisal Working Party to 31 September 2002 tools be reconvened and BME staff consulted
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All staff trained on the Council's duty to promote racial equality through:
- Corporate and 100% of inductions 31 April 2003 departmental covered. induction - Staff team briefings 90% of Staff Briefings 31 February 2003 - Targeted staff/manager Delivered training 90% Targeted sessions/courses sessions/courses - Inserts on People delivered 31 April 2003 Matters 2 inserts in People Matters 31 Mayl 2003
Mainstream race equality Research in to 31 March 2003 in to all corporate and mainstreaming/integration departmental training to be project planned and carried out with the assistance of an external consultant.
Evidence of the race 31 May 2003 equality contents of all corporate and departmental training and development
Programmes proofed at 31 May 2003 the development stage.
Work with all approved Six monthly sessions with 31 October 2002 & 31 consultants to achieve this approved consultants April 2003 objective undertaken to facilitate the mainstreaming process. All Managers to evaluate Each Head of Service to 31 March 2003 their Human Resources ensure that each manager management and Training in their area has and Development completed the evaluation practices and produce process and concrete concrete action plans to action plans are in place. ensure that each service positively promotes race equality in employment.
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Each Department should 31 March-31 May 2003 collate their action plans and put these forward for consultation with BME staff.
Consultation completed 31 May 2003 onwards and implementation of action plans has commenced.
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Use links with % of new providers and 31 April 2003 organisations locally and consultants identified. nationally to identify further key training A formal mechanism in 31 September 2002 providers and consultants place to facilitate with specialist skills. consultation with BME staff. Consult BME staff on the Training and Development commissioning process
Advice and procedures for Equalities and diversity 31 May 2003 contractors, and targeted mainstreamed into present training and development training and development to equip our staff, to plans. Review of the interact with the workforce's future community and forge equalities and diversity meaningful partnerships training and development that result in better quality needs, with a resource services. and delivery plan, completed and in place for implementation
All contractors provided 31 January 2003 with detailed guidance on their obligations under the Race Relations (Amendment) Act 2000
Systematic procedures for 31 May 2003 the monitoring of contractors on race and other equality issues put in place.
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Section Eight
Monitoring
8.1 The Council intends to establish a Corporate Race Co-ordination Group to oversee the implementation of the RES action plan in years one two and three. This body will succeed the former Lawrence Inquiry Officers Group and will report to the Council's Corporate Equalities and Diversity Steering Group. Both structures will be supported by a Corporate Equalities and Diversity Officers Panel, which brings together all of the Council's Equalities and Diversity specialists, and is chaired by the Corporate Equalities and Diversity Adviser.
8.2 The main process by which the Council monitors its performance is built around the concept of a Balanced Scorecard. In order to mainstream Equalities and Diversity issues, Heads of Service will be required to address the following questions about the services that they manage:
1. Does your Department/Service have an up-to-date profile of its service users?
2. Has your Department/Service researched and recognised the needs specific to each of its service users groups?
3. Has your Department/Service undertaken any work to establish the needs of potential users?
3. Does your Department/Service regularly review its services and policies through the perspectives of all groups of service users>?
4. Does your Department./Service consider and design ways of collecting information from the whole community?
5. Does your Department/Service users consider and design ways of providing information that are appropriate to different groups of service users?
6. Has your Department/Service established a consultation and decision- making process which enables less powerful groups to be actively involved?
8. Does your Department/Service use the collection, monitoring and evaluation of data to review existing service provision? Can your Department/Service demonstrate how services have been adapted or new services developed as a result of this process?
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Page 58 9. Has your Department/Service established Equality & Diversity and Quality as core values for managers and policy makers to address at all levels of service planning and delivery?
10. What does your Department/Service do to ensure that the composition of staff at all levels is representative of the community that it serves?
11. What is your Department/Service seeking to achieve through the provision of X service in Barking & Dagenham? Furthermore, what is your Department/Service seeking to achieve through your provision of X service for the Council's target groups in Barking & Dagenham?
8.3 This will ensure that our work on race equality is integrated into the mainstream planning and evaluation process rather than being subject to specific regimes. Our message will clearly indicate a commitment to maintaining equalities issues at the core of the authority’s work in continuous improvement and assuring Best Value.
8.4 Our monitoring policy will require managers to indicate which service areas are to be monitored, based on an initial audit conducted along the CRE guidelines and based upon current service priorities.
8.5 The monitoring process exists within the context of the annual service planning process (i.e. via the Corporate and departmental Balanced Score Cards) and targets are set which reflect service priorities for the year. As Equal Opportunities and Diversity are a Community Priority, then all general reviews of progress in meeting wider Council objectives incorporate a review of progress in meeting equalities and diversity monitoring targets.
8.6 The outcome of monitoring will feed directly into decisions about how and where to target services. Service planning will need to be flexible enough at all stages to respond to concrete statistical evidence of gaps in service delivery identified through the monitoring process.
8.7 End of year service planning will evaluate achievements in the area of equal opportunities and diversity using actual statistical data showing take up, relevance and access to services by ethnic minorities, women and disabled people.
8.8 Objectives are being translated into targets against which performance can be measured. The various targets for services/departments will be decided in advance and the information needed to establish them will built into the system current review systems - Balanced Scorecards, Best Value Review etc.
8.9 The authority is considering plans for a common Monitoring, Evaluation and Review System across the Council, linked to these existing systems. When
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Page 59 established, this will ensure that the authority meets its specific duties with regards to race equality. The current proposal is for a framework that reflects the recommendations of the CRE and will form the basis of community consultation in June and July, 2002.
9.9 The key stages in the proposed Monitoring, Evaluation and Review System are as follows:
• Robust consultation with the community • Agree objectives, identify areas to be monitored and set targets • Allocate responsibility & resources, identify development needs • Agree frequency of monitoring and at what stages of the service delivery process • Establish system for collection and storage of data • Establish system for data monitoring and analysis • Analyse data, review and make recommendations • Report outcomes to DMT for performance Review • Report outcome to TMT, Executive and formal consultation mechanisms with key target groups • Feedback to local community organisations, users and non-users • Incorporate recommendations for improvements in to service planning processes under the balanced Score Card
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Section Nine
Communicating our Plans
9.1 Communicating general information to all staff
General Information will be communicated to all staff through an article in the staff newsletter “People Matters” in August, 2002. This will be followed up with an end-of-year progress report to be published in May, 2003. The scheme, together with a summary and staff guidelines will be posted on the authority’s intranet site and briefing sessions will be organised with Trade Union representatives.
9.2 Communicating targeted information to black and minority ethnic staff
The Black Workers Group and Trade Unions have been allocated places on the Corporate Race Equality Co-ordination Group and the Corporate Equalities and Diversity Steering Group. Representatives will be encouraged to contribute to discussion and feed information back to the Group.
The Corporate Equalities and Diversity Adviser will meet bi-monthly with officers of the Black Workers’ Group to discuss progress and provide a forum for the group to raise specific issues of concern. A further meeting will be scheduled as part of the end-of-year consultation on progress.
The Black Workers Group will be encouraged to participate in an annual Equalities and Diversity Conference to be held in the late autumn. Elected Members, officers and community groups will come together to review progress on race equality and inform future planning.
9.3 Communicating general information to all members of local communities
An accessible, fully illustrated article on our review “Beyond Lawrence” will be published in the July edition of the Citizen which is delivered to every household in the Borough. Research indicates that this reaches a higher percentage of local residents than any other publication. A further article in the August edition will contain final details of the Race Equality Scheme, which will also be available at public places such as libraries and will be posted on the Council’s internet site.
An accessible summary report, targeted at local people will be published at the end of June and widely distributed - the full, detailed report will also be available on request. A publicity drive involving a series of press releases to local newspapers and radio stations will continue into the summer.
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The Citizens’ Panel and Community Forum will be fully informed of plans and progress and officers asked to table plans and progress reports to community groups and tenants’ associations.
9.4 Ensuring the inclusion of black and minority ethnic communities
Both the Ethnic Minority Partnership Agency and the Race Equality Council have been allocated places on the Corporate Race Equality Co-ordination Group and will be briefed on a regular basis so that they can keep their members up to date on progress. Equalities and Diversity Officers will liaise closely with EMPA and the REC as well as the numerous community groups in the borough. Public meetings will be scheduled as/when appropriate and interpreters available on request.
Targeted mailshots are planned and information (including “Beyond Lawrence”, the Race Equality Scheme and the Community Summary) will be provided in community languages on request. Review and Consultation meetings will be held on an annual basis with representatives of black and minority ethnic community groups including the Mosque and Temple.
Section Ten
Conclusion
10.1 For a snapshot of our progress to date, it seems appropriate to turn to our most recent external evaluation - an OFSTED report on Barking and Dagenham was published as this Race Equality Scheme was being prepared for members’ approval. This recognises the authority’s commitment to the mainstreaming of its work around equalities, demonstrated by the way in which we have tried to draw direct links with our strategy on social inclusion.
10.2 OFSTED inspectors found evidence of “strong commitment to social inclusion” and remarked that the authority “is clear what this means for the local community and its schools”. The report goes on to comment that “this commitment is evident in corporate planning and in actions cascading through the council”.
10.3 With specific regard to the measures introduced to combat racism, the OFSTED report notes that the council “has used the LGA checklist well to determine its course of action.” Inspectors note that the authority “ is working with schools to develop model policies and procedures based on the CRE document (Learning for All) and to ensure compliance with the Race Relations (Amendment) Act”.
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Page 62 They go on to observe that “Planning at a corporate level is thorough and deadlines clearly noted”.
10.4 This confirms our belief in the need to continue planning corporately and to take a themed approach to our Race Equality Scheme. Every manager in the Council has been asked to identify the areas of her/his team’s work which are most relevant to combating racism, promoting equal opportunities and promoting good race relations.
Every manager will now be expected to identify practical ways in which these areas of work can be improved:
- in the short term (Year One) through improved procedures and practice in the management and development of their staff which will aid the planning of future community engagement and the implementation of meaningful impact studies
- in the medium term (Years Two and Three) through more effective community involvement leading to enhanced levels of service across the authority
10.5 This first Race Equality Scheme will be the subject of intense community consultation throughout the summer - following the high profile launch of a shorter, more accessible version by the end of June. It is essential that we demonstrate our willingness to listen to the views of all our local communities and ensure that the Scheme is flexible enough to respond to the needs of all our local people.
One of our Community Priorities is “Promoting Equal Opportunities and Celebrating Diversity” and the OFSTED report recognises that we have started to make significant progress in parts of the organisation. We are determined now to continue setting and meeting challenging objectives - ensuring that our initial action plan is achieved and community expectations are exceeded over the next three years.
Appendix A - List of functions and policies
Appendix B - Summary of Audit
Appendix C - Complaints procedure [To be drafted]
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Page 63 Appendix A - List of functions and policies
Social Services
Assessment, Care Management and Commissioning Day care Support with parenting Diversion from care Sure Start Leaving care Children with disabilities CAMMS service Service Commisioning Mobility Service Transport Accommodation Service Day Opportunities Service Community Learning Disability Team Physical & Sensory Disabilities Team Home Care Advice and Information Screening for Assessment Employing Staff Training and staff development Performance Management IT Training IT Systems Best Value Reviews Research, Archiving & Library Services Residential Care Services for older people Day care service Service Developments Implementing the Supporting People Programme Planning of SP Services Funding of SP Services Commissioning of SP services Contracting of SP Services Court service Parenting Supervision of Young Offenders Victim liaison Final Warnings Reprimand Resettlement Bail supervision Report writing
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Education
Inspection and Advisory service ICT Support for Education Teachers’ Professional Development Governor Training Youth Support and Development Service Adult College Education Business Partnership Trident B & D Training Libraries Arts Services Heritage Language Support Service Literacy Admissions Access & Attendance Team Looked After Children Exclusions SEN Educational Psychologists Pupil Referral Unit Early Years Catering Financial Services Pupils, Student Services Human Resources Policy and Planning
Leisure and Environmental Services
Operation of 24 hour communication centre 24/7 social alarm service for elderly and vulnerable residents CCTV monitoring of 8 borugh shopping and residential areas Civil defence and peacetime emergency plan Consultation and liaison with external agencies, including Cabinet Office, adjoining boroughs and pan London Training all council staff to prepare for and deal with major incidents Planning Development Control Group Planning Parks and Leisure development Group IT Support General Admin Group Customer Services
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Page 65 Births, Deaths and Marriages Registration Security Service Civic Buildings Democratic services Strategy and Review DLES Best Value Review Co-ordination Strategic Development Service Improvement and Development Equalities and Diversity Balanced Scorecard DMT Support Asset Management Cemeteries Environmental services Street Lighting Fleet Management and Vehicle Maintenance Waste Services Building Cleaning Planned Highways Maintenance Parking Services Road safety Services Traffic group
Housing
Housing Strategy Division
Housing Strategy Business Plan Regeneration Strategy Social Housing Housing Needs Assessment
Health & Consumer Services Division
Public Health Environmental Protection Food Health & Safety Trading Standards Consumer Services Consumer Advice Local Agenda 21
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Page 66 Landlord Services Division
Estate Management Central Housing Services Needs & Advice Needs & Allocations Homeless Persons
Council Housing Maintenance & Improvement (within Landlord Services)
Maintenance Voids Control Service Planned Maintenance
Chief Executive's
Policy and Planning Division
Best Value Reviews and Improvement Plans Annual Best Value Performance Plan Co-ordination of PIs Public consultation Corporate Policy Assessment Corporate Co-ordination of the Balanced Scorecards Policy briefings for elected members and chief officers
Corporate Policy
Support for the LSP Community Strategy Corporate Equalities and Diversity Corporate Equalities and Diversity Policy Framework and Strategy Corporate Equalities and Diversity Balanced Scorecard Corporate Consultation strategy Support to Policy Commissions and Scrutiny process Policy briefings for elected Members and Chief Officers
Community Safety
Annual Crime and Disorder Strategy Inter-agency work on drugs Inter-agency work on Domestic violence Inter-agency work on Hate Crimes Public consultation
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Regeneration
Regeneration Strategy Neighbourhood renewal Strategy Neighbourhood Management Public consultation External Funding to the Council and its Partners Inward Investment Local Business Development Community development Workforce Development Strategy Project Appraisal
Press and Publicity
Dealing with press inquiries Press Releases Public communication Communication materials Design Publicity & Promotional Campaigns Managing Public Image of the Council Effective Communication with Residents
Democratic Support
Committee/Assembly/Council Serving Forward Plan Customer Care Complaints Council Constitution Members' Services Scrutiny/Overview Standards and Ethnics Whistleblowing Electoral Services Community Forums Plain English
Information Systems and Technology
IT Systems Management IT Procurement IT Support E-Government
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Page 68 Web-Site Management IT Training Needs IT Project Management
Corporate Human Resources (including Corporate Training and Development and Support Services)
Human Resource policy, strategy, Implementation and Review Equalities and Diversity in Employment Organisational development Senior Management Competencies Human Resource Planning and Resourcing Codes of Conduct and Standards for Staff Disciplinary and grievance prccedures Employee Relations Council wide contracts on HR Services Departmental HR Harmonisation Health and Safety Pensions Payroll Welfare Services Accounts for Payment Training and Development Positive Action Initiatives Communicating to Staff on HR Issues Member Development and Induction Investors in People Employee development Programme Management Development Project Management Training Career Trainee Scheme
Corporate Estates and Property Services
Asset Management Asset management Plan Investment portfolio Management Contract Management Property Reviews Strategic Property Advice/Consultancy Valuation work Facilities Management
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Revenue Services
Rent Accounts - Billing Rent Accounts Recovery Council Tax Billing Council Tax Recovery Housing Benefits Housing benefits Verfication/Fraud General Income Business Rates Business Rates Recovery Income and Collections Legal Enforcement Cashiers Support Services (Complaints) Support Services (Non-Complaints) Appeals
Financial Services
Financial Analysis and Advice Financial Planning Financial monitoring Budgeting Closure of Accounts Financial Systems Insurance Value for Money
Internal Audit
Programmed Audits Audit Planning Cycles Financial regulatory Frameworks Standards and Codes of Conduct Whistleblowing investigations Fraud and Disciplinary Enquiries Internal System Controls Project Reviews Input in to Best Value Review process
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Legal Services (Advisory)
Corporate Legal Advice Departmental Legal Advice Data Protection Freedom of Information Partnership Housing Social Services Education Highways Community Legal Services Safer Services Employment Technical Services Local Government Law Procurement Sales of Property Business Tenancy Development Town Planning
Legal Services (Prosecutions)
Trading Standards Statutory Nuisance Food Hygiene Planning Enforcement Dangerous Dogs Weights & Measures Assaults on Staff Disturbance at Schools Health and Safety at Work Licensing Bye-Laws Fly-Tipping
Land & Property Information
Local Land Charges Land Terrier Local Land and Property Gazetteer Geographical Information
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Legal Services (Litigation)
Rent Arrears Possession Proceedings Breach of Tenancy Conditions Injunctions Child Care Proceedings Domestic Violence Debt Breach of Contract
Conveyancing and Contract
Sales & Purchase of Land & Building Sales of Council Housing Commercial Leases C.P.O Part III Residential Accommodation Charges Highway & Footpaths Land ownership Enquiries and Advice Social Housing Grants Contracts Contract Advice Research
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Page 72 Appendix B - Section One
Chief Executive's Department - Priorities of Services, Functions and Policies
1. Policy and Planning Division
Improvement and Development
Best Value Reviews and Improvement Plans High Annual Best Value Performance Plan Medium Co-ordination of PIs Low Public consultation High Corporate Policy Assessment Medium Corporate Co-ordination of the Balanced Scorecards Medium Policy briefings for elected members and chief officers Medium
Corporate Policy
Support for the LSP Medium Community Strategy High Corporate Equalities and Diversity High Corporate Equalities and Diversity Policy Framework and Strategy High Corporate Equalities and Diversity Balanced Scorecard High Corporate Consultation strategy High Support to Policy Commissions and Scrutiny process Medium Policy briefings for elected Members and Chief Officers Medium
Community Safety
Annual Crime and Disorder Strategy High Inter-agency work on drugs High Inter-agency work on Domestic violence Medium Inter-agency work on Hate Crimes High Public consultation High
Regeneration
Regeneration Strategy High Neighbourhood renewal Strategy High Neighbourhood Management High Public consultation High External Funding to the Council and its Partners Medium Inward Investment Medium Local Business Development Medium Community development High Workforce Development Strategy High Project Appraisal High
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Press and Publicity
Dealing with press inquiries High Press Releases Low Public communication High Communication materials High Design Low Publicity & Promotional Campaigns High Managing Public Image of the Council Medium Effective Communication with Residents High
2. Democratic and Legal Services
Democratic Support
Committee/Assembly/Council Serving Medium Forward Plan Medium Customer Care High Complaints High Council Constitution Low Members' Services Medium Scrutiny/Overview High Standards and Ethnics High Whistleblowing High Electoral Services High Community Forums High Plain English Medium
Legal Services
Advisory
Corporate Legal Advice High Departmental Legal Advice High Data Protection High Freedom of Information High Partnership High Housing High Social Services High Education HIgh Highways Medium Community Legal Services HIgh Safer Services HIgh Employment HIgh Technical Services Medium Local Government Law High Procurement HIgh Sales of Property Medium
Page 74 Business Tenancy Medium Development Medium Town Planning Medium
Prosecutions
Trading Standards Medium Statutory Nuisance HIgh Food Hygiene Medium Planning Enforcement Medium Dangerous Dogs Medium Weights & Measures Medium Assaults on Staff High Disturbance at Schools HIgh Health and Safety at Work Medium Licensing Medium Bye-Laws Medium Fly-Tipping Medium
Litigation
Rent Arrears Medium Possession Proceedings High Breach of Tenancy Conditions High Injunctions High Child Care Proceedings High Domestic Violence High Debt Medium Breach of Contract Medium
Land & Property Information
Local Land Charges Medium Land Terrier Medium Local Land and Property Gazetteer Medium Geographical Information HIgh
Conveyancing and Contract
Sales & Purchase of Land & Building Medium Sales of Council Housing Medium Commercial Leases Medium C.P.O Medium Part III Residential Accommodation Charges Medium Highway & Footpaths Medium Land ownership Enquiries and Advice Medium Social Housing Grants Medium Contracts Medium Contract Advice Medium
Page 75 Research Low
3. Corporate HR
Corporate Human Resources (including Corporate Training and Development and Support Services)
Equalities and diversity in employment strategy High Welfare services High Training and development policy/services High Career Trainee policy Low Use of Psychometric Tests Policy High Recruitment/Selection Policy/Operational Requirements High Health and Safety Policy Low Smoking and Health Policy Low Disciplinary Procedures High Sickness/Absence Procedures/Occupational Health Services Low Grievance Procedure Medium Redundancy and Redeployment Procedure Medium Sounding Board Procure Low Recogniotion of Trade Unions and Time Off Agreement(s) Low Local Joint Machinery Low Job Evaluation Schemes and Procedures Low Appraisal Low Maternity Leave/ Maternity Pay/Adoption Leave/ Maternity Support Leave Low Job Sharing Guidelines Low Dealing with Harressment Policy High Risk Assessment Procedures Low Violence and Aggression Policy/Procedure High Management Competancies Low Organmisational Development Plan High Codes of Conduct Medium Standards for Staff Medium Contracts for HR Services - Advertising, Occupational Health and Placement Agencies Low Single Status Low Pensions Service Low Payroll Services Low Member Development Medium Staff Communication Medium
Page 76
Corporate Estates and Property Services
Asset Management Low Asset management Plan Low Investment portfolio Management Low Contract Management Medium Property Reviews Low Strategic Property Advice/Consultancy Medium Valuation work High Facilities Management High
4. Finance
Information Systems and Technology
Systems Development Low Operations Low Printing Low Telecommunications Medium Technical Support Low IT Procurement Low IT Support Medium E-Government High Web-Site Management High IT Training Needs Low IT Project Management Low
Revenue Services
Rent Accounts Billing Medium Rent Accounts Recovery High Council Tax Billing Medium Council Tax Recovery High Housing Benefits High Housing benefits Verfication/Fraud High General Income Medium Business Rates Medium Business Rates Recovery High Income and Collections High Legal Enforcement High Cashiers Medium Support Services (Complaints) High Support Services (Non-Complaints) Low Appeals High
Page 77
Financial Services
Financial Analysis and Advice High Financial Planning High Financial monitoring Medium Budgeting Medium Closure of Accounts Low Financial Systems High Insurance Low Value for Money Medium
Internal Audit
Programmed Audits High Audit Planning Cycles High Financial regulatory Frameworks Low Standards and Codes of Conduct High Whistleblowing investigations High Fraud and Disciplinary Enquiries High Internal System Controls Low Project Reviews Low Input in to Best Value Review process High
Page 78 Appendix B - Section 2
London Borough of Barking and Dagenham Draft template for assessing functions or policies for their relevance to the general duty.
Department: Housing & Health
Relevance Relevance in Relevance in Evidence or reason Which racial Is there public Overall in terms of terms of terms of to believe that some groups are concern that Relevance & Service Area Policy Eliminating Promoting Promoting Good racial groups could affected? function policies Priority Discriminat EOPs Race Relations be adversely are being ion affected? operated in a discriminatory manner? Landlord Estate High High High High (BVPI 74) Low High Services Management Service
Page 79 Specification
Ditto Racial High High High Low Low Medium Harassment Ditto Domestic Medium Medium Medium Low Low Medium Violence Ditto Anti-Social High High High Low Low Medium Behaviour Ditto Tenants Low Low Low Low Low Low Redecoration/ Garden Cultivation Ditto Allocations High High High High Low High
Ditto Homeless High High High Low Low Medium Persons Legislation Ditto Right to Buy Low Low Low Low Low Low Legislation
Appendix B - Section 2
London Borough of Barking and Dagenham Draft template for assessing functions or policies for their relevance to the general duty.
Department: Housing & Health
Relevance Relevance in Relevance in Evidence or reason Which racial Is there public Overall in terms of terms of terms of to believe that some groups are concern that Relevance & Service Area Policy Eliminating Promoting Promoting Good racial groups could affected? function policies Priority Discriminat EOPs Race Relations be adversely are being ion affected? operated in a discriminatory manner? Landlord Tenant High High High Low Low Medium Services Participation Compact/Strate
Page 80 gy Ditto Right to Buy Low Low Low Low Low Low Legislation
Ditto Leasehold Medium Medium Medium Low Medium Medium Management
Ditto Repairs Policy High High High High High High
Ditto Voids Low Low Low Low Low Low Refurbishment Standards Policy
Shape Up/MRA Medium Medium Medium Low Low Medium Ditto
Appendix B - Section Two
Housing and Health Department - Priorities of Services, Functions and Policies
Overall Relevance & Service Area Policy Priority Health & Enforcement Medium Consumer Policy Services
Ditto Environmental Low Policy
Housing Housing High Strategy Strategy
Ditto Business Plan Medium
Ditto Housing Medium Renovation Grant Ditto Regeneration Medium (Estates) Strategy Customer Customer First Medium First
Page 81 Page 82 Appendix B - Section Three DEPARTMENT OF SOCIAL SERVICES
REF FUNCTION Relevance Promoting Promoting Is there evidence Which How much Is there public concern Review/Action of Eliminating EOP? good or reason to believe racial groups evidence do that function/policies are Indicate when planned Discrimination? race- that some racial are affected? you have? being operated in a Year 1, 2 or 3? relations? groups could be discriminatory manner? adversely affected?
0=None 0=None 0=None Yes No Please state: 0=None 0=None 1=A little 1=A little 1=A little 1=A little 1=A little 1=Urgent 2=Some 2=Some 2=Some 2=Some 2=Some 2=Less so 3=A lot 3=A lot 3=A lot 3=A lot 3=A lot 3=Not pressing
Assessment & Care Management and 2 2 2 Yes No All minority groups 2 1 2 Commissioning
Day care 2 2 2 no n/a n/a 1 3 Page 83
support with 2 2 2 no n/a n/a 1 2 parenting black Diversion from 3 3 2 yes minority 2 1 2 care ethnic
sure start 2 2 2 yes asylum 2 2 2 seekers
leaving care 2 2 2 no n/a n/a 1 3
black children with 3 3 2 yes minority 3 2 1 disabilities ethnic black CAMMS service 2 2 2 yes minority 2 2 2 ethnic asylumseekers service 2 3 2 yes disabled 2 2 2 commisioning children Mobility Service 2 2 2 yes Minority ethnic 2 1 2
Transport 2 2 2 yes Asylum groups 2 1 2
Accommodation 2 2 2 Yes Black & Minority 3 0 2 Service Ethnic groups + Asylum Seeking Day Opportunities 2 2 2 Yes Communities for 3 0 1 Service all functions stated. The above Community 2 2 2 Yes groups are 3 0 1 Learning Disability under-represented Team in the service areas Physical & Sensory 3 2 2 Yes covered by these 4 3 0 2 Disabilities functions Team home Care 2 2 3 yes All communities 1 1 2 Page 84
advice and 3 3 3 yes in terms of all BME 2 1 2 information access
screening for 3 3 3 no ALL BME 0 1 3 assessment
employing 3 3 3 yes ALL BME 1 1 2 staff
training 3 3 3 no n/a HR Issue HR HR HR
staff 3 3 3 no HR HR HR HR development Performance Man 1 1 1 No 1 0 3 IT Training 3 3 3 No 3 0 3 IT Systems 1 1 1 No 1 0 3 A new post of BV Implementation officer is being Best Value Reviews 3 3 3 Yes advertised 01 2 Research, Archiving & 112 No 0 0 3 Library svcs Residential Care services for older 3 3 3 yes all groups are 0 1 3 people unrepresented
day care service 3 3 3 yes as above 0 1 3
Service All ethnic Developments 2 2 2 Yes minority 2 1 2 groups Implementing the 3 3 3 no n/a n/a 0 n/a Supporting People Page 85 Programme Planning of SP 3 3 3 We know that current services provision does not reflect the diverse population & that there Needs to be 1 0 2 are a lack of services determined needs research for BME groups Perhaps most Funding of SP 3 3 3 See above See above 1 0 see above services
Commissioning of 3 3 3 See above See above 1 0 See above SP services
Contracting of SP 3 3 3 See above See above 0 0 See above services
Please note that Supporting People is a new Programme under implementation and will need to refer specifically to the needs of all groups. There is specific reference to BME groups coust service 3 3 3 yes BME 3 1 1
parenting 2 2 2 yes BME 1 1 1
supervision of young 3 3 3 yes BME 2 1 1 offenders
victim liaison 3 2 2 yes BME 1 2 1
final- warnings 3 2 2 yes BME 2 1 1 reprimand
resettlement 3 3 3 yes BME 3 1 1
bail supervision 3 3 3 NO N/A 3 0 1 Page 86
report writing 3 3 3 NO N/A 3 0 1 Appendix B - Section Four EDUCATION ARTS AND LIBRARIES
REF FUNCTION Relevance Promoting Promoting Is there evidence Which How much Is there public concern Review/Action of Eliminating EOP? good or reason to believe racial groups evidence do that function/policies are Indicate when planned Discrimination? race-relations? that some racial are affected? you have? being operated in a Year 1, 2 or 3? groups could be discriminatory manner? adversely affected?
Yes No Please state: 0=None 0=None 1=A little 1=A little 1=Urgent 2=Some 2=Some 2=Less so 3=A lot 3=A lot 3=Not pressing Lifelong Learning Division Youth Support and Development Yes Yes Yes No 0 0 2
Adult College Yes Yes Yes no 0 0 3 Page 87 Education Business Yes Yes Yes no 0 0 2 Partnership
Trident Yes Yes Yes No 0 0 2
B and D Training Yes Yes Yes No 0 0 2
Literacy and Cultural Service
Libraries No Yes Yes no 0 0 3
black Arts Yes Yes Yes yes minority 2 2 2 ethnic black Heritage Yes Yes Yes yes minority 2 2 2 ethnic
Language Yes Yes Yes No 2 2 2 Support black and Literacy Yes Yes Yes yes Minority ethnic 2 2 1 and asylum seekers Support Services
Catering No Yes No yes some faith 2 1 2 groups Financial CE Dept issue Service
Pupils, Students CE Dept issue Service
Human Yes Yes Yes Yes black and 2 2 1 Resources minority ethnic groups Policy and Yes Yes Yes No 2 0 2 Planning
Page 88 CIAC Inspection and No Yes Yes No 0 0 3 Advisory Service
ICT Support No for Education Yes Yes Yes 2 0 3
Teachers' Professional Yes Yes Yes Yes All 3 2 1 Development Governor Training Yes Yes Yes Yes All 2 2 1
Children's Support Asylum seekers Admissions No Yes No Yes and 2 0 2 Travellers Access and Asylum seekers Attendance No Yes No Yes HR 2 0 2
Looked After No Yes No Yes unaccompanied 2 0 3 Children minors Exclusions No Yes No Yes Needs 22 1 researching
SEN Yes All Yes Yes Yes 2 2 2 Page 89 Page 90 Function Relevance in Relevance in Relevance in Evidence or Which racial Is there public Overall terms of terms of terms of reason to groups are concern that Relevance & Eliminating Promoting Promoting believe that affected? function policies Priority Discrimination EOPs Good race some racial are being relations groups could be operated in a adversely discriminatory affected? manner? Report co-ordiantion for Executive, Assembly etc Low Low Low Possibly Possibly Medium
Forward Plan - detail co-ordination.
High High Low Possibly None Medium
Research, resource and reference point for committee procedures Low Low Low Possibly None Low
Fire precautions, security, maintenance and porterage. Town Hall and Civic Centre foyer enquiry Medium Medium Medium Possibly Possibly Medium points. Mace bearer, Mayor and Page 91 Deputy Mayors attendance at Civic Security and crime prevention advice for council property. High High High Yes Possibly High
Operational assistance to all departments , joint operations with Police to obtain evidence for audit, High High High Possibly Possibly High disciplinary and harassment issues. Housing and Health noise patrol. Discreet security presence at Council functions. Medium Medium Medium Possibly Possibly Medium
Investigation of staff assualts, professional witness service, court High High High Possibly Possibly Medium attendance.
Submission for government grant funding Medium Medium Medium Possibly Possibly High
Development of CCTV service in partnership with Metropolitan Police High High High Possibly Possibly Medium Page 92 Function Relevance in Relevance in Relevance in Evidence or Which racial Is there public Overall terms of terms of terms of reason to groups are concern that Relevance & Eliminating Promoting Promoting believe that affected? function policies Priority Discrimination EOPs Good race some racial are being relations groups could be operated in a adversely discriminatory affected? manner? Departmental complaints handling/ monitoring High High High Possibly Yes High
All aspects of customer care
High High High Possibly Yes High
General Office post service, development and streamlining of services using computer based Low Low Low Possibly None Low Page 93 technology
Provision of Borough's registration service in line with requirements of Registrar General and 19th century Medium Medium Medium Yes Yes legislation. Ethnic minority communities High Performing civil marriages at Register office and approved premises Medium Medium Medium Yes Yes Ethnic minority communities High Page 94 Function Relevance in Relevance in Relevance in Evidence or Which racial Is there public Overall terms of terms of terms of reason to groups are concern that Relevance & Eliminating Promoting Promoting believe that affected? function policies Priority Discrimination EOPs Good race some racial are being relations groups could be operated in a adversely discriminatory affected? manner? Development of Partnership opportunites with the community and private High High High Possibly Yes High sector on service development and improvements To generate investment into in park and leisure activities Medium Medium Medium Possibly Possibly Medium through targeted bids Page 95 Strategic development of services Medium Medium Medium Possibly Possibly Medium
Development of service areas to meet legislative Medium Medium Medium Possibly Possibly Medium requirements.
Low Low Low Possibly Possibly Medium Page 96 Function Relevance in Relevance in Relevance in Evidence or Which racial Is there public Overall terms of terms of terms of reason to groups are concern that Relevance & Eliminating Promoting Promoting believe that affected? function policies Priority Discrimination EOPs Good race some racial are being relations groups could be operated in a adversely discriminatory affected? manner? Operation of 24 hour communication centre High High High Possibly Yes High
24/7 social alarm service for elderly and vulnerable residents High High High Possibly Yes High
Intruder and fire alrm monitoring for Council property High High High Possibly Possibly High
Out of hours emergency response service for all departments
Page 97 High High High Possibly Yes High
CCTV monitoring of 8 borough shopping and residential areas High High High Possibly Possibly High
Civil defence and peacetime emergency plann High High High Possibly Possibly High
Consultation and liaison with external agencies, including Cabinet Office, adjoining boroughs High High High Possibly Possibly High and pan London Training all council staff to prepare for and deal with major incidents High High High Possibly Possibly High
None #N/A Page 98 Function Relevance in Relevance in Relevance in Evidence or Which racial Is there public Overall terms of terms of terms of reason to groups are concern that Relevance & Eliminating Promoting Promoting believe that affected? function policies Priority Discrimination EOPs Good race some racial are being relations groups could be operated in a adversely discriminatory affected? manner? Themed BV review project management. Corporate BV support role. Departmental High High Low None None Low organisational reviews. Service function reviews Research. Local Performance Plan development and monitoring. Performance monitoring. Performance Medium Medium Medium Possibly None Medium indicating. Facilitation of CPA and PSA agreements.
Departmental training on strategic issues. DLES career trainees. Ad hoc projects. Page 99 Medium Medium Medium Possibly None Medium
Facilitating, implementation and monitoring High High High Possibly None Medium
facilitating, implementation and monitoring High High High Possibly None Medium
All Members briefing facilitation
Medium Medium Medium Possibly None Medium
High High High Possibly None Medium
High High High Possibly None Medium
High High High Possibly None Medium Page 100 Function Relevance in Relevance in Relevance in Evidence or Which racial Is there public Overall terms of terms of terms of reason to groups are concern that Relevance & Eliminating Promoting Promoting believe that affected? function policies Priority Discrimination EOPs Good race some racial are being relations groups could be operated in a adversely discriminatory affected? manner? : Providing information on the services we provide, ensuring that the necessary paperwork is obtained prior to the burial taking place and that the burial is properly Medium Medium Medium Possibly None Medium recorded and that the certificates of burial are forwarded to the relevent Registration office.
The excavation & subsequent back filling of graves, chapel duties,
Page 101 gravedressing etc. Medium Medium Medium None None Low Page 102 Leisure and Environmental Services Development Control group Planning B CDEFG HIJK Function Relevance Relevance Relevance Evidence or Which racial Is there Overall Service unit in terms of in terms of in terms of reason to groups are public Relevance & Eliminating Promoting Promoting believe that affected? concern that Priority Discriminati EOPs Good race some racial function on relations groups policies are could be being adversely operated in affected? a discriminator y manner?
Check town planning and
Page 103 associated applications covering domestic, commercial and industrial premises to ensure compliance with statutory Those for provisions and to improve the whom environment of the Borough. Medium Medium Medium Possibly English is Yes High 15 Undertake site checks and not a first inspections, consulting, discussing language and negotiating with applicants and other parties as necessary. Issue or refuse approvals or make such recommendations to Committee Provide Development Control advice to the Development Projects Team to assist in the implementation of the Borough’s Medium Medium Medium Possibly Possibly Medium 12 development schemes. Investigate and take appropriate enforcement action in respect of unauthorised or other works not complying with planning Medium Medium Medium Possibly Yes High 15 permissions, where there is significant detrimental impact on the environment.
Establish and maintain links with major developers, owners of commercial and industrial premises, etc. in the Borough as part of the promotion of the services provided by the section Medium Medium Medium Possibly None Medium 9 and to secure future and continued use with the emphasis on encouraging developers to make suitable proposals within the
Page 104 Borough as part of the regeneration London Borough of Barking and Dagenham Draft template for assessing functions or policies for their relevance to the general duty.
Directorate: Leisure and Environmental Services A B CDEFG HIJK Ref: Area Function Relevance in Relevance in Relevance in Evidence or Which Is there public Overall Service terms of terms of terms of reason to racial concern that Relevance & Eliminating Promoting Promoting believe that groups are function policies Priority Discrimination EOPs Good race some racial affected? are being relations groups could be operated in a adversely discriminatory affected? manner? Provides and manages the street lighting facilities, street nameplates and CCTV 1 Street Lighting Low Low Low Possibly None Low 6 maintenace. Page 105
Provision and maintenace of Fleet vehicles. Management 2 Low Low Low None None Low 3 and Vehicle Maintenance
Collection of domestic waste, bulky domestic waste, clinincal waste, trade waste. Recycling 3 Waste Services Low Low Low Possibly None Low 6 services. Civic Amenity Facilities. Cleaning of buildings including schools, Barking College, public Building buildings, community halls, and 4 Low Low Low None None Low 3 Cleaning public toilets.
This section is dedicated to optimising investment in the Planned borough's highway assets so as 5 Highways to maximise the residual life of Low Low Low None None Low 3 Maintenance both the carriageways and the footways. Manages the Council's car parks . Also includes Parking Parking Administartion which processes 6 Low Low Low Possibly None Low 6 Services penalty charge notices and Page 106 Parking Enforcement section.
Main aim is to design and implement 'Road Safety' and 'Accidental Remedial Schemes' Road Safety within Council strategy. 7 Low Low Low Possibly None Low 6 Services Management of school crossing patrol service. Education, training and publicity. Town Centre studies, major schemes, development of council transport policy, traffic impact assessments for major developments, review of 'urban 8 Traffic Group clutter' and surveys to ensure Medium Medium Medium Possibly None Medium 9 social inclusion and better accessibility.
9 High High High Possibly None Medium 12 Page 107 Page 108 AGENDA ITEM 6
THE EXECUTIVE
28 MAY 2002
Best Value Service Review of Waste Services Final For Decision Report
The report sets out the findings of the best value review. The report makes recommendations on the future delivery of the Waste Service. The review, report and improvement plan will be subject to inspection and it is therefore a politically sensitive matter. Members are asked to agree the report.
Summary
This report sets out the conclusions of the Best Value service review of Waste Services. The review was undertaken over a period of twelve months, between April 2001 and March 2002. In accordance with statutory guidance the review included a number of stages namely challenge, consult compare and compete. This report sets out a summary of how each of these stages was undertaken together with a summary of the findings and the conclusions that were reached. Also included in this report is the proposed action plan for the future delivery of the service.
An executive summary is also provided which sets out the vision for the service and summarises the key changes and improvements that are proposed as a result of the best value review
Recommendations
The Review Team recommend that Members agree the following in order to improve the delivery of the service in the future.
Restructure the existing service and allow one year to achieve the top quartile before a further report to Members for consideration of the service procurement options.
Reason
This option for future service delivery is in line with the principles of best value. The proposed Action Plan will lead to significant improvement over the next five years.
Contact Officer:
John Peterson Leisure & Environment Tel: 0208 227 2677 E-mail: [email protected]
Councillor W. C. Lead Member Tel: 020 8597 2944 Dale
Background Papers: Best Value Review Report
Page 109 Page 110 The London Borough of Barking and Dagenham Waste services best Value review – April 2001 to March 2002
FINAL REPORT 31 March 2002
CONTENTS
Page Number
1 Executive Summary 3
2 Introduction 9
3 Service under Review 10
4 Best Value Review Team 12
5 Reporting Structure / Process 14
6 Business Review 15
7 Challenge Phase 18
8 Consultation Phase 25
9 Compare Phase 34
10 Compete Phase 40
11 Conclusion 42
12 Option Appraisal 44
13 Action Plan 46
Page 111 The London Borough of Barking and Dagenham Waste services best Value review – April 2001 to March 2002
1. EXECUTIVE SUMMARY
Background
The London Borough of Barking and Dagenham has a population of over 155,000 inhabiting over 66800 households. Of these 76% can be described as low-rise housing. The Borough covers an area of 36.1 square kilometres and produces 55,000 tonnes of household waste and 49,000 tonnes of municipal waste. Of the household waste 1300 tonnes was recycled: the Borough is aiming for a 25% recycling rate by 2005/2006.
Waste Services currently provide the domestic waste collection service to over 66,800 households across the Borough. Approximately 85% of these premises use black sacks for waste containment. The remaining properties, many of which are in multi-occupancy, are supplied with either Euro or Paladin bins. The Council currently supplies both black plastic sacks and bulk containers for resident’s use.
In the main the black plastic sacks are collected from the front curtilage of the property whilst the larger bins are collected from the bin-room or compound and returned to the same place. If the householder is a registered disabled person an assisted collection can be provided.
A further service offered to householders is a free collection service for bulky, garden and excess waste which is made by appointment with the refuse collection contractor. The potential for recovering recyclable materials from this source has not been realised and the potential from recycling white goods, furniture, brick rubble and green waste requires further assessment.
Waste Services also undertake the collection of trade waste from some 700- business customers in the Borough and special collections of clinical waste from individual householders as well as many Doctors/Dentists Surgeries, Pharmacies and Schools.
Waste Services provides a kerbside collection of paper from some 22,000 properties in selected areas of the Borough on a fortnightly basis.
Main Findings
Challenge
To a great extent the challenge phase set the agenda and tone of the review.
During the course of the review it became apparent that several areas gave cause for concern, namely:
1) Missed collections 2) Cleanliness of the street following collection 3) Delays in collecting bulky waste
Page 112 The London Borough of Barking and Dagenham Waste services best Value review – April 2001 to March 2002
4) Missed/late collections of trade waste 5) Low levels of waste minimisation and recycling 6) Relatively high cost of service provision 7) Increasing volumes of waste 8) Type of receptacle used
Some of the above items have been addressed during the course of the review and substantial improvements have been made, the remaining items are addressed in the improvement plan for the service.
Consultation
Following on from the initial meetings of the Review Team a range of consultation arrangements were put in place, including two focus groups and postal surveys to Schools and to the Trade Waste service customers.
From the results of the exercise it can be seen that the vast majority of Barking and Dagenham residents (81%) were satisfied with their refuse collection service overall. Only 8% were dissatisfied. The net satisfaction rating for the service overall was 73%. This is substantially higher than the London average (58%) and outer London Borough average (61%).
Barking and Dagenham also gained higher net satisfaction scores than other Boroughs in areas such as reliability of the service (83% compared to 74%), street cleanliness after collection (43% compared to 35%) and the collection of bulky household waste (49% compared to only 18%).
Despite the apparent lack of a recycling scheme the following net satisfaction scores were gained: provision of recycling facilities in general - 35% (compared to a London average of 29%).
One of the major concerns centred around the black bag service. People did not know how often they were due to receive these. There was consensus that the Council could give out a few more per household (especially in larger households) Another problem was that people felt that when the council left black bags at doors these were quite frequently stolen or going missing etc. Also, they are not strong enough and frequently tear. Consensus is that dogs/cats/foxes etc tear open the bags.
Regarding wheelie bins, the overall view is that they would pay something (about £20) for a wheelie Bin. The focus groups believed that if everyone had one then there would be less risk of theirs getting stolen. The use of wheelie bins would also make the streets look cleaner.
In response to the Schools Survey, over half (59%) rated the refuse collection service as satisfactory and over one quarter (26%) rated it as good. Just 11% rated the service as poor.
79% of respondees to the Trade Waste Survey rated the service as good. or satisfactory, although 18% rated it as poor.
Page 113 The London Borough of Barking and Dagenham Waste services best Value review – April 2001 to March 2002
The following is a sample of the changes put into effect following the consultation exercise:
• Introduction of improved targets to reduce the number of missed collections.
• Increasing the awareness of the BVPIs that affect the service and utilising notice boards to publish same.
• More active involvement with the enforcement team to reduce the number of black bags on the street, on days other than the normal day of collection.
• Commercial/Trade Waste schedules re-targeted to meet actual needs.
• Improvement in customer care especially in the area of bulky waste collections with a card being left to say we had called and the refuse was not available.
• Review of customer care and introduction of 24-hour telephone access to services.
Compare
Whilst it is not difficult in the current climate to find “Waste Services” identified by other boroughs, very often it comprises different services and it is difficult to compare like with like. It is very apparent that the majority of boroughs take the measurements for their BVPIs in different ways and it would probably help a great deal if a more rigorous national model could be made available.
Notwithstanding the above, whilst it is evident that Barking and Dagenham provide a simple effective service it is not yet at the stage of achieving its goals in the areas of waste minimisation and recycling.
To develop the Authorities Waste Management and Recycling strategy there was a need to ensure that the necessary infrastructure would be in place to deal with any material that was recovered.
It was decided very early on in the process of developing the recycling strategy of the Borough that it would not be economically viable to develop systems and facilities to deal solely with the Boroughs own waste. Therefore in conjunction with the other three member authorities of ELWA an Integrated Waste Management Strategy (IWMS) was developed. The Borough is now, however, in a position through the IWMS to develop the necessary improvement plans to ensure delivery of this part of the service.
Page 114 The London Borough of Barking and Dagenham Waste services best Value review – April 2001 to March 2002
Representatives of the review team visited Leicester City, a Beacon Council, for a Best Value Workshop in October of 2001. The visit proved to be most helpful in confirming to the team that the actions being taken were in line with best practice.
The Borough has made great strides in setting up a performance monitoring system and developing local performance indicators.
One of the areas for further consideration is BV84 which shows the amount of household waste collected per head of population is just under 600 kilograms and is one of the highest in London, putting the Borough in the bottom quartile.
The cost of waste collection per household (BV86) at just below £25 places the Borough just under the top quartile within London. Whilst the above figure represents a higher cost than the surrounding boroughs it does not represent the value of this Borough’s “take all” policy and the free collection of bulky waste, white goods and garden waste or the cost of each tonne collected.
At the commencement of this review the number of collections missed per 100,000 collections of household waste (BV88) is in the region of 85 which puts the Borough just under the top quartile in London. Work has been ongoing during the period of the review and this figure has been reducing gradually, and is now in the region of 52 per 100,000 collections, which, all things being equal places the Borough in the top quartile.
Whilst the majority of the figures are just outside the top quartile, they show substantial improvement and in some cases are better figures for LBBD than its neighbouring boroughs.
The comparison phase showed that in general BVPIs for waste services are higher than in some adjacent boroughs, the level of satisfaction is also higher than the adjacent boroughs.
This Borough operates a “take all” policy on the collection of domestic waste which includes garden waste and makes free of charge collections of bulky waste and white goods. Thus the higher satisfaction level with the service and also the slightly higher cost of waste collected per head of population (BV86). Based on quantitative information from the compare process it is not possible to determine conclusively that the council is the best provider of the services, but that it has gone a long way towards meeting BVPIs and improving them.
The service, whilst showing a marked upward trend in performance indicators still does not all fall into the top quartile in some areas. The objective must be to improve the service across this threshold as soon as possible.
Compete
The review team looked at the options for future delivery of the service using the governments suggested options. In looking at all of the options the review
Page 115 The London Borough of Barking and Dagenham Waste services best Value review – April 2001 to March 2002
team had to bear in mind the changes in the service concurrent with the review and how these changes might impinge on future service provision.
The results of the benchmarking exercises undertaken indicated that Waste Services are competitive and are in the second to top quartile.
Conclusions
The provision of Waste Services is a statutory requirement and the possibility of the Council ceasing to provide such a service is not an option.
The services currently provided are seen, by the residents of the Borough and other User’s, to be to a high standard.
During the next five years it may prove necessary to review the current policy of providing free plastic sacks and the free collection of bulky waste and consider making a charge for the provision of these services.
The review group considered the seven options available to them as a way forward and a suitable outcome of the review and determined that the following would not be practical:
1) Formation of a public-private or public-public partnerships, through a strategic contract, or joint venture company
This option has been discounted as a realistic option for achieving improvement to the standard required from this review, within the period of the action plan.
2) Transfer or externalisation of the service to another provider (with no in-house bid)
Given that the current in-house provider has demonstrated that it can provide a competent service it would be inappropriate to exclude them from tendering to provide the future service.
3) Re-negotiation of existing arrangements with the current providers where this is permissible
This option was excluded as the service is currently provided in–house.
4) Cessation of the service, in whole or in part
As statutory service, cessation cannot be considered.
The rationale for rejecting the above were either a need to ensure there was a service and there was already an in-house provision which should be given the opportunity to compete.
Page 116 The London Borough of Barking and Dagenham Waste services best Value review – April 2001 to March 2002
The remaining three options from the seven options proposed by the government for future service delivery are include in the recommendations, they are:
1) Market-testing of all or part of the service (where the in-house provider bids in open competition against the private or voluntary sector)
Market testing would meet the Council’s statutory and financial requirements. It is thought that there is a slightly increased risk, although this is not thought to be significant and could be outweighed by the potential efficiency gains and service improvements.
2) Restructuring or re-positioning of the in-house service
This option meets all of the criteria set out in the matrix and provides the added value of having a proven capacity to provide the service.
3) Joint commissioning or delivery of the service
It was thought that there are opportunities for efficiencies to be gained by jointly commissioning the service. It was thought that joint commissioning or delivery with another Local Authority may present possible economies of scale and contribute towards further joint commissioning or service delivery within ELWA.
The review team recommends the following for Members to consider and decide on:
1) Restructure the existing service and allow one year to achieve the top quartile before a further report to Members for consideration of the service procurement options.
Page 117 The London Borough of Barking and Dagenham Waste services best Value review – April 2001 to March 2002
2. INTRODUCTION
2.1 The London Borough of Barking and Dagenham has a population of over 156,000 inhabiting 66850 households. Of these 76% can be described as low- rise housing. The Borough covers an area of 36.1 square kilometres and produces 55,000 of household waste and 49,000 tonnes of municipal waste. Of the household waste 1300 tonnes was recycled: the Borough is aiming for a 25% recycling rate by 2005/2006.
2.2 Barking and Dagenham collects refuse from over 66800 properties on a weekly basis, covering seven domestic collection rounds. A greater frequency of collections are made from high rise premises.
2.3 The refuse collected is taken by road to a transfer station at Jenkins Lane, just off the A13/A406 junction.
2.4 Following this the refuse is sent by road to a landfill site at Aveley.
2.5 Waste paper, for recycling, is collected from 22,000 households in selected areas of the Borough. The scheme operates fortnightly utilising one caged bodied vehicle.
2.6 Across the Borough there are around 70 bring sites where residents can deposit their recyclables, such as, glass, cans, paper and textiles.
2.7 The Civic Amenity Site at Frizlands also provides facilities for the disposal, reuse or recycling of white goods, waste oil, car batteries, scrap metal and garden waste.
Page 118 The London Borough of Barking and Dagenham Waste services best Value review – April 2001 to March 2002
3. SERVICE UNDER REVIEW
3.1 The National Waste Strategy 2000 and the proposed Mayor for London Waste Strategy present the Council with major challenges in achieving statutory recycling and recovery targets whilst meeting its duty under Best Value. Reducing dependency on landfill disposal and increasing the reuse of waste can only be made possible through significant investment and innovative solutions in waste recycling, treatment and disposal.
3.2 The present recycling initiatives in operation amount to around 6% with the remaining 94% being disposed of at landfill. Added to that the landfill sites currently in use are projected to become full by 2005.
3.3 Waste Services currently includes provision of the following:
a) Collection of Domestic Waste b) Collection of Bulky Domestic Waste c) Collection of Clinical Waste d) Collection of Commercial/Trade Waste
Note: The majority of the above services are provided direct to the public, though there are some internal customers, such as, schools and other public buildings.
3.4 The provision of services a), b) and c) above is a statutory requirement and without them the amount of rubbish on the streets would become intolerable, therefore it can safely be said they are essential.
3.5 Waste Services currently provide the domestic waste collection service to over 66,800 households across the Borough. Approximately 85% of these premises use black sacks for waste containment. The remaining properties, many of which are in multi-occupancy, are supplied with either Euro or Paladin bins. The Council currently supplies both black plastic sacks and bulk containers for resident’s use.
3.6 In the main the black plastic sacks are collected from the front curtilage of the property whilst the larger bins are collected from the bin-room or compound and returned to the same place. If the householder is elderly or infirm then an assisted collection can be provided.
3.7 A further service offered to householders is a free collection service for bulky, garden and excess waste which is made by appointment with the refuse collection contractor. The potential for recovering recyclable materials from this source has not been realised and the potential from recycling white goods, furniture, brick rubble and green waste requires further assessment.
3.8 Waste Services undertake special collections of clinical waste from individual householders as well as many Doctors/Dentists Surgeries, Pharmacies and Schools.
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3.9 Waste Services provides a kerbside collection of paper from some 22,000 properties in selected areas of the Borough on a fortnightly basis.
3.10 A Commercial/Trade Waste collection service is provided and currently collects from around 700 business premises.
3.11 The disposal of the Borough’s waste is currently undertaken by the East London Waste Authority (ELWA). A new contract has been negotiated by ELWA for the disposal of all waste by a private contractor, Shanks Waste Services, for the next twenty-five years. There will be no immediate change in how the waste is presented and, as far as, the Waste Collection Authorities are concerned it will be a seamless transition in service provision.
3.12 Waste Collection possesses ISO 9001 Accreditation and is currently working toward ISO 14001 accreditation.
3.13 The management of the Civic Amenity Site at Frizlands Depot is currently the responsibility of the Council. This will pass to the new ELWA contractor, Shanks Waste Services, at the end of June 2002. Shanks Waste Services will be required to develop the site into a user-friendly recycling centre, which will become a focus of the community-recycling network. The objective being to maximise the recycling potential by identifying suitable markets for the materials received at the site.
3.14 There are approximately 70 Bring Sites across the Borough. LBBD manages the sites and is responsible for their cleanliness. The materials, which can be deposited at these sites, are glass, paper, textiles and metal food/drink cans.
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4. BEST VALUE REVIEW TEAM
TEAM MEMBER ROLE WITHIN TEAM CONTACT DETAILS
John Peterson Lead Officer Tel: 020 8227 2677 Head of Environmental Fax: 020 8227 2221 Services E-mail: [email protected] Frizlands Depot
Terry Bevan Project Manager Tel: 020 8227 2644 Group Manager – Fax: 020 8227 2644 Transport and Waste E-mail: Services [email protected] Frizlands Depot
Councillor Bill Dale Elected Member Democratic Services
Councillor Steve Gill Elected Member Democratic Services
Councillor Roy Patient Elected Member Democratic Services
Phillip Horner Team Member Tel: 020 8227 3208 Accountant Fax: 020 8227 3174 E-mail: [email protected] Town Hall
Dave Hawes Team Member Tel: 020 8227 3262 Head of Strategy and Fax: 020 8227 3262 Review E-mail: [email protected] Town Hall
Bob Hill Team Member Tel: 020 8227 2686 Waste Minimisation Fax: 020 8227 2221 Officer E-mail: [email protected] Frizlands Depot
John Mitchell Team Member Tel: 020 8227 2642 Commercial Waste Fax: 020 8227 2674 Officer E-mail: [email protected] Frizlands Depot
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David Evans BV Support Tel: 020 8227 2384 Officer Fax: 020 8227 2408 E-mail: [email protected] Civic Centre
Brian Reeman Team Member Tel: 020 8227 2588 Supervisor Fax: 020 8227 2674 E-mail: Frizlands Depot
Naomi Goldberg BV Support Tel: 020 8227 2248 Officer Fax: 020 8227 2408 E-mail: [email protected] Civic Centre
Nick Kingham Team Member Tel: 020 8227 2753 Fax: 020 8227 2846 E-mail: [email protected] Stour Road
Bob Wenman Critical Friend Tel: 020 8430 2000 x26275 Head of Refuse and Fax: 020 8557 8989 Transport Services E-mail: [email protected] LB Newham Folkestone Road Depot
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5. REPORTING STRUCTURE / PROCESS
The main part of the review revolved around structured meetings of the review team, these being as follows:
• Fortnightly meetings of the review team • Every six/eight weeks the review team met with Members • Ad hoc meetings, such as, brainstorming sessions • Presentations from specialists
This structured approach and short time span between meetings allowed the team to make progress fairly quickly and deal with many issues as the review progressed.
In addition to the above meetings the Lead Officer and Project Manager met with the Chief Executive, one of the Directors or Borough Officers and the Best Value Support Officer at three monthly intervals to monitor progress and discuss various issues and concerns
There were also many discussions between members of the team and Officers in other sections/departments and even other Authorities to compare methods of operation and how they saw the service.
There were several visits to other Authorities, including a visit to a Beacon Council Best Value Workshop in Leicester.
Use was also made of focus groups and surveys to broaden the base of the information gathering and provide a broader picture of what the customer really expected from the service
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6. BUSINESS REVIEW
BUSINESS ACTIVITY
REFUSE COLLECTION
The role of Refuse Collection is to collect waste from all domestic premises throughout the Borough on a weekly cycle.
Trade refuse is collected from those premises that possess trade agreements. In addition collections are made from Municipal Buildings and Educational Establishments throughout the Borough.
Furniture and bulky items are collected on request from either members of the public or for other departments, such as, Housing and Education.
The collection of Clinical Waste from private dwellings, Residential homes, Doctor’s and Dental Surgeries is also within the remit of this section,
Refuse Collection handles the following approximate tonnes of waste during an average year:
Quantity Type 52,400 tonnes General waste 1,600 tonnes Bulky items (furniture etc.) 7,000 tonnes Trade and commercial waste
RESOURCES
Labour
The number of employees in Waste Services is listed below:
Current Position Numbers Assistant Manager 1 Commercial Waste Officer 1 Assistant Commercial Waste Officer 1 Supervisor 1 Domestic Refuse 28 Trade Refuse 9 Bulky Waste (GP’s) 10 Clinical Waste 2
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Equipment
Item Type Quantity Refuse Collection Vehicle (Domestic) 7 Refuse Collection Vehicle (Binlift) 4 General Purpose Vehicle 5 Clinical Waste Vehicle 1 Ford Courier Van 1 Hooklift Vehicle 1
Objectives
To conduct a comprehensive review of the Recycling and Waste Collection services which take account of and implement a greater degree of responsiveness to the Council’s objectives and priorities, possible alternative methods of working and organisation, financial implications, and the needs of all the stakeholders.
The review will also cover cross cutting issues with particular care being exercised in identifying and considering the services and service users.
The services are very high profile and are in an area that is particularly sensitive to the public - any small failure of service will always attract a disproportionately large amount of criticism – this requires careful consideration.
Scope of review
All aspects of the collection of Domestic and Trade waste, also the collection of clinical waste, garden waste and other recyclable materials. The Operation of the Civic Amenity Site will also be reviewed.
The review will consist of the two elements described below:
Recycling – this will include the Waste Minimisation effort and take particular notice of statutory direction. Current Government recycling targets have been announced and need to be achieved through innovative and forward thinking.
Waste Collection – the collection of domestic and trade waste are the major areas to be considered, but there are also key smaller services such as clinical waste collection, garden waste collection, bulky waste and furniture collection, civic amenity site, etc., which also need to be covered.
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Issues
There is a degree of synergy between the above areas, which could be used to advantage – this will have to be investigated. Whilst there are no particular obvious problems foreseen with regards to the scope and boundaries of the review, there is a slight overlap with the “Street Scene” service which was reviewed in Year 1. The overlap will need to be examined to avoid duplication of effort.
The other main issues include fulfilling the Council’s objectives more thoroughly where possible, the “cleaner, greener, safer” priority is obviously a key issue. Additionally, there must be consideration for the needs of the public and also for the sensitivity of the service and any failure.
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7. CHALLENGE PHASE
The main purpose of the challenge phase being as follows:
• To establish the need for the service and the way in which it is delivered
• To establish who the service is for and to identify their needs and expectations
• To review the viability and cost effectiveness of the service
The challenge aspect of the review was undertaken in three phases, internal, external and by a ‘Members Challenge’ structured around questions set out in the Council’s Best Value Toolkit.
7.1 Establishing the need for the service and who it is for
The purpose and need for the service:
Domestic Refuse Collection
The Collection of domestic refuse from over 66,800 properties at least once per week.
In the main the method of collection from low-rise properties is black plastic bags from the front curtilage of the property, as near to the front gate as possible. Collection from high rise properties is usually by Eurobin or Paladin bin
Commercial/Trade Refuse Collection
To collect commercial/trade waste from approximately 700 customers as per negotiated contracts and schedules.
Clinical Waste Collection Service
The collection of clinical waste from domestic premises, residential homes, schools, Doctor’s/Dentist’s surgeries and other local businesses.
Civic Amenity Site
The provision of a dedicated site where the public can drive in and dispose of their waste.
NOTE: The operation of the Civic Amenity Site will be transferred to East London Waste Authority contractor in July 2002.
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The greater part of Waste Services is either statutory, regulatory or demand led and it is therefore necessary for the Council to arrange to carry them out. A number of statutes, regulations and codes of good practice prescribe how the service is to be operated, monitored and controlled, these include:
Environmental Protection Act 1990
Public Health Act
Refuse Disposal Amenity Act
The Waste Strategy 2000 (May 2000 and updated in August 2000)
The Mayor for London Draft Municipal Waste Management Strategy (July 2001)
Waste Matters, Audit Commission, (1997)
A way with waste, DETR, (1999)
Who is the service for: In looking at who the services are for the review team identified many users and stakeholders that have been grouped generically below, for example: User: Local people Commercial interests Stakeholder: National interests Staff and Unions
7.2 Involving elected members in the challenge process
Three elected Members of the Authority, Cllrs W.C. Dale, S.P. Gill and R.A.J. Patient were assigned to the Waste Services Review. Guidance notes for members’ involvement were issued in August 2000.
Members have been kept informed with:
• Minutes of Review Team meetings, these meetings are usually held fortnightly
• Reports from the various activities carried out by the review team
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• Meetings between Members and the Review Team to discuss progress and to review the changes and options
Members were active participants in a special brainstorming meeting on the 1 May 2001 where many issues were raised and discussed.
The issues challenged by the members at the above meeting included:
• The Authority’s will and ability to use enforcement.
• The scope of Waste Services
• They challenged the efficiency of delivery of services particularly the Domestic and Commercial/Trade refuse collections
• They supported collaboration and cross cutting between Waste Services, Street Cleansing and Housing and Health Litter Project Teams.
• They favoured local accountability for the borough's services.
The Member’s views have been reflected in the Challenge phase and the conclusions reached.
7.3 Involving local people in the challenge process
A number of key stakeholders were identified which included a large number of local people and the following consultation or part consultation/part challenge exercises were undertaken.
• Public consultation prior to the Refuse Contract Tender in 1998
• Two yearly Best Value Performance Indicators London wide poll (Mori)
• Citizens Panel Community Survey
• Policy Commission on Street Scene
• National and Local Performance Indicators
• East London Waste Authority partners
• Other London Boroughs
• Challenge Workshop (Members)
• Community Forums - commenced October 2000 – ongoing
• Focus Groups
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• Schools Survey
• Commercial/Trade Waste Survey
The review team considered feedback from the various challenges throughout the review and the results are discussed more fully later in this report.
7.4 Internal and external challenge and scrutiny undertaken during the review
The review team comprised a mix of those responsible for the provision of the Waste Collection Services together with a major stakeholder and an external reviewer.
Internal challenge was undertaken using a ‘Challenge’ pro-forma derived from the Best Value Toolkit and the team attempted to balance internal and external challenge from residents, external organisations and others including competitors.
Does the Council’s Waste Management Strategy fulfil government policy and local priorities?
The government has a national waste strategy planning the disposal of waste up to 2020. This strategy has targets to reduce the amount of biodegradable waste being landfilled and to increase the value recovered from waste for disposal, either as material recycled or as energy recovered. There are short-term targets (up to 2006) for all waste collection authorities to increase household waste recycling. The strategy requires the waste collection authority to plan how they can increase the amount of waste recycled to meet these requirements. It is expected that both collection and disposal authorities will work together to achieve the objectives of this strategy.
With the development of the proposed action plan and IWMS the Borough fulfils the requirement of the governments waste strategy 2000 by:
• Deliver services that are environmentally and economically sustainable in terms of • Encouraging waste minimisation • Seeking to maximise waste recycling and composting opportunities potentially supported by recovery of energy.
Achieving Minimum Recycling and Recovery Targets as follows:
• 2003/4 10% primary recycling or composting of household waste. • 2004/5 12% recycling or composting of household waste. • 2005/6 25% recycling or composting of municipal waste (including 22% recycling or composting of household waste). • 2007/8 25% recycling or composting of municipal waste. 40% recovery of municipal waste. • 20010/11 30% recycling or composting of municipal waste. 45% recovery of municipal waste. • 20015/16 33% recycling or composting of municipal waste. 67% recovery of municipal waste.
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How does the Authority meet the aspirations of the Mayor for London Draft Waste Strategy?
Since the abolition of the Greater London Council in 1986, waste in London has lacked a strategic lead and the responsibility for the disposal of municipal waste has been divided. The former London Waste Regulation Authority prepared a Waste Management Plan for London for 1995-2015 but it was never formally determined by the Secretary of State. Other bodies have also prepared studies on the development of a London waste strategy
The Greater London Authority Act 1999 requires the Mayor to prepare a State of the Environment Report and a Municipal Waste Management Strategy. It must include proposals and policies for implementing the National Waste Strategy, Waste Strategy 2000 for England and Wales, within Greater London, and meet waste recycling and recovery targets. It must contain the Mayor's proposals and policies for the recovery, treatment and disposal of municipal waste, and may contain such other proposals and policies relating to municipal waste as he considers appropriate.
The Mayor’s Draft Waste Strategy is a comprehensive and challenging document and an analysis of how Barking and Dagenham matches these challenges is shown in the evidence file. It is felt that with the new IWMS, Barking and Dagenham can meet the major elements of the achievable aims of the Majors strategy.
7.5 How comparison was used to drive the challenge
A number of comparison exercises were undertaken for the review to compare the service with other providers. The comparative data collected enabled the team to challenge all aspects of the service including the quality, cost and competitiveness. The findings from such comparisons made and the conclusions reached are outlined later in this report.
On the 11 October 2001 five members of the Best Value Review team visited Leicester City Council, a Beacon Council, for a Waste Management workshop at their MRF Planet Works. All who attended took the opportunity to improve their knowledge through exchanges of ideas, both in the interactive sessions and through networking. Several projects regarding waste minimisation and recycling were discussed and ideas obtained will be utilised in future initiatives.
7.6 Ensuring that the challenges lead to specific proposals for significant change
The most important challenge to the way in which these services had been delivered was the outcome of the Citizens’ Panel Community Survey and the two Focus Groups which showed that some people wanted a domestic refuse collection service centred around the use of wheeled bins. This is likely to be the catalyst for future significant changes in the method of collection.
Other issues were raised during the review directly following from the challenge phase such as:
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Domestic Refuse Collection
General Issues: Reliability of Collection Leaving Place Clean Appointments for Furniture Collection Recycling Missed Collections (RNC's)
Non Flatted Areas: Quality of Receptacle – Black Bin Bags – Wheeled Bins Green Waste
Flatted Areas: Quality of Receptacle Compound Cleaning
Commercial/Trade Refuse Collection
Main Issues: Timing of Collection Cage v Compactor for GP Work Enforcement Charging Policy Marketing
Working Practices
Main Issues: Split Shifts Customer Care Information Provision – Education ELWA – New Contract Health and Safety Equalities
Civic Amenity Site:
Main Issues: Opening Times Supervision Cleanliness of site
• Making the services more effective, responsive and flexible by changing working practices.
• Making the services more economic by reducing costs of the service by reviewing the entire operation in terms of human and physical resource required to meet operational needs.
• Making the services more efficient by improving supervision, having more rigorous inspection and accountability at all levels.
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• Making the services more competitive by benchmarking with other authorities and driving the standards up.
• Making the services more seamless and transparent to users by reviewing customer care and introducing a recorded 24-hour information and reporting service.
7.7 Summary of findings
Key findings
• The services are mainly statutory requirements of the council.
• The services could be provided externally.
• Local people already have a high opinion of Waste Services
• A continuous challenge process needs to be enshrined in the Improvement Plan.
• Some improvements in these services are necessary
• Better information on services provided
Conclusions
Since Waste Services are mainly statutory requirements the possibility of the council ceasing to provide the services is not an option.
Whilst the services are currently seen, by the residents of the Borough, to be to a high standard there is still room for improvement, especially in the areas of:
Missed collections
Cleanliness following collections
Waste minimisation and recycling
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8 CONSULTATION PHASE
8.1 Background
Consultation is not a new feature of refuse collection work, the first consultation exercise was carried out as part of Compulsory Competitive Tendering in 1998.
The following methods of consultation were used for this review:
• Citizens Panel Community Survey
• Community Forums - commenced October 2000 – ongoing
• Focus Groups
• Schools Survey
• Commercial/Trade Waste Survey
• Involving other Departments to expand the cross cutting issues
• Involvement of Trade Unions on the Review Team.
• Involvement of staff at all levels of the service
The users and stakeholders were categorised as follows: User: Local people Commercial interests Stakeholder: National interests Staff and Unions
It was important to the review team to consult as widely as possible taking into consideration that the collection of waste covers every residential property in the Borough along with many others, such as, schools, public buildings and business premises. The team arrived at what they felt were appropriately targeted procedures for consulting with the various groups.
8.2 Taking account of the of the diversity of the community
It is generally recognised that diversity of the community has been taken account when carrying out the various surveys. The focus group participants were selected to
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cover any under representation of the various groups in the surveys but having said that representation was not specifically measured.
LBBD literature now takes into account the use of minority languages in its publications.
Equalities and diversity are to the fore of the Borough’s priorities and every effort has been made during the review to ensure the opinions of all resident groups have been taken into account.
8.2 Changes that have resulted from the consultation
Some changes have been incorporated into Waste Services as a result of the review. E.g.
• Introduction of improved targets to reduce the number of missed collections. The numbers of missed collections are monitored weekly, these are then converted to which gang was responsible. The results are published on the notice board with the intention of arousing competition between the gangs.
• Increasing the awareness of the BVPIs, which affect the service and utilising notice boards to publish same.
• More active involvement with the enforcement team to reduce the number of black bags on the street.
• Commercial/Trade Waste schedules re-targeted to meet actual needs.
• Improvement in customer care especially in the area of bulky waste collections with a card being left to say we had called and the refuse was not available.
• Review of customer care and introduction of 24-hour telephone access to services. In addition the pro-forma used when taking a request for service has been amended to improve the quality of information received.
As part of the outcome from the Street Scene Policy Commission the Litter Project was initiated. This involved various departments coming together to provide a cross cutting service for the cleaning of housing estates and their surrounds.
8.4 Consulting with staff and their representatives
Staff at all levels of the operation have been involved in not only the review process but also in implementing the changes so far.
A Trade Union representative (TGWU) has been included as part of the review team.
As part of the BV review process a quarterly “Newsletter” for all waste services staff has been produced, providing information on and encouraging participation in the process.
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8.5 Summary of findings
The following is a summary of the consultation exercises:
1) BVPI London Wide Survey (November 2000) Comparative Results
Introduction
In line with DTLR requirements, all London Boroughs have recently undertaken a large-scale postal survey to collect information on residents’ satisfaction with Council services for a set of national Performance Indicators. The Council joined a London- wide survey under the auspices of the Association of London Government, undertaken by MORI. The survey took place in October and November 2000.
The response rate for the London Borough of Barking and Dagenham was 43%, the second highest of the 27 London Boroughs that took part in this joint exercise. Barking and Dagenham’s results are based on 942 valid responses. All data is weighted by sex, age, work status and ethnicity.
This report details the comparative data from all London Boroughs that took part in the survey (27 out of 32). Information focuses on comparisons between the net satisfaction ratings (i.e. the percentage of respondents satisfied with a service compared to those that are dissatisfied) of Barking and Dagenham in contrast to the overall net satisfaction for other London Boroughs.
Overall the results are very positive and the residents of Barking and Dagenham held extremely high opinions of the services that the Council provides. Barking and Dagenham scored higher than the London average on all services apart from two areas of household waste collection (the receptacle provided, many of those interviewed expressed a desire for the existing black plastic bags to be replaced by wheelie bins and the area available for the storage of waste prior to collection) and community recreation facilities and activities.
General Satisfaction
• Overall, 62% of residents living in Barking and Dagenham were generally satisfied with the way in which the Council runs its services, including 11% who were very satisfied. In contrast only 17% were dissatisfied with the Council.
• This produces a net satisfaction rating of 45%, that when compared to the average for other London Boroughs (30% net satisfaction), is an excellent result.
Household Waste Collection
• The vast majority of Barking and Dagenham residents (81%) were satisfied with their refuse collection service overall. Only 8% were dissatisfied.
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• The net satisfaction rating for the service overall was 73%. This is substantially higher than the London average (58%) and outer London Borough average (61%).
• Barking and Dagenham also gained higher net satisfaction scores than other Boroughs in areas such as reliability of the service (83% compared to 74%), street cleanliness after collection (43% compared to 35%) and the collection of bulky household waste (49% compared to only 18%).
Recycling Facilities
• Barking and Dagenham residents rated all aspects of recycling facilities as better than the overall London average.
• The following net satisfaction scores were gained: provision of recycling facilities in general - 35% (compared to a London average of 29%); accessibility of facilities - 42% (compared to a London average of 37%); the range of recyclable that can be deposited at sites – 42% (compared to a London average of 41%); the cleanliness and servicing of the site – 36% (compared to a London average of 26%).
Civic Amenity Sites
• Results were extremely positive with Barking and Dagenham achieving much higher net satisfaction ratings on all aspects of the facilities, including overall satisfaction with the service (where Barking and Dagenham achieved a net satisfaction score of 72% compared to only 48% for other London Boroughs).
2) Waste Focus Groups (November 2001)
In Focus Group 1 there were 5 participants and in Focus Group 2 there were 6 participants. Group 1 was comprised of 1 Asian (female) and 4 white (2 male and 2 female). Group 2 had 1 Asian male, 1 Black male, 1 Black female, 1 White male and 1 White female. All participants had a lot of things to say and they didn’t mind talking at all.
Some of the participants have lived in the Borough for up to a couple of years and were able to compare and contrast Barking and Dagenham with neighbouring Borough with regard to waste management issues. Other respondents had lived here for a lifetime and so were able to give their views with regard to 20 years ago in comparison to today.
The main things that were coming out of the discussion were that nobody said spontaneously that Waste Management was bad but in fact was one of the better services. There were some good comments about reliability and friendly staff etc.
A major concern centred around the black bag service. People did not know how often they were due to receive these. There was consensus that the Council could give out a few more per household (especially in larger households) Another problem was that people felt that when the council left black bags at doors these were quite
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frequently stolen or going missing etc. Also, they are not strong enough and frequently tear. Consensus is that dogs/cats/foxes etc tear open the bags.
Residents thought that refuse collection is reliable and appropriate changes are made to the collection schedules to cover on Bank Holidays.
One of the problems in flatted areas is that some residents throw their waste out the window instead of putting it in paladin bins. There is not enough enforcement on this issue. Consensus is that there is a requirement for enforcement and education via leaflets etc.
Another view is that when new people move into a flat or house etc., the Council need to be sending them information about all they need to know about waste issue as well as other issues.
Some people did not know about the furniture collection service for instance. Regarding furniture collection there is a very strong feeling that this is not frequent enough. Participants talked about waiting upwards of three weeks to have an item of furniture removed. Some participants (especially those with young children) felt that the collection of furniture needed to be more frequent as there was a danger for young children playing on the street (e.g. getting trapped in a fridge or having something fall on them etc). Residents would definitely not pay for a collection service no matter what as they felt this would only add to the problem in that people would just leave stuff on the street etc.
Regarding wheelie bins, although a more difficult issue (i.e. whether people would pay for these or not) the overall view is that they would pay something (about £20) for a wheelie Bin. The groups believed that if everyone had one then there would be less risk of theirs getting stolen.
Regarding garden waste collection, there is a strong view that this should be collected with the everyday household rubbish. Many cases were cited about having a leaf sticking out of a bag and the whole rubbish was not lifted etc. As to moving to a fortnightly garden waste collection view is that this could be less frequent (approx. once a month between March and September). There would be a need for more bags (or garden waste bags to have this waste in). This would be a service residents would expect at no extra charge.
Recycling is not seen as worthwhile as (1) seems like a lot of hassle and (2) residents believe that if they went to the bother of separating their waste it will all end up in landfill anyway. In this respect the Council would have to again educate and inform people about recycling again via a brochure posted through resident's doors.
Regarding the civic amenity site, residents did use this up to 6 times per year (but again depending on circumstances). They believe that it is badly sign-posted but that this is not an issue as everyone knows where it is anyway. Staff are friendly and the cleanliness is acceptable. Regarding opening times it was perceived that as it was very busy of a Saturday perhaps longer weekend opening hours would be good to include Sunday.
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3) Waste Survey for Schools (October 2001)
A postal survey regarding waste management was sent to sixty-one schools and colleges in the Borough. A reminder questionnaire and covering letter was sent out a few weeks after the initial questionnaire to encourage response. Out of sixty-one surveys originally distributed, forty-two were returned. This meant we achieved a response rate of 68%.
Of the thirty-eight schools that responded to the question ‘how many containers do you have?’ the majority of schools (22) had between one and five containers, 12 schools had between six and ten, three schools had between eleven and fifteen and just one school had between sixteen and twenty. Varying numbers may be due to the size of establishment i.e. a college would have more than a primary school.
Just under half (48%) of participants thought that this number was sufficient, however 50% disagreed and stated that it was insufficient. It should be noted that the individual school is responsible for providing funds for bins.
Well over three-quarters (83%) agreed that it would be helpful if the Council supplied and maintained the waste containers as part of the collection cost.
Over half (59%) rated the refuse collection service as satisfactory and over one quarter (26%) rated it as good. Just 11% rated the service as poor.
If participants stated ‘poor’ in the previous question they were asked what caused their concern. 46% said it was missed collections, 40% stated that they were unhappy with the mess left by collectors and 13% stated they were unhappy with the time of the collection. Other causes of concern included the waste collectors driving too fast in the car park, the fact that only the rubbish in bins is collected and sometimes they need additional bags taken and that there are some problems with collections during holiday times.
When asked if they had complained to the Council about the refuse collection service during the last year over half (54%) had complained by telephone however, 45% hadn’t complained at all.
Of those participants that had made a complaint during the last year 39% were very satisfied, 26% were fairly satisfied, 22% were neither dissatisfied or satisfied, 9% were fairly dissatisfied and only 4% were very dissatisfied. The reasons people complained included missed collections because these often took a few days to be collected. One school was not happy about the fact that when they phoned to complain staff were not interested.
When asked the question ‘if you ever needed to dispose of items of bulky waste did you…’ over half (52%) of respondees said they used the Council’s bulky waste service, one third (34%) said they make other arrangements and (14%) dispose of waste at the local tip.
Of those participants that used the Council’s bulky waste service over half (55%) said it was satisfactory, 41% said it was good and only 3% said it was poor. The reason
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for a high satisfaction rate was that operatives were very helpful and they collected waste at the agreed time. Some schools were not so happy due to the expense and failure to keep appointments.
88% of schools currently do not recycle any of their waste and only 9% of schools do recycle. Of those that did recycle half (50%) recycle newspapers, one third (33%) recycle cans and 16% recycle bottles. Of those schools that stated that they do not currently recycle 68% said they would if the Council provided the containers. 55% would prefer on-site containers and 9% wanted clear plastic sacks.
Schools were asked if they would be interested in participating in an educational programme as part of the Council’s Waste Strategy. 59% said yes however 31% said no.
Additional comments were given from some schools. One schools said that they tried to recycle can but vandals continually tipped the bins over. Several schools said that they would recycle it if proper containers were provided including bins or bags for paper. Other requests included more dog waste containers, wheelie bins, two collections when needed, the facility to take extra bags and a facility for the disposal of old computers.
4) Commercial Waste Survey (January 2002)
In January 2002 the London Borough of Barking and Dagenham sent out a commercial waste survey to 687 businesses across the Borough. 167 completed questionnaires were returned. This elicited a response rate of 24%.
Storage of Waste
Businesses were asked to state the type of container they use to store their refuse. The majority of people use: eurobins, wheelie bins, paladins or sacks. The number of containers for each business varies greatly depending of whether a container or sacks are used. However nearly three quarter (73%) consider the number that they have as sufficient for their needs.
Satisfaction with Service
39% of respondees rated the trade waste collection service as good. 40% rated it as satisfactory although 18% rated it as poor. Of those people that stated their concerns with the service nearly three quarters (74%) said it was because of missed collections, 15% said it was due to mess left by collectors and 10% said that it related to the time of the collection. In addition other concerns included the attitude of collectors, bins not being put back in correct place, lack of locks on containers, irregularity of collection days and the time of collection (often very early so businesses miss collections, as they are reluctant to leave their sacks out over night.
Complaints
Just under two thirds (64%) of respondees have not made a complaint in the last year. However 31% had complained by telephone and just 3% had complained by letter.
Page 140 The London Borough of Barking and Dagenham Waste services best Value review – April 2001 to March 2002
With regard to the way in which the complaint was dealt with only one quarter (25%) of people were very satisfied, 44% were fairly satisfied, 9% were neither satisfied nor dissatisfied, 8% were fairly dissatisfied and 14% were very dissatisfied. Some of the positive reasons given for satisfaction levels included the fact that they got a prompt and accurate response and that the complaint was dealt with quickly. On the other hand some more negative comments included a slow response or no response, when phoning the office they were passed around or lines were constantly engaged, no one would give a simple answer or take the complaint seriously.
Recycling
Currently 80% of businesses do not recycle any of their waste. In contrast only 18% of businesses do recycle. Of those people that do currently recycle over half (52%) recycles bottles, 43% recycle newspapers but only 5% recycle cans. Some of the other materials that people recycle are metal shavings, old domestic appliances, cardboard, plastic, aluminium, office paper and printer cartridges.
Of those people that do not currently recycle 61% said they would if the Council provided the containers. 54% would prefer on-site containers and 46% would prefer clear plastic sacks (to be collected).
The Invoice
Almost all respondees (94%) were satisfied with the way their invoice is presented. Only 6% were not. Some people suggested that one annual invoice is sent, others said they would like to see a split between the cost of the collection service and the cost of sacks.
General Comments
Some general points were made about the commercial waste collection service. Positive remarks included the fact that drivers are helpful and friendly. Requests included providing small waste containers for everyone, improving the regularity of collections, putting locks on containers, providing more bins on the streets, providing facilities for recycling, clearing rubbish from cycle paths and distributing more blue sacks.
8.6 Conclusions
It became apparent to the team that the feedback from consultation exercises was most useful in establishing what sort of services the residents and other stakeholders expected and to a great extent what their priorities were. These were of some help in formulating strategies for the overall provision of the service.
It is anticipated that the consultation exercises will need to be repeated regularly to ensure that services still meet the expectations of all stakeholders.
The information emanating from the groups indicated long waiting times for the removal of bulky waste. This had been highlighted during the challenge phase and an
Page 141 The London Borough of Barking and Dagenham Waste services best Value review – April 2001 to March 2002 additional vehicle purchased in an attempt to improve collection times and reduce any excessive backlog.
The free collection of bulky waste and white goods provided by the Borough has a significant impact on the amount of waste collected per household making the Borough’s figure one of the highest in London. It is accepted that the free collection of bulky waste and white goods, reduces the number of fly-tips and therefore plays a vital role in the delivery of the Council’s priority for a “greener, cleaner” Borough by Waste Services.
Page 142 The London Borough of Barking and Dagenham Waste services best Value review – April 2001 to March 2002
9 COMPARE PHASE
9.1 Background
Benchmarking was initiated in 2000 and involved the adjacent boroughs together with other city and rural councils.
Whilst it is not difficult in the current climate to find “Waste Services” identified by other boroughs, very often it comprises different services and it is difficult to compare like with like. It is very apparent that the majority of boroughs take the measurements for their BVPIs in different ways and it would probably help a great deal if a national model could be made available.
Waste Services were a contributor to a questionnaire organised by Psnet in December 2001 and are waiting for the comparative information to be returned.
Representatives of the review team visited Leicester City, a Beacon Council, for a Best Value Workshop in October of 2001. The visit proved to be most helpful in confirming to the team that the actions being taken were in line with best practice.
There are already well developed national performance indicators for these services and CIPFA annual statistics against which these services have been measured and compare favourably.
The borough has made great strides in setting up a performance monitoring system and developing local performance indicators.
9.2 Comparison with the top 25%
BV82a+b - Percentage of household waste recycled + composted
It appears that our performance in this area in recent years has not been as high as would be desired. This needs to be considered against a backdrop of the Borough’s earlier philosophy of ensuring that any recycling initiative was self financing and that it has now committed itself to process of developing an integrated waste management strategy (IWMS) together with our partner Boroughs within ELWA. This strategy has now culminated in the letting of a 25 year PFI waste management contract. Details of our IWMS are to be found in the evidence file.
This figure of low performance reflects that this strategy is still in the initial stages but both the amount of household waste recycled and composted will be dramatically affected by the introduction of this inter-authority partnership in collaboration with the private sector.
The ELWA consortium consists of 4 east London Boroughs: Barking and Dagenham, Havering, Redbridge and Newham. The need to manage waste has led to an innovative and pragmatic development, namely the inclusion of a private sector partner in the arrangement. The planning of future recycling improvements have therefore been very much directed towards this initiative. Consequently, private sector partners have been courted and will provide waste management services for the
Page 143 The London Borough of Barking and Dagenham Waste services best Value review – April 2001 to March 2002
next 25 years to the ELWA boroughs. Full details of the proposals for our recycling services using door-to-door schemes and redevelopment of the Civic Amenity Facility to become a “Re-use and Recycling” Centre is to be found in the evidence file.
The effect that these changes will have on Barking and Dagenham’s recycling performance is as follows:
LBBD Recycling Projections
50%
45% 37% 37% 40%
35%
30% Percentage 25% Recycled 17% 20% 15% 12% 10% 4% 5% 0% 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012
Year
BV84 – household waste collected in Kg per capita
• The number of kilograms of household waste collected per head of population is just under 600 kilograms and is one of the highest in London putting the Borough in the bottom quartile. Whilst Barking and Dagenham has a seemingly lowest quartile level of performance in this area, the indicator does actually mask the inherent level of the service delivery. One of the major contributors to the high level of waste collected is the throughput of the CA Site. On analysis of the location of the adjacent Boroughs facilities, the site at Frizlands Lane is closer for a significant number of residents of Havering and Redbridge.
• Surveys of the origins of the waste delivered to the Frizlands Lane site are being conducted to ascertain the full extent of this. In comparison the Frizlands Lane site receives 45000 tonne of waste for a population of 66000 households where Redbridge’s Chigwell Road site receives 16000 tonne for a population of 92000 households.
• However Barking and Dagenham is not complacent and realise that the minimisation of waste is a major factor in the management of the Boroughs waste and as part of the ELWA IWMS are fully committed to the development of a waste minimisation educational and promotional programme as detailed in evidence file.
Page 144 The London Borough of Barking and Dagenham Waste services best Value review – April 2001 to March 2002
BV86 – cost of waste collection per household
The cost of waste collection per household at just below £25 places the borough just under the top quartile within London. Whilst the above figure represents a higher cost than the surrounding boroughs it does not show the value of this Borough’s “take all” policy and the free collection of bulky waste, white goods and garden waste. Within the ELWA boroughs, Barking and Dagenham have the second lowest cost per household (BV86) but when examined in terms of cost per tonne of waste collected the situation changes.
The following chart illustrates the point that operationally, Barking and Dagenham are the most cost effective of the ELWA partners
C o st p er to n n e o f R efu se co llectio n w ith in E L W A
£22.51 £25.00 £18.19 £20.00 £14.50 £13.29 £15.00
£10.00
£5.00
£- LBBD LBH LBR LBN
• When the service delivery options are considered i.e. provision of free plastic refuse sacks, free collection of furniture, free collection of garden waste etc, it can be shown that not only are Barking and Dagenham the cheapest per tonne, but also provide more services than the other members of ELWA.
The following chart reflects the position that a change in service options would provide i.e. if Barking and Dagenham were to not collect furniture, garden refuse and provision of plastic sacks, and compares this with Havering, who seemingly have the lowest costs according to BV86:
Cost per household including both gross and net LBBD scenarios
£24.42 £22.42
£25.00 £20.00 £18.71 LBBD £15.00 LBBD (net) £10.00 LBH £5.00 £- Cost per household
Page 145 The London Borough of Barking and Dagenham Waste services best Value review – April 2001 to March 2002
BV88 – missed collections
At the commencement of this review the number of collections missed per 100,000 collections of household waste is in the region of 85 which puts the Borough just under the top quartile in London. Work has been ongoing during the period of the review and this figure has been reducing gradually, and is now in the region of 66 per 100,000 collections for the year. The figure for the second half of the year was 52 per 100,000 collections, which, all things being equal places the Borough in the top quartile.
Whilst the majority of the figures are just outside the top quartile, they show substantial improvement and in some cases are better figures for LBBD than its neighbouring boroughs.
A census will be carried out over several days in early April to ascertain the area of residence of all those using the Civic Amenity site at Frizlands Depot. The results will be used to confirm that the formula used to measure the BVPIs, especially BV84 is up to date.
The following table illustrates the comparison between the Borough and:
a) the top quartile nationally for quality indicators
b) the top quartile for London on cost
LBBD 2000-01 2000-01 2000-01 NAT TOP 25% LON TOP 25% BV84 Kgs Of household waste 568.68 369 N/A collected per head BV86 Cost of waste collected per 24.42 N/A 23.39 household BV88 No of missed collections per 85 32 N/A 100,000 household waste collections BV82A Percentage of household waste 4.10% 12% N/A recycled BV82B Percentage of household waste 0.50% 2.10% N/A composted BV91 Population living within 1km of 100% 100% N/A recycling facility or receiving kerbside collection
9.3 How did comparison inform challenge on
The services we provide
The review team identified from the comparisons undertaken, that where it was possible to compare like with like, there were some improvements to be made.
Page 146 The London Borough of Barking and Dagenham Waste services best Value review – April 2001 to March 2002
A fundamental review of the manner in which services would be provided in future afforded by the best value review was the ideal opportunity to increase efficiency.
This has been borne out by the improved performance figures against adjacent boroughs in particular. The achievement of top quartile figures across all of Waste Services will be a challenge for the team, but is seen to be achievable.
Who to provide them to
The review team cannot foresee any major short-term changes in the composition of the major stakeholders and therefore who the services are being provided for.
In the longer term the Government’s and the Mayor for London Municipal Waste Strategy will impact on the way waste services are provided.
How much they should cost
The comparison phase showed that in general the costs of providing waste services are higher than in some adjacent boroughs. It is also interesting to note that the level of satisfaction is also higher than the adjacent boroughs.
This Borough operates a “take all” policy on the collection of domestic waste which includes garden waste and makes free of charge collections of bulky waste and white goods. Thus the higher satisfaction level with the service and also the slightly higher cost of waste collected per head of population (BV86).
The following table is the budgeted costs for the collection of domestic waste from April 2002 to March 2003:
Domestic Waste Collection
Cost £ Per Property Per Head of Population
Domestic 26.33 11.41 Bulky Furniture 3.55 1.54 Sack Provision 3.19 1.38 Collection of Recyclables 1.55 0.50 Recycling Bring Sites 0.45 0.19
Total 34.66 15.02
It is the opinion of the Review Team that lines two and three above should be discounted from any calculation of cost because most other Boroughs charge for some, if not all, of the collection of bulky waste and very few provide refuse sacks. Adopting this practice should enable comparison on a fairer basis.
Page 147 The London Borough of Barking and Dagenham Waste services best Value review – April 2001 to March 2002
Are we the best provider
Based on quantitative information from the compare process it is not possible to determine conclusively that the council is the best provider of the services, but that it has gone a long way towards meeting BVPIs and improving them.
Neighbouring boroughs who have recently been to open competition have seen the tendered prices rise by around 40%. This increase will be reflected in future BVPIs.
9.4 Conclusions
It was known for some considerable time that the CCT driven regime for the collection of waste was less than efficient, and growing problems with increases in the number of properties and an annual growth of approximately 5% on waste arisings, left no free-play in the system and was undermining the ability to provide a comprehensive service.
With some changes agreed and implemented and performance trends moving upwards a more robust comparison of the services particularly with the private sector as part of the Best Value cycle is possible.
• The service, whilst showing a marked upward trend in performance indicators still does not fall into the top quartile in some areas. The objective must be to improve the service across this threshold as soon as possible.
Page 148 The London Borough of Barking and Dagenham Waste services best Value review – April 2001 to March 2002
10. COMPETE PHASE
10.1 Background
There is a market for the provision of this type of service. The Borough has been out to competitive tender on two occasions under CCT regulations and the in-house bid was successful on both.
The review team has looked at the options for future delivery of the service using the governments suggested options (see Section 12).
In looking at all of the options the review team had to bear in mind the changes in the service concurrent with the review and how these changes might impinge on future service provision.
10.2 Cost effectiveness of the service
The results of the benchmarking indicated that the in-house Waste Services are becoming more competitive.
In some instances the service is extremely competitive and just below the lower end of the top quartile.
In other instances they appear to be in the bottom quartile.
There are reasons for this, differences in the method of measurement, differences in the service provided and other intangibles.
10.3 Options considered for future service provision
From the seven options proposed by the government for future service delivery (see Section 11) four are considered to be inappropriate for further deliberation at this time, namely: -
• Ceasing provision of the services
• Transfer/externalisation of the service to another provider
• Forming a Partnership
• Re-negotiating existing arrangements
The following option was considered by the team to be unnecessary until the conditions are right for it:
• Market testing of all or part of the service (where the in-house provider bids in open competition).
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That is that once: -
Current improvements have been completed and only then if no improvement in service delivery have been forthcoming.
The review team considers that the most productive option at this time would be to restructure the existing service and make improvements in the areas highlighted during the review of the process.
Page 150 The London Borough of Barking and Dagenham Waste services best Value review – April 2001 to March 2002
11. CONCLUSION
The provision of Waste Services is a statutory requirement and the possibility of the Council ceasing to provide such a service is not an option.
The services currently provided are seen, by the residents of the Borough and other User’s, to be to a high standard. There was still room for improvement, especially in the areas of:
Missed collections
Cleanliness following collections
Waste minimisation and recycling
The vast majority of Barking and Dagenham residents (81%) were satisfied with their refuse collection service overall. Only 8% were dissatisfied. The net satisfaction rating for the service overall was 73%. This is substantially higher than the London average (58%) and outer London Borough average (61%).
Barking and Dagenham also gained higher net satisfaction scores than other Boroughs in areas such as reliability of the service (83% compared to 74%), street cleanliness after collection (43% compared to 35%) and the collection of bulky household waste (49% compared to only 18%).
Despite the apparent lack of a recycling scheme the following net satisfaction scores were gained: provision of recycling facilities in general - 35% (compared to a London average of 29%); accessibility of facilities - 42% (compared to a London average of 37%); the range of recyclable that can be deposited at sites – 42% (compared to a London average of 41%); the cleanliness and servicing of the site – 36% (compared to a London average of 26%).
In response to the Schools Survey, over half (59%) rated the refuse collection service as satisfactory and over one quarter (26%) rated it as good. Just 11% rated the service as poor.
39% of respondees rated the trade waste collection service as good. 40% rated it as satisfactory although 18% rated it as poor. Of those people that stated their concerns with the service nearly three quarters (74%) said it was because of missed collections, 15% said it was due to mess left by collectors and 10% said that it related to the time of the collection.
The information emanating from the groups indicated long waiting times for the removal of bulky waste. This had been highlighted during the challenge phase and an additional vehicle purchased to improve collection times and reduce any excessive backlog.
In order to improve the bulky waste service further it may prove necessary to consider raising a charge on the residents utilising this facility at sometime in the future.
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The free collection of bulky waste and white goods currently provided by the Borough impacts on the amount of waste collected per household making the Borough one of the highest figures in London, conversely it reduces the amount of fly-tipping.
The Borough currently supplies black refuse sacks to residents at the rate of 20 per quarter, consideration may be given to either reducing the number of bags supplied or the cessation of this free service at sometime during the next five years.
With some changes agreed and implemented and performance trends moving upwards a more robust comparison of the services particularly with the private sector as part of the Best Value cycle is possible.
• The service, whilst showing a marked upward trend in performance indicators still does not all fall into the top quartile in some areas. The objective must be to improve the service across this threshold as soon as possible.
Waste Services are getting there and should be given the opportunity to achieve their current aims and targets prior to any decision to market test being made.
The review team makes the following recommendation for Members to consider and decide on:
1) Restructure the existing service and allow one year to achieve the top quartile before a further report to Members for consideration of the service procurement options.
Page 152 The London Borough of Barking and Dagenham Waste services best Value review – April 2001 to March 2002
12 OPTION APPRAISAL
Waste Services Option Evaluation and Appraisal
1. Market-testing of all or part of the service (where the in-house provider bids in open competition against the private or voluntary sector)
Market testing would meet the Council’s statutory and financial requirements. It is thought that there is a slightly increased risk, although this is not thought to be significant and could be outweighed by the potential efficiency gains and service improvements.
In terms of an external contract the following should be considered:
The ability of the contractor to see the contract through
Will the preparation and tendering costs outweigh any expected gains
Should the service be out-sourced what would be the arrangement for dealing with the residue of indirect overheads.
2. Formation of a public-private or public-public partnerships, through a strategic contract, or joint venture company, for example
This option was thought to be a possible long-term objective. The possibility of a joint venture between the four constituent boroughs of ELWA was considered. This option has been discounted as a realistic option for achieving improvement to the standard required from this review, within the period of the action plan. Further work to explore this option as part of a longer-term strategic approach was suggested. 3. Transfer or externalisation of the service to another provider (with no in- house bid)
This option met all of the requirements of the matrix; however, it does represent a significantly increased risk for the Council depending on the standard of performance required from a future contractor.
Given that the current in-house provider has demonstrated that it can provide a competent service it would be inappropriate to exclude them from tendering to provide the future service. An in-house bid is in effect an equaliser between competitive bids.
4. Restructuring or re-positioning of the in-house service
This option meets all of the criteria set out in the matrix and provides the added value of having a proven capacity to provide the service.
Cross cutting service provision with Street Cleansing and Housing and Health will provide increased opportunities on a more localised basis i.e. through the forums.
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5. Re-negotiation of existing arrangements with the current providers where this is permissible
This option was excluded, as the service is currently provided in–house.
6. Joint commissioning or delivery of the service
It was thought that there are opportunities for efficiencies to be gained by joint delivery of the service. It was thought that joint delivery with an adjacent borough might present possible economies of scale and contribute towards further joint delivery with other boroughs within ELWA in the longer term.
7. Cessation of the service, in whole or in part
As statutory service, cessation cannot be considered.
8. Other options
No other options considered.
Conclusions
Members may wish to reflect on the following:
Two neighbouring boroughs whose service is currently out-sourced have recently been out to competitive tender for waste services and have seen the tendered price rise by some 40% over current costs, however, it should be noted that the bidding process did not include an in-house bid.
During the term of this review standards have been improving and the service is likely to be in the top quartile within a year
Consideration should be given to the improvement plan and a judgement made on the ability to meet the targets
Waste Services have made considerable improvements and should be given the opportunity to achieve their current aims and targets prior to any decision to market test the service being made.
The review team wishes to make the following recommendation for Members to consider and decide on:
1) Restructure the existing service and allow one year to achieve the top quartile before a further report to Members for consideration of the service procurement options.
Page 154 The London Borough of Barking and Dagenham Waste services best Value review – April 2001 to March 2002
13 ACTION PLAN
In order to improve the service and move it into the top quartile an Improvement Plan has been prepared and is shown on the following pages.
The main purpose of this plan is to address the areas of concern which were highlighted during the course of the review and put in place changes to improve the service delivery. For example; during the review the documentation for recording and the monitoring of missed collections was changed and this has greatly reduced the number of missed collections. The projected figure for 2001/2002 was 85, the actual figure for the year was 66 but the figure from October 2001 on, when the changes were made, has been reduced to 52 per 100,000 collections. A considerable improvement service delivery.
Page 155 The London Borough of Barking and Dagenham Waste services best Value review – April 2001 to March 2002
Improvement Plan 31 March 2002
Improvement Priority Key Actions Timescale Outputs demonstrating Resources Lead Required progress
Public Perspective
Improve High Reduce number of Within 6 Achieve top 25% No additional TB / BR Performance missed collections months resources Page 156 Indicators Increase Medium Corporate Guidance December Reduction in total Environmental Rob Williams awareness of to be written 2002 tonnage’s collected by at Sustainability H&CS Waste least 1% below the Steering Group Minimisation current tonnage
The London Borough of Barking and Dagenham Waste services best Value review – April 2001 to March 2002
Improvement Priority Key Actions Timescale Outputs demonstrating Resources Lead Required progress
Community First
Increase Amount High Implement recycling 3rd Quarter Increase in percentage Contractor TB / Recycling of Waste plan in line with 2002 of waste recycled Recycling Team Officer Recycled ELWA Target Recycling Officer 2001/2002 - 7% Refuse crews
Page 157 2003/2004 – 17% 2005/2006 – 25% Achieve top 25% of London Boroughs Improve High Change office December Reduction in complaints. No additional TB / AP Communication reception area 2001 Customer satisfaction in resources with Better use of Borough 4th Quarter top 25% for London Stakeholders website 2001/2002 Boroughs Annual Survey of User Use Community Groups Forums as required
The London Borough of Barking and Dagenham Waste services best Value review – April 2001 to March 2002
Improve Arrange training 1st Quarter 100% of permanent staff DLES Training Customer courses for Waste 2002/2003 have received formal Officer Satisfaction Services staff training
Raise Public Medium Develop recycling In line with Increase in percentage Recycling Officer TB / Recycling Awareness education programme ELWA of waste recycled ELWA Contractor Officer Recycling Target Recycling Team Plan Employ Recycling 2001/2002 - 7% 2nd Quarter Officer 2003/2004 – 17% 2002/2003 2005/2006 – 25% Page 158 Prepare draft strategy Achieve top 25% of 3rd Quarter and plan London Boroughs 2002/2003
Implement education programme 4th Quarter 2002/2003
The London Borough of Barking and Dagenham Waste services best Value review – April 2001 to March 2002
Improvement Priority Key Actions Timescale Outputs demonstrating Resources Lead Required progress
Funding the Future Dealing with High Prepare report 3rd Quarter Move from seven to One Refuse JTP / TB Extra Properties 2001/2002 eight domestic refuse collection vehicle and Increase in th collection vehicles Obtain approval 4 Quarter One driver and Tonnage 2001/2002 three operatives
Page 159 Obtain vehicle 1st Quarter Employ crew 2002/2003 Implement round
Consult with Medium Business Plan 3rd Quarter Number of households Dependant on JTP / DJH / TB Residents on 2001/2002 converted from bag to the outcome of Alternative bin collection the Executive Consult with Method of Refuse decision Residents 2nd Quarter Collection 2002/2003 rd Report to Executive 3 Quarter 2002/2003
The London Borough of Barking and Dagenham Waste services best Value review – April 2001 to March 2002
Obtain ISO 14001 High Gap Analysis (ISO 3rd Quarter Accreditation to ISO Stanger TB Environmental 9000 to ISO 14001) 2001/2002 14001 Environmental Standard Environmental review 4th Quarter Sustainability Write Policy and 2001/2002 Steering Group Procedures 4th Quarter Environmental Accreditation 2001/2002 Management 3rd Quarter Steering Group 2002/2003 Staff
Page 160 The London Borough of Barking and Dagenham Waste services best Value review – April 2001 to March 2002
Improvement Priority Key Actions Timescale Outputs demonstrating Resources Lead Required progress
Performance Counts
Review Income Medium Set up monitoring 3rd Quarter Charges stay ahead of DLES Finance JTP / PH Generation arrangements on 2001/2002 costs Section
Page 161 costs and charges 4th Quarter Prepare first variation 2001/2002 report Ongoing monitoring Monthly Trade Rounds Medium Reorganise rounds to 4th Quarter Reduction in complaints Staff TB / JM / KM give more effective 2001/2002 collection Carry out feasibility 1st Quarter study on the 2002/2003 elimination of bags on Trade Rounds
The London Borough of Barking and Dagenham Waste services best Value review – April 2001 to March 2002
Improvement Priority Key Actions Timescale Outputs demonstrating Resources Lead Required progress
People matter
Obtain High Review current 4th Quarter Achievement of IIP Staff TB / AP Accreditation to practices 2001/2002 Trade Unions Investors in DLES Training People (IIP) Page 162 Develop Plan 1st Quarter Officer 2002/2003 DLES Personnel Implement Plan st 1 Quarter 2002/2003
Write procedures 2nd Quarter
2002/2003
AGENDA ITEM 7
THE EXECUTIVE
28 MAY 2002
REPORT OF THE DIRECTOR OF EDUCATION, ARTS AND LIBRARIES
BEST VALUE SERVICE REVIEW OF THE LIBRARY FOR DECISION SERVICE FINAL REPORT
This report sets out the findings of the Best Value Review. The report makes recommendations on the future delivery of the Library Service. The review, report and improvement plan will be subject to inspection and it is therefore a politically sensitive matter. For this reason it is necessary that Members agree the report.
Summary
This report sets out the conclusions of the Best Value service review of the Library Service. The review was undertaken over a period of 12 months, between March 2001 and March 2002. In accordance with statutory guidance the review included a number of stages namely Challenge, Consult, Compare and Compete. This report sets out a summary of how each of these stages was undertaken together with a summary of the findings and the conclusions that were reached. Also included in this report is the proposed action plan for the service together with 3 options for the future delivery of the service and the capability of each of the options to deliver the service in the manner required. A preferred option is included.
An executive summary is also provided which sets out the vision for the service and summarises the key changes and improvements that are proposed as a result of the Best Value Review.
Recommendations
It is recommended that:
The preferred option for future service delivery together with the proposed Improvement Plan is agreed.
Reasons
The preferred option for future service delivery is in line with the principles of Best Value. The proposed Action Plan will lead to significant improvement over the next five years.
Contact Officer: Roger Luxton Borough Officer for Telephone: 020 8270 4797 Community Learning and Fax: 020 8270 4799 Chief Inspector of Schools Email: [email protected]
Page 163 Page 164
London Borough of Barking and Dagenham
Best Value Review
THE LIBRARY SERVICE
April 2002
Page 165 London Borough of Barking and Dagenham Best Value Review
THE LIBRARY SERVICE
CONTENTS
Executive Summary
Section 1 Background
Section 2 Description and Self- Evaluation of the Service
Section 3 Challenge Phase
Section 4 Consultation Phase
Section 5 Compare Phase
Section 6 Compete Phase
1 Page 166
The Best Value Review Team The table below sets out the details of the review team:
Team Member Role Within the Contact Details Team
Roger Luxton Lead Officer Tel: 020 8270 4797 Borough Officer for Community Fax: 020 8270 4899 Email: [email protected] Learning and Chief Inspector of Address: Westbury Centre Schools
Jane Hargreaves Project Manager Tel: 020 8270 4818 Head of Literacy and Cultural Fax: 020 8270 4860 Email: [email protected] Services Address: Westbury Centre
Tricia Little Critical Friend Tel: 020 8359 3164 Head of Support and Email: [email protected] Address: London Borough of Barnet Development (Barnet) Friern Barnet Lane London N11 3DL
Trevor Brown Team Member Tel: 020 8227 3601 Head of Library Services Fax: 020 8227 3699 Email: [email protected] Address: Central Library, Barking
Susan Leighton Team Member Tel: 020 8227 3616 Principal Librarian (Learning Fax: 020 8227 3699 Email: [email protected] and Development) Address: Central Library, Barking
David Bailey Team Member Tel: 020 8227 3610 Principal Librarian (Quality and Fax: 020 8227 3699 Email: [email protected] Standards) Address: Central Library, Barking
Tony Clifford Team Member Tel: 020 8227 3609 Fax: 020 8227 3699 Principal Librarian (Information Email: [email protected] and Resources Management) Address: Central Library, Barking
Sylvia Currie Team Member Tel: 020 8227 3602 Principal Librarian (Customer Fax: 020 8227 3699 Email: [email protected] and Professional Services) Address: Central Library, Barking
Steve Cowley Team Member Tel: 020 8227 3157 Senior Accountant Fax: 020 8227 3159 Email: [email protected] Address: Town Hall, Barking
2 Page 167
Team Member Role Within the Contact Details Team
Councillor G J Bramley Elected Member Democratic Services
Councillor K Golden Elected Member Democratic Services
Councillor P J Manley Elected Member Democratic Services
3 Page 168 Executive Summary
Background
1. All local authorities are required to provide a ‘comprehensive and efficient library service’. They must also demonstrate how they will reach the Public Library Standards by April 2004 through the implementation of a statutory Annual Library Plan. Two key Best Value performance indicators are reported annually: • the number of physical visits per thousand head of population to public library premises (BVPI 117); and • the cost per physical visit to public libraries (BVPI 115). Performance against these two indicators is a central focus for this review.
2. The Head of the Library Service leads a team of Principal, Senior and Community Librarians within the Literacy and Cultural Services Section of the Department of Education, Arts and Libraries. The current full-time equivalent staffing establishment is 86.8, placing the service 11th for professional posts and 17th lowest for overall staff across the twenty Outer London Boroughs. The total service costs (excluding capital charges) in 2001/02 were £3.25 million. Compared to all Outer London Boroughs the library service is ranked 6th most expensive for all employee costs, 6th for premises costs, 8th for all supplies and services, 14th for transport costs and 10th for central support costs. The estimated income for 2001/2002 was £176,000 which is 15th out of 20 Outer London Authorities.
3. There will be significant change in the Library Service over the next five years. The transformation of the Central Library is a key part of the regeneration proposals for Barking Town Centre. In addition a new library will be incorporated in the new Jo Richardson Community School. These changes have significant implications for the number and distribution of libraries which must be addressed in the improvement plan.
Self-Evaluation of current provision
4. The review team undertook a self-evaluation of the service in respect of the following questions: • are the authority’s aims clear and challenging? • does the service have the capacity to meet those aims and strategic objectives? • what is the balance of strengths and weaknesses? • how likely is the service to improve?
How good is the service?
5. In the judgement of the team the main strengths of the service are: • strong corporate vision and management and planning strategies; • strong and continuing member support; 4 Page 169 • well-maintained and accessible library network and book stock, although the current number and distribution of libraries must be reviewed in the improvement plan; • high level of user satisfaction; • good capacity for self-evaluation and planning (two 3s for the current Annual Library Plan).
The main weaknesses are: • strategy for increasing visitor numbers, users and borrowers; • strategy for improving use by identified key under represented groups; • low level of income generation.
The strengths of the service outweigh the weaknesses, although there are some important weaknesses.
How likely is the service to improve?
6. The service has already demonstrated a capacity to improve: • currently achieving a significant rise in the number of visitors; • on course to meet 22 out of the 23 national standards by the end of 2002; • establishing new partnerships with UK-Online, with Barking College (Learning Villages), with schools, community centres and industry and commerce (new library facility at Ford Motor Company).
7. It is well placed to secure further improvement in the short to medium term: • corporate framework ensuring the library service contributes to all community and council priorities; • high level of public satisfaction sustained; • recent restructuring directly in response to the modernising agenda.
The overall judgement of the team is that the library service is a good service which will improve.
Challenge, Consult, Compare, Compete
8. Judgements and conclusions on challenge, compare and compete are based on:
(i) performance against national BVPI, CIPFA and Public Library Standards data; and (ii) performance in five authorities selected for the following reasons:
Barnet 3* Best Value Review/will improve Outer London Borough Gateshead 3* Best Value Review/will improve Socio-economic nearest neighbour Redbridge Geographical neighbour
5 Page 170 Havering Geographical neighbour Hounslow Library service provided by means of a charitable trust
Challenge Phase
9. The most challenging findings in this phase are: • the number of physical visits is in the lowest quartile nationally; • the number of physical visits is much lower than in the five comparator authorities; • the cost per physical visit is in the top quartile – more than double the nearest neighbours; • the level of income generation is in the lowest quartile; • the capacity of the comparator services to provide at least the same – and in many cases a wider - service.
Consult Phase
10. Consultation was undertaken through; • MORI satisfaction survey; • staff survey; • challenge/consultation events with: – disabled people; – children and young people; – users of adult, reference and local history services; – minority ethnic groups.
There is a great deal of agreement arising from the various consultations.
The main strengths of the service are seen as: – the range and quality of the stock, in particular the book stock; – the quality and helpfulness of staff; – the Home Library Service; – services to schools and children.
The consultation process identified the following main weaknesses: – lack of publicity for the services; – opening hours are not convenient for all groups; – lack of public services such as toilets, refreshments and parking.
In addition, the staff survey highlighted inadequate staffing levels and weaknesses in internal staff communication. The groups consulted all offered positive suggestions for improving the service. These are addressed as part of the improvement plan.
6 Page 171 Compare Phase
11. The service compares well in: • performance against the Public Library Standards: • accessibility in terms of location and hours of opening; • stock provision and purchasing; • reservation service; • ICT provision; • public satisfaction.
It compares less well in: • number of physical visits to libraries – the poorest performing area of the service – lowest of the comparators, in the lowest quartile for both London and All England; • cost of a library visit where the service is the most expensive and in the lowest quartile; • generation of income where the service is the lowest.
Compete Phase
12. The service competes well in a number of respects. It is not expensive – gross expenditure per 1000 is firmly in the middle range. It is far from extravagant in staff costs. The total staff in post per 1000 is the lowest in London and just above the UK average. Book issues compare well. The authority provides the inputs required for an effective service at moderate cost. In this respect the service provides good value for money.
However, the key outcomes – physical visits, cost per visit and income per 1000 population – on the basis of these inputs is low. However efficiently and effectively the inputs are provided this represents, overall, relatively poor value for money. This is the basis on which future options are considered.
Options for the Future of the Service
1. Market Testing
The service as a whole is judged sufficiently robust and effective to make the market testing of the whole service an inappropriate strategy for moving to top quartile performance in five years. However, significant elements of the service have been identified for market testing.
They are: • providers of income generation strategies and the management of income generation strategies; • marketing and publicity strategies; • stock supply; • stock selection; • bibliographic services;
7 Page 172 • ICT services (facility managed); • shop-type activities; • services to business and commerce; • video, DVD, software supply and rental.
2. Formation of a public/private partnership.
The only current example, Hounslow, was investigated by the team. Given its relative performance across the range of indicators and Audit Commission concerns about its capacity to find the level of investment necessary to meet the DCMS Public Library Standards, it was judged that there are insufficient grounds for this option to be adopted and pursued at this stage.
3. Transfer or externalisation of the service to another provider.
The self-evaluation of current provision concluded that the strengths of the service outweigh the weaknesses, that the service has the capacity to improve and will improve. The transfer or externalisation of the service was therefore judged inappropriate at this time.
4. Restructuring or repositioning of the in-house service.
A major restructuring of the in-house service has coincided with the Best Value review period. The effectiveness of the restructuring will be kept constantly under review. Whilst the option is not currently appropriate it could be highly relevant in the short to medium term.
5. Renegotiation
Renegotiation of existing arrangements with the current providers where this is permissible. Existing contracts are very successful. The key issue is not to renegotiate these contracts but to explore and develop the market in other potential areas as set out in Option 1 above.
6. Joint commissioning or delivery of the service
The Library Service has worked very effectively with five other London library services on setting up joint purchasing arrangements. This has resulted in highly advantageous discounts on stock purchasing. It is a model which could well be applied to other areas of the service and will be explored alongside the possibilities set out in Option 1, e.g. the investigation of a joint libraries automation project, the promotion and marketing of library services, and the circulation of ethnic materials across the North-East London Library Service.
7. Cessation of the service, in whole or in part
This is not an option for the book lending and reference elements of the service as the Local Authorities have a statutory obligation to provide ‘comprehensive and efficient library services’ as set out in the 1964 Public Libraries and Museums Act and to meet the 2001 Public Library Standards. The other elements of the service that could be considered for cessation, i.e.
8 Page 173 non-statutory, are dealt with under the improvement plan for market testing e.g. audio-visual services with a view to franchising or partial cessation.
The provision of a school library service is dealt with through a service level agreement with all primary schools within the borough on a not-for-profit basis.
Conclusion
There are three options appropriate, at least in part, to ensuring competition which will support the objective of top quartile performance within five years – in particular on number of physical visits, cost of visits and strategies for income generation. The options are:
Option 1 market testing the most appropriate elements of the service.
Option 4 restructuring or repositioning of the in-house service to be kept under continuous review;
Option 6 joint commissioning or delivery of the service. This will be explored in Option 1;
Option 7 cessation of poorly supported non-statutory functions.
9 Page 174 Improvement Plan
1. The Improvement Plan focuses on the objective of reaching top 25% performance within five years on;
i) the number of physical visits per thousand head of population to public library premises (BVPI 117);
ii) the cost per physical visit to public libraries (BVPI 115); and
iii) the level of income generation.
2. The plan takes full account of the findings of the challenge, compare and consult phases. In particular it:
i) seeks to incorporate the key actions in other authorities which are successful in increasing the use of library services;
ii) takes account of the proposals made by users during the consultations;
iii) focuses on community priorities, particularly the contribution the service will make to the Customer First Initiative.
3. The plan is presented within the framework of the balanced scorecard. It is also aligned with the Annual Library Plan and the Education Development Plan. It addresses the following improvements and actions.
Public Perspective
• Better education and learning for all – increasing the library service’s contribution to the learning agenda. – reader development and family reading. – increasing access to ICT and book-based information. – implementing the ICT strategy.
• Equalities and diversity – work in partnership with the DEAL equalities and diversity officer.
• Developing rights and responsibilities – contribute to the Customer First initiative; – provision of up-to-date and accurate information to the community at all library sites and electronically.
• Regenerating the local community – strengthen the provision for business and commercial users; – contribute to the adult basic skills initiative.
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Community First • Actions on: – reviewing the number and distribution of the libraries; – outcomes of consultation especially toilets, parking, partnership working, publicity and marketing; – book stock; – increasing accessibility.
Funding the Future • Actions on: – income generation strategy with year-on-year targets; – plan for allocation of additional income to key priority areas.
Performance Counts • Actions on: – site-by-site proposals for increasing use of every service point; – review and consultation on opening hours on a site-by-site basis.
People Matter • Actions on: – support for front-line staff; – support for Senior Librarians and Community Librarians.
The plan identifies for each required improvement the: (1) level of priority; (2) key actions; (3) timescale/deadlines; (4) outputs demonstrating progress; (5) resources needed; and (6) lead officer(s).
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Section 1 Background
1.1 In the last three or four years the Government has placed increasing importance on the development and role of public libraries. After two decades or so when they had little prominence nationally, there is now an increasing recognition of the role public libraries can and should make to national priorities such as: promoting lifelong learning, supporting the campaign to improve adult basic skills, providing wider access to ICT and electronic information, and supporting social inclusion policies. All of these areas are compatible with libraries’ traditional role as providers of books and information. All are highly relevant to the priorities of the Council, which are set out as seven community priorities:
1. Raising pride in the Borough 2. Developing rights and responsibilities with the local community 3. Improving health, housing and social care 4. Better education and learning for all 5. Regenerating the local economy 6. Making B & D cleaner, greener and safer 7. Promoting equality opportunities and celebrating diversity
1.2 The introduction of national Public Library Standards in 2001 underlines the Government’s determination not only to define and work towards common standards of provision, but to set expectations and targets for the use which communities make of their library service. Increasing the use of the libraries is the most challenging target for Barking and Dagenham.
1.3 Much recent work has been done to ensure that this library service is addressing local and national requirements. The Service has been restructured over the past year, in particular to ensure that management responsibilities are more closely aligned to priorities for the service. The Best Value Review of the Library Service has been brought forward to Year 2 of the cycle in recognition of its increasing importance to corporate priorities.
1.4 There will be significant change in the Library Service over the next five years. The transformation of the Central Library is a key part of the regeneration proposals for Barking Town Centre. In addition a new library will be incorporated in the new Jo Richardson Community School. These changes have significant implications for the number and distribution of libraries which must be addressed in the improvement plan.
1.5 The main elements of consultation are set out below:
• Best Value research study conducted by MORI; • Best Value consultation with schools;
12 Page 177 • Challenge / Consultation events for: o services for disabled people o services for children and young people o adult, reference and local history services; • consultation with representatives of ethnic minority groups; • staff survey.
1.6 Judgements on comparison and competition are based on:
(i) performance against national BVPI, CIPFA and Public Library Standards data; and (ii) performance in five authorities selected for the following reasons: • Barnet and Gateshead identified as high performing services by their Best Value inspections; • Hounslow – the only library service to be provided by means of a charitable trust; • Redbridge and Havering – two neighbouring authorities.
13 Page 178 Section 2 Details of the Service under Review
A Description of current provision by the Service
The Statutory Framework
2.1 The 1964 Public Libraries and Museums Act requires all local authorities to provide a ‘comprehensive and efficient library service’. Currently all councils except one directly provide a library service. The exception is Hounslow whose service was established as a Trust in 1998. Since 1995 all local authorities must provide a service which meets the requirements of the Disability Discrimination Act.
2.2 The publication in 2001 of Public Library Standards by the Department for Culture, Media and Sport (DCMS) represents the first attempt to define ‘comprehensive and efficient’. These standards represent the minimum acceptable provision and performance against which all services will be judged. The specific objectives inherent in the standards are to:
• ensure that libraries are located so as to provide convenient and suitable access for users; • ensure that opening hours of libraries are adequate for users; • develop electronic access for users; • ensure satisfactory services for the issuing and reserving of books; • encourage the use made of the library service; • provide a good choice in the books and materials made available to users; • provide appropriate levels of qualified staff.
2.3 The Annual Library Plan is the major statutory return to the DCMS. In it all Councils must demonstrate how they aim to meet the national standards by April 2004. This service gained the top grade 3 rating for both the overall quality of the plan as a planning tool and for the authority’s approach to meeting the public library standards.
2.4 Finally, two key Best Value performance indicators are reported annually:
• the number of physical visits per thousand head of population to public library premises (BVPI 117), and • the cost per physical visit to public libraries (BVPI 115). These are a central focus for this review. In addition library authorities are asked to state their local targets (i.e. performance measures to which they aspire) for services to children, socially excluded people, ethnic minority communities and people with disabilities.
Outline of Council Provision
2.5 The Council’s Library Service is provided through a network of eleven libraries which are reasonably evenly spaced across the borough. (See Map, Fig.1). Five are open more than 45 hours per week (the national standard for larger libraries), with the Central Library, Whalebone Library and Valence Library
14 Page 179 FIGURE 1
15 Page 180
having the longest hours at 56, 48 and 48 respectively. All except Fanshawe Library is open on Saturday. None is yet open on a Sunday for reasons of cost. However, this an area which the service must address, as there is some evidence of local demand and considerable national pressure for library services to offer Sunday opening at least in larger libraries. The London Borough of Barking and Dagenham was created by the amalgamation of the Barking Borough Council and Dagenham Borough Council in 1964. The new borough inherited the two previous library services and maintained the ethos of the social engineering experiment of the Becontree Estate i.e. neighbourhoods having local shops, pubs and a library within walking distance.
2.6 All sites provide adult and junior lending services for books and spoken word cassettes, access to newspapers and periodicals, CD ROMs, free public Internet access, multimedia PCs, computerised access to the public library catalogue, interpretation packs, structured class visits and fax facilities.
2.7 The main reference service is located at the Central Library, whilst a more limited service is provided at all libraries. Local information is available at all branches and on the Internet as part of the libraries’ on-line catalogue. The main local studies collection has just moved from Valence Library to Valence House Museum. It is run by the Library Service supported by Heritage Services.
2.8 There is borough wide provision for services to special groups and services to schools. The Schools’ Library Service operates as a separate business unit for primary schools and Trinity Special School. The service was devolved to schools in April 2000 and all continue to choose to buy back into the local service. Services for special groups are co-ordinated by the Senior Librarian for Community Outreach. The service delivers books and audio-visual material to around 530 homes and to 54 establishments including residential homes, sheltered accommodation, day centres and community centres. It also oversees the provision of services to disabled people and to minority ethnic groups, including refugees and asylum seekers. Partnership working with Barking College, schools and community providers is developing rapidly.
2.9 At present three libraries have shared facilities:
• the learning village at Valence Library, run by Barking College; • the UK-online Centre at the Central Library, run by the Adult College; and • the Fanshawe Library which is part of a community complex.
Planned projects which include shared facilities are:
• the Thames View community complex; • a UK-Online Centre/community library at Sydney Russell School; • Jo Richardson Community School and library at Barking Reach; • UK-Online Centre at Marks Gate community complex.
The service is actively seeking further opportunities for partnership.
In terms of ICT, the Library Service shares its network with all schools in the borough. 16 Page 181
Staffing
2.10 The current full-time equivalent staffing establishment is 86.8 of which 79.5 posts are filled (as at March 31st 2002). The CIPFA Actuals ranks us, in comparison to all 20 Outer London boroughs, as 11th for professional posts and 17th lowest for all staff. In comparison with all London boroughs (32 excluding the Corporation of London) we rank 21st for professional posts and 29th for all staff.
In 2001 the Library Service underwent a fundamental staffing review and restructuring, to meet the changing role of the service in response to both national and local agendas. This involved the creation of three new tiers of post: Principal Librarian; Senior Librarian; and Community Librarian. Table 1 shows the distribution of posts across the service.
Title Grade Head of Service LSM 1 Principal Librarian PO6 1 PO4 3 Senior Librarian PO1 8 Community Librarian SO1 2.7 S6 8.5 S5 5 S4 8.7 Senior Library Assistants S3 6.6 Library Assistant S2 29 Library Caretakers MG3 6 Total 79.5 Table 1: Distribution of posts in the Library Service
2.11 The roles of the new posts are central to the improvement agenda. There are four Principal Librarian functions:
• learning and development; • customer and professional services; • information and management of resources; • quality and standards.
Each principal librarian leads a key strand of the improvement strategy (as detailed in the Annual Library Plan). Immediately below the Principal Librarians is a tier of Senior Librarians. These include the new posts of Senior Librarian Family Reading and Senior Librarian Community Outreach. Both of these posts have fundamental inclusion roles. They are designed to lead developments in the community and to reach out more systematically to groups and individuals who may require additional support. Five new Senior Librarians (Community Development) lead clusters of libraries. They are responsible to the Principal Librarian (Customer and Professional Services) and are directly responsible for implementing the strategy and working towards targets within their libraries. In addition there is a variable pool of sessional library assistants who are called upon to work on a service need basis. They are paid an hourly rate at Scale 1 (spinal point 5).
17 Page 182 2.12 The charts in Appendix 3 represent the structure of the Department of Education, Arts and Libraries (as in the Annual Plan) and the staffing structure of the Libraries Service. The Head of the Library Service is responsible for driving the service forward strategically supported by four principal librarians, who also have defined borough-wide responsibilities. This group comprises the senior management team. The senior librarians have either a specific area of responsibility e.g. family reading or are responsible for the provision and development of the public services for one library cluster. Day-to-day operations management and service delivery is the responsibility of the community librarians.
2.13 Levels of staff absence are high in relation to the Council average of 6.93 days. In 2000/2001 the average level of absence through sickness was 14 days or the equivalent of 1,173 working days. Four staff with long-term health problems accounted for 458 of those days. Deducting these absences gives an average of 8.5 days. Addressing these high levels of absence is clearly an issue for the service.
Accommodation
2.14 The Library Service manages eleven buildings, all owned by the Council. The buildings have been well maintained and have a regular maintenance programme. There is a good record of renewing and replacing libraries. Whalebone Library was replaced with a new building in 1999. A new Markyate Library is being built in 2002. Both have been funded by planning gains. There are also plans to redevelop the Central Library in Barking Town Centre and the new library in the Jo Richardson Community School on Barking Reach.
Service Costs
2.15 The 2001/02 library service budget consists of the following:
Direct Costs
Library staff cost £1,589,000 Library acquisitions £ 397,000
Other Costs
Administrative and Indirect Administrative £ 87,960 Premises £ 495,010 Transport £ 17,800 Other supplies and services £ 215,390 Agency £ 65,570 Central support £ 390,000 Total (excluding capital charges) £ 3,257,730
Compared to all Outer London Authorities, the library service is ranked 6th most expensive for all employee costs, 6th for premises costs, 8th for all supplies and services, 14th for transport costs and 10th for central support costs. The key indicator in the BV Audit Commission performance data is the cost per visit. The low number of visits leads to a high cost per visit which places this library service in the lower quartile nationally. This is the key issue for the Best Value review. The service must demonstrate the capacity to move into the top quartile within five years.
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Service Income
2.16 The estimated income for 2001/2002 is £176,000. This includes income from grants, overdue changes, reservation fees and lettings. Income generated is generally low in comparison to all Outer London Authorities (ranked 15 out of 20). This is partly a result of a policy of low charges for fines. Table 2 analyses library income from fees and charges i.e. it excludes grant payments. It shows a fall in income from a peak in 1999/00. The current figure of £87,376 is below that of the £94,346 achieved four years ago. The biggest single fall is in video hire, this may be as a result of commercial market pressure and their aggressive marketing campaigns and ability to bulk purchase the latest title and guarantee availability.
There is a commitment in our improvement plan to review fines and charges. This will be undertaken with due regard to the three fundamental principles of the Charging Policy Commission as reported to the Assembly on 4th July 2001:
i) services should raise income wherever there is a power or duty to do so; ii) the income raised should cover the full cost of providing the service, including all overheads; iii) any departures from this policy must be justified in a transparent manner with reference to the Council’s Policies and Community Priorities.
Type Subjective 1998/99 1999/00 2000/01 2001/02 (to 20/03/02)
Sale of Publications 9115 4,882 2,219 4,514 2,824 Photocopying Charges 9255 4,769 4,304 3,902 3,292 Normal Hire Halls/Rooms/Play Fields 9261 4,851 4,946 6,778 6,807 Sale of Victoria County History Publications 9118 26 22 8 8 Fines 9400 40,876 43,827 39,518 36,521 Lost & Damaged Books 9407 3,121 2,237 1,858 2,258 Ticket Sales 9154 0 972 1,098 266 Record Hire 9402 1,338 89 0 0 Reservation Fees 9403 6,023 5,456 5,482 4,663 Sale of Postcards 9406 0 70 77 503 Lectures - Ticket Sales 9408 0 1 26 1,111 Compact Disc - Annual Subscription 9426 5,190 5,981 7,118 7,372 Compact Disc - Hire 9427 1,770 7,616 8,448 7,158 Video Hire 9428 20,737 20,189 18,822 14,593 Work Books Resale 4075 751 0 33 0 Office Stationery 4506 0 0 0 0 Picture Hire 9401 13 3 0 Total 94,346 97,930 97,682 87,376
Income Target from Fees & Charges 99,000 110,000 113,000 116,000 (excludes grants) Actual Income from Grants 0 0 27,738 5,342 Note: It will be difficult to provide a valid comparison with regards to income from grants as not all of LBBD's statistical and geographical neighbours received grants during this period. Table 2: Analysis of Library Income from Fees & Charges (excludes grant payments)
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20 Page 185 B Self-evaluation of current provision
2.17 The self-evaluation below presents findings and judgements agreed by all members of the review team.
Four questions are addressed: • Are the authority’s aims clear and challenging? • Does the service have the capacity to meet those aims and strategic objectives? • What is the balance of strengths and weaknesses? • How likely is the service to improve?
Each of these questions is considered in turn, drawing upon evidence from: • The Initial Business Review. • The Annual Library Plan, and its evaluation by DCMS. • Performance against BVPIs, local performance indicators and national library standards. • Evidence gathered on the ‘4 Cs’ during the course of the review.
Are the authority’s aims clear and challenging?
2.18 The aims and objectives for the service are set out clearly in the Annual Library Plan (pages 18 and 19). They cover national and local priorities. The plan received a score of 3, the highest score possible, for both its quality as a planning tool and for its approach to meeting the public library standards (see para. 2.3).
2.19 Four priorities – inclusion, learning and reader development, ICT and quality assessment – are set on the basis of a reasonably thorough analysis of strengths, area for development, opportunities and threats. The priority areas are consistent with the aims of the service. The recent restructuring of the service into four units directly supports action on these priorities. There are, though, concerns about the comprehensiveness of the coverage of the analysis of strengths and areas for development. The range of areas evaluated does not include some key areas, for example in respect of: • the capacity to support regeneration and revitalisation of the Borough - insufficient consideration is given to the strengths and weaknesses of services to business and commerce; • the need to provide a good or better service to all stakeholders, for example, other departments of the Council, other agencies, voluntary and community groups, lapsed users or non-users; and • the capacity of the service to generate a rapid rise in the number of visitors, users and borrowers.
2.20 The actions which are identified to meet the planned aims and objectives of the service are not always clear enough. For example, three groups are identified as particular priorities in the Annual Library Plan (page 10). They are:
21 Page 186 • adults with low basic skills; • parents in their 20s and 30s; • children in school who are not regularly in contact with their local library.
There is a wide range of appropriate actions in respect of these groups across a number of plans in the service – for example, the Vital Link Initiative (DCMS) targeting adult literacy students, More Families Reading (DCMS) directed at parents in their 20s and 30s, and the class visits initiative targeted at children out of contact with their local library. However, all the action in relation to each priority are not brought together in a single coherent sequence. Consequently, action may not be as forcefully directed at these groups as it should be. They may well not receive the particular attention they need.
2.21 The Library Service is working within a strong corporate framework to deliver the aims and strategic objectives of the Council. The Library Service has a prominent place in the strategic planning process for the authority with a well- defined place in the cultural services scorecard. There are seven agreed community and Council priorities. These are: 1. Raising pride in the Borough 2. Developing rights and responsibilities with the local community 3. Improving health, housing and social care 4. Better education and learning for all 5. Regenerating the local economy 6. Making B&D cleaner, greener and safer 7. Promoting equality opportunities and celebrating diversity
2.22 The Annual Library Plan argues that the Library Service is particularly well placed to address four of these priorities: better education and learning; equal opportunities and diversity; developing rights and responsibilities; and regeneration. However, it is not in fact equally well placed to address all of them. Support for regeneration and revitalisation are relatively underdeveloped. The place of the Library Service in developing rights and responsibilities, for example its role in customer service across the whole Council, is not yet properly defined. The consideration of provision in the light of equalities and diversity is at an early stage, as is revealed in the responses to the questionnaire (Appendix 1) on these topics. This is not to ignore the very good work currently under way to meet the needs of groups and individuals with special needs (Annual Library Plan, pages 32 to 35). The challenge is to embed equalities and diversity issues at the heart of all policy and strategy in the service.
2.23 The recent incorporation of the library service into a new Department of Education, Arts and Libraries has ensured that the service is best placed currently to support the community priority of better education and learning for all. A high proportion of the priorities in the Annual Library Plan (i.e. three out of seven) are directed to supporting this theme. The restructuring of the service has had the effect of increasing the support to this priority. New resources, especially of expertise, are available to the Library Service. With a very high level of adult illiteracy and innumeracy across the Borough there is an excellent 22 Page 187 case for ensuring that the service supports education and learning. Indeed, there is a vital positive feedback loop to be developed – higher levels of literacy and numeracy lead to higher usage of the library service leading in turn to even higher levels of literacy and numeracy in the community.
The service is beginning to contribute to the regeneration agenda, especially where there is joint working such as Marks Gate (UK-Online Centre), Thames View (new centre planned), Central Library (part of the redevelopment of Barking Town Centre) and Markyate (health centre and library).
2.24 The Library Service is very strongly committed to the national standards. It is confident of meeting 22 out of the 23 standards by the end of 2002. The one standard which will take more time relates to the number of physical visits to libraries.
Does the Service have the capacity to meet its aims and strategic objectives?
2.25 The service demonstrated its capacity to improve over the past few years. The restructuring has been completed. It is based on sound basic principles and should be more effective in helping the service to reach its aims and objectives than the former structure. It has though yet to prove its effectiveness in practice.
2.26 The service enjoys strong and continuing political support. Elected members have ensured that a coherent network of service points has been maintained. They are aware of the need for libraries within walking distance of homes given the very low car ownership figures in the Borough and the high levels of deprivation in certain areas. It may be, though, that the strategy for increasing visitor numbers and borrowers is too reliant on the proximity of libraries to homes. This may be a necessary condition for increased use but it is not a sufficient condition. Indeed, some would argue that such a large number of libraries may be beyond what is necessary. The service needs to re-consider the assumption that the number of libraries should automatically be maintained at its present level. It may be that a combination of fewer libraries of the highest quality linked to more effective and innovative approaches to attracting customers will be more successful in increasing use. At the very least a fully worked-up rationale for maintaining the present network is needed. Appendix 11 considers in detail the issues around the number of libraries which the service should have in future. A full review of the number and distribution of libraries must be part of the BV Improvement Plan. It must take into account the libraries’ role in other corporate initiatives, for example Customer First. The confidence of the members in the Library Service is further revealed in the continuing commitment to improving provision – over the past three years two libraries have been completely replaced with new buildings. Members have also maintained high standards of maintenance and repair in all libraries.
2.27 The Library Service has shown itself recently capable of co-operation with other providers. The best example is the co-operation with the Barking College over the location of new Online ICT resources in Valence Library.
23 Page 188 2.28 There is a high book stock. For example, the number of books per head of the population is 2.9. This is the highest figure for the outer London authorities. The Service is currently working on developing a collections policy. There is though a need to review the stock more vigorously and to have clearer strategies for improvement.
The Library Service has a new and up-to-date management structure which takes account of its current and future aims and objectives, not least good monitoring and evaluation through effective quality assessment and control.
2.30 There is evidence in the Initial Business Review that the performance of the Library Service in comparison to the Council’s overall sickness average is poor (average of 8.5 days compared to 6.9 across the Council as a whole). There has been a number of difficulties in establishing the true figure, particularly since retrospective absence data is currently still being entered into Oracle, a new personnel/payroll system. It is important that this process is completed quickly. On the face of it the level of sickness is potentially a significant weakness in the capacity of the service to meet its aims and strategic objectives. It needs to be established accurately and to be explained in full, not least to discount the possibility of high levels of sickness related to relatively low levels of morale and motivation. If there were evidence of relatively low morale and motivation across the service then its capacity to improve would obviously be impaired. Indeed some concerns have been raised in the staff questionnaire and these must be fully explored.
2.31 The key current strategic objective is to bring about a step-change increase in the number of visitors, users and borrowers, and so to reduce the cost per visit. There is a general understanding of the centrality of these objectives across the whole service. But there is a need to give a much fuller account of the reasons for the problem and the whole range of possible responses. For example, the service rightly prides itself on its careful retention of a large and comprehensive book stock. However, its strategies for advertising this fact widely, and for helping people to use and profit from the stock are weak. Equally, the Service has not thoroughly worked through its view of all the options for increasing the numbers of visitors, users and borrowers.
It has not identified which new options it is going to support and why. It must look very carefully at lists such as that recently provided by the London Libraries Development Agency, and at the services provided by the authorities such as Barnet and Gateshead which it currently does not offer. There is no sustained long-term approach to marketing. Gateshead has a dedicated team of staff for this.
24 Page 189
LLDA: A Manifesto for London’s Libraries Basic Skills Materials Electronic Journals Open Learning Materials Books – Fiction, Non-Fiction Exhibitions Parents And Carers’ Mornings Bookstart Homework Help Clubs For School- Pensioners’ Groups Business Information Age Children Playsets Cd-Roms Housebound Services Poetry For All Ages Cds And Videos Internet Access Reference Materials Citizen’s Information Lifelong Learning Activities Study Space Collections Of Specialist Materials Mobile Libraries Talking Books For All Ages Cultural Activities Newspapers & Magazines Work Processing Displays On-Line Learning And More
Table 3: Additional Services likely to increase the number of visitors, users and borrowers. Source: LLDA: A Manifesto for London’s Libraries
The Service is a relatively low performer at income generation at present. This largely reflects the policy of elected members over time. However, if the service is to establish growth in usage, particularly by providing new options which need new money to start, a clear strategy for income generation should be established.
2.32 Another factor is the age profile of users. Table 4 below shows the age profile of users as in February 2001 and May 2002. There has been a significant improvement in almost all age groups with the highest for the 16-20 group. These improvements reflect the targeting of specific age bands by such initiatives as Ford EDAP, Family Reading and Bookstart. It is clear that the overall usage of the library is heavily weighted to young people below 20. This is encouraging for the future. But it means that the key groups for specific and continuing attention are the 21-25 group and the 40+ groups.
AGE RANGE FEBRUARY 2001 MAY 2002 % CHANGE 0-5 2220 3694 66 6-10 9179 9863 7 11-15 8269 9317 13 16-20 4329 5290 22 21-25 3325 3972 19 26-30 3847 4552 18 31-35 4542 5279 16 36-40 4941 5248 6 41-45 3357 3972 18 46-50 2690 3029 13 51-55 2241 2598 16 56-60 1519 1745 15 61-65 1715 1710 - 66-70 1790 1854 4 71-75 1793 1828 2 76-80 1495 1575 5 81-85 777 922 19 86-90 393 461 17 91-95 509 140 - 72
25 Page 190 AGE RANGE FEBRUARY 2001 MAY 2002 % CHANGE 96-100 21 26 24 Others 2586 3050 TOTAL 60758 70125 15
Table 4: Age Profile of Library Users
What is the balance of strengths and weaknesses?
2.33 The main strengths of the service are:
• Service supported by strong corporate vision and management and planning strategies. • Strong and continuing member support. • Well distributed network of branch libraries. • An intact, well-maintained library network and book stock. • High level of user satisfaction, with staff in particular. • Good capacity for self-evaluation and planning, (two ‘3s’ for the current Annual Library Plan). • A good range of action plans. • Capacity to forge new and effective partnerships. • Recent, well-focused restructuring. • A very good IT infrastructure, with staff being trained to exploit it (through the European Computer Driving Licence (ECDL). • Strong track record of very high quality local studies provision and publications.
The main weaknesses are:
• Strategy for increasing visitor numbers, users and borrowers. • Strategy for improving use by identified key under-represented groups. • Low level of income generation. • Lack of strategy for improving selection mechanism and acquisition process. • Staff sickness levels. • Lack of sustained marketing and publicity.
The strengths of the current service outweigh the weaknesses although there are some important weaknesses. These include the strategy for increasing visitor numbers, users and borrowers – not least from key under-represented groups – and the strategies for income generation and expanding the range of roles and functions of the libraries.
How likely is the service to improve?
2.34 The service has already demonstrated a capacity to improve: • it is currently achieving a significant rise in the number of visitors when compared to 2001/2002, albeit from a low base;
26 Page 191 • it is on course to meet 22 out of the 23 national standards by the end of 2002; • it meets a higher proportion of the standards than the comparators used in this review; • growing efficiencies in stock provision and purchase; • it has the highest number of opening hours per 1000 population among the London comparators; • it has established new partnerships with the education service, with UK- Online, with Barking College (Learning Villages), with individual schools, with community centres, with industry and commerce (new library facility at Ford Motor Company); • it has secured major DCMS/Wolfson support for two years running.
Equally, the service is well-placed to secure substantial improvements in the short and medium term. The evidence for this judgement includes: • an increasingly strong corporate framework for planning and performance management, enabling the Library Service to contribute to all the community and council priorities through the balanced scorecard; • a recent restructuring in response to the modernising agenda; • the highest level of public satisfaction for adults in the comparator group; • continuing strong political and public support; • high level of satisfaction with the work of the staff ; • strong professional willingness to train in new areas of expertise, for example as adult literacy tutors and the ECDL.
2.35 The self-evaluation has considered how the service is and how likely the service is to improve. On the basis of the evidence,
The overall judgement of the team is that it is a good service which will improve.
27 Page 192 Section 3 Challenge Phase
3.1 The first issue is to establish the need for the service and who it is for. There are two differing meanings of the work ‘need’ which apply to the challenge phase of this particular review. The first meaning is ‘to be required of necessity to do something’. This precisely describes the statutory obligation upon the local authority to provide a ‘comprehensive and efficient library service’. The Public Library Standards represent the first attempt to define ‘comprehensive and efficient’. The Library Service has given a strong welcome to these standards. Currently it meets or exceeds 14 of the standards. It is confident of meeting 22 out of the 23 standards by the end of 2002. The Best Value PIs provide good indicators to test efficiency. The service does not perform well against either indicator – that is to say, the number of visits per thousand of the population or the cost per visit. It must meet its statutory obligations more economically and efficiently.
3.2 The second meaning of the word ‘need’ is ‘to be in want of’. Here the evidence is that the majority of the population do not appear to be actively in want of the library service as provided – whether or not it meets all the library standards and whether or not it is economic and efficient. Currently 42% of the population are active borrowers. The long-term commitment of the elected members has not, in itself, succeeded in significantly increasing the use of the library service over the past decade.
3.3 But there is no doubt of the central importance of the library service to the Council’s and the community’s core priorities. A key area is the need to reduce adult illiteracy and innumeracy rapidly. At present the community is 4th and 2nd lowest respectively across all authorities in England and Wales according to the most recent Basic Skills Agency survey. The library service needs to establish an upward spiral where higher levels of use promote higher literacy and numeracy which, in turn, encourage further use of the library service. The central challenge for this library service is to establish a real need for its provision amongst a much higher proportion of the population
3.4 Three elected members have actively participated in the challenge process throughout this Best Value Review. One member has undertaken a study visit to the benchmark authority of Barnet, together with officers.
3.5 Local people have been involved in the challenge process through: • the consultations; • the MORI surveys; and • staff consultations.
3.6 Internal and external challenge and scrutiny has focused on the following areas; i) revisiting the Annual Library Plan – to trace the links between the aim of addressing current weaknesses on the one hand, and the actions needed to overcome successfully those weaknesses on the other hand;
28 Page 193 ii) the challenge represented by the comparator authorities1 – especially in terms of the number of visitors, users and borrowers, the cost per visitor but also the range, vitality and attractiveness of what is offered to the whole local community; iii) visits to the comparator authorities; iv) accepting the challenge of the highest performance at national level. It would be easy to argue that, given the levels of deprivation and so on, this library service should only be compared to similar socio-economic areas. That would be to lower aspirations hugely. This BV review is based on the challenge of reaching the highest levels of performance at national level, without qualification. v) the key challenges to the service arising from the responses to the equalities and diversity questionnaire (Appendix 1) are: • the inclusion of data relating to minority ethnic groups in the profile of service users; • the incomplete coverage of the research into the needs of the communities and groups of the Borough; vi) the key challenge to the service arising from the response to the sustainability checklist (Appendix 2) is the need to contribute more effectively to the local Agenda 21 Plan, to recycling and to the provision of materials and information about sustainability, including to schools; vii) staff survey (Appendix 5)
3.7 The most challenging findings arising from comparison are: • the number of physical visits is in the lowest quartile nationally; • the number of physical visits is much lower than in the comparator authorities; • the cost per physical visit is in the top quartile – more than double the nearest neighbours; • the level of income generation is in the lowest quartile; • the capacity of the comparator services to provide at least the same – and in many cases a wider – range of services than the Borough. One part of the answer is, of course, higher levels of income generation. But that in itself is a challenge to the service (see bullet point above).
3.8 In conclusion, there are seven major challenges to the Library Service if it is to attain top quartile performance within five years. The challenges are: (1) to develop a coherent and effective strategy to increase the number of visits and reduce the cost per visit. This is covered in detail in the improvement plan (2) to identify areas for externalisation robustly and rapidly. The BV review has identified nine possible areas: – income generation strategies and providers of effective management of income generation – marketing – stock supply
1 Barnet, Gateshead, Redbridge, Havering and Hounslow 29 Page 194 – stock selection – bibliographic services – ICT services (facility managed) – shop-type activities – services to business – video supply and rental All nine will be market-tested as the first stage in the improvement plan; (3) to improve the publicity and marketing of the service. This is identified by members of the public in the consultation phase as a key issue; (4) to review the current relatively dense geographical network of libraries against (a) the same number of service points distributed differently, e.g. more in shopping areas and (b) fewer service points more strategically located; (5) to ensure that all stakeholders receive a good or better service. Particular priority to be given to action to: • support other Council departments; • support other agencies e.g. health; • support business and commercial users; • meet the needs of those in their 20s and 30s; • meet the needs of other hard-to-reach groups; • help adults with low basic skills; (6) to improve the contribution of the service to the ‘wicked’ issues i.e. equalities and diversity, sustainability and regeneration and neighbourhood renewal; (7) to develop new services supported by new sources of income.
30 Page 195 Section 4 Consultation Phase
4.1 The Library Service fully supports the Council’s objective of putting the community first by consulting with its customers on a regular basis in order to:
• determine satisfaction with the Service (both qualitative and quantitative); • promote equality of service for all; • meet local needs; • ascertain reasons for non-use and identify target groups; • make improvements; • develop partnerships to maximise the use of buildings and facilities.
The main systems for regular dialogue with stakeholders are:
• the comments and suggestions scheme (recently revised in line with customer suggestions); • the corporate complaints procedure; • the staff suggestion scheme; • Home Library Service initial assessments of need.
In addition the Library Service carries out planned consultation with specific groups or for particular projects. A list of recent consultations is included as Appendix 4. Examples of this type of consultation are:
• DCMS/Wolfson family reading project • Reference Library survey • Valence Library/local studies survey
4.2 The following consultations were carried out as part of the Best Value Review:
i) Best Value Research Study conducted by MORI to determine the level of satisfaction or dissatisfaction with libraries. This was carried out in October and November 2001. All 1100 residents from the Barking and Dagenham Citizens’ Panel were mailed a questionnaire. Results are based on 479 questionnaires – a 44% response rate.
ii) Best Value Consultation with schools – July 2001, as part of the Council’s annual consultation process. Results are based on responses from 28 out of 58 schools.
iii) A series of three challenge/consultation events for members of the community in relation to the following services:
• Services for disabled people; • Services for children and young people; • Adult, reference and local history services.
The events were advertised in the Citizen. Letters were also sent to local interest groups. The numbers contacted in each category were as follows:
31 Page 196
Ethnic minority groups Letters sent to 27 groups and organisations Disabled people 15 groups contacted through the Disabled Information and Advice line Children and young people Letters sent to 44 groups Local history Letters sent to 4 groups
iv) A challenge/consultation event was also planned for services to ethnic minority groups. The initial response to this was low. Therefore consultation went ahead on a one-to-one basis, via individuals and groups.
v) Staff survey – all staff were sent a questionnaire and were invited to put forward their views on the strengths and weakness of the service. Two consultation sessions for front-line staff were held.
4.3 The main findings of each element of the consultation are set out below:
• The MORI Survey – Almost two thirds (65%) are satisfied with the Library Service; including 32% who are very satisfied. Older people tend to be the most positive. – One in ten people visit a library on a weekly basis. However, two in five never frequent a library. – There are a number of reasons why people do not visit the Library Service more often. The main reasons are that people prefer to buy their own books or use the Internet instead. These reasons were cited in around a fifth of responses. – The most important requirement of a library is that there are a wide range of books (74%). Other aspects are considered much less important than this factor. – Most aspects of libraries in Barking and Dagenham are rated as good (either very good or fairly good). The highest rating relates to the wide range of books (50%) which is seen as the most important aspect of the service. Residents in the 35+ age group are more satisfied with this aspect of the service than those aged 16-34. – Extended opening hours and author visits receive the lowest ratings. – People would be most likely to pay for:
i) home delivery and collection service (44%); ii) a handling fee when the library would order books and audio-visual materials for people to buy (44%). – People would most like to be consulted about closure of existing libraries and opening hours. – Half of those who responded have access to the Internet. Young people are much more likely to have access than older people. Similarly employed persons have greater access than those not working or retired.
32 Page 197 Just over one in two of those not working (59%) have access, whilst only 17% of those retired have Internet access.
• Best Value consultation with schools – The Schools Library Services received 100% satisfaction rating from primary schools who all choose to buy into the service. – Schools were asked to rate aspects of library services in relation to their importance to educational improvement. All received very high ratings of importance. The most important aspects of the service were: free book loans with no fines for children; and free Internet access
• Challenge/consultation events – disabled people Twenty people responded and attended, including some who were not members of the library. – The group felt that the service provided was generally good, including the stock, and the Home Library Service and Children’s Service were singled out for particular praise. They were unanimous in their praise of staff and the standard of customer care. – Physical access and inconvenient opening hours were the major concerns. The group would like to see improved parking facilities, the provision of public toilets and refreshments (coffee shops, water machines) in order to encourage prolonged stays in the library. Lack of publicity was seen as our worst failing and the group thought that there was not enough information in other languages or in other formats e.g. large print and Braille. – The group asked for a named person to be available at each branch to be responsible for disabled people and those with learning difficulties. This would ensure that there would always be someone at site with an understanding of their needs to avoid embarrassment. The group also asked for the loan of toys, games, software, and educational videos (especially for those with learning needs.) to be introduced.
• Challenge/consultation event – Children and Young People Seven groups responded. Three representatives attended. – The group praised the stock and the work with young children e.g. playgroups. – Again, the lack of publicity was criticised. – The group requested more instructional videos, more visits into the community and resources in other languages to more closely reflect the multiculturalism of the borough.
• Challenge/consultation event – Adult/reference/local history services Eleven people responded. Seven attended.
33 Page 198 – The group praised the staff and the standard of customer care. The caretakers were considered particularly helpful. – Once again, lack of publicity and inconvenient opening hours were the main criticisms. – The group wanted to see opening hours extended into the evenings, word processing facilities introduced, the loan of CD Roms and DVDs and more rooms made available, at minimum cost, for community meetings.
• Consultation with ethnic minority groups A further challenge/consultation event, to discuss services to ethnic minority groups, was scheduled to take place on 30 January 2002. Twenty-seven different organisations were approached but unfortunately the response was poor and the meeting was cancelled. However, both the Principal Librarian: Customer Services and the Senior Librarian and Community Outreach have talked with representatives of some of these groups on a one-to-one basis. These include Ethnic Minorities Partnership Association (EMPA), Translation and Interpretation Service (TIS), the Language Support Unit and Harmony House (the borough’s centre for refugees).
Feedback from these meetings has shown that the two most important requests by far are: • More books and other materials in community languages. • More events in libraries aimed at the minority ethnic groups.
• Overall summary of the views of the specific user groups consulted above: – In general the Service was thought to be good, with staff helpfulness being singled out for praise. – All groups complained about the lack of publicity on library services. Other complaints included: • computers – the groups felt that more help should be given on how to use the computers as customers often felt intimidated by them, especially disabled and older people who might lack the greater experience of using computers enjoyed by the young; • poor parking facilities; • inconvenient hours - many thought that Sunday opening was not necessary but would nevertheless use the service if it were open; – The new services/facilities which users would like to see provided included, in order of importance: • Toilet facilities; • DVDs; • Instructional videos – especially for children and those with learning needs; • More resources in other languages particularly books and story tapes for children.
34 Page 199 – Everyone was prepared to pay for “add on” services -such as the hire of videos, CDs etc. They were not prepared to pay for services for special needs-e.g. disabled people would not wish to pay to use specially adapted computer terminals. – Generally, the consensus of opinion was that the service could not be provided better by anyone else. Some thought that perhaps the video service could be provided by a commercial firm with greater resources and that the possibility of entering into partnership with “Meals on Wheels” to provide the Home Library Service should be explored. – Suggestions for improved publicity included: • advertising in supermarkets; • Articles in the Citizen; • Displays in libraries; • More visits to local groups; • More posters in the community – especially in other languages. – The main areas suggested for improvement were to: • provide toilets • more visits and talks to the local community • improve opening hours • make libraries more responsive to the needs of the immediate local community rather than to the borough as a whole – for example more books and other materials in community languages and more events in libraries aimed at the ethnic minority community.
• Consultation with staff
A questionnaire was sent to 85 staff. Findings are based on 36 responses (42.4%). The main findings are set out below:
i) Strengths of the service – the knowledge and care provided by the staff; – the quality and range of the stock, including books, information and CDs; – the provision of ICT and the quality of the website; – relations with schools, the Home Library Service and the Schools’ Library Service; – the number of service points – convenient local provision.
ii) Weaknesses of the service – staffing levels; – communication and in particular opportunities for dialogue between staff working at different levels within the service; – lack of publicity and promotion of the service; – support for the maintenance of ICT; – opening hours require review; – improved security is required at some branches; 35 Page 200 – lack of public services such as toilets and photocopiers
iii) Alternative providers suggested by staff Staff were asked whether anyone else could provide the service or parts of the service better than we do? Three-quarters of those who responded said no. The remaining quarter felt that parts of the service could be provided externally. Examples given were: • ICT support; • book and debt recovery; • stock processing; and • cataloguing and stock ordering.
iv) Suggestions to improve the service from staff – the provision of new services and/activities. Public toilets, a DVD lending service, word processing and photocopier facilities were the most common; – increased promotion of the services to the local community ; – improve security to tackle the anti-social behaviour of a small number of users at some service points; – increase the levels of staffing; in particular the numbers of permanent staff; – improve communications between different levels of staff; in particular there is a perception that the management of the service is not listening to front-line staff and that this is hampering service improvement.
The full survey findings are included in Appendix 5
4.4 Whenever possible the Library Service responds to its customers by rectifying mistakes and fulfilling any requests that can be accommodated within policy guidelines and the resources available.
The following are examples of how the Library Service has responded to requests from customers:
• Barking Central Library is to host a day of activities on May 11th 2002 (Cultural Diversity Day) to celebrate and explore the cultural diversity of the borough. Events will include food tasting from the different cultures, storytelling from around the world, costumes from the different groups etc.;
• plans are in hand for further sustained consultation with ethnic minority groups and with those in the 16-34 age group, where both MORI and internal analysis of membership indicate lower levels of use and satisfaction;
• an adjustable workstation has been provided to enable disabled customers to access the computer. A large print keyboard and basic text enlargement software have also been supplied;
• a centre for local studies has been created to address the needs of those carrying out local and family history research; 36 Page 201
• a deposit collection of books for adults and children has been set up at The Leys School. Owing to its geographical location the school expressed concerns that it would otherwise be necessary for children to travel long distances and cross major roads to access a library;
• as part of the EDAP project, Ford Motor Company have asked for an expansion of the service and this has been carried out;
• Sydney Russell School applied to become part of the Libraries’ Dynix computer system and has now been added to the network;
All those who responded to the challenge/consultation events have been contacted, thanked and sent a summary of the responses with an indication of how the service intends to act on the consultation. As a direct result of the consultation a small core of individuals has expressed willingness to participate in a regular focus group/library users group, to be set up as a result of the Best Value Review.
4.5 There is a great deal of agreement arising from the various consultations.
The main strengths of the service are seen as: – the range and quality of the stock, in particular the book stock; – the quality and helpfulness of staff; – the Home Library Service; – services to schools and children.
The consultation process identified the following main weaknesses: – lack of publicity for the services; – opening hours are not convenient for all groups; – lack of public services such as toilets, refreshments and parking.
In addition the staff survey highlighted inadequate staffing levels and weaknesses in internal staff communication. The groups consulted all offered positive suggestions for improving the service. These will be addressed as part of the improvement plan.
4.6 The main action points for the improvement plan are as follows:
i) Draw up a strategy for regular and planned consultation which includes: – identification of target groups; – focus groups/library users’ group; – mechanisms for feeding back the results of consultations; – a mechanism for regular consultation/dialogue with staff.
ii) Improve the way library services are marketed and publicised, both at whole-service and branch level.
37 Page 202 iii) Consult on opening hours on a branch by branch basis. iv) Evaluate and analyse all suggestions for improvements to services and facilities arising from the consultation process. Work towards the implementation of proposals as far as is possible were demonstrable service improvements arise.
v) Investigate and act upon concerns raised by staff in relation to staffing levels and inadequacy in communication.
38 Page 203 Section 5 Compare Phase
5.1 Comparisons are based on two elements iv) performance against national BVPI, CIPFA and Public Library Standards data; v) performance in five other authorities selected for the following reasons:
Barnet 3* BV Review/ will improve. Outer London Borough Gateshead 3* BV Review/ will improve. Socio-economic nearest neighbour. Socio- economically Barking and Dagenham is unlike any other London Borough. OFSTED and other sources indicate that the socio-economic comparators are all in the industrial midlands and north of England. Amongst those authorities Gateshead appears to have the best library service. Redbridge } Geographical neighbours in Havering East London. Hounslow Library services provided by means of a charitable trust.
Comparisons have been made in a variety of different ways and at different levels.
The main modes of comparison are the:
1) statistical comparison of 2000/2001 CIPFA Draft Actuals and BVPIs Actuals and performance on public library standards. This data is given in Table 5;
2) comparison of Annual Library Plans;
3) comparison of the approaches taken to encourage library visits;
4) desk research exercise concerning Hounslow; and
5) evidence from library visits.
The findings from each mode of comparison are set out in turn below.
Statistical comparisons with the five selected authorities
5.2 The data in Table 5 were selected to give a broad and balanced overview of the library services. The areas where the service compared particularly well and particularly poorly were identified. The outcomes of that analysis are set out below.
39 Page 204 Page 205 Table 4: How do we compare? (2000/2001 CIPFA Draft Actuals & BV PI’s Actuals 25/02/02
Top//Bottom Quartile Indicator B & D Gateshead Barnet Redbridge Havering Hounslow London All England Population 156,000 196,900 345,500 232,600 230,900 213,000 Population per service 14,182 9,845 18,184 19,383 23,090 17,750 point No. static service points 11 18 17 12 10 11 No. mobiles 0 2 2 3 0 1 No. service points in 54 108 N/a 124 88 0 institutions ** Total staff in post per 0.46 0.75 0.58 0.5 0.40 0.51 0.44 (UK average) 1000 pop. Page 206 Active borrowers as % of 38.8 33.8 27.1 62.0 41.1 31.2 58 (UK average) the pop. Visits per 1000 pop. 3.7 (4.3*) 6.6 7.0 8.6 6.8 7.6 7.8//4.9 6.4//4.4 Cost per visit £5.26 £3.86 £2.89 £2.59 £2.12 £2.53 £2.61//£4.53 £2.51//£3.75 Gross expenditure per £19,636 £23,253 £19,716 £19,463 - £17,613 1000 Income per 1000 pop. £724 £8,496 £1,877 £1,641 - £1,269 Net expenditure per 1000 £18,912 £14,757 £17,839 £17,822 - £16,344 Book issues per 1,000 6,672 8,977 7,030 8,612 6,226 7,498 pop. AV issues per 1,000 pop. 2,672 1,028 775 480 662 1,079 Total issues per 1,000 9,344 10,005 7,805 9,092 6,888 8,577 pop. Av. Issues per static site 132,512 109,446 158,632 166,543 159,146 166,083 Net floor space per 1000 26 28 19 - 22 30 pop. (sq. m) Computer terminals for 0.3 0.2 0.3 0.2 0.1 0.1 0.6 (PLS) public use per 100,000
Top//Bottom Quartile Indicator B & D Gateshead Barnet Redbridge Havering Hounslow London All England % Requests for books 47 (50*) 61 42 60 54 54 50 (PLS) supplied within 7 days % Requests for books 67 (70*) 78 59 72 72 67 70 (PLS) supplied within 15 days % Requests for books 82 (85*) 86 72 85 86 85 85 (PLS) supplied within 30 days Enquiries per 1000 pop. 1,155 1,744 978 - 978 2,287 % found the book they 76 56 75 58 78 68 68//57 67//57 wanted % found the information 72 71 97 94 92 70 77//71 79//71 they wanted % satisfied users of the 77 N/a 85 81 N/a N/a 86//75 97//85 Page 207 reservation service (optional question) % residents satisfied with 66 74 71 72 68 66 69//56 75//65 the library service - all % residents satisfied with 84 89 81 87 82 81 85//75 88//81 the library service - users % residents satisfied with 43 51 40 45 40 37 43//30 49//37 the library service – non- users
* Data for 2001/02 ** CIPFA definition of visits does not include institutions or agencies BVPI’s in italics – source Local Authority Performance Indicators 00/01 Vol. 1
PUBLIC LIBRARY STANDARDS AS REPORTED IN 2001 ANNUAL LIBRARY PLANS Standard Standard National B & D Gateshead Barnet Redbridge Havering Hounslow Number Standard 04.2003 PLS1 Proportion of households living within 99% 99% 100% 97% 92% 89% 99% specified distance of a static library PLS2(i) Proportion of planned time that service points NYA 0.07% 1% N/a 0.055% N/a 0.65% were not available PLS2(ii) Proportion of planned time that mobile service NYA N/a 1% N/a 4.73% N/a 0% points were not available PLS3(i) Aggregate opening hours per 1,000 population 128 128.7 218 Not met 106.26 101.6 106.4 for all libraries PLS3(ii) Proportion of aggregate opening hours that fall NYA 25.7% 24.4% 32.5% 35.3% N/a 34.9% outside 9am to 5pm on weekdays
Page 208 PLS4 Percentage of larger libraries open at least 45 NYA 100% N/a 100% 100% 100% 100% 39 hours a week PLS5 Percentage of larger libraries open more than 100% by 100% 100% 100% 100% 100% 100% 10 hours a week that have access to on-line 04.2003 catalogues PLS6(i) Total number of electronic workstations 6 by 3 2.3 N/a 2.5 1.21 0.108 available to users per 10,000 population 04.2003 PLS6(ii) Percentage of static service points providing 100% by 100% 100% 100% 100% 30% 0% public internet access 31.12.02 PLS7 Normal book issue period 3 weeks 3 weeks 3 weeks Standard 3 weeks 3 weeks 4 weeks met PLS8 Number of books that library users are 8 12 20 14 8 8 10 allowed to borrow at one time PLS9(i) Percentage of requests for books met within 7 50% 55.8% 61% Not met 59.6% 54% 53.7% days PLS9(ii) Percentage of requests for books met within 70% 73.1% 78% Not met 71.84% 72% 67% 15 days PLS9(iii) Percentage of requests for books met within 85% 86.3% 86% Not met 84.79% 86% 84.9%
Standard Standard National B & D Gateshead Barnet Redbridge Havering Hounslow Number Standard 04.2003 30 days PLS10 Number of visits to the library website per NYA 7,978 N/a N/a N/a N/a N/a 1,000 population PLS11 Number of library visits per 1,000 population 8,600 by 4,330 6,500 Not met 8,580 6,809 7,605 04.2003 PLS12(i) Percentage of adult library users reporting 65% 76% 56% N/a 58% N/a 60% success in obtaining a specific book PLS12(ii) Percentage of child library users reporting 65% N/a N/a N/a 95% N/a N/a success in obtaining a specific book PLS13(i) Percentage of adult library users reporting 75% 80.1% 72% Standard 80% N/a 70% success in gaining information as a result of a met
Page 209 search or enquiry PLS13(ii) Percentage of child library users reporting 75% N/a N/a N/a 95.2% N/a N/a 40 success in gaining information as a result of a search or enquiry PLS14(i) Percentage of adult library users rating the 95% 96.2% 96% 94% 91.6% N/a 89% knowledge of staff as “good” or “very good” PLS14(ii) Percentage of child library users rating the 95% N/a N/a N/a 99% N/a N/a knowledge of staff as “good” or “very good” (same as PLS15ii) PLS15(i) Percentage of adult library users rating the 95% 97.3% 98% Standard 94.5% N/a 93% helpfulness of staff as “good” or “very good” met PLS15(ii) Percentage of child library users rating the 95% N/a N/a N/a 99% N/a N/a helpfulness of staff as “good” or “very good” (same as PLS15ii) PLS16 Quality index for stock (to be developed in NYA 2001/02) PLS17 Annual items added through purchase per 216 426 295 Standard 218 217 319 1,000 population met
Standard Standard National B & D Gateshead Barnet Redbridge Havering Hounslow Number Standard 04.2003 PLS18 Time taken to replenish the lending stock on 8.5 years 6.6 4.9 Not met 9.16 Books 6.3 open access or available for loan 7.7 AV 6.6 PLS19(i) Numbers of staff per 1,000 population with NYA 0 0.2 N/a 37% N/a 0.18 appropriate information management profession qualifications als PLS19(ii) Numbers of staff per 1,000 population with NYA 0.13 0.5 N/a N/a N/a N/a appropriate ICT qualifications Page 210 41
We compare well in:
• meeting the Public Library Standards. Of those currently defined Barking and Dagenham meet 15, Gateshead 13, Redbridge 12, Havering 8, Barnet 7 and Hounslow 7. We do well in those standards which are customer care related e.g. accessibility, satisfaction ratings;
• accessibility in terms of location and hours of opening. Gateshead has the longest hours and highest density of static library sites and the lowest population per service point. We provide our local community with the highest number of hours and the lowest population per service point of the London boroughs;
• stock provision and purchasing where we add the highest number of new items per year. The adult Public Library Users Survey (PLUS) tells us that 76% found the book they wanted which puts us in the top quartile;
• the issue of all items where we are 7% behind Gateshead but ahead of the London Boroughs. The indications are that we compare well in the provision of the traditional/core service;
• the reservation service where there is a similar level of successful performance against the Public Library Standards with the exception of Barnet who have not met the standard;
• ICT provision for the public especially with the implementation of the People’s Network;
• public satisfaction – for the adult PLUS return we meet the Public Library Standards and top our comparator group.
We compare less well in:
• the number of physical visits to a library. This is our poorest performing area - we are the lowest within our chosen group by a significant margin but also in the bottom quartile for both London and All England. Achieving a significant increase in visits is our greatest challenge (see 5.4);
• the cost of a library visit where we are the most expensive and in the lowest quartile. This is directly linked with our poor performance in physical visits;
• the generation of income where we are the lowest. This has an adverse effect on the net expenditure where we are the highest;
• our staffing number where we have the second lowest ratio amongst our comparators, though we are only 0.02 behind the national average.
The following sections look in detail and the consequences of the services being offered by the comparator group.
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Comparison of Annual Library Plans
5.3 All of the library services compared provide a very similar range of core library services through a mixture of static service points and, in some cases, mobile library provision. The core services include adult and children’s services, lending and reference provision, ICT to support the People’s Network, support to lifelong learning and reader development. However, each authority has its own particular priorities and emphases depending on Council priorities and the specific needs of the community. The following comments give an indication of these differing approaches:
• Barking and Dagenham has very strong links with education so lifelong learning, including improving literacy at all ages, is a considerable strength. Funding for new buildings and for keeping up the standard of existing buildings has been sufficient enough for a long time to mean that library buildings are of a good standard. Partnership working has meant that developments such as Learning Villages are being placed in or alongside libraries. Membership of the London Libraries Consortium means that library books are purchased at good discounts so it is possible to provide a higher quality library stock for the community;
• Gateshead’s Council has for many years seen libraries as a high priority so funding has been kept at a consistent level allowing for more generous levels of staff, including good levels of staff training and special services such as AIRS, (Access to Reading and Information Services), which is a well-developed range of services for people with a visual impairment, run on behalf of the whole Council. Gateshead also offers a high level of opening hours and numbers of branch libraries;
• Hounslow has been a multicultural borough for many years so equalities and celebrating diversity has been a strong part of library provision for some time. This means that outreach work, a wide range of community language materials and consultation is embedded in their service provision. Whereas Barking and Dagenham and Gateshead have attracted a more diverse population only in recent years;
• Barnet has adopted the approach of having a library for each separate community (17 libraries). In order to do this it has maintained a reasonable base budget, good levels of opening hours, including three branches open on a Sunday, and has been able to sustain a high level of professional staff (70);
• Havering Library Service, through consultation, knows that it has very supportive library users who value the service highly and are satisfied with the knowledge and helpfulness of the staff. However, the condition of library buildings is unsatisfactory with insufficient maintenance funding to carry out the repairs and decoration required;
43 Page 212 • Redbridge has until recently retained a consistent level of investment, has been able to refurbish eight out of nine libraries in the last nine years and continues to attract high visitor numbers to its libraries.
Comparison of approaches taken to encourage library visits
5.4 In the light of the evidence of lower quartile performance on the number of physical visits and the cost per physical visit the review team agreed that it would be helpful to focus in depth on how the comparator authorities attract and retain considerably higher visitor numbers. As a baseline there is a description and evaluation of the approaches used in Barking and Dagenham.
Historically Barking and Dagenham Library Services has adopted the approach of providing a good quality core service in terms of numbers of libraries, condition of libraries, trained and approachable staff and a good range of library stock. New services have been provided over the years including music CDs, multimedia, improved information services, reader development and, more recently, ICT including free Internet provision at all libraries. However the service has not been as proactive as some of the comparator authorities and outreach work and general promotion of the service to local communities has been at a low level or sporadic. Although the number of libraries and their condition is good the opening hours at the smaller branches, notably Marks Gate, Fanshawe, Rush Green, Thames View and Markyate, are far below those of Gateshead. Fanshawe and Markyate libraries had their hours considerably reduced in the early 1980s owing to budgetary constraints.
The current approach, through the new staffing structure, is starting to be more proactive and many initiatives are now being put into place to encourage higher visitor numbers. Examples include: • family reading initiatives working with schools and libraries; • UK Online Centres in or alongside libraries; • regular Arts events; • outreach visits to ethnic organisations; • strong links with organisations representing disabled people; • ‘taster’ library collections at Ford’s engine plant, Dagenham swimming pool, Harmony House and a number of community venues; • toy libraries either already in place or being planned at several libraries; • reader development work with basic skills students; • developing programme of primary class visits to all libraries; • more regular consultation with stakeholder groups; • new ‘welcome pack’ for libraries.
The main approaches to encouraging library use in the comparator authorities are set out below. The full findings of visits to these authorities are set out in Appendix .9.
• Gateshead • Long term, well-resourced commitment to the library service against national trends. • High level of staffing resource - 70% above United Kingdom average. • Targeted service provision:
44 Page 213 – People’s Network – web publishing software, digital learning resources, Gates Foundation funding, extra staff applied for through European Union Objective 2; – libraries used for health, education and general advice services; – One Stop shops being developed in some libraries; – On-line access to 150 business and management periodicals as part of regional service to businesses; – no charges for room hire by groups supporting library objectives so many groups take up this opportunity e.g. writers groups, senior citizen’s drama, photography and writing groups, clog dancers and amateur drama groups, folk music and singing as well as community festivals.
• Barnet • High level of staffing resource at 32% above the United Kingdom average. • Extended weekend opening hours including Sunday opening in three libraries. • Committed user-base support mechanism (Friends of Libraries). • Targeted service provision: – Council Service Action Points in four libraries and two mobiles with video conferencing; – Hendon Library has a major funded Multimedia Centre offering courses to both individuals and businesses; – recent, intensive library service leafleting campaign; – homework clubs at two sites with basic skills support.
• Hounslow • Community Initiative Partnership allows greater flexibility including potential funding opportunities. • Cross subsidy from leisure activities. • Targeted service provision: – “First Stop” Council Information points at all static sites; – study and homework facilities with a qualified librarian(32% of posts are filled by professional librarians) available at each site during the late afternoon/early evening to help with homework enquiries; – a commitment that each static site will provide a minimum of 20 activities each year; – focused outreach activities to such groups as women, ethnic, elderly, parents and carers to include program of talks, information provision and displays; – well-embedded and sustainable strategy for Social Inclusion; – the introduction of new media e.g. DVD and ethnic media such as Asian and Chinese videos.
45 Page 214 • Redbridge • Opening hours – 8 out of 9 sites are open 45 hours + including weekends. • Out of school learning initiative (NOF funded). • Majority of libraries recently re-furbished addressing access issues. • Materials funding has been at a consistently high level. • Friends of Libraries Groups established. • Business information at the Central Library includes the 300 top company reports.
• Havering • Customer care is of a high standard with the service being awarded IIP and the Charter Mark. • Literary events – talks, performances, exhibitions, poetry festivals and strong links with the local theatre. • Business information at central library. • Homework stations at eight sites – homework clubs are the planning stage.
Library Visits
5.5 Visits were made to Barnet and Gateshead Library Services and a desk research exercise on Hounslow Library Service was undertaken. The full notes of the visits are given in Appendices 6, 7 and 8. For each service there is a summary of the main findings, a judgement as to what makes it a top 25% service and the key issues for Barking and Dagenham.
Barnet Visit
Main Findings
The service was awarded 3* in its Best Value Inspection.
Barnet serves the largest population in London. It maintains seventeen libraries with no central library. No one lives more than one mile from a fixed service or mobile stop. It serves essentially a professional, high-income population, with pockets of deprivation.
Expenditure per head of population is not high, but income is in the top quartile; Barnet has maintained a solid base budget and has a robust strategy for income generation. Fines are high but have been pegged for 3 years, with the aim of balancing the need for income generation with those of promoting social inclusion.
The service has actively reviewed and amended opening hours to provide Sunday opening in 3 libraries, all day Saturday opening in all libraries and to increase weekday hours outside 9am – 5pm.
46 Page 215 The Head of Service provided evidence of significant innovation and initiatives within libraries. Promoting the learning agenda is a priority.
The visit indicated that branch librarians give a high priority to detail, to developing the character of their own branch and to providing a service responsive to the particular community .
What makes it a top 25% service?
In addition to the data already presented, in the judgement of the Head of Service the following are key factors:
• a strong senior management team with a clear and shared direction for the service;
• sound financial management- a sound base budget enhanced by a robust strategy for income generation;
• active approaches to improving access, which are keeping the level of visits stable- in particular opening hours; eg creative partnerships with Barnet College and the University to provide Sunday opening in 3 libraries;
• achieving one third of all opening hours outside the weekday 9.00am – 5.00pm;
• the service is innovative in its approach to partnership and active in setting up projects in pursuit of priorities. Partnership with education is strong;
• the service has maintained a high number of professionally qualified staff – 70 at the time of the visit.
Key issues for LBBD
Three main areas emerged from the visit which the Barking and Dagenham service must address if it is to move towards the top 25% of services.
1. Opening hours need to be reviewed on a branch by branch basis, in particular to consider opening times outside the weekday 9.00am –5.00pm.
2. At the level of the individual library, there are lessons to be learned from Barnet’s policy of encouraging branch librarians to develop the service for their own particular community; eg. by providing community notice boards, book reviews, linking with local societies. This was a strong feature of the libraries visited.
3. Income generation. Barking and Dagenham needs to review and set out its principles and strategy for income generation. Priorities may well be different from Barnet, which serves a more affluent community, but whatever the outcome, a clear set of principles and approaches should be established.
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Gateshead Visit
Main Findings
The service was awarded a 3* in its Best Value Inspection.
Gateshead serves a similar socio-economic area to Barking and Dagenham. It achieves top quartile performance which is very impressive given its context. The service has corporate priorities and a continuous Best Value approach at its heart. It is prepared to be radical by, for example, breaking down artificial divisions in service provision such as that between lending and reference. Libraries are promoted heavily as community resources. There is a very strong emphasis on training, communication and ethnic/cultural minority employees. A great deal of time and energy is given to employee motivation. There is highly effective partnership working to enable the library service to contribute to broader strategic issues.
What makes it a top 25% service?
• Clear direction and linkage with corporate priorities.
• Customer focus with a Charter Mark for customer services.
• Top quartile for number of physical visits..
• Council Members provide positive support and resourcing.
• Enthusiastic and motivated staff.
• Very high level of open hours.
• Experienced events management.
• Robust income generation strategy.
Key issues for LBBD
The key issue is how does Barking and Dagenham achieve a comparable level of cost and use given the fact that Gateshead is the closest nearest neighbour of the comparators.
• Improving staff motivation and training.
• Successful external funding bids.
• Higher levels of partnership working.
• Supporting and active participation by all sections of the community.
• Marketing strategy and promotion of the service.
• Robust income generation. 48 Page 217
49 Page 218 Hounslow
Main Findings
Leisure services, including libraries, are provided by means of a charitable trust. The Council is the primary funding source. It is contractually obliged to fund at a level appropriate to enabling the company to deliver the service to the contract standard. The Borough Librarian is a member of the Council Officers’ management team although not employed by the Council – the officer may therefore be viewed as just an adviser to the Council. The advantages of the arrangement appear to be: • immediate savings in the form of non-domestic rate relief; • opening up of potential funding opportunities not available to local authorities e.g. lottery money; • improvements in industrial relations; • a higher profile with local business and commerce for the library service; • success in preventing erosion in library budgets.
On the other hand the new funding streams have in fact proved to be limited. The core funding is still very much from the public purse. The local authority is still the landlord and responsible for buildings. The service currently meets seven of the Public Library Standards compared to fifteen in Barking and Dagenham. The Audit Commission has expressed concern about the level of investment to meet the Public Library Standards. The model appears to work overall in Hounslow but it is not clear that its adoption in Barking and Dagenham with its different history and approaches would lead to significant and cost- effective improvements.
Summary of Main Findings and Conclusions
5.6 The Barking and Dagenham Library Service compares well in a number of respects, particularly in its performance against the Public Library Standards, in accessibility and hours of opening, in stock provision and ICT provision and in public satisfaction. However, the compare also confirms the three central weaknesses which are a recurring theme of this review. Barking and Dagenham is well below the comparators on the number of physical visits to libraries, the cost of a library visit and the generation of income. The review has begun the process of closely examining, and learning from, the approaches of the comparator authorities to encouraging library visits. A number of proposals emerging from the compare phase are incorporated in the Improvement Plan.
50 Page 219 Section 6 Compete Phase
6.1 The service compares well in a number of respects. It is not an expensive service. Gross expenditure per 1000 is firmly in the middle range. It is far from extravagant in staff costs. The total staff in post per thousand population is the lowest in London and it is just above the UK average. Its book issues per thousand population compare well and its Audio Visual issues are particularly strong. The computer terminals and percentage of requests for books supplied within seven days are top quartile. It is accessible in terms of the even distribution of service points and hours of opening. The community enjoys the highest number of hours and the lowest population per service point of all London Boroughs. The service meets more Public Library standards than all the comparators, doing particularly well in the standards which are customer care related e.g. accessibility and satisfaction ratings. The authority provides the inputs required for an effective service at moderate cost. In these respects the service affords good value for money.
However key outcomes on the basis of the inputs are low. The number of physical visits per 1000 population, the cost per visit and the income per 1000 population are below any of the comparators. They are firmly in the lowest quartile nationally. However efficiently and cost effectively the inputs are provided, this represents, overall, relatively poor value for money. For the service to compete these key outcomes must be rapidly improved. If the service is to reach satisfactory value for money the outcomes must match at least the national average. However if the service is to reach good or better value for money and provide Best Value it must reach the top quartile within five years on these three key outcomes as a minimum. To move from lower to top quartile in less than five years is extremely challenging whilst maintaining good value in the provision of inputs. This is the basis on which options for future service provision should be considered.
The Authority’s policy has always been to administer a low level of fines and fees for its Community given the serious levels of deprivation. To maintain this commitment to low charges it will be necessary to increase new income generation activities in other areas of the service. The improvement plan includes a review into new income generation activities. Through this review it is planned in the medium term to increase levels of income to meet at least the national average.
Options considered for the future of the service
6.2 The judgements of the review team on each of the options are set out below:
1. Market Testing The service as a whole is judged sufficiently robust and effective to make the market testing of all the service an inappropriate strategy for moving to top quartile performance in five years. However, elements of the service have been identified for market testing. These elements fall into two categories. The first relates to the central issues for the library service in respect of increasing use and improving cost effectiveness through marketing and income generation in line with service principles. The 51 Page 220 second group comprises discrete elements of the service which if externalised may make a more efficient and cost effective contribution to the objectives of the service.
Category 1 - Relating to central issues of the review Seeking external tenders for: (a) Income generation strategies and providers of effective management of income generation; (b) marketing and publicity strategies.
Category 2 - Relating to elements of the service which may be managed by external providers Seeking external tenders for: (a) stock supply; (b) stock selection; (c) bibliographic services; (d) ICT services (facility managed) (e) shop-type activities; (f) services to business and commerce; (g) video, DVD, software supply and rental.
2. Formation of a public/private partnership
The only current example, Hounslow, was investigated by the team. The evidence that this option would help to reach top quartile within five years is not conclusive. It is less effective than Barking and Dagenham’s service on a number of indicators such as user satisfaction, performance against national standards or access to ICT. Equally the arrangement produces outcomes which are no better than other comparators in respect of the areas in which it outperforms Barking and Dagenham. The Audit Commission has expressed concerns about whether the arrangement in Hounslow can find the level of investment necessary to meet the DCMS Public Library Standards, particularly to increase opening hours and to roll out the People’s Network. There are insufficiently strong grounds for this option to be adopted and pursued at this stage.
3. Transfer or externalisation of the service to another provider
This option arises only in a situation where the Review reaches the conclusion that the current service provider is failing and has no realistic chance of bringing about sufficient improvement required to provide Best Value. The self-evaluation of current provision (Section 2, B) concluded that the strengths of the service outweigh the weaknesses and the service demonstrates a capacity to improve. The transfer or externalisation of the service is therefore judged inappropriate by the review team.
4. Restructuring or repositioning of the in-house service
52 Page 221 A major restructuring of the in-house service has coincided with the Best Value Review period. This restructuring has been undertaken to meet the new national requirements for library services. The effectiveness of this restructuring will be kept constantly under review. Clearly if new options are incorporated in the library service such as major elements of the Customer First initiative, then further restructuring will be necessary. Whilst the option is not appropriate currently, it could therefore be highly appropriate in the short to medium term.
5. Renegotiation of existing arrangements with the current providers where this is permissible.
In the two main cases where the library currently has contracts for example on book purchasing or with the primary schools, the outcomes are very successful. The key issue is therefore not to renegotiate these contracts but to explore and develop the market in other potential areas as set out in Option 1 above.
6. Joint commissioning or delivery of the service
The Library Service has worked very effectively with five other London library services on setting up joint purchasing arrangements. This has resulted in highly advantageous discounts on stock purchasing. It is a model which could well be applied to other areas of the service and will be explored alongside the possibilities set out in Option 1, e.g. the investigation of a joint libraries automation project, the promotion and marketing of library services, and the circulation of ethnic materials across the North-East London Library Service.
• Cessation of the service, in whole or in part
This is not an option for the book lending and reference elements of the service as the Local Authorities have a statutory obligation to provide ‘comprehensive and efficient library services’ as set out in the 1964 Public Libraries and Museums Act and to meet the 2001 Public Library Standards. The other elements of the service that could be considered for cessation, i.e. non-statutory, are dealt with under the improvement plan for market testing e.g. audio-visual services with a view to franchising or partial cessation.
The provision of a school library service is dealt with through a service level agreement with all primary schools within the borough on a not-for-profit basis.
Summary of findings and conclusions
6.3 There are three options appropriate, at least in part, to ensuring competition which will support the objective of top quartile performance within five years – in particular on number of physical visits, cost of visits and strategies for income generation. The options are:
53 Page 222 Option 1 market testing the most appropriate elements of the service.
Option 4 restructuring or repositioning of the in-house service to be kept under continuous review;
Option 6 joint commissioning or delivery of the service. This will be explored in Option 1.
Option 7 Cessation of poorly performing non-statutory functions.
54 Page 223 IMPROVEMENT PLAN
1. The Improvement Plan focuses on the objective of reaching top 25% performance within five years on;
iv) the number of physical visits per thousand head of population to public library premises (BVPI 117);
v) the cost per physical visit to public libraries (BVPI 115); and
vi) the level of income generation.
2. The plan takes full account of the findings of the challenge, compare and consult phases. In particular it:
iv) seeks to incorporate the key actions in other authorities which are successful in increasing the use of library services;
v) takes account of the proposals made by users during the consultations;
vi) focuses on community priorities, particularly the contribution the service will make to the Customer First Initiative.
3. The plan is presented within the framework of the balanced scorecard. It is also aligned with the Annual Library Plan and the Education Development Plan. It addresses the following improvements and actions.
Public Perspective
• Better education and learning for all – increasing the library service’s contribution to the learning agenda. – reader development and family reading. – increasing access to ICT and book-based information. – implementing the ICT strategy.
• Equalities and diversity – work in partnership with the DEAL equalities and diversity officer.
• Developing rights and responsibilities – contribute to the Customer First initiative; – provision of up-to-date and accurate information to the community at all library sites and electronically.
55 Page 224
• Regenerating the local community – strengthen the provision for business and commercial users; – contribute to the adult basic skills initiative.
Community First • Actions on: – reviewing the number and distribution of the libraries; – outcomes of consultation especially toilets, parking, partnership working, publicity and marketing; – book stock; – increasing accessibility.
Funding the Future • Actions on: – income generation strategy with year-on-year targets; – plan for allocation of additional income to key priority areas.
Performance Counts • Actions on: – site-by-site proposals for increasing use of every service point; – review and consultation on opening hours on a site-by-site basis.
People Matter • Actions on: – support for front-line staff; – support for Senior Librarians and Community Librarians.
The plan identifies for each required improvement the: (1) level of priority; (2) key actions; (3) timescale/deadlines; (4) outputs demonstrating progress; (5) resources needed; and (6) lead officer(s).
56 Page 225 Public Perspective Improvement Priority Key Actions Timescale Outputs Resources Lead Required demonstrating progress Better education and H Increasing the Library July 2003 Active Existing Senior Librarian learning for all Service’s contribution promotion/delivery of estimates – Young People to the Learning agenda the new class visit & Schools curriculum : target 800 visits H April 2003 Establishment of a External Head of Library network of Learning funding from Services Villages and UK online SRB, NOF, centres to include DFES 56 Page 226 Marks Gate Library, totalling Central Library, £1,240,000 Thames View Library, Sydney Russell School M September Senior Librarians – Existing Principal 2002 Community estimates Librarian – Development to begin Learning & adult literacy tutor Development training M September Frontline staff to begin Existing Senior Librarian 2002 to be trained in the estimates – Family principles of adult Reading literacy H July 2002 Adult college base in Existing Head of Library Central Library to be estimates Services expanded
Public Perspective Improvement Priority Key Actions Timescale Outputs Resources Lead Required demonstrating progress H Reader Development July Family Reading £100,000 – Senior Librarian and Family Reading 2002 initiative to take place external – Family in 20 schools, 15 funding Reading community groups H July 2002 Read Routes to attract DCMS Senior Librarian 2% more users Wolfson – Family Reading M Ongoing Bookstart to reach £3,200 Senior Librarian 100% of newborn – Family Page 227
57 children at the 7/9 Reading// Senior month check-up Librarian – Young people and Schools H July 2003 Libraries’ Reading club £2,000 Senior Librarian attracts 5% new – Family members Reading// Senior Librarian – Young people and Schools H July 2002 Two Teenage Reading Existing Senior Librarian Clubs started estimates – Family Reading// Senior Librarian – Young people and Schools
Public Perspective Improvement Priority Key Actions Times Outputs demonstrating Resources Lead Required cale progress M July Young Cultural Creators DCMS/ Senior Librarian 2002 event – successful Wolfson – Family evaluation and to obtain Reading// Senior repeat funding Librarian – Young people and Schools H Increasing Access to July Leased lines upgraded to NOF funded General ICT and Book-based 2002 2Mbps Inspector IT Information M Dec Installation of PCs in all NOF funded General Page 228 2003 libraries according to the Inspector IT //
58 People’s Network Principal specification Librarian – Information & Resources L On- Regular discussion with Existing Principal going community groups re. ICT estimates Librarian – access Information & Resources // Senior Librarian – Community Outreach H July All library staff to achieve £45,000 Principal 2003 the ECDL and identified Librarian – staff to have training for Quality & the advanced outcomes Standards
Public Perspective Improvement Priority Key Actions Time- Outputs demonstrating Resources Lead Required scale progress M Implementing the ICT March Completion of the £326,502 General strategy 2003 installation of the People’s NOF funding Inspector IT // Network Principal Librarian – Information & Resources H Dec. Completion of feasibility Existing Principal 2002 study on video- estimates Librarian – conferencing Information & Resources Page 229 59 H March All NOF grants to be n/a Principal 2003 reclaimed Librarian – Information & Resources Equalities and H Work in partnership Dec. Complete a Existing Equalities and Diversity with DEAL’s Equalities 2002 comprehensive action plan estimates Diversity Officer and Diversity Officer M March A strategy for consulting Existing Equalities and 2003 minority groups and estimates Diversity Officer individuals on service / Senior provision Librarian – Community Outreach H Dec. Produce overall plans for Existing Principal 2002 priority groups : adults with estimates Librarian – low basic skills; parents in Learning & their 20/30’s; school Development children.
Public Perspective Improvement Priority Key Actions Time- Outputs demonstrating Resources Lead Required scale progress Developing rights H The contribution the Nov In partnership with Existing Head of Library and responsibilities Library Service can 2002 Housing and Health estimates Services make a sustained ensure that the libraries contribution to the are part of the business Customer First case for Customer First initiative Initiative. H Provide current/ March Develop and install both Existing Principal accurate information to 2003 electronic and ‘traditional’ estimates Librarian – the community community notice boards Information & which reflect the local Resources community at all library 60 Page 230 sites Regenerating the M Strengthen the Sept Complete a baseline Existing Principal local economy provision for business 2003 survey of alternative estimates Librarian – and commercial users services/information Information & providers Resources Contribute to the Adult On- See ‘Better Education and Basic Skills initiative going Learning for All’
Community First Improvement Priority Key Actions Timescale Outputs Resources Lead Required demonstrating progress Meeting customer H Responding to the key March Provision of public To be costed Head of Library needs - establish and outcomes of 2003 accessible toilets at re. cleaning/ Services develop a felt need in consultation Marks Gate, Markyate, insurance but the community for Thames View, Valence will be the Library Service contained March Conduct a feasibility within current 2003 study of other library estimates sites M December Production of leaflet Existing Senior 61 Page 231 2002 detailing local parking estimates Librarians - and reduce recorded Community complaints by 25%. Development L Dependent Conduct a feasibility Existing Principal on current study re. possibility of estimates Librarian – tender working in partnership Learning & process with ‘Meals on Wheels’ Development H March Market research Existing Principal 2003 potential demand for estimates Librarian – DVD, software supply Information & and set up a pilot Resources service at Barking H September Produce a new Existing Principal 2002 welcome pack estimates Librarian – Customer & Professional Services
Community First Improvement Priority Key Actions Timescale Outputs Resources Lead Required demonstrating progress H Review book stock and December Policies to be Existing Principal Librarian – collections policy to 2002 produced to ensure estimates Information & Resources// ensure continuing that the PLS on stock Senior Librarian – Young relevance (PLS 16, 17, 18) are People & Schools met. H Analyse and respond April Increase in visits and Existing Principal Librarian – to the most successful 2004 library use to meet the estimates Quality & Standards/ approaches to PLS – sequence in the Access Officer increasing accessibility Annual Library Plan H Participate in March Establish a pro-active Existing Principal Librarian – Page 232
62 benchmarking 2003 relationship estimates Quality & Standards especially with our chosen comparator group H Use marketing and On- Increase in visits and Existing Senior Management Team publicity to establish a going library use to meet the estimates leadership role which PLS convinces the community that the Library Service is valuable
Funding the Future Improvement Priority Key Actions Timescale Outputs Resources Lead Required demonstrating progress Increase the income H Develop an income April Conduct a Existing Head of Library generated by the strategy with year-on- 2003 fundamental review of estimates Service/Senior services provided year targets existing charges and Management Team and through income generating partnership and opportunities external funding M Develop a strategic Dec. Use the evidence Existing Head of Library plan to ensure that 2002 gathered from the estimates Service/Senior
63 additional income is fundamental review Management Team
Page 233 allocated to the key priorities M Conduct a Sept. Use the evidence Existing Head of Library fundamental review of 2003 gathered for the estimates Services/Senior the base estimates fundamental review to Accountant lead to an improvement in offering value for money and contribute to the Council’s target of delivering 2% efficiency savings.
Performance Counts Improvement Priority Key Actions Timescale Outputs Resources Lead Required demonstrating progress Reduce the cost per H Prepare site-by-site On-going Quarterly monitoring Existing Senior visit to libraries proposal for increasing reports for library visits estimates Librarians – the use of every and issues Community service point Development H July 2002 Site by site targets for Existing Principal visits and issues set – estimates Librarian – in line with PLS Quality &
64 Standards Page 234 M Review and consult on December Survey conducted at Existing Senior opening hours on a 2002 Marks Gate library estimates Librarians – site-by-site basis within 3 months of Community opening of the UK- Development online centre; review at Markyate library when the GP surgery is open to link in with clinics etc. M Produce a strategy for July 2003 Increase library visit Existing Senior consultation across the count and satisfaction estimates Management clusters. Publish a rate in line with the Team / questionnaire in the PLS in the Annual Divisional Citizen Library Plan. Management Team
Performance Counts Improvement Priority Key Actions Timescale Outputs Resources Lead Required demonstrating progress Determine the most M Review the current July 2003 Secure rationale for Existing Head of Library effective and relatively dense retaining current estimates Service strategic location of geographical position distribution of service the libraries. of libraries against: points or rationale a) the same number strategy for re- of service points distribution. NB PLS 1
65 distributed – 99% of households differently; living within a specified
Page 235 b) fewer service distance (1 mile) of a points more static library must strategically continue to be met. located. Ensure services H Market test the nine December Short-term evidence of Existing Head of Library identified for possible identified areas for 2002 suitability for estimates Service externalisation possible externalisation. provide good value externalisation Medium-term for money. including cessation of improvement in poorly supported non- efficiency and value for statutory functions. money.
People Matter Improvement Priority Key Actions Timescale Outputs Resources Lead Required demonstrating progress Strengthening the H Target resources more April 2003 Devolve development Existing Senior leadership role of effectively to ensure that funding to enable estimates Management Senior Librarians and Senior Librarians and 100% of identified Team / Community Community Librarians local targets to be Management Librarians so that are able to implement met. Accountant they are empowered their development plans and enabled to develop their libraries and the service 66 Page 236 H April 2003 Agree Personal Existing Principal Development Plans estimates Librarian – with Senior Librarians Customer & and Community Professional Librarians. Target is Services 100% compliance with training needs H Improve sickness levels July 2002 Produce quarterly Existing Principal sickness absence estimates Librarian – report to be Quality & considered/ standards responded to by the SMT M April 2003 Average sickness Existing Senior absence to be estimates Management reduced to the Team // Senior Council’s average of Librarians 8.5
People Matter Improvement Priority Key Actions Timescale Outputs Resources Lead Required demonstrating progress H To improve support to May 2002 Production of a Existing Principal front-line staff monthly newsletter to estimates Librarian – be distributed to Quality & 100% of staff. standards // Subsequent reader Senior satisfaction rate to be Librarians a minimum of 80%. H Setting up a working July 2002 Report progress to Existing Principal party with DEAL SMT on a estimates Librarian –
Page 237 representatives from all quarterly basis. Customer & 67 levels of staff reporting Increase in staff Professional to the SMT. satisfaction levels. Services Explore, in the first instance, issues arising from the staff questionnaire. H A strategic programme March 100% of staff trained Existing Principal of in-service training 2003 and at least 90% estimates Librarian – which effectively satisfied or better with Customer & supports front-line staff the training. Professional based upon a skills Services audit and training needs analysis
Appendices
Appendix 1 Equalities and Diversity Questionnaire
Appendix 2 Response to the Sustainability Checklist
Appendix 3 Structure of the Department of Education, Arts and Libraries and the Library Service
Appendix 4 List of Recent Consultations
Appendix 5 Findings from Staff Survey
Appendix 6 Notes from Visit to Barnet
Appendix 7 Notes from Visit to Gateshead
Appendix 8 Findings on Hounslow
Appendix 9 Comparison of approaches taken to encourage library visits
Appendix 10 Comparison of range of functions in Barnet, Gateshead and Hounslow
Appendix 11 The number and distribution of libraries
69 Page 238 Appendix 1
Equalities and Diversity Questions: Key Points
Key questions for the Library Service
1. Does the Library Service have an up to date profile of its service users?
The Service does have an up to date profile of its service users available through the Library Service Computer Management System. This system provides a variety of reports including library membership by any field in the customer record such as age, gender, library and postcode as well as use of library materials.
2. Has the Library Service researched and recognised the needs specific to each of its service users groups?
The Library service has researched the needs of a variety of groups but cannot say that all communities and groups have been consulted with. Examples of consultation so far are: • Family Reading Project consultation for the first year and the current year; • Home Library Service – assessment of the needs of individuals and client groups by interview; • Local History user survey; • Reference Service Survey; • Community ethnic organisations listed by the CRE have been contacted for their views on book selections; • Consultation and committee membership of local disability umbrella groups such as DIAL and CIIIL; • Library Services have been improved in response to specific needs such as providing adaptable computer workstations in libraries and extending the range of community language materials.
3. Has the Library Service undertaken any work to establish the needs of potential users?
Consultation has taken place with individuals, groups and communities. Examples are Marks Gate Community Days, Sydney Russell School, mail shots from several libraries including Marks Gate and Thames View, the Public Library User Survey and MORI through using The Citizen’s Panel. Current initiatives have included focussed consultation sessions targeting services to adults, children, ethnic groups and disabled people.
4. Does the Library Service regularly review its services and policies through the perspectives of all groups of service users?
The Library Service does regularly review its services after consultation with service users. Examples of service improvements and changes include opening hours, ICT provision, fiction categorisation, community languages
70 Page 239 improvements such as Albanian materials and the extension of Home Library Service audio services.
5. Does the Library Service consider and design ways of collecting information from the whole community?
MORI and Public Library User Surveys have been used.
6. Do the Library Service users consider and design ways of providing information that are appropriate to different groups of service users?
Information about Library Services is provided in a number of community languages. The Translation Action Pack, which is designed to help potential customers with little or no English to join the library and obtain basic information about library services is available in 14 languages.
The last version of the Library Service welcome leaflet was made available in large print and as a sign language video. Community information leaflets are provided in a range of formats.
7. Has the Library Service established a consultation and decision-making process which enables less powerful groups to be actively involved?
Yes, the Library Service has planned a number of consultation meetings focussed on less powerful groups including people with disabilities and ethnic minorities.
8. Does the Library Service use the collection, monitoring and evaluation of data to review existing service provision? Can the Library service demonstrate how services have been adapted or new services developed as a result of this process? See question 4.
9. Has the Library Service established Equality and Diversity as core values for managers and policy makers to address at all levels of service planning and delivery?
Yes, in line with Council policies.
10. What does the Library service do to ensure that the composition of staff at all levels is representative of the community that it serves?
Open recruitment is put into practice in line with Council policy.
71 Page 240 BV and Sustainability Checklist: Key Points Sustainabilit Appendix 2
Question Met/Unmet Comments and Examples 1. Building Sustainable Communities: Does the service Met Libraries are a community resource, 11 around the borough. increase the cohesiveness and capacity of the local Planned improvements: New libraries at Markyate, Thames View community? and Jo Richardson School. Provision of community information in various formats. Presence in community helps to some extent to minimise fear of crime.
2. Buildings, planning and land use: Does the service make Met Use of brownfield sites at Whalebone, Markyate and Jo y the best use of land and buildings? Richardson School. Checklist Contribution to enhancing local environment and heritage – Proactive support to heritage strategy and attractive new buildings. Energy use – Whalebone library built for long life and energy efficient. Buildings are generally secure and double-glazed.
Page 241 3. Managing the Environment and resources: Does the Met Heating and lighting timed. New buildings to be more energy service efficient. 71 ensure wise use of energy and protection of broader Recycling – core service does re-use resources ( book loans). environment? London Libraries Consortium contract specifies recycled and biodegradable packaging. Some libraries are set within green spaces and displays and information on green issues are made available. 4. Health: Does the service maximise health promotion? Met Provision of resources and displays on health. New Markyate Library will adjoin a health centre. Provision of Bookstart and links with SureStart. Staff have safe working conditions, access to Health and Safety courses and a Departmental representative. 5. Sustainable economy: Does the service add to the local Met All staff paid above minimum wage and most are local. Information economy and the employment needs of local people? provided about welfare to work schemes. Contribution to local skills – provision of ICT free, course information and staff trained to ECDL standard.
6. Housing: Does the service promote decent housing? Met Libraries within walking distance for local people. New libraries are energy efficient. Referral to Council sources of support to improve housing conditions.
Sustainabilit Appendix 2 Question Met/Unmet Comments and Examples 7. Social equity and opportunity: Does the service Met Extensive support to lifelong learning through whole range of encourage equity and opportunity? services. Planned improvements – UK Online Centres/ Learning villages planned or already at several libraries. Increasing skills of the workforce – ECDL for all staff and access to range of Council-run courses. Wide range of information in different formats for the community. Assisting people with low incomes – service provided for all and core service is free. Free Internet access. y Provision of and support to Arts strategy and events. Cekit-continued Checklist- Service provided for all ages including the young and the elderly. New initiatives will include Toy Libraries at several more libraries. Full range of services for disabled people including computer access. 8. Transport: Does the service meet people’s transport Partly met. Libraries are within walking distance of most people. Information needs and protect the environment? provided about public transport. Libraries are physically
72 accessible. Most staff are local and some use public transport or Page 242 walk to work. The Home Library Service uses an estate car and routes are reviewed. The van delivery service to libraries and schools to be more regularly reviewed. 9. Sending the right signals: Does the service put Partly met. Provision of materials and information about sustainability sustainability into practice and encourage others to ? including to schools. Recycling carried out where possible e.g. paper, envelopes, printing cartridges. Contribution to Local Agenda 21 Plan – staff input into original plans and at specific initiatives such as Marks Gate. More could be done.
DIRECTOR OF EDUCATION, ARTS AND LIBRARIES Appendix 3-Structure
BOROUGH OFFICER FOR COMMUNITY
HEAD OF HEAD OF HEAD OF LIFELONG LITERACY and CHILDREN’S LEARNING CULTURAL SUPPORT SERVICES
HEAD OF ADMIN & PRINCIPAL HEAD OF ASSETS Page 243 INSPECTORS LIBRARY HEAD OF FINANCE 73 (x3) SERVICE HEAD OF POLICY & PLANNING Primary Phase CATERING MANAGER IPM & Primary Development Management Principal and Librarians: Curriculum (Learning and Development), (Information Manager Head Head Head - General and Resource EBP Youth Adult B&D Inspectors(x 12) Management), Service College Training (Customer & Head of Head of Head of Head of Service PEP/Asst Service Education
Professional Arts Heritage Language Comm. Manager Head of Manager Officer English Services), Services Services Support Music Access Children’s Early (Personnel) (Quality & Support Years Maths Service Services Science Standards MFL IT SENIOR MANAGEMENT TEAM DT Director of Education, Arts and Libraries- Alan Larbalestier Humanities Borough Officer for Community Learning and Roger Luxton Primary/Early Years Chief Inspector of Schools SEN Head of Lifelong Learning Justin Donovan 14+ Head of Cultural Services Jane Hargreaves Art Head of Children’s Support Vacancy PE Head of Library Services Trevor Brown Head of Finance Paul Pearson Head of (Policy and Planning) Jenny Crossley Head of (Administration & Assets) Mike Freeman Education Officer (Personnel) Vacancy APPENDIX 4 Library Service – Consultations Undertaken
All consultation within the community is documented on a proforma, which includes provision for future review.
Consultation recently undertaken includes the following:
Children and young people:
• with teachers and schools - through the Department of Education, Arts and Libraries Policy and Planning Section (annual consultation with schools);
• with the Early Years Advisory Service.
Family reading
• with parents • with families • with Ford ( as part of the EDAP Project
Ethnic groups
• with the Language Support Unit • with the Ethnic Minorities Partnership Association (EMPA) • with the Council for Racial Equality (CRE) • with Harmony House (for refugees) • with the Somali Women’s Group
Disabled people
• with the Disablement Information Advice Line (DIAL) • with the Centre for Independent Inclusive Integrated Living (CIIIL) • with the Independent Living Agency (ILA) • with Carers of Barking and Dagenham • with the Barking and Dagenham Community Mental Health Team • with Wigram Aid to Ability for Critically Disabled Internet Students (WAACIS) • with MENCAP
Other groups consulted
• Women’s Refuge • Barking and Dagenham Volunteer Bureau • Barking and Dagenham Training Centre • Barking and Dagenham Adult College • Better Neighbourhoods/Renaissance Consultants (Community programme at Thames View)
75 Page 244 Special projects
• Reference survey July 2001 • Marks Gate UK Online Centre • Sydney Russell School UK Online Centre • Valence Library survey- local history and learning village • Wantz Library 25th anniversary questionnaire on library services
Corporate
• LBBD Best Value Survey - MORI November 2001
Others
• Public Library User Survey (PLUS) Adult – December 2000.
76 Page 245 APPENDIX 5 Findings from Staff Survey
Questionnaire analysis
Question 1 What do you think we do well?
100% considered that our staff were our most valuable asset. They feel that staff expertise is high in knowledge content and ability in enquiry work. They provide a polite, friendly, helpful and personal service.
“The acceptable face of the Council” “Friendly and approachable service to all sectors of the community” “Level of customer service is very high”
50% considered that we provide a wide-ranging stock of material and information for all customers. Our local information system Comres and the quality of our CD collection were commented on.
25% positively mentioned ICT that was provided especially the quality of our website. Staff have responded well to these changes.
“Staff enthusiasm in adopting new skills”
25% commented on class visits, Home Library Service and Schools Library Service.
Staff also mentioned displays, study space and the convenience of the number of community libraries available locally.
“ Good number of service points”
Question 2 What do you think we do not do so well?
70% felt that staffing levels are not adequate and this lack of resources is adversely affecting service delivery.
“Staff remain unconvinced that re-structuring has achieved anything positive…”
Training of staff has been delayed due to low staffing levels. Therefore newly appointed staff have yet to acquire the expertise and skills of the more established staff.
“There is considerable delay in replacing vacant posts”
“Decreased staffing levels mean that although service points are manned, background work cannot be done and this will gradually affect the quality of service provided.”
77 Page 246 50% felt that communication is poor, staff have no clear understanding of what the restructuring was designed to achieve. They feel that they are not valued and supported and that any communication there was consisted of directives and wasn’t true communication both ways.
Staff felt they are not being listened to.
25% commented on lack of promotion of the service within the library itself and in outside venues. More familiarisation of our services to all community groups.
“Selling ourselves to the outside world. The library service is one of the services most appreciated by the public but it’s profile remains relatively low”
Staff mentioned the lack of ICT support, updated virus checkers, balance between traditional library service provision and the new technology,
“The Peoples Network is very important but it still needs to be developed in tandem with the traditional reference service.”
Staff also commented that a review of opening hours needs to be carried out, photocopiers that customers can use themselves, greater security CCTV cameras, lack of public toilet facilities, old fashioned buildings, layouts, furniture and fittings.
Question 3 What new service and facilities do you think we should introduce?
The top two requests were for public toilets and DVD lending service, the next two were word processing and photocopier facilities.
Also rans were, in no particular order;
• Tourist Information Centre • Longer opening hours • Informal seating areas • Wider range of periodical titles and ability to borrow them • Children’s spoken word on CD • Video collection expanded to all libraries • Video conferencing • Booksales • CD Roms to lend • Improved security • Community Awareness of the Service • More author visits • Increasing the number of CD’s customers can borrow • Drinks machine • Water dispenser • Book ordering facility • Online Internet Booking system
78 Page 247 • Disabled toilets • Switch payments • Pursuing debts • Display boards • International faxing
Question 4 Do you think anyone else could provide the service or parts of the service better than we do?
Of those who responded to this question, 75% said no. The remaining 25% said yes to parts of the service.
Examples are ICT support, book and debt recovery, stock processing could be subjected to competitive tender. The consortium could centralise cataloguing and stock ordering.
Question 5 How do you think we should promote the service and encourage use?
Staff re emphasised the traditional ways we are trying to promote our services,
(Coffee mornings, taster collections in non library public buildings like railway stations and supermarkets, talks to local groups, liaison with special interest groups, target schools and playgroups, community forums, book reading groups, displays stock lists, leaflet drops, posters, articles in the local media, use of the radio stations and greater use of the web site.)
The point being to make all sections of the community aware of the full range of our services.
Several staff drew attention to the self-evident fact that libraries need to be welcoming; the high level of vandalism and behavioural problems at some service points is clearly putting customers off coming in.
The traditional element of personal service needs to be balanced against all the new additional ICT services we provide.
Question 6 How can we help you to do your job better?
Staff commented on various aspects of staffing, in particular the need for more permanent staff.
“ Look again at the staffing structure to see why it isn’t working – branch libraries should not have to be closing on such a regular basis.”
“Increase staffing levels and boost staff morale.”
“Communications, regular chance for briefings and discussions where necessary on current concerns and future plans.” “Please give us more staff.”
79 Page 248
• Open later one day a week to facilitate meetings and training for all staff.
• Better training “ in house” so all staff can be truly multi-skilled.
• Training to be on- going with refresher courses.
• Management to value staff contributions.
• Review Saturday opening rota and to reduce meetings convened.
• Staff highlighted a general lack of equipment, and requested that more up to date technology was available for staff away from the public accessible floors.
• A laminator would be useful to make our displays more professional, together with display boards.
• Improve security for staff, customers and equipment.
• Progress work on “Welcome Pack”
Question 7 How do you think we can improve and be more efficient?
Staffing issues were the main concern, with supportive management, staff training and appraisals. Quick and effective decision making linked to forward planning instead of “ fire fighting”.
“ Listening and giving genuine weight to staffs real concerns over library services”
“ Find out what people do best and use these talents to our best advantage – don’t force square pegs into round holes.”
“ Minimum staffing levels should not be accepted as the norm.”
“ Communication needs to be hugely improved.”
“ Increase the number of front-line staff so that buildings can be kept open.”
“ More staff = Best Value = Customer Care = Efficient Service.”
More equipment was requested such as printers linked to Dynix, cash tills and improved ICT support.
Other issues raised were security issues, the necessity for a staff manual, review of opening hours to reflect the needs of the community, stock rotation and communication.
80 Page 249 Any other comments.
These were wide ranging and related mainly to staffing issues. There is a genuine frustration at the perceived lack of action and the time it takes to do things and a common feeling that management is not listening to the front line staff. Some staff are still unclear about reporting lines and concerned about increasing concentration on ICT and the effect of that on the traditional core service. Staff have no clear understanding of what the restructuring exercise was designed to achieve.
“ We have been through a lot of changes over the last year. We need to stabilise and improve staffing to give us a solid base to build on.”
“… too few operational staff left on the ground to actually deliver the service to our users. “
“ Most staff have lots of commitment and interest but could do with a morale boost just to keep the enthusiasm going.”
“ At the moment a lot of library staff feel under a great deal of pressure to deliver a rapidly expanding service.”
“Filling in these forms is useful but only if the comments made on them are actually acted upon.”
81 Page 250 Appendix 6 Notes from visit to Barnet
Notes from Barnet Visit
• Seventeen libraries – each for a separate community – no one central point. • Barnet has the largest population in London. • Chipping Barnet is the busiest library – over ½ million issues per year – it has overtaken Hendon. • Hyde Room is let every day - £15,000 – supports income generation. • Expenditure per 1,000 head not high – but income in top. • Cultural Services – Libraries, Arts, Museums and runs four One-Stop-Shops, three based in libraries, open Sundays, one in Town Hall. Chipping, Edgware and Golders Green – staffed by library staff – contained within the libraries’ budget. NB This counts towards library visits – specialists from other areas of the Council run surgeries.
What is it about Barnet that makes it a top 25% service?
• good management practice – SMT of three; • robust portfolio of evidence; • Barnet has maintained a reasonable base budget; • maintained seventeen libraries; • seventy qualified staff – above Scale 6 must be chartered or working towards; • robust strategy for income generation; • increased access – annual maintenance budget; • care taking staff carry out routine maintenance; • excellent opening hours – 736 per week; • 1/3 outside office hours – all 9-5 Saturday, three Sunday opening, all until 8.00; • partnership with Barnet College/University in order to finance this – gave start up funding for Sunday opening. Council then took on the commitment; • Hendon 700 issues – three hours on Sunday; • Overall £20,000 pa to open library three hours on Sunday (staff volunteer – double time); • in Barnet’s view, these innovations are keeping visits stable; • issues are plateauing/dropping – as national trend; • Hendon – stock will be reviewed as library is refurbished, more paperback, bookshop style in line with reader development strategy, maintaining quality of back catalogue; • social inclusion – 124 languages – long term strategy; • budget for 2002 provides additional £80,000 to buy stock, because Barnet doesn’t meet national standard – • Book stock budget £907,000 • B & D £330,000 lower • Barnet about to go out to tender • income generation; • fines are high - but have been pegged for three years – aim to balance income generation with social inclusion;
82 Page 251 • key challenge from BV inspectors – How do you achieve a step-change to provide a modern library service? - buildings fit for purpose; - IT – Council issue – access and availability in strategy. In fact with People’s Network, libraries were ahead of the Council; - stock (more paperbacks) NB These issues were picked up in the library service’s own review. • What did the BV inspectors ask about the private sector? - their view – there is no comparable private provider; - there are elements – e.g. stock, videos; • Barnet looked at Hounslow as an element of the internal review – very demanding in terms of cost and legal infrastructure; • essentially a professional, high income population – pockets of deprivation; • nobody is more than a mile from a fixed service or mobile stop;
The Learning Agenda
• a big part of Barnet’s plan – a lot in partnership with Barnet colleges; • Bookstart – in partnership with Health; • funding from Early Years (£4,000), Education (£10,000) and local charity (£4,000); • looked-after children strategy – starting work in this area from April - additional free access to internet; - 18 free loan CDs; - all enrolled as library members; - 300 children in care – working with officer responsible. • homework clubs – Grahame Park and East Barnet – additional funding from April and for Basic Skills worker (education funding); • key similarities – concern to maintain centrality of book and to maintain the level of the service; • central recharges are high - criteria – based on number of libraries, staff, PCs etc; - BV team of 3 – much lower costs than B & D - £400,00; NB B & D central recharges have gone up by £70,000 2002/2003.
83 Page 252 Appendix 7 Notes from Visit to Gateshead
Gateshead Visit
• Library service in top quartile of local authorities. • Charter Mark for customer service. • 3 stars BV review. • 18 libraries including a main Central Library. • 219.3 hours of access per 1000 population. • 33.5% active borrowers as percentage of population. • 25% professional staff as % of total staff. • £2,271 expenditure on books per 1000 population.. • 10,468 population per service point. • 6,589 visits per 1000 population. • Gateshead Reference Library open 52 hours per week. Barking is open 56 hours. • 22.62 computer terminals for public use per 100,000 population. • 208 stock items (books) added per 100 population. • Short Story Competition 2002 – theme “Celebration”. • AIRS (Access to Information & Reading Services) – excellent provision of information to people who have difficulty reading print. However, I didn’t understand why this needed to be run by the library service, although it operates as a separate business unit. • Non-user survey – sample from electoral register matched against membership file. (Will technology in B&D enable this?). • Experience in event management.
Main points:
• Attitude of radical challenge – can anybody do it better? • Members fully engaged and supportive. • Corporate priorities addressed. • Clear direction for the future. • Customer focus. • Enthusiastic staff. • Adoption of professional best practice. • Break down artificial divisions in service provision – e.g. lending and reference.
Stressed:
• Need for external stakeholders. • Clear and challenging aims for the future. • Staff involved and informed through the process. • “Best Value is the day job”. • Statutory requirement to provide a library service doesn’t mean we should provide it.
84 Page 253 Best Value opportunities:
• More than just structures. • Service regeneration. • Service troubleshooting. • Employee motivation.
Strategic lessons:
• Corporate dimension. • Employees on board. • Customer focused. • Be prepared for hard work.
Aims for the future:
• Make libraries more accessible. • Increase membership levels. • Further develop effective partnership working to enable the library service to contribute to broader strategic issues. • Make the service more efficient – ensuring value for money.
Making the service better
• Draw up proposals for using library resources to develop and strengthen lifelong learning activities. • Promote libraries as community resources – one stop shops. • Promote membership and the use of libraries. • Develop ICT facilities and services. • Employees – training, communication, volunteers, ethnic/cultural minority employees. • Stock service delivery options.
(Gateshead Metropolitan Borough Council: Best Value option report for the review of libraries. 21 November 2000).
85 Page 254 Appendix 8 Findings on Hounslow
1. Background
On 11 May 1998 Hounslow Library Network became the first library service in the country not to be provided directly by a local authority. The authority decided to provide leisure services by means of a charitable trust. This included libraries, heritage and tourism. The process took two years to complete.
1.1 Legal advice insisted that the relationship between the Trust and the authority had to be a contractual and a formal 10 year agreement, with break clauses and agreed default procedures, is in operation. It has also been framed that should the Community Initiative Partnership (the umbrella organisation) default or cease to trade the Council can immediately take over service provision.
1.2 The Council is the primary funding source and is contractually obliged to fund CIP to a level appropriate to enable the company to deliver the service to the contract standard. These standards are to complement the standards offered to users in the Library Users Charter (copy requested) and both are revised annually - therefore, so is funding.
1.3 The Borough Librarian and other members of the CIP senior management team are members of the Council’s Officers management Team although they are not employed by the Council. The downside is that they are seen only as advisors to the Council.
2. Advantages :
2.1 Immediate savings in the form of non-domestic rate relief.
2.2 Opening up of potential funding opportunities not available to local authorities e.g. lottery money.
2.3 Able to adopt thematic approaches across Leisure which include grounds maintenance.
2.4 CIP is now recognised as a major company within West London.
2.5 CIP is independent of the council and many of its systems and practices
2.6 It has been able to arrange its own industrial arrangements which has led to an improvement in industrial relations – e.g. . single status negotiations were completed and implemented by July 1999 whilst the Council is still in dispute (N.B. LBBD are currently stagnant in implanting single status).
86 Page 255 2.7 As the service is now outside of the Council, it has been able to adopt a third party approach with a more thematic approach e.g. the development of lifelong learning opportunities as a coherent package across CIP and in conjunction with Hounslow Education department for funding for study support.
2.8 The CIP Board is recruited from local people with an interest in leisure provision – in the 1999/2000 budget round it was successful in preventing any further erosion in library budgets.
2.9 A raised profile within the Local Chamber of Commerce’s - CIP is seen as a major company in West London.
2.10 In line with Central Governments Best Value Culture
3. Disadvantages
3.1 Staff are not aware of their direct employer – historically the Council but now CIP (often who?).
3.2 It is independent of the Council – it no longer shares many of the systems and practices – especially Human Resources. It would appear that conditions of service are less generous.
3.3 Funding streams have proved to be limited and the core funding is still definitely from the public purse – so what has changed/improved ?
3.4 CIP has not been able to provide better or more able solutions to those issues, which are engaging all library authorities. These include Peoples Network, decline in traditional services, Best Value, lifelong learning and social inclusion.
3.5 Local authority is still the landlord and responsible for buildings.
4 Performance Indicators
4.1 The Best Value Inspectors concluded that the service is ‘good’ (two stars) which is ‘probably, likely to improve’.
4.2.1 Audit Commission had concern about the level of investment to meet the DCMS Public Library Standards – particularly to increase opening hours (reduced in April 1998) and to roll out the People’s Network.
4.3 Performance against the current CIPFA Actuals and Public Library Standards – shows that Hounslow performs against us as follows:
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Indicator Barking & Dagenham Hounslow Population 156,000 213,000 Service points 11 11 Pop. Per service point 14,182 17,750 Staff in post per 1000 0.46 0.51 pop. Active borrowers % of 38.8 31.2 pop. Visits per 1000 pop. 4.3 7.6 Cost per visit £5.26 £2.53 Gross expenditure per £19,636 £17,613 1000 Income per 1000 pop. £724 £1,269 Net expenditure per £18,912 £16,344 1000 Total Issues per 1000 9,344 8,577 pop. Public computer 0.3 0.1 terminals % users satisfied 84 81 No. defined standards 15 7 currently met
5. Summary
5.1 The Trust nature of the service has, according to the BV Inspectors, apparently allowed them to have a broader overview. In their report, the BV Inspectors found “revenue pressures on the subsidised libraries have been offset by accumulated leisure surpluses from leisure centres by way of cross-subsidiary” It would seem that thematic view of CIP allows a broader view in terms of cost and investment. This could be advantageous but, as mentioned above there are concerns about the level of investment.
5.2 For this to work, I would suggest that a library service needs to be part of a profitable commercial, income generation operation. Hounslow has joined itself with Leisure and this has allowed it to benefit from a successful operation.
In conclusion, the BV inspectors found that the review had raised the profile of libraries and increased support from members of all parties. They had emerged as the clear priority amongst the leisure service for both the council and CIP. This may not be the situation in Barking & Dagenham. So should we consider the Hounslow approach ? The answer has to be that no one solution will be right for everyone and that Best Value challenges us all to consider/review the alternatives. The written responses from Hounslow would appear to indicate that the trust model works for them. (Sources : CIPFA 2000/01, 2001 Annual Library Plans, Library Association Record, Public Library Journal.)
88 Page 257 Appendix 9 Comparison of Approaches Taken to Encourage Library Visits
In the light of the evidence of lower quartile performance on the number of physical visits and the cost per physical visit the review team agreed that it would be helpful to focus in depth on how the comparator authorities attract and retain considerably higher visitor numbers. As a baseline there is a description and evaluation of the approaches used in Barking and Dagenham.
1. Barking and Dagenham
Historically Barking and Dagenham Library Services has adopted the approach of providing a good quality core service in terms of numbers of libraries, condition of libraries, trained and approachable staff and a good range of library stock. New services have been provided over the years including music CDs, multimedia, improved information services, reader development and, more recently, ICT including free Internet provision at all libraries. However the service has not been as proactive as some of the comparator authorities and outreach work and general promotion of the service to local communities has been at a low level or sporadic. Although the number of libraries and their condition is good the opening hours at the smaller branches, notably Marks Gate, Fanshawe, Rush Green, Thames View and Markyate, are far below those of Gateshead. Fanshawe and Markyate libraries has their hours considerably reduced in the early 1980s owing to budgetary constraints.
The current approach, through the new staffing structure, is starting to be more proactive and many initiatives are now being put into place to encourage higher visitor numbers. Examples include:
• family reading initiatives working with schools and libraries; • UK Online Centres in or alongside libraries; • regular Arts events; • outreach visits to ethnic organisations; • strong links with organisations representing disabled people; • ‘taster’ library collections at Ford’s engine plant, Dagenham swimming pool, Harmony House and a number of community venues; • toy libraries either already in place or being planned at several libraries; • reader development work with basic skills students; • developing programme of primary class visits to all libraries; • more regular consultation with stakeholder groups; • new ‘welcome pack’ for libraries.
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2. Gateshead Library Service
Based on the visits to Gateshead combined with information in their Annual Library Plan, Gateshead appear to be attracting more visitor numbers and issues because of the following:
• More libraries in proportion to the size of the population ( 100% of households live within the specified Public Library Standards distance of a library) • Higher levels of opening hours (218 per 1,000 population compared to 128.7 in Barking and Dagenham) • Numbers of books that can be borrowed at a time (20 compared to 8 in Barking and Dagenham) • Numbers of items added annually (295 compared to 216)
Targeted service provision includes the following:
For children:
• Magazines and books provided for children’s homes and special projects to invite looked after children in to encourage library use • Bookstart – second book is given out at the library when the baby joins the library • Homework support through NOF funding • Northern Children’s Book Festival
For Housebound customers:
• Personally taken to special events at Sunderland Road library
Business Community:
• On-line access to 150 business and management periodicals as part of regional service to businesses
People with visual impairment:
• AIRS service
People with hearing impairment:
• Special collection of relevant books • Member of local deaf community employed full time to communicate with others in the community
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Homeless, travellers, asylum seekers:
• Simplified joining procedures
Literature development:
• Reading North – Northern Arts funded
Wider community use:
• No charges for room hire by groups supporting library objectives so many groups take up this opportunity e.g. writers groups, senior citizen’s drama, photography and writing groups, clog dancers and amateur drama groups, folk music and singing as well as community festivals • Libraries used for health, education and general advice services • One Stop shops being developed in some libraries • ICT support through libraries: • Free Internet, e-mail and word processing • High % of staff have achieved ECDL • Summer Surfin’ programme – library staff offering ICT sessions at Civic Centre in Summer • Networked CD Roms and 10 year archive of newspapers(broadsheets) • UK Online Centre at Sunderland Road Library with Baltic Arts initiative • People’s Network – web publishing software, digital learning resources, Gates Foundation funding, extra staff applied for through European Union Objective 2
Staff support and training:
• Dedicated post for staff training( Senior Librarian) • ICT training Officer • High level of staff training and support including achieving IIP, Charter Mark and NVQs
3. London Borough of Barnet Library Service
Based on the visit to Barnet plus information from their Annual Library Plan it appears that Barnet’s visitor numbers have fallen below the selection average for the first time. This is due to a combination of less visits plus a population increase. Nevertheless their visits are still considerably higher than those of Barking and Dagenham and the following approaches may have helped to keep visits at a reasonable level:
Targeted service provision includes the following:
• Opening hours – the longest opening hours are 60 per week and the shortest are 30;
91 Page 260 • All libraries open on Saturday afternoons and three open on Sunday afternoons; • Hendon Library has a major funded Multimedia Centre offering courses to both individuals and businesses; • Community Learning Centre at Grahame Park Library working with Barnet College; • DVDs at twelve libraries; • C-D ROMs for hire; • Special collections – Alzheimer’s materials, Art books/videos collection for Middlesex University art students; • Homework clubs at two sites with basic skills support; • Community language materials – several languages but recently added Chinese (through Westminster’s service) plus Farsi and Arabic materials and Pakistani TV dramas; • Council Service Action Points in 4 libraries and 2 mobiles with video conferencing; • ICT – wide range of software available for community use; • Recent ,intensive library service leafleting campaign; • Friends of Barnet Libraries have daytime and evening events; • Shared use of library buildings with Prospects Careers and Pre-School Learning Alliance; • Sale of postage stamps and related items are sold plus a photo booth is available at one branch; • Coffee shops.
4. Hounslow Library Network
Hounslow is an area that has a high level of transient population. As an illustration, they report that only one in five children who have started their schooling in Hounslow will complete it there. The local population is currently rising slightly but rising house prices are producing labour and skills leakage away from the area. Its employment base has changed from the previous manufacturing base to the new service industries. The service is delivered through eleven static sites, a Home Library Service and a mobile which visits institutions such as residential homes. There number of visits (7.6) and cost puts them in the top quartile for all England and the second from top for London.
Targeted service provision includes the following:
• Partnership working with the Community Education and Youth • Joint working with the ‘Reading is Fundamental’ charity • Membership of pan-London bids to promote Reader Development • Maintain a high percentage of opening hours outside of core times (currently 37.6%) but no mention of Sunday • “First Stop” Council Information points at all static sites. • Photocopiers at all sites • Café facilities at some sites (number not defined) • Guarantee a same day response to enquiries • There is no service marketed specifically for business • Tendered book supply to increase purchasing power
92 Page 261 • Concessionary charges for a number of target groups – 60 +, 14 -, students, low income, unemployed, registered disabled • Study and homework facilities with a qualified librarian(32% of posts are filled by professional librarians) available at each site during the late afternoon/early evening to help with homework enquiries • Targeted outreach activities to such groups as women, ethnic, elderly, parents and carers to include program of talks, information provision and displays. • The introduction of new media e.g. DVD and ethnic media such as Asian and Chinese videos • Provision of information/leaflets in seven different languages • A commitment that each static site will provide a minimum of 20 activities each year.
5. Redbridge Library Service
Redbridge’s Annual Library Plan comments that they provide a generally high level of service for branch opening hours, study facilities and stock. Customer satisfaction is high as shown in their two-yearly user surveys. Customer satisfaction is also indicated through their high level of visits. The make-up of the borough is very socio-economically mixed.
Targeted service provision includes the following:
• Opening hours – Central Library (59), branches (45.5) and part-time branch (23) plus three mobiles, 97% of community within 1 mile of a library • Open until 8 pm ( minimum of 3 times per week) and Saturdays until 4 pm • Six out of eight libraries recently re-furbished • Local Access point to Council information at each library • Friends of Libraries groups • Local studies, archives and museum in the Central Library • Public toilets at 4 libraries • Induction loops at 2 libraries • Photocopiers at all libraries • DVDs and CD-ROMs for loan • Sell a range of items including reading glasses • Business information at the Central Library includes the 300 top company reports • Out of school learning initiative (NOF funded) • Work with refugee groups, night shelters and with the permanent traveller site
6. Havering Library Service
Havering Library Service has ten service points, the Central Library opens for 62 hours and 35% of the opening hours are outside of office hours. In recent years the service has achieved IIP and Charter Mark so customer care is of a high standard, unfortunately the building stock is in need of refurbishment.
93 Page 262 Visitor numbers for the three years up until last year had gone against the trend and had increased. But this trend was reversed in the last survey.
Targeted service provision includes the following:
• Adult Literacy – classes at South Hornchurch library working with Havering College • Literary events – talks, performances, exhibitions, poetry festivals and strong links with the local theatre • Minicom and hearing loops at several branches • Reading groups at 2 libraries • Business information at central library • SRB project at Harold Hill including SureStart • Homework stations at eight sites – homework clubs are the planning stage
94 Page 263 Appendix 10 Comparison of Range of Functions in Barnet, Gateshead and Hounslow
B & D G/HEAD BARNET Basic skills materials ● ● ● Books – Fiction, non-fiction ● ● ● Bookstart ● ● ● Business information ● Cd-ROMs ● ● ● CDs & videos ● ● ● Citizens information ● ● ● Collections of specialist materials ● ● ● Cultural activities ● ● ● Displays ● ● ● Electronic journals ● ● Exhibitions ● ● ● Homework clubs ● Housebound services ● ● ● Internet access ● ● ● Lifelong learning activities ● ● ● Mobile libraries N/a ● ● Newspapers & magazines ● ● ● On-line learning ● ● ● Open learning materials ● ● ● Parents & carer’s mornings ● Pensioner groups Playsets ● ● ● Poetry for all ages ● ● ● Reference materials ● ● ● Study space ● ● ● Talking books for all ages ● ● ● Word processing ●
Local Initiatives Computer software ● ● Deposit collections ● ● ● Digitisation of local material ● ● DVDs ● ● Family Reading/Reader Development ● ● ● Links with disabled groups/organisations ● ● Regular consultation with stakeholders ● ● Specific services targeted to hearing/visual ● impaired groups Targeted staff training ● ● ● Toy libraries ● ●
95 Page 264 Appendix 11 The Number and Distribution of Libraries
1. The London Borough of Barking and Dagenham was created by the amalgamation of the Barking Borough Council and Dagenham Borough Council in 1964. The new borough inherited the two previous library services and maintained a key element of the ethos of the social engineering experiment of the Becontree Estate i.e. neighbourhoods having local shops, pubs and a library within walking distance. Movement within the Borough today, both pedestrian and vehicular, is inhibited by the East to West bisection of the Borough by two major arterial roads and three major rail routes. This has confirmed the existence of distinct district neighbourhoods and communities, each with a need for local service.
2. The number and geographical distribution of libraries has been unchanged since the 1920s/1930s. Elected Members have continued to support the status quo for good reasons:
i) the Borough has a relatively low level of car ownership; ii) the libraries represent a known and familiar physical focus for each neighbourhood; iii) the danger that usage might fall if the number of service points were reduced.
In addition the new Public Library Standards expect 100% of households in Inner London and 99% of households in Outer London to be within one mile of a library.
3. Notwithstanding these important factors pointing to a retention of the existing number of libraries it is important that the BV Review encourages the Council to ask new questions, for example:
• is the existing number really necessary for an increase in library use? • if the existing number is appropriate, are the libraries in the right place? • what effect does the opening of a new library on the Jo Richardson School site have? • what is the best distribution for the libraries to contribute to the Customer First initiative?
4. These and other questions will be put and answered in the full review of Library Number and Distribution proposed for completion by March 2003 in the BV Improvement Plan.
96 Page 265 Page 266 AGENDA ITEM 8
PRIVATE AND CONFIDENTIAL (NOT FOR PUBLICATION) THE EXECUTIVE
28 MAY 2002
REPORT FROM THE DIRECTOR OF LEISURE AND ENVIRONMENTAL SERVICES
This report is not for publication because it contains information regarding contract negotiations and the financial and business affairs of a particular companies (relevant legislation: paragraphs 7 and 9 of Part I of Schedule 12A of the Local Government Act 1972)
PARKS & GREEN SPACES STRATEGY FOR DECISION This report is presented to the Executive as it requests the waiver of Council Constitution Part D Rules – contract rule 4.5 for the appointment of Consultants to complete the production of a Parks & Green Spaces Strategy and to seek approval for the process and programme for producing the Strategy which is reserved for the Executive.
Summary
The purpose of this report is to highlight the progress made on the drafting of a Parks & Green Spaces Strategy and to seek approval to appoint Landscape Design Associates to continue the project to complete the production of the Strategy and the programme
Recommendation
The Executive are requested to:
(i) Note progress related to the Parks & Green Spaces Strategy and agree the timetable for completion.
(ii) Approve in accordance Constitution Part D Contract Rules 4.5 the appointment of Landscape Design Associates.
Reason
The enable the programme and basic principles of the Parks & Green Spaces Strategy to be progressed to assist in the delivery of the Borough’s 2020 Vision and the seven Community Priorities in particular making “Barking and Dagenham a Cleaner, Green and Safer Place” and “Raising General Pride in the Borough”.
Contact: Simon Swift Group Manager (Telephone) 020 – 8227 3179 Parks & Leisure Development (Fax) 020 – 8227 3129 Leisure & Community (Minicom) 020 – 8227 3034 Services Division (E-mail) [email protected]
Page 267 1. Background & Progress to Date
1.1 Funding through the Council’s ‘Invest to Save’ Programme has been secured for the appointment of consultants to produce a Borough Parks & Green Spaces Strategy (Executive Minute No 56, 10 July 2001 refers). Drafting of the Strategy has been divided into nine principle phases with Phases 1 to 3 now complete.
1.2 The Phase 1 Study involved a review of all current national, regional, metropolitan and Borough policies relating to Parks & Green Spaces to determine ‘best practice’. In total 45 reports were researched which identified 40 recommendations to be included within the development of the Strategy. This study was particular important due the absence of any national guidelines for the production of such a Strategy. The Phase 1 Study has been recognised by the GLA Green Spaces Investigative Committee as an example of ‘Best Practice’ and they have included it in the guidelines issued to all London Boroughs to follow.
1.2 The Phase 2 Study was divided into three parts which involved:
• Evaluation of the Borough’s key parks & green spaces • Identification of a framework for improvement • Spatial analysis of existing parks & green space provision.
In total 75 broad recommendations are made for all the Borough’s parks & green spaces.
1.4 The Phase 3 Study evaluates future management and funding options for the delivery of the Strategy. The management element of this study will be reported in greater detail as part of the Best Value Review of Parks, Open Spaces & Grounds Maintenance, which is due to be reported to the Executive in July 2002.
1.5 Executive summaries of all three studies are appended to this report and copies of the full reports have been deposited in the Members rooms at the Town Hall and Civic Centre.
2 Strategy Development
2.1 The next stages of the development of the Strategy are the Phases 4 through to 6. Phase 4 concentrates on creating a textural framework for the draft strategy and Phase 5 is concerned with various consultation processes. This consists of two stages, first being internal/partnership consultation through a series of facilitated workshops and the second a broad community consultation process.
2.2 Phase 6 revisits the draft strategy document to modify or make changes that have arisen through the consultation process.
2.3 Funding for these phases has already been secured through the Council’s Capital Programme for this financial year (2002/03).
2.4 Phase 7 is the formal adoption of the Strategy by the Council and the public launch of the document to the residents of the Borough and the national trade media.
Page 268 2.5 Phase 8 is the identification of the Strategy’s Action Plan. This will be met through Revenue provision within the Leisure & Community Services Division.
3. Strategy Timetable
3.1 Outlined below is the timetable to complete the Strategy:
1. Preparation Parks & Green Spaces Strategy May - August 2001 Framework Brief September 2001 Secure feasibility funding to appoint Consultants to implement Stages 1 – 3 of the Parks & Green Spaces Strategy Brief
2. Stages 1 – 3 Commission & appoint Consultants to Strategy implement Framework Stages 1-3. October – December Stage 1 - Review of National, Regional, 2001 Metropolitan & Borough policies to identify “best practise” and draft priorities for adoption. December - February Stage 2 - Landscape evaluation of the 2002 Borough’s key parks & green space to identify key recommendations for improvement January - March 2002 Stage 3 - Identify management and funding options for the delivery of Parks & Green Spaces Strategy.
3. Progress Progress Report to Executive on May 2002 Report development of Parks & Green Spaces Strategy.
4. Stage 4 - Produce Parks Green Spaces Strategy June 2002 Draft Strategy (Draft)
5. Stage 5 - Identify consultation methods and present July - August 2002 Consultation key issues to “test audience” & Assessment 6. Stage 6 - Analysis of “test audience” results and September 2002 Analysis & revision of the Strategy Creation 7. Stage 7 – Formal adoption of the by Executive and October - November Strategy Assembly 2002 Adoption Trade Media & Public Launch November 2002
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8. Stage 8 - Prepare Action Plan for Strategy December – March 2003 Strategy Implementation. Action Plan 9. Stage 9 – Implement Year 1 of the Strategy March 2003 – March Implementatio 2004 n
4. Appointment of Consultants
4.1 Landscape Design Associates (in the past they have also been referred to as Environmental Design Consultants) have proved themselves competent in successfully delivering the first three phases of the Strategy.
4.2 Phases 1 and 3 were commissioned under the old Standing Orders Class 1 Contract regulations and Phase 2 involved appointment under a Class Two Contract regulations (Executive Minute No 282, 11 December 2002 refers).
4.3 It is recommended that Landscape Design Associates should be retained to deliver phases 4 through to 6 of the Strategy through the waiver of the relevant parts of the Council’s Constitution. This recommendation is based on the fact that:
• They have a sound understanding of the stages needed to complete the Strategy through the work that they have undertaken for Phases 1 to 3.
• They can deliver the Strategy in accordance with the above timetable.
• They have long-term experience of producing similar strategies for other Local Authorities.
• The costings that they have submitted to complete Phases 4 through to 6 totalling £19,269 can be met from the Capital Programme provision of £20,000 for the Strategy.
5 Finance Implications
5.1 The Council’s Capital Programme for this year (2002/03) has a £20,000 allocation for additional resource to assist in the completion of the Strategy.
6. Consultation
6.1 The following Officers have been consulted on this report:
Allan Aubrey Head of Leisure & Community Services Peter Wright Head of Planning Jeremy Grint Head of Strategic Regeneration Lee Russell Head of Finance (LESD)
Background Papers Executive Minute 282, 11 December 2001. Re appointment of consultants
Page 270 Appendix 1 Phase 1 Study Executive Summary
1. Scope Landscape Design Associates undertook phase 1 between September and December 2001. The study involved a review of all:
Borough-wide policies relevant to Parks & Green Spaces Current National, Regional and Metropolitan policies on Parks & Green Spaces, including policies in preparation Case study analysis of existing Park & Green Spaces Strategies to determine best practise Document the results of the reviews, define conclusions and make recommendations for future action
Over the three-month period of the Phase 1 Study a total 45 separate reports were researched to determine best practise. These 45 separate reports have identified 40 recommendations that have been summarised into 11 primary recommendations.
This report is an important step in the process of renewing Barking and Dagenham’s parks and green spaces, which has already commenced. It has provided the opportunity to assess Best Practice that has emerged and is emerging, and for a radical top to bottom rethink of the provision of parks and green space services.
2. National initiatives The value of getting the Parks and Green Spaces Strategy right has been proven in Sheffield, Bromley, Bexley and other locations. It provides a framework for assessing community needs, a rationale for framing cross-cutting corporate objectives so that they are mutually supportive, a methodology for monitoring progress and achievements, and justification for targeted increases in expenditure and resources, in attracting external funding, and in establishing working partnerships with the communities served by each park and green space, and with other organisations.
The Government has published the Interim Report of its Urban Green Spaces Taskforce and has put ‘Liveability’ at the top of its agenda for improving the quality of local environments - parks, play areas and green spaces have a key role in this. The Government has signalled its support for better public spaces by establishing a crosscutting review on improving the public realm - the Taskforce’s work will feed directly into this review. It also states that planning policy will play a key role in ensuring adequate provision of suitable green spaces and play areas in the right locations, and that the government will consider the role of green space planning, including the role of Planning Policy Guidance Note 17. The report argues for a more integrated approached to planning, designing, managing and maintaining urban green spaces, linking those to community strategies, local development plans, cultural strategies, and area plans.
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The over-arching aim of the Taskforce Report is to: develop proposals that will reverse the decline in the quality of many green spaces and play areas by ensuring that these spaces are better designed, managed and maintained. The final report will be published in May 2002 and will form the basis of the Government’s policy statement on urban parks, play areas and green space planned for July 2002.
Recommendations
The Borough should:
1. Renew political commitment to the Borough’s parks and green spaces and proactively support strategies for their renewal.
2. Place Liveability at the top of its agenda for improving the quality of the public realm generally, and parks, play areas and green spaces in particular.
3. Ensure that the funding, management and maintenance of the public realm is addressed in a cross-departmental way.
4. Ensure that parks and green spaces are at the heart of the planning system and that policies are rigorously and fairly enforced.
5. Undertake an audit of parks and green spaces documenting their location, extent, type, quality, and user perceptions and satisfaction, and renew the audit every five years under the Best Value regime.
6. Prepare a Landscape Framework Plan for the Borough that is adopted as Supplementary Planning Guidance.
7. Prepare a Parks and Green Spaces Strategy as an element of the Landscape Framework Plan to ensure adequate provision of green spaces and play areas of the right type, in the right locations by establishing a typology of parks and green spaces, defining their role, quality, size, quantity and distribution - the main criterion being accessibility.
8. Ensure that Section 106 Agreements are used, where appropriate, to achieve the goals of the Landscape Framework Plan and Parks and Green Spaces Strategy - a connected network of parks and green spaces throughout the Borough.
9. Ensure an integrated approached to planning, designing, managing and maintaining urban green spaces, placing them at the heart of community strategies, local development and area plans.
10. Continue active membership of the Urban Parks Forum and support the establishment of the London Parks Forum.
11. Continue to apply for Green Flag Awards at Eastbrookend Country Park.
12. Aim for Green Flag status in every park and green space by 2020.
13. Aim to achieve Beacon Council status for Parks and Green Spaces by 2005.
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3. The Value of Parks and Open Space - social inclusion and community regeneration – Local Government Association and the Countryside Agency
This report produced by the Local Government Association and the Countryside Agency, and endorsed by the Chief Cultural and Leisure Officers Association notes that the need for a focus on parks and open spaces arises from ‘the fact that our parks and open spaces are perhaps the one area of the ‘cultural sector’ that in the past has been largely overlooked by central and local government for funding programmes and inclusion in cross-cutting initiatives'.
The report urges councils to recognise that ‘investing in the restoration and management of our parks and open spaces is an investment in tackling social inclusion, education, crime and disorder and community regeneration’. It states that Local Authorities should seek to integrate dedicated plans for parks and open spaces into their cultural and community strategies, and promote the value of parks and open spaces across local council departments and corporate plans to contribute to education, health improvement programmes, social inclusion and economic development.
Recommendations The Borough should:
14 Ensure that Parks and Green Spaces are placed at the heart of Cultural Strategies for funding and cross-cutting initiatives 15 Invest in the restoration and management of parks and green spaces to tackle social inclusion, education, crime and disorder and community regeneration
16. Promote the value of parks and open spaces across Council Departments and corporate plans and their contribution to education and health improvement programmes, social inclusion and economic development
4. Best Value The Government’s six Best Value crosscutting themes are:
Social exclusion Public Health Community Safety Life-long Learning Environmental Sustainability, and Regeneration.
Best Value reviews will become increasingly important in influencing the delivery of parks and green spaces services. Those not already addressed above are:
Recommendations 17 Encourage all sectors of the community have equal access to all parks and green spaces.
18 Ensure that all parks and green spaces are safe and secure.
19 Utilise parks and green spaces as part of life-long learning programmes.
Page 273 20 Ensure that parks and green spaces are designed, managed and maintained in accordance with the principles of sustainability as defined by the Brundtland Commission.
21 Ensure that parks and green spaces are at the heart of regeneration strategies.
22 Establish strong connections with Corporate Objectives.
23 Adopt an holistic approach to parks and green spaces design, management, and maintenance.
24 Ensure customer focused and responsive delivery of frontline of services.
25 Adopt a multi-disciplinary approach to parks and green space design, management and maintenance encompassing park managers, landscape architects, ecologists, arboriculturalists, events managers, grounds maintenance officers, sports managers, leisure managers, culture officers, heritage, and arts officers, etc.
26. Adopt a non-hierarchical, responsive management structure.
27. Provide effective leadership.
28. Establish challenging improvement plans with performance indicators as a framework for continuous improvement by utilising the Best Value four ‘C’s’ - challenge, compare, compete and consult; and SMART based targets - specific, measurable, achievable, realistic and timetabled Ensure effective financial management at all staff levels leading to justification of additional funding.
29. Ensure delivery of high standards of parks and green space maintenance.
5. Regional initiatives
Thames Chase Plan and Green Gateway Strategy The Borough is committed to supporting the Thames Chase Community Forest core policies and vision. One of the major successes has been the establishment of Eastbrookend Country Park and the Millennium Centre which are an excellent example of what can be achieved with vision, commitment, and secured long-term funding. With the successful completion of the SRB part funded Beam Valley Project, the Borough will eventually realise the concept of a linear regional park in the Dagenham Corridor. Also, The Green Gateway - An Urban Forestry Strategy for Thames Gateway London provides the case for a sub-regional strategy for an urban community forest and should have the support of the Council. Recommendation
30. Continue to support the Thames Chase Community Forest Plan, the development of the Beam Valley Project, and the Green Gateway Urban Forestry Strategy which should all be encompassed by the Landscape Framework and Parks and Green Spaces Strategy
Page 274 6. Metropolitan initiatives
Greater London Authority: Towards the London Plan
The Draft Plan emphasises achieving a Green City, and seeking improvements to the urban environment. ‘Liveability’ and protection of open spaces including the Greenbelt are key themes.
Recommendation
The Borough should:
31. Strengthen its planning policies for the protection of parks, green spaces and the Greenbelt in Planning Policies, and promote a new vision for the development and use of under-utilised Greenbelt land.
7. Greater London Authority Draft Biodiversity Strategy
The Mayor’s Biodiversity Strategy will be a statutory instrument linked to the London Plan. This consultation draft seeks to provide a broad, integrated framework for wildlife conservation across the capital, as well as improving the opportunities for people to benefit from this natural resource. It deals with planning policy towards nature conservation. It also addresses other strategically important issues such as policy towards the River Thames, advice on managing important wildlife sites, protecting rare species, a programme of site survey, biological recording, monitoring change, promoting expertise in habitat management, environmental education, and funding and bridging the gap between the business community and nature conservation.
The Key Objectives of the Biodiversity Strategy are:
Access to nature for people Nature for its own sake Nature’s place in London’s economy Practical benefits Sustainable development.
The protection of wildlife habitats and important species will be a priority, the London Plan will be the main vehicle for delivering this and borough’s Unitary Development Plans will be expected to follow its guidance. The Mayor will urge the Government to expand his powers to ‘call in’ planning applications to those that affect the top tier of wildlife sites. The Mayor intends to survey all London’s open spaces on a ten-year rolling programme, identifying the best sites across London.
Recommendations
32. Undertake an Ecological Survey of the Borough to update that carried out in 1992 and commit to renew it on a five yearly basis 33. Prepare a Biodiversity Strategy that cross-links with the Mayor’s Biodiversity Strategy (2003)
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8. The Greater London Assembly’s Green Spaces Investigation Report
The Greater London Assembly’s Green Spaces Investigation Report recognised the green spaces of London as ‘one of the city’s most important and precious assets’. However the Committee found that ‘these green spaces are in too many cases threatened with serious deterioration in their condition, crime, vandalism and loss to development’, and called for ‘a renewed political commitment to London’s green space and a proactive strategy for its renewal’. The Committee regarded the ‘restoration of London’s green spaces to full health, the protection of the best parks, an end to neglect of the worst, and high standards of management and maintenance as vital to the capital’s economic, social and cultural success’.
It also recommended that the Mayor’s Spatial Development Strategy should contain a strategic vision for the protection and renewal of London’s Green Space, with detailed guidance for the content of Borough Unitary Development Plans (UDPs). It also recognised that ‘planning decisions are undermined by lack of comprehensive information on quantity and condition’ of green space urges presumption against development on any green space where there is a deficiency. It recognised that ‘planning decisions are undermined by lack of comprehensive information n quantity and condition’ of green spaces, and urged presumption against development on any green space where there is a deficiency; it recommended that the Mayor’s Spatial Development Strategy ‘contain guidance on a revised methodology for the assessment of green space deficiency in London and encourage the use of Section 106 agreements to ensure the creation of green space in future developments, and require Boroughs to consider the potential for green links and corridors across London’; recognised that ‘too much of the Green Belt is underused, neglected and poor condition’; and called for ‘a renewed vision of its purpose’; for ‘accessibility, biodiversity and usage’ to be improved; recognised that many of London’s privately-owned playing fields are ‘suffering from speculative neglect’, and that ‘no development should be allowed unless there is evidence of active marketing for alternative sport or recreation use’; recognised that there has been a decrease of £100 million (16 per cent) from 1990 to 1999 across the United Kingdom, that funding for ongoing maintenance is a particular problem, and argued for more private sector involvement in the provision of resources; recognised that there is ‘considerable opportunity to increase the environmental value and biodiversity of green space in London’; argues for ‘greater effort with GLA and local authority assistance, to improve the biodiversity of land owned by the GLA family, major utilities and transport bodies’.
Many of these issues are addressed in the recommendations above, additional recommendations are as follows:
Recommendations
34. Ensure the protection of privately-owned playing fields 35. Ensure adequate capital and revenue funding for the development, management, maintenance of parks and green spaces throughout the Borough, and seek private sector involvement where possible and appropriate
Page 276 9. Borough Initiatives
The MORI Budget Survey
The MORI Budget Survey undertaken during September - October 2001 is unequivocal in its findings:
74% support the Borough’s community priority of Making Barking and Dagenham cleaner, greener and safe 43% of residents - the second highest of all categories - believe that parks and open spaces are the most important priority for council expenditure parks and open spaces are the most used service that the Borough provides - 57% 25% of residents would like to see an increase in expenditure to see an improvement in the service for parks and open spaces. 60% of residents cited improving the general appearance of the Borough as the most popular service the Council could provide. 29% of residents would like to see more park patrols in local parks.
Parks, green spaces and the public realm generally are, therefore, the top priority for the residents of Barking and Dagenham - and they are prepared to pay higher taxes to fund improvements. Investment in parks and green spaces to ensure that they are safe, attractive, well designed, managed, maintained, and staffed would be supported by the majority of residents of Barking and Dagenham. Funding for the arts, heritage, sport and leisure need to be channelled into parks and green spaces and efforts to connect and reach residents focused on them. As the service most used by the residents of the Borough, parks and green spaces is where expenditure will have its greatest impact. Parks placed at the heart of all aspects of the regeneration of the Borough - the economy, education, health, environment, sports, arts, heritage - would touch the majority of residents. It would also be supported by current and emerging Borough policies.
Recommendation
36. Ensure that the community’s priorities are addressed, by undertaking a fundamental review of all Corporate Strategies and Policies for economic regeneration, sports, arts, heritage, culture, education and health and focus the delivery of services through parks and green spaces which is the most used service provided by the Borough
2020 Vision
The 2020 Vision document commits the Council to renovating all parks and playgrounds, ensuring community involvement in the management of parks; enhancing biodiversity; establishing community gardens and allotments linked to local enterprise; substantial planting of trees; increasing woodland cover, establishing nature reserves, and generally improving all parks and open spaces.
Page 277 Recommendations
37. Renovate all parks, playgrounds and green spaces by 2020 in accordance with agreed management plans based on community needs.
38. Establish a programme of delegated management agreements.
39. Increase woodland cover by 25%.
40. Establish a network of new nature reserves.
10. Eleven Primary Recommendations
The above recommendations derive directly from the reviews of relevant national, regional and local policies and guidance. These are distilled below into a summary of eleven primary recommendations:
1. Adoption of a Parks & Green Spaces Strategy that delivers community priorities through the Balanced Scorecard management framework.
2. Prepare a Landscape Framework Plan for the Borough that is adopted as Supplementary Planning guidance and which incorporates a Parks & Green Spaces Strategy.
3. Secure a long-term capital and revenue investment programme through Partnership and grant aid bodies to deliver Parks & Green Spaces Strategy objectives.
4. Establish a Parks & Green Spaces Regeneration Unit to deliver an integrated management and development approach for Parks & Green Spaces.
5. Prepare and implement a Local Biodiversity Plan for the Borough.
6. Produce management plans for all sites that reflect community priorities and corporate strategies to deliver long-term improvements.
7. Adopt management practises that increase levels of satisfaction, reduce barriers to participation and address community safety issues within Parks & Green Spaces.
8. Promote the concept of “Active Parks” through the adoption of an “Events & Marketing Strategy” that builds active and inclusive use.
9. Promote community involvement and ownership of Parks & Green Space through the development of “Friends of Parks Groups” and “Delegated Management Agreements” for Park User Groups.
10. Secure national accredited systems for public excellence for Parks & Green Space
11. Facilitate and contribute to partnerships that promote lifelong learning through the concept of “outdoor classrooms” and “healthy living”
Page 278 11. Parks & Green Spaces Strategy Vision Statement The Vision must:
• encapsulate community needs and aspirations
• achieve Community, Council Member and cross-departmental Chief Officer and Officer support
• ensure consistency with National, Regional, Metropolitan and Local Authority Best Practice
• ensure that the parks and green spaces of Barking and Dagenham are places of real pleasure for people as they go about their everyday lives.
By 2010 the London Borough of Barking & Dagenham will have:
• Completed a refurbishment programme that delivers high quality, accessible and functional Parks & Green Spaces for all.
• Provide Parks & Green Spaces that meet national standards of excellence through achievement of the Green Flag standard.
• Provide Park & Green Space Management Service that deliver the Seven Community Priorities.
12. Community Priorities and Draft Performance Targets It is recommended that the seven Community Priorities be adopted as the seven cross cutting themes for the Parks & Green Spaces Strategy. Each of the 11 primary recommendations have been developed using the Balanced Scorecard Framework to identify the following performance targets for adoption. Once adopted these performance targets will be incorporated into a Balanced Scorecard for the Strategy and an implementation plan drafted.
Community Priority 1: Promoting Equal Opportunities and Celebrating Diversity
Performance Target
• Increase levels of satisfaction: Build and sustain customer satisfaction by providing Parks & Green Space Services that meet expressed needs. • Reduce barriers to participation: Provide services that reflect and meet the needs and demands of all the community
Performance Indicators
• Percentage of residents satisfied with the quality of Parks & Green Services. • Percentage of residents who do not participate in Council provided Parks & Green Space activity (measured by census criteria) • Percentage of users that are from minority ethnic groups (measured by census criteria)
Page 279
Community Priority 2: Better Education and Learning for All
Performance Target
• Develop “outdoor classrooms” :Increase the use of Parks & Green Spaces by educational establishments.
Performance Indicators
• Percentage of educational groups that use Parks & Green Spaces. • Number of “outdoor classrooms” adopted by schools and educational establishments.
Community Priority 3: Developing Rights and Responsibilities with the Local Community
Performance Targets
• Friends of Park Groups: Adoption of friends of park group to encourage community ownership and involvement in Parks & Green Spaces. • Delegated Management: Adoption of delegated management agreements for park user groups.
Performance Indicators
• Number of Friends Groups established for Parks & Green Spaces. • Number of delegated management agreements established for Parks & Green spaces.
Community Priority 4: Improving Health, Housing and Social Care
Performance Target
• Increase healthy living: promote the use of Parks & Green Space for the promotion of healthy living.
Performance Indicator
• Percentage of healthy lifestyle programmes delivered within Parks & Green Spaces. • Community Priority 5: Making Barking & Dagenham cleaner, greener and safer.
Community Priority 5: Making Barking & Dagenham Cleaner, Greener and Safer.
Performance Target
• Produce a Parks & Green Spaces Strategy: Adoption of a Parks a Green Spaces Strategy that delivers community priorities through the Balanced Scorecard management framework. • Local Biodiversity Action Plan: Adoption of a Local Biodiversity Action Plan for Parks & Green Spaces
Page 280 • Parks & Green Space Strategy Management Plans: Management plans are produced that reflect both the Community Priorities and corporate strategies to deliver long-term improvements
Performance Indicators
• Percentage of milestones delivered to programme and number of indicators in the top quartile for Parks & Green Spaces. • Number of management plans produced to target and percentage of recommendations delivered to target. • Local Biodiversity Action Plan produced.
Community Priority 6: Raising General Pride in the Borough
Performance Targets
• Provision of a high quality Parks & Green Space Services: Park services that meet nationally accredited systems for public excellence. • Events & Marketing Strategy: Produce an event and marketing strategy that builds active and inclusive use of all Parks & Green Spaces.
Performance Indicators
• Number of accreditations to nationally recognised systems i.e. Beacon Council Status, Green Flag, Charter mark & London-in-Bloom. • Number of Park & Green Space Service Events held.
Community Priority 7: Regenerating the Local Economy Performance Targets
13. Inward Investment: Deliver service objectives through investment via partnerships and grant aiding bodies.
• Establish a Parks & Green Spaces Regeneration Unit: Ensure management structure can deliver service and strategic objectives. Performance Indicators
• Percentage of inward investment secured for Parks & Green Strategy. • Parks & Green Spaces Regeneration Unit established.
Page 281 Page 282 Appendix 2 Phase 2 Study Executive Summary
Scope
Phase 2 was carried out during January 02 - March 2002 by Landscape Design Associates and is a three-part study:
Part 1 of the Study involved an evaluation of the Borough’s twenty-five key parks and green spaces and an analysis of the key issues that needed to be addressed. Part 2 of the Study identifies a framework for improvement for the Borough’s parks and green spaces. Part 3 of the study is a spatial analysis of existing parks and green space provision
Evaluation Methodology
The evaluation phase was undertaken using a standard matrix of 54 criteria grouped into eleven subject areas of; context and general description, entrances, general facilities, landscape character and quality, security and vandalism, children and the young, disabled people, elderly people, repairs maintenance and cleanliness, ecology education and health and management.
With the exception of context and general description (the first 6 questions on the template) each of the twenty-five sites was assessed on a score rating of 0 – 5 with 0 being absent, 1 being bad, 2 being poor, 3 being average, 4 being good and 5 very good. To ensure continuity of results all twenty-five sites were evaluated by the same team, which included a member of the Parks & Countryside Section.
Evaluation Results Summary
Evaluation scores for the twenty-five sites ranged from 3.9 for Eastbrookend Country Park, a flagship park that has received three green flags to 0.8 for Kingston Hill Avenue Recreation Ground. Most sites scored from 1 to 3, which using the score definition is bad to average with an overall average score for all sites of 2.2. A copy of the evaluation summary for all twenty-five sites is included at the back of this executive summary for information. This shows individual sites average score against all of the assessed criteria and an overall average score for each site.
In general terms these results show the best sites scored highly over the full range of subject areas and the worst poorly and that the worst sites were frequently the recreation grounds or small green spaces within residential areas. Detailed analysis of the evaluation study shows that the main features within the twenty-five sites that were assessed as bad to absent were issues around, general facilities, facilities for elderly people ecology, education and health provision and specific facilities for disabled people.
Page 283
Key Issues - General Facilities
While many of the Borough’s parks and green spaces contain a good range of facilities they are of variable quality .in addition a number of sites contain little or no facilities (four in total) and one site Kingston Hill Avenue having no facilities at all registering a 0 score.
The overall average evaluation score for all twenty-five sites is 1.8. In terms of the main issues identified which need to be targeted for improvement are the lack of signage, lighting, and toilet and refreshment facilities. Overall signage was evaluated as being the worst with an average evaluation score of 0.3 across all twenty-five sites.
Key Issues - Elderly People
Successful parks must clearly relate to the potential users within there catchment areas in terms of accessibility and level of facilities provided. Currently Barking & Dagenham has the highest proportion of people of pensionable age in London (20.5%) with elderly people consequently being an important user group. The evaluation results show that very few sites provide the right infrastructure to encourage use with seven sites registered a 0 score with regard to facilities for elderly people.
The overall average evaluation score for all twenty-five sites is 1.5 The main issues identified, which need to be targeted for improvement, are increased levels of seating and specific facilities for informal recreation such as garden areas.
Ecology, Health and Education
The majority of sites (15 in total) have no ecology areas and there is little evidence of sustainable management practises on any of the sites except at Eastbrookend Country Park and The Chase Nature Reserve. Educational provision by way of interpretation is even more poor being only present on four sites, however, three of these sites (The Chase Nature Reserve, Eastbrookend Country Park and St Peter’s & St Paul’s Churchyard) have been evaluated as a 5 very good in terms of standards of interpretation that have been adopted.
Provision for health facilities within parks and green spaces were limited to only two sites (at the time of the study) Eastbrookend Country Park (orientation trail) and Parsloes Park (Fitness Trail). The overall average evaluation score for all twenty- five sites is 1.3, which is the lowest evaluated category score. The key issues, which need to be targeted for improvement, are creating ecology areas within the urban parks and green space, onsite educational interpretation within urban parks and green space and specific facilities for health improvement on all sites.
Disabled People
Facilities for Disabled people while having an average overall evaluation of 2.2 scored the lowest individual evaluation score of the study of 0.1 with regard to specific consideration of disabled people in the design of the site or provision of facilities. Thirteen sites contained no facilities specifically for disabled people. And
Page 284 only three sites Eastbrookend Country Park (Millennium Centre) and Newlands and Barking Park scored above 3 in terms of disabled provision.
Framework for Improvement Summary
The second phase of the Stage 2 Study identifies a framework for addressing the evaluation results. In total 75 broad recommendations for adoption for all sites have been identified. These range from adopting a Parks Charter to promote service standards to increase the range of facilities for teenagers within Parks & Green Spaces. All 75 recommendations are included at the back of this report for information.
Along with the 75 broad recommendations 174 site-specific recommendations have been identified. These range from incorporating the river into Mayesbrook Park to gapping up the hedge around the playground at St Chad’s Park.
It is important to note that funding has already been started to be allocated to deliver a number of recommendations within the Phase2 study. For example £150,000 has been allocated in the capital programme for a park signage programme for 2002/03 and funding has also been secured via the Community Forum budgets for a second fitness trail at Central Park.
Delivering the framework for improvement can be identified under 5 broad themes of
creating local community parks, encouraging diversity, emphasising quality the role of design. management plans
Local Community Parks
With the exception of four parks which have a Borough-wide significance (Eastbrookend Country Park, Barking Park, Parsloes Park and Mayesbrook Park) due to the range of facilities they have. The main purpose of parks and green space within the Borough should be to provide attractive amenity landscapes, which contain a wide range of diverse facilities that reflect community profiles. To deliver this Borough’s parks and green spaces need to be managed and developed as community-based assets with high levels of community involvement and ownership. For the four parks of Borough-wide significance, these links to local communities are equally important but must be balanced with Borough-wide strategic aims, and the desirability of being flagship sites of added prestige.
Encouraging Diversity
Centrally to creating the concept of “local community parks” is the need to provide diversity of facilities for all the community. In practical terms such an approach could result in increased provisions of certain facilities such as play and garden areas to reflect ward statistics or specific facilities that reflect the needs of individual communities. It moves away from the more traditional model approach of facilities
Page 285 provision and recognizes that parks and green space need to be seen as flexible green space.
Emphasising Quality
In the course of the evaluation, sites scored poorly for the range of facilities and poorly for their quality. Furthmore the quality and richness of both hard and soft landscape is poor. Most of the Borough’s sites do not attain above what might be described as a” basic” level of quality. Environmental quality is the purpose of the urban public park and as such, a certain threshold must be achieved before the park is likely to enjoy healthy levels of use. For many sites a dramatic enhancement in quality is required rather than the implementation of minor piecemeal improvements. Transformation of a single park will reap a greater dividend than minor changes to each.
The Role of Design
A general lack of design input can be identified in the layout of most of the parks and green spaces (especially the recreation grounds) and the integration of introduced features and facilities in others (especially the historic parks). In the case of the former, structural deficiencies in the response to particular site constraints or issues are unlikely to be successfully tackled by piecemeal initiatives. As such a radical redesign of these sites, virtually from scratch, is more likely to achieve desired results.
Management Plans
It is recommended that a management plan be drawn up for each of the twenty-five sites. These should be broad in scope with a strong development emphasis, and be produced in close consultation and partnership with the community. Whilst it will be necessary to maintain an appropriate Borough-wide strategic perspective, the character and management of each individual site should be independently and locally defined within management plans. Management plans will provide both the framework for development both also provides a mechanism for monitoring improvements thorough service standards.
Spatial Analysis of Existing Parks and Green Space Provision
The twenty-five parks and green spaces, which are the subject of this study, range greatly in size from just 0.17 ha (Quaker Burial Ground) to 78 ha (Eastbrookend Country Park). Small parks and green spaces are typically between 1 and 3 ha, medium parks and green spaces 11 to 16 ha and large parks and green spaces 30 to 80 ha. Most of the sites are individually sited and discreet from one another with the exception of Eastbrookend Country Park, The Chase Nature Reserve and Central Park, which abut one another and form an extensive contiguous network of open space.
This part of the Phase 2 study, therefore, commences a process of rigorous recording and monitoring of the spatial aspects of parks and green spaces for the whole of the Borough.
Page 286 It is envisaged that this study will eventually be established as part of a Borough- wide Geographic Information System (GIS) which will enable park and green space issues to be handled strategically at the planning level, through to monitoring of management and maintenance of individual parks and green spaces. The spatial analysis of parks’ distribution and type is based on the London Planning Advisory committees (LPAC) hierarchy, as recommended in the Phase 1 report. This is supplemented by a Borough-wide analysis of Land Cover utilising the Urban Park Forum’s typology of different categories of parks and green space, which comprise the following:
Recreation Green Space Incidental Green Space Parks and Gardens Housing Green Space Outdoor Sports Grounds Other Incidental Space Play Areas Informal Recreation Spaces Private Green Space Productive Green Space Domestic Gardens Remnant Farmland City Farms Allotments Burial Grounds Institutional Grounds Cemeteries School Grounds Churchyards Other Institutional Grounds
Wetland Woodland Open/Running Water Deciduous woodland Marsh, Fen Coniferous Woodland Mixed Woodland
Other Habitat Linear Green Space Moor/Heath River and Canal Banks Grassland Road and Rail Corridor Disturbed Ground
A series of 7 outline plans have been produced that show:
(i). Existing Borough Landscape Framework
This plan shows the existing designated parks and green spaces, mineral extraction site and Barking Reach Master Plan area based on the adopted Unitary Development Plan, October 195. In addition the plan shows railway lines and green roads. Separate plans are currently being identified to show the Bus network in relation to parks and green spaces, playground provision in relation to ward statistics and toilet and refreshment facilities.
(ii). Land Cover
This plan maps the Borough's Land Cover based on Urban Parks Forum typology listed above, identifying all areas of open land from information available from the Borough. It shows that while most of the Borough is built up, it contains some impressive areas of wildlife habitat; particularly omit southern and eastern edges
Page 287 besides the Thames and Beam Rivers. There are also large areas of recreational open space distributed throughout the Borough. Most residential areas in the Borough comprise low-density housing with front and rear gardens. The amount of land covered by private gardens is, therefore, high. Also, the Borough is dissected by a number of road and rail corridors, which provide potentially valuable green links.
(iii). Existing Parks And Green Spaces: Walking Distances
This plan maps the walking distances to and from existing parks and green spaces based on LPAC hierarchy as follows:
LPAC hierarchy Size of park Walking distances (Ha) Small local park (200m) 1 ha 2 minutes walk Local park (400m) 2 ha 5 minutes walk District Park (1.2Km) 20 ha 15 minutes Metropolitan Park (3.2Km) 60 ha 40 minutes
(iv). Parks And Green Spaces Deficiency
This plan is the inverse of the above plan number 3 and map areas of deficiency in parks and green spaces based on LPAC hierarchy. The plan shows that most parts of the Borough are served by a District Park and Metropolitan park, but that there is a general lack of local parks within 5 minutes walking distance of home.
(v). Existing Parks And Green Spaces: Access And Connectivity
This plan illustrates existing and proposed cycle paths, public rights of way including footpaths, bridleways and byways, and all entrances to parks and green spaces.
(vi). Existing Parks And Green Spaces: Poor Accessibility And/Or Connectivity
This plan shows the natural and human-made barriers such as rivers, railway tracks and major roads, links across the barriers and park boundaries where the physical and visual connection to the surrounding area is poor. Many parks are bound by back gardens limiting visual and physical connectivity with surrounding areas.
(vii). Outline Landscape Framework and Parks And Green Spaces Development Strategy
This plan illustrates the proposed Landscape Framework and the Parks and Green Spaces Development Strategy. The aim is to create a connected green network, linking all parks and green spaces and to promote green streets, especially along cycle routes. The framework also identifies areas deficient in local park provision, areas suitable for urban forestry.
Page 288 RECOMMENDATIONS
1. Improve the external appearance of boundary railings to create a welcoming, attractive and, in places – particularly entrances, a visually permeable enclosure which attracts potential users into the park.
2. Assess the necessity of all internal boundaries and, where need is proven, ensure that all are well designed, consistent and appropriate to both the character of the park and the style of the external boundary treatment used.
3. Improve the design of boundary treatments with adjacent land uses to ensure that they are attractive, secure and free from vandalism, graffiti and litter.
4. Give entrances greater presence, with prominent features which differentiate them from the rest of the park boundary, and create spaces with well designed, detailed and maintained hard and soft landscape both within the park itself and just outside of the entrance.
5. Improve the location of and provide new entrances to complement and integrate with the layout of the park and surrounding pedestrian movement patterns; avoid enclosed corners or alleyways and site away from complex internal boundary arrangements, to maximise attractiveness and safety.
6. Examine the opportunities for, and the appropriateness of, identifying and enhancing a principal ‘front’ entrance.
7. Position well maintained entrance signs prominently at all principal entrances whilst ensuring that they do not obscure or detract from attractive, welcoming and enticing views into the park itself.
8. Ensure that park plans are accurate, the design tailored to the needs of individual parks, and that links to important places in the surrounding neighbourhood are included.
9. Design routes and spaces within the park so that they respond to the presence of surrounding buildings and features, to improve the quality and definition of spaces and gain surveillance.
10. Identify opportunities to relieve the flat topography of the parks, particularly through modification of landform in response to features such as play areas and ponds or issues such as road noise. However, avoid small-scale mounding that looks out of place.
11. Create tranquil places which give greater consideration to the total sensory experience of the landscape of the parks, encompassing issues of noise, microclimate, air quality and scent.
12. Carry out an assessment of the design of structural woodland vegetation in each of the parks; Most parks would benefit from
Page 289 extensive woodland planting; formulate a tree management plan to conserve and enhance mature historic frameworks and give structure where existing character lacks identity or enclosure; and introduce diversity of species where appropriate.
13. Increase investment in horticultural excellence to provide attractive and, in some cases, unusual or culturally diverse planting displays, three dimensional structure, all-year-round interest and introduce recycling targets.
14. Implement different mowing regimes to break up large open areas in parks of suitable character and to improve the biodiversity of sites.
15. Create variety and choice in the footpath network including routes which are direct or meandering, wide or narrow, open or enclosed and ensure that when enclosed, design and maintenance ensure a sense of security.
16. Remove unnecessary footpaths and areas of hardstanding whilst ensuring that paved surfaces related to features are rationalised and properly integrated with the footpath network.
17. Invest in high quality hard materials and identify an appropriate vocabulary of materials for each park to ensure consistency; where cost constrains opportunity, target at key locations such as entrances, ornamental gardens and buildings.
18. Improve the architectural quality of buildings to give them a prestigious, accessible, welcoming and attractive presence and to reduce their sometimes fortified character subject to planning constraint issues. Consider the use of CCTV and flood lighting.
19. Introduce unique elements at a limited number of select locations which are dramatic, special and perhaps unusual, to create distinctiveness and a strong identity.
20. Consider the introduction of celebratory or commemorative spaces and ensure high quality design, materials and maintenance.
21. Carry out an audit of facilities in each park and assess the quality, quantity, layout and effectiveness, with recommendations for improvement within the context set out in this section.
22. Evaluate the usage of existing benches, re-organise layout accordingly and maximise informal seating opportunities on walls, steps, building curtilages, etc.
23. Introduce bench styles which have a ‘park’ rather than ‘streetscape’ character and site them on flat, appropriate surfaces (generally not grass); providing comfortable arrangements for groups which respond to natural congregating locations.
Page 290 24. Introduce covered seating in selected locations to provide shelter in areas of the park which enjoy high levels of surveillance; thereby deterring misuse.
25. Introduce litterbins with improved stability and robustness in unobtrusive locations and which may be emptied without causing wear to surrounding grass.
26. Introduce accurate directional signposts at focal points which have directions to places beyond the park boundary and also introduce signposts which indicate the location of the parks from the surrounding neighbourhood.
27. Refurbish and re-open public toilets (if appropriately located and designed), clearly indicate daily and/or seasonal opening times, and incorporate baby-changing facilities wherever possible. Locate toilets adjacent to core facilities, such as cafes, Ranger offices, changing rooms, play areas, etc.
28. Display accurate daily and/or seasonal opening times of refreshment facilities to encourage use at these times, and, where appropriate, significantly increase the scale and quality of facilities to attract specific visits. Undertake as part of the Asset Management Plan a review of refreshment facilities and identify a programme of review.
29. Significantly improve the design quality and maintenance of car parks, where they are provided within the park boundary, to ensure that they do not become unsafe and degraded spaces.
30. Assess and improve the siting of sports facilities within the overall structure of the park landscape, to ensure that they are integrated rather than intrusive, and identify opportunities to define spaces with planting whilst maintaining good surveillance.
31. Examine opportunities for diversifying the range of different sports which are facilitated: Consider encouraging less common ‘ethnic’ sports or low key provision such as chalked rounders pitches or athletics tracks with a recreational rather than serious sporting emphasis. Develop delegated management agreements for sports that encourage community ownership and use.
32. Increase publicity and information relating to use of the sports facilities, their opening times, those responsible for their maintenance, rules for use, and publicise formal groups, teams or organisations which use a particular facility.
33. Create attractive spaces close to sports facilities where non- participants are able to observe activity from an unobtrusive distance.
34. Increase capital investment in the buildings and repair and maintenance of buildings and masonry features such as retaining walls and planters to halt and reverse decay.
Page 291 35. Ensure that all entrances, areas of hard standing, sports and play facilities are interlinked by surfaced footpaths and that none are isolated from an integrated network.
36. Adopt a hierarchical approach to the maintenance of built features, grass and planting to create a prestige and well maintained appearance at especially important places, such as entrances, whilst allowing a more relaxed character elsewhere, if appropriate to the character of the park.
37. Improve the general level of maintenance input into the condition of grass and create crisply defined edges between grass areas and planting beds to ensure a well maintained appearance.
38. Develop a fast response system for dealing with damage, wear and vandalism to ensure that what cannot be fixed is removed. Ensure that abandoned vehicles etc., are quickly removed.
39. Prevent damage to grass, planting and footpaths by maintenance, management and parks constabulary vehicles.
Page 292 40. Identify areas which are susceptible to flooding, including worn areas around benches and play equipment and non-surfaced routes, and respond appropriately.
41. Maximise the number of direct and well-designed thoroughfares whilst providing the choice of more secluded areas within the park.
42. Incorporate a ‘hierarchy of risk’ into the design of the park, to provide areas and routes with high levels of enclosure, whilst retaining, at all times, the choice of open and ‘safe’ alternatives for those who feel less confident or for use at less busy times, subject to planning constraint issues.
43. Increase the maintenance requirements of the parks specifically to ensure an informal staff presence; consider publicising the weekly days or times when gardeners will be present.
44. Ensure that the use and identity of all park buildings is clearly publicised (and that daily and seasonal opening times are indicated where relevant) so that they do not appear anonymous or unused.
45. Ensure that the ‘You are here’ indications on park plans are absolutely accurate; improve ease of orientation of park plans, and that all safe entrances/exits are clearly shown.
46. Ensure that the robust design of buildings and boundaries does not give the park a fortified and unattractive character. Ensure the adoption of secure by design principles and consider use of CCTV where appropriate.
47. Consider using a formal design approach, emphasising order, maintenance and the presence of others, where security is recognised as a particularly important issue.
48. Explore opportunities to promote the understanding of nature conservation and ecological issues in ways which relate to the specific attributes of the individual parks. Where the park has an historic or formal design, changes in the type and management of vegetation must be developed in a sensitive way, or may not be appropriate at all.
49. Make management and maintenance a more visible feature in the life of the park and embrace opportunities to promote sustainable maintenance techniques.
50. Increase the educational role of the parks, through partnerships with schools and other organisations, and through capitalising upon the presence of facilities such as the Millennium Centre.
51. Produce a Parks Charter for service standards.
52. Develop Park Friends Groups to encourage active involvement in parks.
Page 293 53. Produce an Events and Marketing Strategy that promotes active and inclusive use of all of the Borough’s parks and green spaces.
54. Explore opportunities to promote health education in partnership with local schools and the health authority.
55. Identify the potential of particular parks to facilitate exercise and a healthy lifestyle. This may focus on larger parks where safe pedestrian links, cycle routes and ‘room to exercise’ can be integrated into the park, without the creation of separate and conspicuous exercise trails or features which may deter the less confident.
56. At the next review of the Unitary Development Plan promote the development of strategic links to the Thames Chase Community Forest and other Pan-London links. Maximise the number of designated Recreational Footpaths, Cycle Routes, Green Chains and Greenways that link to, and pass through, the parks to enhance their role and prominence in people’s lives. Where routes follow park boundaries, assess the feasibility of their passing through the park or extend the park to include the route.
57. Establish a coherent policy towards dogs use of the parks and publicise a ‘code of conduct’, tailored to each site, through prominent communication of expectations on entrance signs.
58. Through consultation with local communities, identify whether there are particular parks where the creation of more extensive dog-free areas would be welcomed, and would encourage greater and more diverse use of the park.
59. Develop the general landscape of the park as a stimulating environment for children, with informal opportunities for play, such as changes in level, topographical interest, robust vegetation/woodlands and tree climbing, etc.
60. Improve the relative location of play areas by siting them closer to supporting facilities (especially toilets and refreshments); site away from busy roads wherever possible, and introduce seating opportunities for accompanying adults to supervise from attractive spaces set back slightly from the main play zones.
61. All play areas need to have good, comfortable seating for adults, toilets and drinking fountains nearby. Access to first aid should also be considered.
62. Create play areas in well designed and structured settings to improve quality of child stimulation and to reduce negative impact on the general appearance and amenity of the park landscape.
Page 294 63. Introduce trees and vegetation into play enclosures for shade and interest, wherever possible and appropriate, and explore opportunities for a planted definition of spaces whilst ensuring intervisibility and security.
64. Introduce site specific play equipment and features that promote holistic play, possibly involving artists and incorporating a diversity of materials.
65. Rationalise surfaces around play equipment and avoid the use of grass near play equipment where it is unlikely to withstand levels of wear and tear.
66. Exclude shelter (e.g. helter-skelters) from young children’s and toddlers’ play areas to avoid encouraging congregation of unsupervised older children in inappropriate locations.
67. Encourage the appropriation of parts of parks by teenagers, especially where located close to secondary schools, to facilitate legitimate congregation in appropriately designed spaces.
68. Research teenage use of the parks to identify the facilities and design approach which encourage use; consider issues around lighting, evening access, seating shelter and privacy.
69. Research needs of specific user groups, such as ethnic minorities and disabled people, to identify specific requirements and involve the local neighbourhood in design and management decisions in their local park.
70. As part of a generally enhanced programme of well publicised events throughout the parks, explore opportunities for culturally specific events to maximise and diversify appropriation of parks (e.g. diverse or ‘ethnic’ sports, music based events, ‘Sunsplash’, ‘Gay Pride’, ‘Summer Rites’, Para-Olympic style sports, etc.).
71. Assess the feasibility of diversifying the uses of buildings in or adjacent to parks. Possibilities might include day or drop-in centres, crèches, community group, training or educational projects which complement particular parks.
72. Ensure that a particular management emphasis is placed on communicating welcome to ethnic minorities in those parks which are located in areas of lowest ethnic residency and where confidence to use the parks is likely to be lowest.
73. Introduce integrated play equipment, which is specifically appealing and accessible to disabled children, and develop the diversity and tactility of materials used.
74. Ensure that play features comply with the DDA act.
75. Identify opportunities for provision of appropriately located disabled
Page 295 parking spaces in adjacent streets where car park provision does not exist within the park.
Page 296 BARKING AND DAGENHAM PARKS EVALUATION SCORES Barking Park Park Green Castle Reserve Nature Chase Area Central Park Central Park Country Eastbrookend Gardens Road Essex Park Goresbrook Park Greatfields Park Heath Field George's King Avenue Hill Kingston Ground Recreation Gate Marks Park Mayesbrook Park Newlands Park Dagenham Old Parsloes Park Park Pondfield Ground Burial Quaker Park Chad's St Churchyard Margarets St St Peter & St Paul's Churchyard Leys The Quay Town and House Park Valence Average Section Overall ENTRANCES 6 44454545432243435244434543.8 7 31433413311131434114532422.6 Average Score 3.5 2.5 4 4 3.5 4.5 2.5 4 3.5 2 1.5 1.5 3.5 2 4 3 4.5 1.5 2.5 4 4.5 3 3 4.5 3 3.2 GENERAL FACILITIES 8 51N/A04501440055545305N/AN/A3N/A43 9 20041400200011512112200521.4 10 40032402201022523203201521.9 11 0N/A0004N/A0N/AN/AN/AN/AN/A0N/A00N/AN/A00N/A0N/A00.3 12 3N/AN/A405N/A00N/A0N/AN/A0N/A30N/AN/A05N/A2501 13 40441502402002534112441422.4 14 205315N/A02N/AN/AN/A01N/A01N/AN/A15N/A0N/A51.9 15 0N/A2332N/A00N/AN/AN/AN/A0N/A30N/AN/A05N/AN/A051.6 16 50N/A01N/A01400001034203000421.3 17 32N/A04N/AN/A12000345342N/A4N/AN/A3N/A22.3 18 40503520000033504002530352 Average Score 2.9 0.4 2.3 1.9 1.8 4.3 0.3 0.6 2 0.6 0.4 0 1.8 1.7 4.3 2 2.6 1.6 0.3 2 3.1 1.4 1 3.7 2.6 1.8 LANDSCAPE CHARACTER AND QUALITY 19 403315N/A1410021535214541322.5 20 405114N/A23000113351N/A4420222.1 21 41511521300111425213551522.4 22 11321311311111514121541412 Average Score 3.3 0.5 4 1.8 1 4.3 1.5 1.3 3.25 0.5 0.3 0.5 1.3 1 4.3 2.3 4.8 1.5 1.3 3 4.8 3.8 0.8 3.5 1.8 2.2 SECURITY AND VANDALISM 23 42040000520010040005002501.4 24 34254353451153434323214533.3 25 43154344453253434133323533.4 26 514244N/A3510025235204211122.5 27 41253423251143434114212432.8 28 22442432312331412242242522.6 29 33543533321131523333343533 Average Score 3.6 2.3 2.6 4.1 2.9 3.3 2.8 2.6 3.7 3 1.1 1.1 3.3 2.3 3.3 2.7 3.1 1.7 1.9 3.4 2 1.9 2.8 4.3 2.3 2.7 CHILDREN AND 'THE YOUNG' 30 20N/A02N/AN/A1410043524203N/AN/A4N/A32.1 31 1N/AN/AN/A1N/AN/A322N/AN /A315342N/A5N/AN/A5N/A32.9 32 305225N/A0200030505000N/A30N/A01.6 33 32511511200001224203340231.9 34 30N/A31002100043504203000531.6 Average Score 2.4 0.5 5 1.5 1.4 3.3 0.5 1.4 2.2 0.6 0 0 2.8 1.6 4.4 1.4 4.2 1.6 0 2.8 1.5 2.3 1.8 3.5 2.4 2 DISABLED PEOPLE 35 40054324414134544244410533 36 500224N/A0000002420000202330.1 Average Score 4.5 0 0 3.5 3 3.5 2 2 2 0.5 2 0.5 1.5 3 4.5 3 2 12230.51432.2 ELDERLY PEOPLE 37 40034401300001244114320421.9 38 200412N/A0200001512012300521.4 39 500150N/A0100000244004300331.4 Average Score 3.6 0 0 2.6 3.3 2 0 0.3 200000.7333.30.30.73.330.7042.31.5 REPAIRS, MAINTENANCE AND CLEANLINESS 40 13431431111131512111231512 41 313425N/A23N/A2N/A33523122333532.9 42 32N/A31N/AN/A2221N/A22422112233522.2 43 33142N/A33332233434213233532.8 44 224435334N/A11N/A2525314332533 45 3 2 N/A N/A 2 N/A N/A 2 2 N/A N/A N/A N/A 2 N/A 2 4 2 1 2 N/A 3 N/A 5 2 2.4 46 12551551111522515121555533 47 21443431413333524343342533.1 Average Score 2.3 2 3.5 3.9 1.9 4.6 3.4 1.9 2.5 1.6 1.6 2.2 2.7 2.3 4.7 1.9 3.6 1.6 1.6 2.3 2.9 3.4 2.7 5 2.5 2.8 ECOLOGY, EDUCATION AND HEALTH 48 34500502000003003004050021.4 49 005005N/A00N/AN/AN/A00000000450N/A01 50 22522523222222222222252222.4 51 000005N/A00N/AN/AN/A00003000000000.4 Average Score 1.3 1.5 3.8 0.5 0.5 5 1 1.3 0.5 1 1 1 0.5 1.3 0.5 0.5 1.8 0.5 0.5 1.5 1.5 3.8 0.5 0.6 1 1.3 MANAGEMENT 52 31513503300033333303000N/A32 53 43334333423344444234334043.2 54 005025N/A00N/AN/AN/A00000000430331.2 Average Score 2.3 1.3 4.3 1.3 3 4.3 1.5 2 2.3 1 1.5 1.5 2.3 2.3 2.3 2.3 2.3 1.7 1 2.3 2.3 2 1.3 1.5 3.3 2.1
Total Average (1-5) 2.9 1.1 3 2.5 2.2 3.9 1.6 1.7 2.4 1.1 0.9 0.8 2 1.8 3.1 2.2 3.2 1.3 1.2 2.6 2.9 2.3 1.4 3.5 2.4 2.2
0 Absent 1 Bad 2 Poor 3 Average 4 Good 5 Very Good 1578LP/MLF/JH/Barking and Dagenham/February 2002 Page 297 Page 298 Appendix 3
Stage 3 Study Executive Summary
Scope
This study was carried out by Landscape Design Associates during the period January 2002 – March 2002. It is two-part study; Part one is a review of management options for delivery of a Parks & Green Spaces Strategy and Part two is an assessment of funding options for the delivery of a Parks & Green Spaces Strategy.
Management Options
Summaries of the main management options are detailed below. Preferred delivery options will be presented to the Executive as part of the Best Value Review of Parks, Open Spaces & Grounds Maintenance which is due to report in June 2002.
In House
The in-house provision model is the one currently adopted by the London Borough of Barking & Dagenham for Parks & Green Spaces. Since this model is currently being tested through a Best Value Review it has not been included in the terms of reference for this report.
Procurement
The contractual procurement of services is well tried and tested, and is, therefore, the more traditional approach. The three main methods of procurement under a contractual arrangement are through competitive tendering, contractor selection, and negotiation. All three should have some financially competitive element. The advantages of procurement by contract are that:
Best Value can be achieved - the service can be delivered to a higher quality at the best price there are clearly defined services required within a specific time frame there are a number of potential providers for the service who are prepared to compete for the service on the basis of quality and price, and manage the risks service delivery can be monitored and measured effectively against a specification and programme, and payments made or penalties charged accordingly.
The disadvantages of procurement by contract are:
It is usually relatively short-term and, therefore, investment, training, commitment, etc., can be weaker The longer and larger the contract, the more difficult it is to determine if default occurs It is relatively inflexible - if a service is not specified within the contract, it will have to be commissioned Risks associated with non-performance, although clearly the responsibility of the contractor, in practice reflects on the local authority.
Page 299 Considerations
Compulsory Competitive Tendering (CCT) did lead to a severe and consistent decline in the funding, management and maintenance of parks and green spaces. There must, therefore, be explicit understanding that this is a method of achieving Best Value and not one for achieving solely a reduction in price.
Having said that, there is no real reason why competitive tendering could and should not be used to procure parks and green space services. The pre-requisites are that:
the scope of the services must be defined adequately - usually through a specification for items of work, or for performance, and payments agreed at appropriate points the form of contract must be suitable to the works required - where the work is reasonably traditional this is usually not a problem, however, where the nature of the work is broader than, say mainly maintenance works, new forms of contract may have to be prepared the contractor must be experienced in delivering the required works there must be adequate provision for monitoring the quality of the service, and sanctions for non-performance this is a method of achieving Best Value, rather than cheapest price where the transfer of staff is involved TUPE regulations are adhered to.
In particular, the more strategic services required, such as park planning, design and development can be problematic within a CCT contact precisely because they require intervention within the core Borough service departments - particularly within the planning department.
Procurement by agreement
The procurement of services by Agreement is less well tried and tested, and would, therefore, be a much more innovative approach. The three main methods of procurement by Agreement are through: Joint Venture, Trust, and Service Level Agreements. As with the contractual procurement methods, there should, at a minimum, be a financial appraisal, if not a financially competitive element.
Joint Venture
A Joint Venture is an agreement between two or more organisations to pool their resources, experience and skills to achieve defined goals. They usually come about where the pooling of resources is mutually beneficial, and facilitates the achievement of goals and objectives that would be beyond the individual parties. Joint Ventures are usually commercially driven, for example, where two companies agree to combine to provide a service that each could not provide individually, and to share profits and risks.
A joint venture agreement could be reached between a commercial organisation and a local authority to provide parks and green space services. It is likely to be a long-term agreement, and be based on some form of contract and specification. Careful consideration would need to be given to:
Page 300 The form of the agreement - the contract between the two parties and the share of the risks involved the scope of the services - as with traditional contract procurement, a specification for items of work, or for performance; however, flexibility in the provision of services could be written into the contract payments could be agreed in various ways and not necessarily tied to completion of specified items of work, or performance or at agreed points in time the joint venture contractor must be experienced in delivering the required works there must be adequate provision for joint monitoring of the quality of the service, and agreed procedures for addressing perceived non-performance this is a method of achieving Best Value, rather than cheapest price that if transfer of staff is likely, that TUPE regulations are adhered to.
The advantages of a Joint Venture agreement are:
Longer term agreement which allows greater investment in capital and human resources Financial flexibility - eg: borrowings would be cheaper for the local authority than for the commercial partner; and, payments could be made in advance thereby allowing for more investment at the start of the agreement Shared skills, expertise and risks Longer term and more predictable workload and profits for the commercial partner Flexibility in operation of the agreement
The disadvantages are:
Lack of flexibility to determine the agreement for whatever reason The risk for default remains, ultimately, with the local authority - public perception of the delivery of a public service rests with the local authority.
Management Contracting
Management contracting is an arrangement by which specialist services are contracted and managed through an in-house client arrangement an example of which would be the Borough’s existing management arrangements with the London Wildlife Trust for the Chase Nature Reserve.
The advantages of management contracting are:
In-house control by a small management team Flexibility of contract period Flexibility in balancing resources over a short-medium term Diversity of provision
Disadvantages are:
Lack of potential for building a corporate culture and management ethos Lack of flexibility to determine contracts for whatever reason The risk of non performance remains clearly with the Local Authority Complexity in operating several contracts concurrently
Page 301 Trust
The trust model is often promoted as a potential solution to many of the problems currently facing local authority parks services. It follows on from the transfer of many local authority leisure services such as fitness centres, museums, theatres and art galleries to trust status.
The establishment of Trust status for the delivery of parks and green space services by a Local Authority requires very careful consideration. It is a radical option that, effectively transfers all rights and responsibilities to a third party organisation in perpetuity. However, it should be recognised that complete responsibility for ownership, management and maintenance of public open space will remain the ultimate responsibility of the local authority should a Trust fail.
The most significant consideration for a local authority parks and green spaces service conversion to Trust status is democratic accountability. Elected members of the local authority are not allowed to become Trustees, they therefore forfeit control over the trust, which raises legitimate concerns. Consequently, the make up and nature of the board of trustees, and the objects of the Trust at establishment are the crucial.
The general advantages of Trust status are financial and organisational:
Tax incentives Ability to generate and reinvest profits Ability to apply for grant-aid denied to both local authorities and private companies A single-purpose, single-focussed organisation Freedom to achieve it objects without recourse to wider corporate objectives and restrictions
The disadvantages are:
Lack of direct, democratic accountability Reliance on external funding - revenue will largely come from the Local Authority Lack of support of a larger corporate entity and all its expertise
Conclusions
No model is perfect; each has its advantages and disadvantages.
The primary problems of many local authority park services are:
The low political profile of parks and green spaces Consistent under funding in both capital and revenue over the last twenty five years The inability of local authorities to dedicate adequate resources because parks are not allocated specific funds under the Standard Spending Assessment rules set by central government The devastating physical decline in the parks estate that this has engendered and the consequent need for investment of additional resources The demoralisation of parks staff from officer level to grounds maintenance staff that this has engendered The debilitating reduction in skill levels from officer level to ground maintenance staff.
Page 302 Consideration of any management options should address all these issues holistically. The aim should be to achieve a well-funded, well-managed parks and green spaces service that measures its success through providing a diversity of well-used, well- managed and beautiful parks and green spaces, that satisfy identified community needs. The Best Value Review of Parks, Open Spaces and Grounds Maintenance will identify the best management model for achieving this in its report to the Executive in June 2002.
Funding Options
This section highlights the existing capital and revenue budgets available to the parks and countryside service and looks at sources of external funding that are being and could be used to complement these. It is recognised that the borough has been successful in achieving external funding from a variety of sources. Additionally, the £11 million allocated for capital projects will, hopefully, see the renovation of many of the borough’s parks and green spaces. With matched funding from external sources, this will see a significant change to parks and green spaces within the borough. However, revenue funding will have to be found to enable the borough to manage and maintain it’s expanding, and renewed parks and green space estate. It is also recognised that the external funding is almost wholly for capital projects, and does not provide any additional revenue funding. This is a serious issue - whilst the borough will benefit from additional parks and green spaces, it will have to allocate revenue funding from internal sources.
Exiting & Current Provision
The following capital programme for parks & open spaces has been secured for 2002/03:
Amount Project £ 55,000 Reconstruct Access Road Central Park Depot £ 25,000 Playground Improvements Goresbrook Park £337,000 Beam Valley Phase 1 £469,000 Beam Valley Phase 2 £170,000 Parks & Green Spaces Strategy
Overall the parks service has been successful in securing capital funding from the authority; the 3-year park playground programme of £500,000 is testament to this. Further to the above the service has recently secured an £11m 5-year capital programme from 2002-07 for parks refurbishment. This is very laudable, however, more is still needed. It is essential that as much of the £11m is matched to by external sources.
Revenue funding
Historically, parks provision has not been a statutory responsibility for local authorities.
The Urban Parks Forum (UPFOR) argued that historic parks have come out of this the worst and that, overall, the lack of investment is creating a polarisation of provision i.e. the good parks are getting better and the bad parks are getting worse. The revenue deficit per year since 1979/80 is estimated to be in the region of £126 million. To redress this issue UPFOR stated:
Page 303 In order to restore the level of expenditure previously applied to historic parks, current budgets would require and increase of around 83%.
The Urban White Paper and the Urban Green Spaces Taskforce recognized the problem of inadequate funding. The Government has established cross-departmental Spending Review on ‘Improving the public realm’, which will feed into the Government’s 2002 Spending Review. In turn, the findings and recommendations of the Urban Green Spaces Taskforce will feed into the Spending Review.
Additionally, the Planning Green Paper, and revisions to PPG: 17 Sports and Recreation, address the issue of planning obligations. The recommendations of the Urban Green Spaces Taskforce report will feed into the final PPG: 17, and into Planning legislation coming out of the Green Paper. It is likely that there will be clearer guidelines on the use of Planning Obligations - more likely to be Impact Fees - to achieve funding of parks and green spaces.
Public support for additional expenditure is clear. The Borough’s MORI survey prepared to inform its future expenditure plans found that 43% of residents - the second highest of all categories - believed that parks and open spaces are the most important priority for council expenditure, that they are the most used service - 57% of all residents; and, that 25% of residents would like to see an increase in expenditure at the expense of other services. When asked, people are prepared to pay for a safe, attractive, good quality public realm.
The local context
In common with the majority of local authorities, Barking and Dagenham has seen its year on year budget for parks and green spaces decline since 1979. To restore levels of funding to 1979 levels will require a minimum, budget increase of 20% across the board - and this would not account for the substantial areas of new parks and green space since 1979.
External funding sources
A comprehensive list of other sources of funding by type, source, description, what they fund, the size of grants, etc., is listed in matrix form at the back of Appendix 3.
External Sources secured by London Borough of Barking and Dagenham for Parks & Green Spaces include:
A number of specific bids have been achieved for parks and green spaces in the Borough:
Single Regeneration Budget Rounds 1 and 2 - East Thameside Partnership
Amount Project
£125,000 Scrattons Eco-Park £ 55,000 Newlands Park Phase I £ 54,000 Newlands Park Phase II £200,000 Goresbrook Park Phase I
Page 304 All of the above are projects being implemented as part of the Borough's A13 Artscape project.
Single Regeneration Budget Round 5 - Heart of Thames Gateway
Amount Project
£210,000 Beam Valley Country Park Phase II £100,000 Beam Valley Country Park Phase III (this is in the process of being bid for)
Single Regeneration Budget Round 6 Amount Project
£225,000 Goresbrook Park Phase II – which has been allocated to Phase II of the A13 Artscape Programme for Goresbrook Park
Arts Lottery Funding – A13 Artscape project
Amount Project
£100,000 Newland Park £ 60,000 Goresbrook Park £ 80,000 Castle Green
Beam Valley Country Park (Excluding Single Regeneration Budget secured)
Phase 1
Amount Project
£405,880 London Development Agency £150,120 LBBD Capital Provision
Phase 2
Amount Project
£210,000 SRB5 (see above), £100,000 Transport for London (TFL) £159,100 LBBD Capital Provision
Phases 3 and 4
Amount Project
£ 50,000 S106 Agreement secured/secured in principle (West Ham United FC), £ 10,000 Barking College £280,000 Old Dagenham Hospital site
Page 305 Also a number of small windfall opportunity awards have been achieved for these phases such as £30,000 match funding from the Environment Agency through its local LEAP programme. Residual funding in the process of being secured for the final phases 3 & 4.
Barking Park HLF Bid
Following the award from HLF of £12,000 towards the production of a restoration management plan, this project is being delayed due to the proposed ‘restaurant in the park’ development for the redundant Lido site. The issue is currently being dealt with by the Secretary of State following refusal of planning permission. The total estimated project costs for this are £1.9 million and it is proposed that the Council's match funding contribution (25% of project costs) will come via the authority’s capital programme and the S106 agreement for the restaurant in the park development (£152,000). The phase 2 application is currently being prepared for submission July 2002.
Two other HLF projects are in progress, Eastbury Manor House and Barking Abbey. Eastbury Manor House was a direct Stage 2 bid and was successful in securing £525,000. Barking Abbey will also be a direct Stage 2 bid.
Finally through the Thames Chase Community Forest Partnership the Borough has secured since 1997 over £100,000 of grant aid, which has included match funding for two posts within the Parks & Countryside Section.
Conclusions
Since 1996 there has been a significant increase in funding specifically targeted at urban parks, initially through sources such as the Heritage Lottery Fund and latterly through the New Opportunities Fund. However authorities that have realised that urban green space has a major role to play in urban and social regeneration have accessed much larger sources of funding, especially those whose areas contain significant levels of deprivation and thus attract central government support.
In order to access funds normally beyond the reach of local authority parks services, more creative authorities have formed partnerships with other organisations from public, voluntary and community sectors.
There are also, however, substantial sums of money available within local authority grounds maintenance and staffing budgets, which can account for many millions of pounds. Whilst it has been shown that these have been dramatically reduced there are often still financial resources here that can be re-allocated to support regeneration and restoration programmes as well as human resources that can be re-directed to support a more creative and community driven approach to service delivery.
Whatever funding sources exist, a Parks and Green Spaces Strategy is required to set direction and determine priorities for saving and spending. Best Value reviews will also require 2% efficiency savings and improved service delivery. It is the outcomes of the strategy and the Best Value review that will largely determine which funding sources should be targeted. Through both of these processes the borough will be able to undertake fundamental and in depth assessments of the future direction of the service and set out key targets which will impact on both human and financial resources.
Page 306 The borough has been very successful in securing external capital funding in excess of £2million and has also recently secured an internal capital provision of £11m. As with every parks service, however, revenue is still a key issue - capital improvements usually require additional revenue commitments to deliver higher standards of maintenance or to simply maintain features that had been lost, fallen into disrepair or simply been omitted from any regular maintenance programmes. All authorities need to consider the implications of such issues at a strategic level, otherwise the findings of the parks needs assessment, that good parks get better at the expense of bad parks getting worse, will be further exacerbated. Revenue funding is also key to any alternative management options in that whatever model is chosen core revenue funding still has to come from the local authority.
It is recommended that as part of the Best Value review, and the preparation of the Parks and Green Spaces Strategy, that the Borough:
Identify increase/shortfalls in capital funding since 1979 in real terms Identify increase/shortfalls in revenue funding since 1979 in real terms Identify the increase in parks and green spaces since 1979 in type, area, and capital expenditure Identify future capital investment proposed over 5, 10 and 15 year periods Identify the revenue costs required to manage and maintain the increased estate in line with the recommendations of the Parks and Green Spaces Strategy.
The Borough should use this data to establish realistic, annual revenue requirements to manage and maintain its parks and green spaces, forecast for 5, 10 and 15 year periods for:
the existing estate the proposed improvements to the existing estate, and the proposed new estate.
These figures should also allow for the costs associated with establishing the new Parks and Green Space Service as recommended by the Best Value review and the in the Parks and Green Spaces Strategy. In line with the Urban Parks Forum’s Public Park Needs Assessment, it is expected that an increase in revenue funding of a minimum of 20% per annum will be required to restore 1979 levels, and that increases beyond that will be required to manage and maintain the new, and proposed new, and the improved estate.
Page 307 Page 308 Funding Type Funding Source Description Funding Objectives Who they fund Size of Grants / Fund Case Barking a Studies
Community Fund (Formerly Lottery Distribution Body set up to "support main aim is "to meet the Charities, community and voluntary no upper limit given, will consider Colin Glen Local Authority would not be eli National Lottery Charities charitable, benevolent and philanthropic needs of those at greatest groups - not local authorities or private 100% funding projects Board) organisations throughout the UK" disadvantage in society sector www.community- and to improve the fund.org.uk quality of life in the community" Heritage Lottery Fund - Lottery distribution body which launched the The restoration of Local Authorities mainly but some entire park bids have exceeded Walsall, Have secured £12k for Fesibility Urban Parks Programme Urban Parks Programme in March 1996 - historic parks, partnerships with voluntary bodies and £4.0 million, grant is usually 75% Sheffield with Secretary of State due to ref www.hlf.org.uk HLF's aim is "to safeguard and enhance the landscapes and gardens - some privately owned sites with public of total cost Eastbury Manor and Barking Ab heritage of the United Kingdom" preferably listed parks access may also be eligible. with named designers but others considered
New Opportunities Fund - A Lottery Distributor created to award grants Funding areas are split Award partners were announced 26.9.00 - various Walsall Sport England should be targette Green Spaces and to health, education and environment into three broad themes: includes: Barnados (Better Play) £9m, follow up works. Friends groups Sustainable Communities projects throughout the UK. Many of their health, education and BTCV (People's Places) £6.5m, Sport Countryside Agency schemes. www.nof.org.uk grant programmes focus particularly on environment. England (Playing fields and community those in society who are most disadvantaged. green spaces)£31.6m
New Opportunities Fund - as above as above will be launched easter 2002 £99m by 2004 of which £77.5m in N/A not yet known Transforming Communities England www.nof.org.uk
Awards For All Small awards scheme of HLF / Arts Council To help small grops fund Voluntary and Community Groups £500 to £5000, spent £12.5m in N/A Loal authority would not be elibi www.awardsforall.org.uk / Sport England / NOF / Community Fund programmes that involve 2000 people in their community. Page 309
Single Regeneration Budget - A competitively bid for regeneration fund Output driven measures, Usually run buy a partnership group, N/A Walsall, East Thameside Partnership (S rounds 1 to 6 targeted at deprived, mostly urban areas. job creation, hectares of mostly led by local authorities but may Sheffield, £125,000 - Scrattons Eco-Park www.dtlr.gov.uk Main aims are economic, environmental and land improved, include private, voluntary and community Brstol, East £ 55,000 - Newlands Park Phase social regeneration. community capacity sectors Staffs £ 54,000 - Newlands Park Phase building £200,000 - Goresbrook Park Pha Heart of Thames Gateway (SR £210,000 - Beam Valley Country £100,00 - Beam Valley Country Groundwork Trust (SRB6) Sure Start Launched in January 1999 the scheme aims child poverty, social 60 trailblazer areas running since 1999, 69 N/A N/A Thames£225 000 View G - round b k2 P The k Ph sel www.dfee.gov.uk/sstart/ to "improve the health and well being of exclusion, improving more areas asked to apply in 2000, 63 View ward within the boundaries families and children.. so children are ready access to family support, more in the third wave; target of 250 by of the Thames River. to thrive when they go to school" health services, early 2002 - bids coordinated by local learning authorities
Neighbourhood Renewal Established by Neighbourhood Renewal Unit Tackling deprivation in 88 local authroities with the poorest areas 2001-02 £200m Allocation 2001/02 £ 0.816m All Fund (NRU) - central government follow on to the poorest in England 2002-03 £300m 2003- Allocation 2003/04 £1.633m To www.neighbourhood.dtlr.gov SRB neighbourhoods 04 £400m .uk/fund/index.htm
Community Chest Part of the above but administered through To support community voluntary sector organisations in the 88 2001-02 £10m Loal authority could not apply (Neighbourhood Renewal Government Offices for the Regions groups and social poorest areas of England 2002/03 £15m Fund) enterprises 2003/04 £25m www.nighbouhood.dtlr.gov.u k/commchests/index/htm New Deal for Communities administered through regional government Tackilng social Local authorities 1st round £780m Walsall Barking and Degnham not includ www.neighbourhood.dtlr.gov offices,targetted at deprived neighbourhoods exclusion in deprived £1.1bn for 2nd round .uk/newdeal/index.htm neighbourhoods in typically £58m over 10 years per England project London Development The Regional Development Agency for Key priorities are: Local authorities, private sector, voluntary 2000/01 £300 million N/A Beam Valley Country Park - Pha Agency London Economic Growth, & community sector www.lda.gov.uk Knowledge & learning, Diversity, inclusion & renewal & sustainable development
LPSA Agreement between an individual local Funding & access to Local authorities. Piloted with 20 local Full reward grant of 21/2% of a N/A not yet included in the scheme www.local- authority and the Government. It sets out the additional borrowing authorities in 2000/01. year’s net budget is given for regions.detr.gov.uk/lpsa/help/ authority's commitment to deliver specific conditional on linking achieving the “stretching” targets 01.htm improvements in performance, and the with existing scenes such in full. A scaled-down grant is Government's commitment to reward these as BV & NRF and given for achieving a large part of improvements meeting specific targets the improvement.
European Regional The European Regional Development Fund Objective 2: Supporting ERDF is usually aimed at projects Assistance is given in the form of Sheffield, £158m - Thames, Riverside and Development Fund (ERDF) - (ERDF) is one of the European Structural the economic and social promoted by the public sector. Those grants towards the costs of Newark and Objective 2 Funds. The ERDF was established in 1975 conversion of industrial, involved include government departments, projects. These grants are set at a Sherwood with the aim of stimulating economic rural urban and fisheries local authorities, Regional Development level which is the minimum development in the EU's least prosperous areas facing structural Agencies (RDAs), other public bodies and required to enable the project to go regions. As the membership of the EU has difficulties. voluntary sector organisations. Generally, ahead. As a general rule, however, grown, the ERDF has developed into a major ERDF grants are not paid direct to profit- the EC contributes no more that instrument for helping to redress the main making private sector companies but, in 50% of the eligible cost, although regional imbalances in the Community by certain circumstances, assistance can be it can be as much as 75% for participating in the development and given to encourage the development of projects in Objective 1 regions. structural adjustment of regions whose Small and Medium-sized Enterprises The rest of the funding, known as development is lagging behind and the (SMEs). Private sector companies are 'match funding' comes from other economic and social conversion of regions. encouraged to present applications in sources such as local authorities,
Page 310 partnership with a public sector body. RDAs, Government schemes including the Single Regeneration Budget, other public bodies and the private sector. £2.2 billion for
Landfill Tax Credit Scheme permits Landfill Operators to make The main aims of the Money is distributed through registered land reclamation, waste recycling Newark and check with Entrust / Environemn www.entrust.org.uk voluntary contributions to enrolled Scheme are to help environmental bodies e.g. wildlife trusts, and minimisation, pollution Sherwood , Environmental Bodies for a range of reduce reliance on Groundwork etc funding often to reduction, education, restoration of Walsall specified purposes. HM Customs and Excise landfill and to community and voluntary groups, plus parks and buildings appointed the Environmental Trust Scheme compensate by local authorities Regulatory Body Ltd (Entrust) to run the "environmental scheme improvements" those living in the vicinity of landfill sites. There are also 6 approved objectives (see what they AGENDA ITEM 9
THE EXECUTIVE
28 MAY 2002
REPORT OF THE DIRECTOR OF HOUSING & HEALTH
DIGITAL RADIO NETWORK FOR EMERGENCY FOR DECISION SERVICES
On 7 February 2001 the Assembly agreed a moratorium on the installation of telecommunication masts on Council owned buildings. This report asks the Executive to consider an application for the installation of telecommunication equipment for use by the Emergency Services, which, if agreed, would require a variation of this Policy.
Summary
This report is to advise Members of a request to install digital transmission equipment on a Housing & Health property for use by the emergency services and to seek their decision in view of Minute 85 of the Assembly held on 7 February 2001 07.02.2001 in relation to a moratorium on further telecommunications sites.
Recommendation
That Members consider the proposal in light of the Stewart Report recommendations and decide either:
(i) to rigorously apply the moratorium on telecommunications sites; or (ii) to request that Officers arrange a presentation by EMC Projects on this system to enable them to make an informed decision on the request.
Contact: Title: Maryam Collard Acting Central Housing 020 8227 2180 (Telephone) Manager 020 8557 2846 (Fax) 020 8227 2478 (Minicom) Email: [email protected]
1. Background
1.1 In February 2002 this Department was approached by a company working on behalf of the Metropolitan and City of London police for permission to locate a digital radio service network ( known as TETRA) for the emergency services on the roof of a residential tower block in the Borough.
1.2 Officers advised the applicants of the moratorium on further telecommunications installations on Council properties. A request was made to approach Members as this was not a commercial but a public service network.
1.3 The Stewart Report into mobile phone technology safety urged caution with equipment operating at or near 16 megahertz. Airwave operates at 17.6 megahertz. Professor William Stewart has said that the TETRA system operates on a frequency that should be avoided if at all possible. Some local
Page 311 councils have refused permission for the masts to be installed in their areas and it would appear that the ambulance and fire services have refused to use the system.
1.4 The Metropolitan police have had a licence for their police band radio equipment sited in the borough since 1997 this installation works on 439 - 462 megahertz and will be made redundant by the proposed TETRA system.
2. Conclusions
2.1 This request is for a site to form part of a network for the emergency services within the M25. There are concerns within the emergency services about the long term safety of their personnel using this equipment.
2.2 Members can find further information and opinion regarding the TETRA/Airwave system on the following web sites to enable them to come to a decision:
• www.nrpb.org.uk • www.airwaveservice.co.uk/Tech_tetra • www.who.int/peh-emf • www.polfed.org/magazine/03_2001 • www.vnunet.com/Analysis/1102726
Background Papers used in the preparation of this report:- • DTI list of approved users under the Licence - 2002 • NRPB Press Release P16/01 and associated reports on TETRA • Federation of Electronics Industry report on TETRA - 2001 • BT - O² - Brochure November 2001 - Airwave service guide and factsheet PHME 38111 on health • WHO publication on EMF and the TETRA system - 2002
Page 312 AGENDA ITEM 10
THE EXECUTIVE
28 MAY, 2002
REPORT OF THE DIRECTOR OF LEISURE AND ENVIRONMENTAL SERVICES
FUTURE OF BARKING AND DAGENHAM COURT HOUSE: FOR DECISION RESPONSE TO STATUTORY CONSULTATION
This report is presented to the Executive Member approval for the reply to this consultation is required prior to 1st of June.
Summary
This report provides information on the GLMCA's Strategic Consultation Document, this authority's response to their Initial Consultation Document and a summary of the GLMCA Strategic Plan 2002-2006 which proposes the closure of the Barking & Dagenham Courthouse not before 1 April 2003. The specific reasoning behind the proposal to close the Courthouse in this borough is described under Statutory Consultation under the Justices of the Peace Act 1997, which also includes the dissolution of the existing Petty Sessions areas and creation of a new Petty Sessions area to be known as Barking & Dagenham and Havering Petty Sessions Area.
The suggested response from this Authority to this latest statutory consultation is set out in paragraph 4. This reiterates the earlier comments about loss of local engagement with offenders, the conflict with the principal of the borough as a building block for criminal work and inconvenience for local residents, Magistrates and officers in additional time and cost in travelling to a court outside the borough. Taking account of the many changes and improvements proposed to the court service, more efficient processing of court work is sought to minimise this disruption. Although occurring in the past, mention is made of the considerable efforts made by this authority to replace the existing court with a new building fit for the current age. (A copy of the response letter will be available for Members on the night of the Meeting.)
Recommendation
To accept the comments made in the response to the current statutory consultation to close the Barking & Dagenham Courthouse not before 1 April 2003.
Reason
To present the views of the Authority to the GLMCA.
Contact Officer: Valerie Harding General Administration Manager Telephone: 020 8227 3222 Fax - 020 8227 3288 Email [email protected]
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1. Background
1.1 In February 2001, the Greater London Magistrates' Courts Authority (GLMCA) commenced their strategic planning process and in June 2001, published their Strategic Consultation Document with the stated aim of creating a unified, high quality, accessible and efficient service supporting the delivery of summary justice in London. This document sought comment from all parties with an interest in the above.
1.2 Within the document mention was made of the Government's priorities for the justice system, which include tackling delay particularly with youth cases, improving the treatment of victims and witnesses, improving the enforcement of court decisions, reducing the rate of attrition and improving public confidence in the criminal justice system.
1.3 In order to secure value for money in its operation the GLMCA has 2 particular priorities to address. These are the cost per case, adversely affected by spare capacity of courtrooms and the condition of its existing court facilities, requiring significant financial investment of over £12 million to bring the accommodation up to statutory standards and avoid further deterioration of the estate. This level of investment has caused the GLMCA to consider whether it is making the best use of its existing estate.
1.4 As a consequence, the consultation document suggested 6 options for future court operation of no change, minimal rationalisation, moderate rationalisation, significant rationalisation through court clustering, a clustered model including some new or redesigned courthouses and a central courthouse(s). Of these options, 5 involved the closure/amalgamation of the Barking Courthouse, with the borough's court business to be conducted at the nearest remaining courthouse.
1.5 In our response to the Initial Consultation Document last summer, the various benefits to the justice service described within the document, were welcomed. However, while understanding the need for some rationalisation of the service, concern was expressed that the possible relocation of Court services to Stratford seemed to be in conflict with the principal of the Borough being the building block for criminal work.
1.6 Poor public transport links between this borough and Stratford were cited as a potential problem. There would also be operational inconvenience in additional time and cost to both residents and Council officers, required to travel to the court when dealing with such matters as summons for non payment of Council tax or Housing related issue. The fear was that closure of the borough's courts would result in loss of local engagement and involvement with offenders and that the closure of the Youth Court would have significant financial effects for the Social Services Department plus a similar impact for the Family Court.
Page 314 2. GLMCA Strategic Plan 2002-2006
2.1 The GLMCA Strategic Plan was published in December 2001 and was prepared following wide consultation with Magistrates, District Judges, staff and other stakeholders, including local authorities. The plan sets out proposals for the future size, shape and culture of the magistrates' courts service in London.
2.2 The process set out is for statutory consultation to be initiated on those aspects of the strategic plan where there is a matter to consult on, such as courthouse numbers. An implementation plan will be produced once the results of the statutory consultation process are available (plus the Government White Paper on the Auld review of Criminal Courts with potentially fundamental implications for the future structure of the Criminal courts and the role of the Magistracy).
2.3 The plan identifies the need to manage their estate strategically, including the ability to allocate cases on a centralised or regionalised basis across London and the need for a longer term estate rationalisation and rebuilding programme, requiring a long term investment programme, based on a long term business plan.
2.4 The implementation is to roll out over a 5 year timescale beginning in April 2002, with changes to management and operational procedures first followed by courthouse rationalisation.
2.5 The preferred management option is regional with this borough situated in the North East region also comprising Havering, Redbridge, Newham, Tower Hamlets, Hackney and Waltham Forest.
2.6 The preferred estate option is for some court closures with some new build. This is intended to result in a reduction in the quantity of courthouses with a corresponding increase in quality overall, but providing what is judged by the GLMCA to be an acceptable degree of accessibility by public transport to each courthouse.
2.7 The Strategic Plan states that the combined effect of these 2 options will result in the closure of the Barking and Dagenham and Waltham Forest courts in the North East Region.
2.8 A revised role is identified for Justices' Clerks with a move to a structure with 5 regional Justices' Clerks, each carrying responsibility for a significant part of the GLMCA's business and to ensure that high quality legal advice and support continues to be provided at Bench level.
2.9 In order to manage delays and enforcement, explicit responsibility will be placed with the Justices' Clerks at regional level for the delivery of timeliness and enforcement performance with authority to achieve these and a range of appropriate measures. Amongst these will be investigation into the feasibility of introducing a central accounting office for the whole of London to allow for payment of a fine in any London facility.
2.10 Specialisation is also proposed for some court business, namely the creation of a single family panel for Greater London with family business handled on a regional basis through specialist family court facilities. The creation of a single youth panel is proposed with youth business handled at petty session area/borough level. No
Page 315 significant changes are to be made to the management of other specialisations, although they like youth and family, will each have one of the regional Justices' Clerks nominated to act as the focus for policy development for that specialisation across London.
2.11 In order to support Magistrates, a flexible all-round approach is to be created for their training incorporating appropriate competencies, best practice delivery and a themed approach, while ensuring the quality of courtroom advice and pastoral support through explicit responsibility for development of legal advisers' skills.
2.12 Providing high quality services to court users is part of the overall strategic aim. This is intended to be achieved by pursuing a range of initiatives to improve customer service, including training for all staff, development of facilities for victims and witnesses, electronic provision of information, customer help desks, improved handling of telephone calls and use of extended hours.
2.13 In terms of working with partner criminal justice agencies, the Strategic Plan recognises that the borough is the basic building block in the Criminal Justice system and that their Courthouses are their operational front line and must remain borough focussed on a day- to- day basis. It states, however, that in future some larger courthouses will be covering several boroughs. The aim is for the Bench Legal Manager to play a key role in building strong working relationships and co- ordinating cross agency work at this working level, particularly day to day case management, reduction of delays and delivery of joint performance targets. This forms part of a revised GLMCA management structure for Courthouse management, Regional management and Head Office and centralised functions with the aim of providing a unified and consistent courts’ service across London.
2.14 The Plan states that effective information and communications technology is increasingly critical to delivery of the magistrates’ courts business and the existing case handling system is one area requiring upgrading and enhancement together with a range of internal management systems and information exchange with external stakeholders.
2.15 The GLMCA’s objectives for the court estate is to
• Ensure that all their courthouses contain suitable facilities to enable all court users to access and use their buildings to conduct their business effectively and where necessary confidentially, to wait in comfort and to be assured of their physical safety. • Improve the working environment for their staff. • Make the most efficient use of their court estate while ensuring sufficient capacity remains to cope with temporary or permanent increases in workload • Ensure that Courts remain accessible from those parts of London they serve.
2.16 Across London, for existing courts, use of courtroom facilities was found to be extremely variable, with some of the newest courthouses, with the most modern facilities for court users only using half their available courtroom space with other courthouses with more cases listed to them than they could comfortably manage with their current number of courtrooms. This has determined the need for a strategic approach involving the rationalisation of accommodation and work and the replacement of older courthouses with new development. Such a strategy would
Page 316 enable better use to be made of their existing high quality buildings, provide new facilities for the benefit of court users and provide funds for re-investment in the remaining estate.
2.17 In order to achieve the aims of estate rationalisation the GLMCA is looking to the proceeds of the sale of older and/or surplus courthouses to generate the funds necessary to meet these objectives.
2.18 The GLMCA has conducted a thorough review of their estate. This analysis is based on a survey of all court sites, detailed workload data, extensive consultation with staff, Benches and court users and an analysis of accessibility data provided by Transport for London. The GLMCA recognises that their rationalisation proposals will not please everyone and that there are understandably strong local attachments to particular courts, but are convinced that all their proposals are fully justified and in the best long term interests of delivering the best possible service supported by a uniformly high standard of facilities across London as a whole.
2.19 In building their estates strategy the following are the key principles –
• Efficiency – to increase the use of courtrooms to reduce spare capacity and cost per case • Quality – to make greater use of courts with better facilities and focus on rationalisation of the existing estate to release capital receipts, to improve the remaining estate and service and provide funds for selected new developments. • Accessibility – to ensure courthouses remain accessible to the majority of court users within a reasonable time. All estate changes have been rigorously tested using a sophisticated model from Transport for London with one hour used as a general guide to maximum travel times.
• The GLMCA’s rationalisation proposals include no new build/redevelopment in the North East region in which Barking and Dagenham is situated.. Their analysis identified the Barking courthouse as unsuitable for retention within their estate primarily for quality led reasons. It is described as having poor facilities and no scope for economic improvement. The Plan states that nearby modern facilities exist at Stratford (10 courts) and Havering courthouses, (5 courts) which are underused and reasonably accessible from this borough.
3. Statutory Consultation under the Justices of the Peace Act 1997, as amended
3.1 Having identified a number of court closures, the GLMCA has to engage in a statutory consultation process for each courthouse to be closed and/or Petty Session Area changed. Consequently the GLMCA is undertaking statutory consultation on
• The proposed closure of the Magistrates’ Court at Barking and
• The dissolution of the Barking and Dagenham Petty Sessions Area and the Havering Petty Sessions Area and the creation of a new Petty Sessions Area to be called Barking & Dagenham and Havering Petty Sessions Area.
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3.2 The timescale for these proposed changes, subject to the results of consultation and decisions by Ministers is for
• The Petty Sessions Area changes to take effect from 1 January 2003. • The Barking Courthouse to close not before 1 April 2003.
3.3 The GLMCA hopes to put in place the regional clerkship structure by the autumn of 2002 with the necessary Bench arrangements taking effect in January 2003. They consider that the Clerkship and Bench arrangements can proceed without the proposed closure going ahead, but stress that the Barking court should not close until they are satisfied that all arrangements for the orderly transfer of staff and court business have been made and not before 1 April 2003.
3.4 This latest consultation repeats the assessment described in the Strategic Plan of workload and condition of the court building. They stress that their assessment reflects only the building aspects and not local management, which they feel has done its best in difficult circumstances.
3.5 The GLMCA assessment is based on
• the age and size of the Barking court, which would be unable to provide the standards of facilities users expect today, particularly in access provision for disabled persons.
• their preference for GLMCA owned buildings and as 14-16 North Street is leased and used as a non custody courtroom, they could not justify paying rent where there was sufficient courtroom or office capacity at a nearby courthouse owned by them. • Courtrooms capable of dealing with a variety of work, namely adult, youth and family cases.
• The state of facilities and provision of interview rooms, when compared with Government guidelines.
• Accessibility of the building to its local population by public transport with up to one hour’s travel time as a reasonable expectation.
• Consistency with other Criminal Justice Agency structures.
3.6 The GLMCA commissioned a condition survey of all the premises in the former Outer London area to determine the scale of necessary works and assessed the facilities, capacity and accessibility of courthouses. From this data, an assessment was made of proposed quality led closures, as opposed to predominantly capacity led closures. This analysis has led to their conclusion that the Barking courthouse should close, based on a number of factors relating to the courthouse itself and in the context of newer facilities at Havering.
3.7 The GLMCA’s rationale for closing the Barking court is as follows –
• Leased property, ie the courtroom and accommodation at North Street. This incurs unnecessary cost when accommodation is available nearby at Havering .
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• 4 custody courtrooms of which only one has direct access to the cells. This requires the movement of people who are in custody to be escorted via routes, which have an inherent risk to the public and their staff.
• Insufficient number of cells for present workload
• Insufficient courtrooms and office accommodation in the courthouse itself.
3.8 They note that although there could be scope to redevelop an adjacent site to alleviate some of these difficulties, they consider this additional cost could not be justified when suitable facilities are readily available at Havering.
3.9 They stress that their decision to recommend the closure of the courts at Barking is not dictated by financial issues. Their condition survey confirmed that any improvements at Barking would involve significant works issues. Their view is that even if these works were carried out, this would result in a building safe to use by the standards of the time it was built (1894) and well decorated, but would not have a courthouse with the facilities expected in the 21st century.
3.10 Practical Arrangements – Workload
• The GLMCA is proposing, in principle, that all adult and youth workload from Barking and Dagenham should be allocated to the Havering court with the possibility of some non-Crown Prosecutor Service prosecuted cases to be dealt with at Stratford. The hope is that all this work can be dealt with at Havering, subject to an increase in throughput of cases at that court. While the Strategic Plan proposes that the Stratford courthouse be used for criminal work, this is judged to be a temporary measure, which may prove unnecessary. Family work for the North East region, including for Barking and Dagenham, is proposed to be dealt with at Stratford, in addition to the specialist centre at Wells Street.
• In terms of accessibility, their analysis of data from Transport for London indicates that 90% of this borough can reach the Havering courthouse in 60 minutes and the remaining parts can reach it within 70 minutes.
3.11 Practical arrangements – new Petty Sessions Area
• The GLMCA is proposing to create a new Petty Sessions Area to be called the Barking & Dagenham and Havering Petty Sessions Area. In order to do this they propose to dissolve the 2 existing Petty Sessions Areas. The new Petty Sessions Area and its single Bench of Justices will conduct the administration of justice at the Havering courthouse.
• Practical arrangements – the size of the Bench and its workload
• The current Barking and Dagenham Bench has 90 Justices of the Peace and a workload of about 30,700 weighted cases a year, while Havering has 92 JP’s and a workload of about 32,700 weighted cases a year. The GLMCA considers that the creation of the new Bench of 182 JP’s creates no difficulty from size or workload.
Page 319 3.12 Practical Arrangements – the Staff
• The GLMCA recognises the anxiety to staff during such great change. Dialogue and formal consultation has taken place with the recognised trade unions and staff representatives. As this complex reorganisation is taking place across London, they state this gives rise to opportunities for personal and professional development within the South West Region and Greater London. The GLMCA recognises that at the end of this complex process a number of people may leave the GLMCA service, but they are clear that any overall staff reductions will not be drawn exclusively from the staff at courthouses proposed to close.
4. Barking and Dagenham’s response to the Statutory Consultation
4.1 Taking into consideration, the emphasis in the Strategic Plan on the GLMCA’s 2 priorities to secure value for money in its operation, namely utilisation of spare courtroom capacity and the significant financial investment required to bring its existing estate up to statutory standards, plus the aim to offer accommodation suitable for the 21st century, it does not come as a surprise that they propose to close the existing Barking court.
4.2 The comments set out in paragraph 1.5 made at the time of the Initial Consultation still remain valid and will be included in the formal response. These centre on the loss of local engagement with offenders, the conflict with the principal of the borough as a building block for criminal work and additional costs and time for local residents and officers in travelling to courts outside the borough. With all the changes and improvements proposed to the workings of the court service, we would be looking for more efficient processing of work in order to minimise the disruption caused by travelling further to court.
4.3 However, as Barking and Dagenham has areas of high levels of deprivation, the loss of the local family and youth courts will undoubtedly involve those already on low incomes in greater cost to travel to court, which, in turn, may lead to non attendance, thus impeding the courts' process overall.
4.4 There are no proposals to reduce the current number of Justices of the Peace for this area, which is welcomed, although they too, including a number of Councillors and officers, are likely to have further to travel to court. It is also hoped that it will prove possible for the current Barking Court staff to find other employment opportunities within the court service.
4.5 What is particularly disapointing for this authority is that for many years from 1991, there was judged to be a significant need for a new Magistrates Court to replace the existing building with a modern facility and which would have met the standards described in the plan. Following Stage 1 approval from the Lord Chancellor’s Department (LCD), and then notification of the scheme being included in the 1995 building programme, considerable preparatory work was undertaken with the financial approval of the LCD. This included the design of a new court building, demolition of a community hall, highway works and diversion of statutory undertakers’ services. It is most unfortunate for the borough that this scheme did not receive final approval to proceed.
Page 320 4.6 The judgement on closure of the Barking court ignores this past history. With this knowledge and taking into account Barking's central location within the north east region and its good transport links, there is an argument that a better option would be to progress with the proposal to provide a modern court here and close others with poorer facilities.
4.7 It must be stressed that the proposed closure of the Magistrates Court, while seemingly justifiable in the GLMCA's terms, would be a significant loss to this borough, bringing to an end the concept of local justice for local people
5. Other implications
5.1 The Courthouse in East Street, Barking is of historical significance and the vacation of this building would allow the opportunity for the re-acquisition of the courthouse for possible redevelopment for historical or cultural purposes. The Court is located in the vicinity of the Town Square, an area where major investment and redevelopment is planned, and could be included in the overall plan for this area.
5.2 The premises at 14-16 North Street are held on a lease by the GLMCA with the freehold owned by this Council. On termination of the lease, the property will revert to this Council.
6. Consultation
The views of The Management Team have been sought in the preparation of this report and the Council's response to this consultation document.
Background papers used in the preparation of this report:
• Greater London Magistrates' Court Authority (GLMCA) Strategic Consultation Document June 2001, • LBB&D response letter August 2001, • GLMCA Strategic Plan 2002-2006, • GLMCA Statutory Consultation Pursuant to Justice of the Peace Act 1997 (as amended).
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