CABINET – 8th July 2010

Report of the Director of Leisure & Environemnt

ITEM 12 Public Conveniences Service review

Purpose of Report

To consider the future provision of the Public Conveniences Service

Recommendation(s)

To approve:-

1. Option A - Option A (to close all Public Conveniences (excluding Queens Park and Outwoods Loughborough) i.e Markets Yard, Biggin Street, Beehive Lane, Southfields Park, Charnwood Water Loughborough, and Anstey, Barrow, Birstall, Shepshed, Sileby, Syston, Woodhouse Eaves and to replace the existing service provision with a ‘Community Toilet Scheme’ and/or devolve ownership / leasehold and management responsibility to Parish Councils) - which will achieve a net saving of £89,100 (Appendix D) ongoing, plus an additional net saving of £25,400 which has already been deducted from the base budget ongoing for 2010/11The total savings therefore are £114,500 ongoing.

2. A 2010/11 reinvestment reserve funding of £40,000 to fund initial set up costs of the Community Toilet Scheme and to fund an officer resource to facilitate transfer negotiations.

3. The cessation of the Loughborough static and rural mobile cleansing, opening and closing services from 1st April 2011 at a cost of £59,838 to be met from the re-investment reserve or from the savings generated from this service review.

4. To delegate to the Director of Leisure & Environment authority to transfer the existing ownership, lease and management to Parish or Town Councils who wish to take management responsibility for their local convenience.

5. To delegate to the Director of Leisure & Environment authority to dispose of leased public conveniences (termination of lease), revise leases when combined with surface car parks and or disposal of owned public conveniences and to use the re-investment reserve for any dilapidations identified at termination of lease and handover to lessor.

6. The implementation of Recommendation 1 from the Scrutiny Panel identified in section 2.1 of this report

Reason(s) 47

1, 2 &3 . In recognition of the need to manage risks associated with staff working in isolated located, the need to reduce the opportunity for anti-social behaviour. To use partnership working to provide clean, safe, high quality toilets to be provided for visitors and residents of the Borough. To enable prudent financial management.

4 To enable the Director of Leisure & Environment to work in partnership with Town & Parish Councils who may choose to take responsibility for their local convenience.

5 To allow the Director of Leisure & Environment authority to arrange swift disposal of leased public conveniences (termination of lease), revision of leases and or disposal of owned public conveniences to ensure speedy realisation of asset value / reduction in lease costs.

6 To ensure Cabinet responds to the recommendations from the Scrutiny Panel.

Policy Context

The proposals identified in this review recognise the risk and demands put on this service. The proposed new service will remove the risk to staff and remove the opportunity / discourage vandalism and anti-social behaviour which accords with the Council aims of People, Places, and the Environment Matter and also by recognising the difficulties and pressure put on the Council budget accords with the aim of an Excellent Council.

There is no legal requirement for the Borough to provide public conveniences.

Background

1. Service Provision

Currently the Borough Council provides twelve public conveniences throughout the Borough (excluding Queens Park and the Outwoods Park Loughborough which are part of the Leisure Services portfolio).

Detailed in Appendix A (attached in p11) is a summary of each facility currently managed by the Borough. Each summary also identifies whether the asset is owned by the Borough or leased. Also included are some details around the maintenance, staffing, vandalism, usage and community safety issues.

1.1 Vandalism, Sexual Acts and Antisocial48 behaviour

Unmanned Public Conveniences provide a notorious opportunity for vandalism, antisocial behaviour such as drug taking and sexual acts such as intercourse and ‘cottaging’. This problem isn’t peculiar to the Borough of Charnwood and is recognised as a national problem.

Vandalism and anti- social behaviour at unmanned facilities is extremely difficult to deter as the offender(s) have to be caught in the act. It leads to reduced use by others who may be fearful to use the facilities.

Public conveniences are popular sites for drug taking due to their remoteness, isolation and access to water which is used to mix with heroin powder so that heroin can by injected by hypodermic syringe as a fluid. Clean water can then also be used if the user has a bleed.

Historically public conveniences were closed in Loughborough, one factor being advertisement encouraging rendezvous for antisocial behaviour, more recently 3 of the current unmanned conveniences are being advertised on a WEB site as a site suitable for sexual anti-social behaviour.

1.2 Health & Safety

The unmanned conveniences are serviced by two mobile cleansing staff and two locally employed staff, opening, cleansing and closing on a dawn to dusk basis and personal risk to staff has been a growing concern over recent years due to:

¾ The locations and required opening times require staff to work in dark, isolated situations ¾ Staff encountering groups of youths and vagrants who have to be ejected before being able to cleanse and close the conveniences. ¾ Staff encountering personal risk from having to clean away blood and used syringes and skin could be punctured and serious infectious disease contracted.

1.3 Previous Closure History

The provision of this service has been the subject of review over many years, with previous reviews similarly considering anti-social behaviour, revenue budgetary pressures and the need to commit to a significant capital investment programme for outdated facilities. Previous reviews have resulted in the closure of facilities attached to a pub in Loughborough Town, facilities at Forest Road and Ashby Road Loughborough, and the of facilities at Southfields Park )now only open for specific events in the park).

At the time, there was a lack of support for the closure of Forest Road and Ashby Road Conveniences, however since these closures there has been no significant service pressure upon alternative provision. Also the anti-social behaviour problems ceased.

1.4 Refurbishment / Improvement History49

Due to the continual vandalism and budget pressures it has been appropriate to limit the levels of repairs to essential repair only in order to make best use of limited funding. Improvement schemes at Biggin Street and Markets Yard were completed several years ago and these two sites continue to provide high quality facilities. The unmanned outer Loughborough and rural conveniences have not had any significant investment for many years and require significant on going capital investment programme to achieve and maintain a satisfactory level of service provision.

It is considered that any refurbishment scheme to unmanned conveniences would soon fall victim to vandalism, would not prevent anti-social behaviour.

1.5 Daily Usage Table

The usage table in Appendix B attached shows that usage is not particularly high for the level of populations.

2. Future Service Provision

2.1Public Convenience Scrutiny Panel

Arising from proposals to close unmanned / rural conveniences during the 2008/09 budget setting process, Cabinet asked for a dedicated Scrutiny Panel to be formed to consider the provision of all public conveniences.

The Panel has met on numerous occasions and the review has included site visits by the Chair Councillor David Walker. A report was presented to the IR Scrutiny meeting of 27th January 2010.

As part of the Panels work programme Parish & Town Councils were consulted to establish if they wished to take responsibility for the convenience in their parish (see letter attached as Appendix E). Thirteen responses were received to the letter sent by the Panel on 25th November 2008.

Parish/Town Councils were asked to consider the following 3 options:

1. Some Parish and Town Councils may consider greater local involvement with the management of the toilets, regarding them as potentially a major asset to the local community and one which makes the centre of the town or village a more attractive place to live in and to visit and therefore a matter in which they would like to have direct involvement.

2. Others may consider that toilet provision is entirely a matter for the Borough Council and, while expecting toilets of a good standard to be available they would not wish to be directly involved. 3. A further possibility that will be considered is the option of a payment from the local authority of around £600 a year for use of privately owned and maintained toilets that are open to the public, typically in pubs, restaurants50 and shops.

Table A Parish Council Currently has Seeking Option 1 Option 2 Option 3 a public future convenience Provision of Y/N public conveniences Y/ N East Goscote N √ Seagrave N √ Thurcaston N N √ Cropston N √ Thurmaston N Y √ Thrussington N N √ Walton on N N the Wolds Anstey Y √ Birstall Y √ Shepshed Y √ Woodhouse Y √ Eaves Barrow √ √ Quorn √ √

Subsequently Woodhhouse Eaves parish council has expressed an interest in option 1 and in managing the service themselves

The findings of the panel were presented to the Investigation and Review Scrutiny meeting on 27th January. Cabinet are reminded of the conclusion and recommendations:-

“The Panel consider that the existing system in unsustainable and consideration should be given to outsourcing to a specialist company. It is recommended that the contract be advertised through the normal channels and that bids are subsequently evaluated. However if there are no bids within the budget considered affordable a community toilet scheme should be considered a possible solution, but with a number of negative aspects”

The recommendations therefore were:- Recommendation 1 We recommend that toilet provision would be retained but the existing provision be replaced with an alternative methods of provision. Recommendation 2 We recommend the outsourcing of toilet provision to a specialist company. The Panel therefore identified two possibilities. The removal of all existing toilets and the implementation of a Community Toilet Scheme, 51 Outsourcing of toilet provision. The outsourcing solution has definite advantages, but does not provide the level of budget savings as the alternative community scheme.

This report explores both of these possibilities in detail, however it identifies the Community Toilet Scheme (under Option A ) in section 3.2 as part of the recommendations for Cabinet to approve.

2.2 Service review programme - Terms of Reference

The headings below detail the ‘Objectives of the Service Review’ as contained in the terms of reference together with a position statement to inform Cabinet:-

To identify Savings in accordance with the 26th November Cabinet report During this review it has become clear that to replace the outer Loughborough and rurals public convenience with an alternative service would still involve the retention of a high residue budget for the remaining staffed conveniences in Loughborough Town Centre. Accordingly significant savings can be achieved by replacing the entire service with alternative service provision. The estimated residual costs for Loughborough Town Centre is £102,,000 (including transfer of one mobile cleansing FTE ) out of a budget of £148,100.

Public conveniences are maintained to a minimum level but a programme of significant capital investment will be needed if the facilities are to be retained in order to maintain and improve current service provision, together with the need to increase the revenue budget to maintain the service to an adequate level. To refurbish unmanned facilities will not reduce incidents of vandalism and anti-social behaviour and sites will still be subject to these incidents and it is considered that ongoing high cost refurbishment programmes are unsustainable. It may even be the case that refurbishments to the standard at Loughborough Town Centre conveniences (but unmanned) may increase incidents of anti-social behaviour by encouraging the attendance of undesirable individuals who previously wouldn’t have considered using the facility.

When considering service options Cabinet are reminded that if any individual conveniences are taken in isolation for closure /retention, this will not realise significant savings as there will be residual costs in retaining staff and elements of the existing service e.g. vehicle hire fuel costs etc.

The current repair & maintenance budget has reduced over previous years to achieve annual saving pressure and is considered under resourced.

Closure proposals can deliver immediate revenue savings whilst longer term savings can be achieved by not having to carry out a refurbishment programme.

Following closure additional income could be achieved by disposal of Borough owned assets which may realise a capital receipt and in addition make further saving on NNDR.

52 Unmanned conveniences could be modernised to provide manned facilities, however this option has not been explored due to the high (viability subject to on site survey & appraisal), office accommodation, increased running and staffing costs.

Provide service level commensurate with customer demand In the last decade the provision of public conveniences by local authorities has fallen nationally from 10,000 to 5,000 and recent benchmarking has shown that other authorities in Leicestershire have recently commenced a programme of closure (Harborough and North West Leicestershire).

To consider alternative service provision Alternative service provision options are detailed below for Cabinets information.

To consider the effects of no service provision Whilst considering the effects of no service provision it is important to understand the difficulties with retaining the existing service, however it is considered in appropriate to provide no service but that a replacement service is a preferred option.

To reduce the opportunity to use Council buildings for antisocial behaviour Public conveniences that are unmanned are subject to and provide opportunity for vandalism and anti-social behaviour such as drug taking and sexual activity which doesn’t accord with the aim of the Corporate Plan “Place, People and the Environment Matter”.

To ensure the risk to the health & safety to staff working in isolation is minimised The current service requires staff to work in situations that subject them to personal health and safety risk and the Borough have a responsibility to mitigate this risk. The proposal contained within this report negates any Health & Safety risk to Borough staff.

To consider the affect of the Service review on staffing levels Detailed redundancy and early retirement costs are set out in a separate exempt annexe to this report.

3. Options for the Future of Provision

It is appreciated and understood that there is local and political support for the retention of the existing services however the difficulties with the service shouldn’t be ignored and need to be addressed.

Detailed in Appendix C are the option appraisals that accord with the objectives and principal options detailed in the Service Review Programme terms of reference. Costs arising from each option are detailed in Appendix D.

3.1 Option A - Alternative Provision Having considered these options, the work carried out by the Public Convenience Scrutiny Panel and the views of the Service Review Panel, it is considered that one solution will not best fit all locations accordingly it is proposed to replace the existing service provision with a flexible, multi-option approach (Option A) including the 53 introduction of a ‘Community Toilet Scheme’ and where possible or suitable devolvement of asset responsibility and management to Parish / Town Councils.

To facilitate the replacement service it is proposed to close all existing conveniences (excluding Queens Park and the Outwoods Loughborough) on the 31st March 2011 thus providing sufficient time to implement a change programme that will need to be resourced by addition staffing and product (signage, advertising logo etc) to ensure sufficient time is allowed to plan, explore and engage in agreements with community partners and Parish / Town Councils.

Preliminary work has been carried out with community partners in rural location to gauge take up of the Community Toilet Scheme and there has been an initial positive response, at least one site per location, and it is considered that once formalised the scheme will gather a greater uptake.

3.2 Community Toilet Scheme The Community Toilet Scheme can provide better access to good quality public toilets and provide an attractive, inclusive and welcoming place to visit and the scheme has worked well. The Community Toilet Scheme which is endorsed by the British Toilet Association. (BTA) has successfully been introduced in other authorities since the initial pilot scheme at Richmond and is also endorsed by the British Toilet Association.

This option would result in staff redundancy as detailed in financial implications of this report. The Government’s Department for Communities and Local Government (DCLG) has produced, together with Keep Britain Tidy, strategic guidance titles “Improving Public Access to Toilets: Guidance on Community Toilet Schemes & Sat Lav” as a method to encourage greater partnership working to provide better access to good quality public toilets and to provide attractive, inclusive and welcoming places to visit. Far from dictating how councils should provide more public conveniences, the DCLG hope to share the best examples of what is already being done, so that other councils can consider what could work best in their area.

Primarily the scheme consists of libraries, cafes, supermarkets, public houses, community centres, council offices and restaurants opening their toilets to the general public without expectation that users will purchase good or services.

The scheme is actively managed by Councils to ensure that it encompasses a good geographical spread of facilities as well as high standard of toilet provision and maintenance, access to toilets at all times of the day and into the evening and the provision of accessible facilities for disabled people and baby change.

In return local business and organisations that provide public conveniences for public use receive free advertising on the Council website and as a partner in the scheme display a logo at their business indicating their participation and receive a small annual payment.

54 The partnership scheme builds upon the success of Twickenham, where 66 businesses agree to display window stickers offering their toilets to non customers in exchange for £600 a year from Richmond upon Thames Council.

The BTA representative concluded that the scheme works largely because it was well- marketed and signed throughout the community to help the public find the participating restaurants and Public Houses. Well-known chains including Pizza Express, KFC and the Slug and Lettuce Public House chain joined Twickenham's Community Toilet Scheme.

The aim is to provide public conveniences without incurring prohibitive costs as a result of vandalism, maintenance repair costs and reduce antisocial behaviour.

The benefits of the scheme are:-

• Provides a safe, clean & warm environment • Accords with the aims of the corporate plan ‘Places Matter – we will make Charnwood a safe, cohesive Borough in which to live and work.’ by reducing the opportunity for antisocial behaviour and “People and the Environment Matter” • Reduces local authorities operating costs and reduces the risk to staff. • Fosters partnership working and community engagement • No need for the Council to commit to a capital refurbishment scheme. • Increased capital receipts from the sale of assets • Increased income from the cessation of NNDR payments

3.3 Devolvement of Asset Responsibility & Management To Parish Councils

As part of the work programme carried out by the Public Conveniences Scrutiny Panel Parish / Town councils were written to (see 2.1 above) to establish if they wished to take responsibility for their local convenience. At the time there was little interest in taking up this option, however this option is still possible if Parish / Town Councils wish to take up the option rather than see the closure of their local convenience or replacement with Community Toilet Scheme service.

4. Consultation

As part of the Public Convenience Scrutiny Panels work programme Parish & Town Councils were consulted to establish if they wished to take responsibility for the convenience in their parish – see item 2.1 above.

A petition has been received, and presented to Cabinet, from Shepshed residents who wish the facilities to remain open.

5. Implication for staff

The effects of Option A on individual posts will be the deletion of the following posts.

55 Post No. Job Title Scale W102 Public Convenience 1 Operative W102 Public Convenience 1 Operative W102 Public Convenience 1 Operative W102 Public Convenience 1 Operative W102 Public Convenience 1 Operative W102 Public Convenience 1 Operative W103 Mobile Public Convenience 1 Cleaning Operative W103 Mobile Public Convenience 1 Cleaning Operative X200 Casual Operative 1

Staff whose posts are proposed to be deleted wil be placed on the redeplyment register in accordance with the Council’s policy and procedures.

6. Financial Implications

The recommendations reflect the following financial implications:-

Option A

An ongoing net revenue budget saving of £114,500

The retention of an ongoing revenue budget of £59,000 fund the ‘Community Toilet Scheme’ of £50,000 and NNDR charges £9,000 for 2011/12, increased to £62,000 for 2012/13 due to increased NNDR charge of £3000.

2010/11 reinvestment reserve funding of £40,000 to fund initial set up costs of the Community Toilet Scheme and to fund an officer resource to facilitate transfer negotiations.

2010/11 one off potential redundancy and pension costs are set out in the exempt annex to this report.

7. Risk Management

Risk Identified Likelihood Impact Risk Management Actions Planned Adverse Public M L Publicity to demonstrate and raise reaction to closure of 56 awareness of reason for closures/ Risk Identified Likelihood Impact Risk Management Actions Planned esxisting style of change in provision. servcie provision Failure to identify M L It is anticiptaed that users would CTS parnters within migrate to other venues. a given location Also a number of potential partners have already been idenitfied without any publicity. A full information campaign would be launched to attract businesses If the service were H H Option A recommended instead to retained - Health & mitigate/ eliminate this risk. Safety Risk to Staff and anti social behaviour

Key Decision: Yes

Background Papers: Public convenience report presented to I&R Scrutiny on the 27th January 2010 Cabinet 18th February – budget papers Service review terms of reference November 2009

Officer(s) to contact: Chris Traill Director of Leisure & Environment 01509 634774 [email protected]

Kevin Biddulph Head of Street Management 01509 634688 [email protected]

57 APPENDIX A

Summary and location of Public Conveniences Provision

Biggin Street (leased) & Markets Yard (owned) Situated in Loughborough Town Centre these convenience suffer no vandalism or anti- social behaviour and provide manned conveniences that are staffed by 3 ‘static’ operatives and are principally open 7days a week 52 weeks of the year.

Southfields Park (owned) These conveniences are unmanned and are opened, cleansed and closed by a mixture of the ‘static’ and ‘mobile’ cleansing teams. Situated in Southfields Park these conveniences were closed several years ago due to high levels of anti-social behaviour and are now only opened for specific park events. The facilities are dated but have recently been partially refurbished.

Queens Park (owned) Situated in Queens Park these conveniences were recently refurbished and reopened as part of the ‘Green Flag’ award application. Whilst these conveniences aren’t manned the Park Warden monitors their use and operates a key booking system to deter and control anti-social behaviour.

Beehive Lane Car Park (owned) These conveniences are unmanned and are opened, cleansed and closed by a mixture of the ‘static’ and ‘mobile’ cleansing teams. The male and female facilities are dated and require refurbishment. The male conveniences are frequently closed to deter anti-social behaviour.

Outer Loughborough and Rural Locations All these unmanned conveniences are opened & closed on round route by two ‘mobile public convenience staff’ (there are two FTE’s of which one post in currently vacant) on an opening time schedule of Dawn to Dusk. The conveniences are cleansed once during the opening & closing routine. In addition the two staff are available to provide a reactive cleaning response to incidents / reports that occur during the working day (including Shepshed and Woodhouse Eaves). In addition Shepshed has a local opening, closing & cleansing operative and Woodhouse Eaves has a local opening & closing operative (cleansing carried out by the mobile cleansing team).

All these conveniences are unmanned during the day and most, with the exception of the Outwoods Park experience varying levels of anti-social behaviour and vandalism. All facilities are dated and will require extensive refurbishment in the near future.

Anstey (owned) Situated adjacent to shops in the centre of Anstey adjacent to a doctors surgery on the Borough operated car park. Continual vandalism led to the tiles roof being replaced by a metal roof and this has alleviated the problem. Repair work is done as and when required, this usually consists of repairs to minor incident of vandalism. 58 As with the other toilets there is evidence of anti-social behaviour including drug taking, vandalism and graffiti. Recently: On a daily basis for several months, there has been drug taking in the ladies toilet, with blood sprayed up the walls, (reported to the local PCSO). Graffiti is found on a monthly basis and dealt with by the cleaner who has also reported this to the Police. Guttering to the front of the building has been replaced but is regularly damaged. A slab was taken from steps outside of the building.

Barrow (leased) Situated on the car park of the Three Crowns Public House both owned by the brewery. The lease agreement for the site is currently being ‘held over’. There is some vandalism on the site. Recently: The male convenience hand rail was set on fire, door handle replaced after screws removed, and the toilet pan in the gents was pulled away from cistern causing extensive damage requiring the toilet pan and cistern to be replaced.

Birstall (leased) Situated near to the shopping area. These conveniences suffer frequent vandalism, specifically by school children i.e. toilet rolls set on fire, toilet roll pushed down toilets, sinks flooded etc. Recently: All side and rear windows have been boarded up due to vandalism when the glass was stolen over the space of several weeks. Graffiti occurs on a monthly basis. Toilet roll holders set on fire and so have not replaced them. Toilet seat in the male convenience has been stolen.

Shepshed (owned) Situated next to a library and several shops. Several of the local shops do not have their own toilets and frequent the public conveniences. There is also a local market in close proximity to the conveniences. The conveniences are opened and cleaned by a local cleaner. There are maintenance issues due to flat roof, vandalism i.e. toilet rolls set on fire, toilet roll pushed down toilets, sinks flooded etc. There have been reports of drug use. Recently: Cistern ripped off the wall in the gents causing a flood within the building which required a new pan and cistern. Door to female conveniences has been kicked open twice requiring new handles and locks, first incident also required a new door faced with steel. Graffiti has to been cleaned off on a monthly basis. Management have met with Police with regards to youths climbing onto the roof of the building. Toilet roll holders are broken off on a regular basis.

Sileby ( owned) Situated to the rear of King Street and located on the Borough operated car park and has suffered from excessive vandalism, drug taking and anti-social behaviour (sexual acts / cottaging). Also, there are maintenance problems with the flat roof have resulted in damp problems and difficulties with decoration. Recently: Rainwater down pipes are repeatedly broken or removed. The male conveniences are regularly closed following incidents of anti social behaviour including graffiti, drug taking, vandalism and anti-socia59l behaviour (sexual acts). Staff have had to remove males from the female conveniences and found evidence of drug taking in the cubicles.

Syston (owned) Situated on the Melton Road car park on the Borough operated car park in the centre in the centre of Town, in close proximity to all the local shops, this is a busy site. Basic facilities on site are kept maintained to deal with minor vandalism and general wear and tear. The conveniences are out dated and in need of some refurbishment. Most anti-social behaviour is of a low level due to high footfall and consists of blocking sanitary ware with toilet paper. Some minor graffiti. Recently: The ladies door has been kicked open 3 times causing damage to the lock and frame. Graffiti occurs inside on a monthly basis. Taps in the female conveniences replaced they being left on and blocking the sink causing them to overflow and flood the conveniences, this was happening on a daily basis. Toilets pans are being blocked daily due to the cisterns being old and difficult to operate. Users urinating against the male convenience door when closed causes it to rot at the bottom.

Outwoods Park (owned) Situated off Breakback Road Loughborough on the Outwoods Car Park adjacent to Outwards Park. These facilities suffer insignificant vandalism and anti-social behaviour.

Woodhouse Eaves (owned) Situated on the Main Street car park on the Borough operated car park n the centre in the centre of the village adjacent to sports fields, tennis courts and a children’s playarea. Woodhouse Eaves has a local opening & closing operative – cleansing carried out by the mobile team These facilities suffer minor vandalism and minimal anti-social behaviour. Recently: These conveniences have been redecorated following a fire in the gents which was started deliberately. Fencing to neighbouring property had to be repaired due to damage by youths congregating around the rear of the conveniences.

Charnwood Water (owned) Situated off Tuckers Road Loughborough on the Charnwood Water Car Park adjacent to the Charnwood Water leisure facility. These conveniences suffer from excessive vandalism, drug taking and anti-social behaviour (sexual acts / cottaging). Recently: Plastic toilet roll holders replaced with stainless steel as these were being repeatedly ripped off the walls and set on fire. Toilet seats stolen and not replaced as they are repeated set on fire. Regular graffiti (some times telephone numbers for sexual liaison) which is normally dealt with by the cleaner when she is doing her rounds; this can be several times a month. The toilets are regularly & deliberately blocked with toilet rolls. APPENDIX B

Daily Usage Table Outer Loughborough & Rural Location – 9.30 – 16.00 during January and Loughborough between 9.30 – 16.00 during June 2010

60 Location Day Ladies Men Disabled Total

Biggin Street Friday 428 352 8 788

Biggin Street Saturday 1000 888 28 1916

Markets Yard Friday 500 390 14 904

Markets Yard Saturday 887 644 59 1590

Queens Park Friday 52 12 0 64

Queens Park Saturday 76 36 12 124

Beehive Lane Friday 21 0* 8 29

Beehive Lane Saturday 29 0* 14 43

Anstey Friday 16 22 6 44

Anstey Tuesday 23 30 0 53

Barrow Tuesday 4 9 0 13

Barrow Wednesday 4 24 0 28

Birstall Tuesday 15 13 0 28

Birstall Thursday 9 20 0 29 Charnwood Water Thursday 2 18 1 21

Outwoods Friday 6 10 0 16

Outwoods Wednesday 5 21 0 26

Shepshed Wednesday 32 24 5 61

Shepshed Saturday 10 19 1 30

Sileby Wednesday 0 20 0 20

Sileby Thursday 11 4 1 16

Syston Saturday 41 35 13 89

Syston Tuesday 31 40 3 74

Woodhouse Thursday 3 10 0 13

Woodhouse Friday 4 20 0 24

* Beehive Lane Men’s public convenience currently closed due to anti social behaviour

APPENDIX C Option Appraisal

Option A – Replacement Service

61 It is proposed to close all Public Conveniences (excluding Queens Park and Outwoods Loughborough) i.e Markets Yard, Biggin Street, Beehive Lane, Southfields Park, Charnwood Water Loughborough, and Anstey, Barrow, Birstall, Shepshed, Sileby, Syston, Woodhouse Eaves and to replace the existing service provision with a ‘Community Toilet Scheme’ and or devolve ownership / leasehold and management responsibility to Parish Councils.

This option is detailed in the main body of the report is considered to significantly align with the terms of reference and provides a flexibility to provide an alternative replacement service.

Option A will require the existing static & mobile staffing resource to be made redundant or retired early at a cost of £59,838 to be met from the re-investment reserve or this service review.

Option A requires an ongoing 2011/12 revenue budget of £50,000 to fund a Community Toilet Scheme.

It will also include an ongoing 2011/12 revenue budget of £9,000 and £12,000 2012/13 ongoing for NNDR charges.

Finally for 2010/11 reinvestment reserve funding is sought of £40,000 to fund initial set up costs of the Community Toilet Scheme and to fund an officer resource to facilitate transfer negotiations.

Option B - Retention of the Service

Retention of the existing service ‘as is’ whilst maintaining a level of service provision will require an increase in the existing revenue budget for Repairs & Maintenance of £11,600 in order to provide minimal funding to carry out day to day repairs together with an ongoing revenue service pressure for the management of Sileby Conveniences (the budget of £14,000 was removed during the 2009/10 budget setting process however the asset was not approved for closure) It would also be necessary to approve a significant capital investment (£357,000) (Appendix D) which would need to be programmed and repeated in future years.

This option would also necessitate the adding back the £25,400 savings already deducted this year, this would amount to a running cost base line for M700 of £199,100 (Appendix D).

It also needs to be noted that retention of the existing service ‘as is’ provides opportunity to commit antisocial behaviour and fails to recognise the risk to staff safety. Option C - Closure of the Outer Loughborough & Rural Conveniences Serviced by the ‘Mobile Cleansing Team’ – No replacement Service

Closure of all conveniences serviced by the mobile cleansing team which includes i.e Anstey, Barrow, Birstall, Shepshed, Sileby, Syston, Woodhouse Eaves & Beehive Lane 62 and Charnwood Water Loughborough (excluding Markets Yard, Biggin Street, Southfields Park, Queens Park and Outwoods Loughborough).

Closure of these conveniences will realise significant savings and also negate the need for service pressures and capital investment at these sites.

Further savings & income will be generated following devolvement or disposal and also the associated savings due to non payment of NNDR.

The proposed closures will reduce the opportunity for vandalism, drug taking and anti- social behaviour, such as sexual acts & cottaging.

Whilst this option provides no possibility for any alternative service provision other authorities have taken this step in order to tackle the problems associated with public conveniences and the cost of service delivery.

It should be further noted that many people currently use local businesses as public conveniences and that this option would still be open to the public if no provision existed.

This option would result in redundancy of 2 part time staff as detailed below, however the remaining full time mobile cleansing operative could be redeployed on a reduced working schedule to support the Town Centre cleansing team.

Option D- Closure of the Outer Loughborough & Rural Conveniences Serviced by the Mobile Cleansing Team and Replacement with a ‘Community Scheme

Closure of all conveniences serviced by the mobile cleansing team which includes i.e Anstey, Barrow, Birstall, Shepshed, Sileby, Syston, Woodhouse Eaves & Beehive Lane and Charnwood Water Loughborough, and to replace the existing service provision with a ‘Community Toilet Scheme’ and or devolve ownership / leasehold and management responsibility to Parish Councils. (Excluding Markets Yard, Biggin Street, Southfields Park, Queens Park and Outwoods Loughborough).

Option D is as detailed in Option C and for completeness the details of the scheme are repeated below under this Option, however in addition this option would develop alternative service provision through a Community Toilet Scheme.

Closure of these conveniences will realise savings and also negate the need for service pressures and capital investment at these sites.

Further savings & income will be generated following devolvement or disposal and also the associated savings due to non payment of NNDR.

The proposed closures will reduce the opportunity for vandalism, drug taking and anti- social behaviour, such as sexual acts & cottaging. 63 This option would result in redundancy of 2 part time staff as detailed below, however the remaining full time mobile cleansing operative could be redeployed on a reduced working schedule to support the Town Centre cleansing team.

Option E - Outsourcing all Conveniences, including Loughborough

A further alternative service provision is to out source the entire service to a specialist private provider.

The scheme would involve the adaptation of existing buildings and the insertion of semi- automated conveniences. The contractor would carry out the installation works; take over the day to day management of the conveniences in an entirety (with the exception of NNDR payments and major repairs) and retain a 20p charge as part of a ten or fifteen year contract. At Loughborough Town Centre the existing units would remain however the entrance doors would be upgraded to operate through a time lock, with the service being partly manned / unmanned.

Indicative costing for adapting all conveniences and providing a single semi-automated convenience at all locations other than Biggin Street and Markets Yard Loughborough where a hybrid solution to provide semi-automated and manned conveniences is proposed and is detailed below, but excludes NNDR and major repair costs which would be payable by the Borough.

The figures below would be subject to a long term contractual agreement and would need to be inflated yearly for the RPI.

It should be noted that it may be necessary for Cabinet to waive competitive tender standing orders as contractors are limited in this type of service provision.

Due to the capital investment provide by the contractor there would be a requirement for the Borough to enter into a long term contract which may be unsustainable

Ten year contract: Estimated annual charge £146,000 - ten year contract sum £1,460,000

Fifteen year contract Estimated annual charge £130,000 – fifteen year contract sum £1,950,000 Under this scheme existing staff would be transferred to the provider in accordance with the Transfer of Undertakings (Protection of Employees) Act 2006.

APPENDIX D

Costings

Redundancy & Pension Costs

64 Total redundancy and pensions costs are £59,838 and are detailed in an exempt annexe to this report

Building Repairs & Maintenance – Budget History & future Costs

The building repair and maintenance budget for 2008/09 was £14,500 with an actual spend of £37,368. An overspend of £22,868.

The building repair and maintenance budget for 2009/10 was £11,500. The actual spend for 2009/10 was £13,225 even though a restriction was placed on the placing of orders at period 7 due to an anticipated overspend. An overspend of £1,725.

The building repair and maintenance budget for 2010/11 is £5,700 and would not be sufficient to accommodate the levels of repairs. If the rural conveniences are retained during 2010/11 a service pressure of £11,600 would be required to maintain current minimal spending repair levels.

The repair budget was reduced in 2010/2011 to maintain & balance other cost centres within the Street Management account (currently there is a £25,000 minimum restriction level for the application of service pressures).

Refurbishment Costs

Beehive Lane car park, the unmanned outer Loughborough and rural conveniences fall far short of the facilities in Loughborough Town Centre and retention of the service will require significant programme of ongoing capital investment to maintain a satisfactory level of service provision. Individual sites have been assessed for refurbishment and costs are detail below, the estimates based on providing comparable standards to Biggin St and Market Place Loughborough provided for submission of this review and a more detailed survey and appraisal would need to be carried out to prepare specific estimates.

However, due to the outer Loughborough and rural conveniences being unmanned, and the high level of anti-social behaviour at Beehive Lane Car Park conveniences, it is considered that any refurbishment scheme would soon fall victim to vandalism and not be a sustainable financial commitment whilst not preventing the anti-social behaviour that occurs.

SITE CAPITAL REFURBISHMENT COSTS ANSTEY £41,000 BARROW £36,000 BIRSTALL £36,000 SHEPSHED £54,000 65 SILEBY £56,000 SYSTON £36,000 WOODHOUSE EAVES £36,000 CHARNWOOD WATER £42,000 BEEHIVE LANE £20,000 Total £357,000

NNDR Costs & Savings

Up to 31st March 2011 NNDR charges are not applied on unused / empty properties provided the rateable is less than £18,000 and the conveniences satisfy this condition and accordingly there would be no NNDR charges during 2010/11 if a convenience were closed but un-disposed.

However from 1st April 2011 the criterion is likely to change so that NNDR rates will be charged where as asset is used / empty (although there is an initial 3-month exemption to charge when it first becomes unused).

NNDR Chagres table – site specific

It should be noted that some sites have a joint NNDR charge for the convenience and the car park it is situated on. An estimated apportionment has been made at theses sites for the purpose of this report

Public Convenience Asset Location Cost Toilet only BIGGIN STREET LOUGHBOROUGH £3,104 Toilet only MARKET PLACE LOUGHBOROUGH £2,061 Toilet only THE NOOK ANSTEY £1,455 STONEHILL Toilet only AVENUE BIRSTALL £1,698 Toilet only HALL CROFT SHEPSHED £1,091 Toilet only MAIN STREET WOODHOUSE EAVES £364 Car Park 25% of full site and Toilet costs NORTH STREET BARROW UPON SOAR £370 Car Park 25% of full site and Toilet costs KING STREET SILEBY £1,025 Car Park 25% of full site and Toilet costs MELTON ROAD SYSTON £1,006 £12,174

Beehive Land and Southfields Park not included above as included in main building and rating unknown.

Individual Option Costs Implications

Detailed below are the ongoing service costs and / or ongoing net saving for each service option 66

Option A – Replacement Service

Ongoing revenue saving / costs - 2011/12 Item Source Saving Cost Operational closure savings Revenue £148,100 NNDR (annual adjusted for 3 months discount) £9,000 Community Toilet Scheme Revenue £50,000 Sub Totals £148,100 £59,000 Total saving or cost £89,100

One off costs reinvestment reserve costs 2010/11

Item Source Saving Cost Redundancy costs Re’vst Res £51,296 Pension costs Re’vst Res £ 8,542

Community Scheme set up costs Re’vst Res £40,000 Sub Totals £99, 838 Totals £99,838

Option B - Retention of the Service

Ongoing revenue saving / costs 2011/12 Item Source Saving Cost Repair & maintenance Service pressure to Revenue £0 £11,600 maintain existing repair budget provision - subject to levels of vandalism Service Savings (Already Taken) Revenue £0 £25,400 Sileby Convenience service pressure Revenue £0 £14,000 2010/11 budget Revenue £0 £148,100 Sub Totals £0 £199,100 Total saving or cost £199,100

One off Capital costs (refurbishment programme)

Item Revenue Saving Cost Refurbishment programme Capital £0 £357,000 Sub Totals £0 £357,000 Total saving or cost £357,000

Option C - Closure of the Outer Loughborough & Rural Conveniences Serviced by the Mobile Cleansing Team

Ongoing revenue savings / costs 2011/12 Item Source Saving Cost 67 Operational closure savings Revenue £48,000 Sub Totals £48,000 Total saving or cost £48,000 One off costs reinvestment reserve costs 2010/11 Item Source Saving Cost Redundancy costs Re’vst Res £2,516 Sub Totals £2,516 Totals £2,516

Option D - Closure of the existing outer Loughborough & Rural Convenience service (with the retention of Outwoods) & replacement with a ‘Community Toilet Scheme’

Ongoing revenue saving / costs - 2011/12 Item Source Saving Cost Operational closure savings Revenue £48,000 NNDR £9,000 Community Toilet Scheme Revenue £25,000 Sub Totals £48,000 £34,000 Total saving or cost £14,000

One off costs capital & reinvestment reserve costs 2010/11 Item Source Saving Cost Community Toilet Scheme including signage and Re’vst Res £35,000 set up costs Redundancy costs Re’vst Res £2,516

Sub Totals £37,516 Totals £37,516

Option E - Out sourcing all conveniences, including Loughborough

10 Year contract option (as at 2010/11 indicative pricing) Item Source Saving Cost 2010 /11 budget Revenue £148,100 NNDR £12,200 Cost of outsourcing the service £146,000 Contingency estimate for unknown costs and £12,800 repairs Sub Totals £148,100 £171,000 Total saving or cost £22,900

15 Year contract option (as at 2010/11 indicative pricing) Item Source Saving Cost 2010 /11 budget Revenue £148,100 NNDR £12,200 Cost of outsourcing the service £130,000 Contingency estimate for unknown costs and £12,800 repairs Sub Totals £148,100 £155,000 68 Total saving or cost £6,900

Option F – Closure of the outer Loughborough & Rural Conveniences Serviced by the Mobile Cleansing Team but Outsource Charnwood Water

10 Year contract option (as at 2010/11 indicative pricing) Item Source Saving Cost Operational closure savings Revenue £48,000 Out source Charnwood Water £13,400 Contingency estimate for unknown costs and £2,000 repairs Sub Totals £48,000 £15,400 Total saving or cost £32,600

15 Year contract option (as at 2010/11 indicative pricing) Item Source Saving Cost Operational closure savings Revenue £48,000 Out source Charnwood Water £11,750 Contingency estimate for unknown costs and £2,000 repairs Sub Totals £48,000 £13,750 Total saving or cost £34,250

APPENDIX E

69 To: All Parish and Town Clerks Southfield Road, Loughborough, Leicestershire. LE11 2TN Ask for: Helen Tambini, Committee Services Officer, Democratic Services Direct Line: 01509 634969 Email: [email protected] My ref: CS 13th November 2008

Dear Parish/Town Clerk

The Investigation and Review Scrutiny Committee has decided that there is an urgent need to investigate and then recommend action related to the provision of public toilets in the Borough, and has established a Panel of five Councillors to consider the present provision and to make recommendations

We already know that there are great variations in the standards of existing provision, some are clean and bright and in excellent condition and some are unpleasant to use and a disgrace to the community.

Because of the variety in provision, differing local arrangements for maintenance and cleaning and differing ownership arrangements we anticipate that our report will state general principles and standards with specific recommendations for each toilet block.

It is possible that some Parish and Town Councils would like to negotiate with Charnwood for greater involvement with the management of the toilets, regarding them as potentially a major asset to the local community and one which makes the centre of the town or village a more attractive place to live in and to visit.

On the other hand you may feel that this is entirely a matter for the Borough Council and, while expecting toilets of a good standard to be available you would not wish to be directly involved.

A further possibility that will be considered is the option of a payment from the local authority of around £600 a year for use of privately owned and maintained toilets that are open to the public, typically in pubs, restaurants and shops.

The Panel of Councillors working on this issue would very much appreciate the views of your Parish or Town.

Because the issue of toilet provision is becoming quite newsworthy at local and national level we are hoping to be able to produce our report very soon and would like to have all the information available for further discussion by 12th December 2008.

Yours Sincerely

Councillor David Walker, Chair of the Public Conveniences Panel.

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