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6. REVIEW OF NOISE SERVICE
Once all the corporate policies on noise have been assembled, they should be considered with the Local Authority area profile so that the following questions can be answered.
- are the policies adequate, comprehensive and complementary?
- do the policies address the needs of the authority and local communities?
- how are the policies delivered?
- how are the policies resourced?
- how is performance measured and evaluated?
- what is the mechanism to review Local Noise Services?
Authorities will find that regular customer surveys will assist greatly in the review process. From the survey of all local authorities in Scotland carried out to inform this Guide, only 50% of responding authorities carry out any form of regular customer satisfaction surveys. Whilst the percentage of the authorities reported routinely surveying noise makers as to their own, particular views.
Examples of Good Practice In May 1997, a telephone survey of 296 recent users of the noise service was conducted. The purpose of the survey was to explore customer feedback on the service in more detail than had been the practice using standard feedback questionnaires. The survey covered such matters as the types of noise sources complained of, whether users would use the service again, as well as general satisfaction with the service. It was significant that some 62% of users were satisfied with the service and over 90% said that they would use the service again. A number of issues were raised. These included a request for quicker response times and a dislike for the answering machine that had been provided to take calls out of hours. At the time the Environmental Services Division was not always able to respond to some calls because of the hours covered by the service and the answering machine was seen as a cost effective means of taking calls. The issues were reviewed and changes made to the service. This included the provision of a personal answering service, which, following a tendering exercise, was provided by the Housing Department. An extension of hours to the service was also approved in order to meet the customer demand for a quicker response. The number of hours covered by the service at that time was 49 hours per week and this was increased to 98 hours. In December 1999, a further survey was conducted to monitor the success of the personal call answering service. 93% of users of the service preferred calls to be received under the new arrangements rather than on the answering service. Despite the extension of hours some respondents still felt the service should be available over longer hours. This was considered but it was felt that it was not possible to extend the hours further as the additional resources required would not justify the number of calls received outside the hours presently covered. Source: The London Borough of Wandsworth |
6.1. How to carry out a Review
There are many ways in which service reviews can be undertaken but the essential ingredients will comprise:
a) customer feedback on the service as it currently exists. A number of authorities report good results from simple postal questionnaires sent to the users of the noise service;
b) the views and recommendations from 'internal' service partners such as officers in other departments e.g. Housing and Social Services. Again, the use of simple questionnaires sent via internal email has been reported as being effective. Internal service partners may also welcome the opportunity for a face to face discussion about the service;
c) feedback from 'external' service partners such as the Local Police and Fire Authorities, and registered social landlords. As well as postal surveys, authorities may wish to consider setting up a small focus group of the key partners.
Several local authorities have also reported that it was beneficial to involve relevant elected members at an early stage of the consultation and review process, whilst some authorities also reported favourably on the early appointment of a neutral external organisation to critically review the current service and to probe comments received from customer satisfaction surveys.
6.2. When to Review the Local Noise Service
It is not the intention of this Guide to prescribe a rigid framework for review; however it is recommended that local authority noise services are viewed as a key service and there is an expectation that the service is regularly subject to assessment and review. Service reviews may be appropriate on a five yearly cycle, or more frequently if local circumstances and needs change significantly. The main objectives in reviewing the service should be:
a) to ensure that the service offered is relevant and accessible to the needs of local residents and stakeholders;
b) that it offers value for money when compared with similar services offered by other service providers; and,
c) that even if (a) and (b) above can be demonstrated the authority has, in any event, a programme for year-on-year improvement of the service.
6.3. General Information on Best Value and the LGISA 2003
Best Value is now a statutory duty for local authorities and covers all functions. The Local Government in Scotland Act 2003 requires Scottish Local Authorities to make arrangements to secure continuous improvement (Best Value) in the performance of their functions. In doing so they can balance quality against cost; must contribute to the achievement of sustainable development; and must have regard to the equal opportunities requirements as well as economy, efficiency, and effectiveness. Best Value drives financial and performance management and encourages local councillors to make decisions according to sound business practice as well as good social, economic or environmental policies. Best Value is now a key criterion for audit and inspection activity by scrutiny bodies. Best Value also encourages the consultation of key stakeholders to inform council strategies and clarity and openness in reporting performance outcomes to the public. Best Value was introduced in Scotland on a voluntary basis in 1998. Best Value became a statutory duty following the Local Government in Scotland Act 2003 and underpins many new flexibilities to local authority business practice provided by that Act. Best Value audits have now commenced, and the results of the audit of Angus Council have been published. The results for the North Ayrshire audit will be published in December, followed by results from Shetlands, West Lothian, Stirling, Inverclyde and Dundee. The audits will include a review of Local Authority performance in Community Planning and Public Performance Reporting. Public Performance Reporting Guidance ( PPR) is being prepared for publication. PPR Regulations are being reviewed in-line with comments received following consultation.
6.4. Information on Best Value Audits
The Accounts Commission has developed a new audit for Best Value which will look triennially at each council's performance and examine areas thought to be high risk. The results of the Angus Council Best Value Audit - the first to be conducted - were published 29 September 2004. Statutory duties of Best Value for local authorities (councils, fire and police joint boards, and Strathclyde Passenger Transport) were introduced by the Local Government in Scotland Act 2003. Following the expansion of Accounts Commission powers provided in the Local Government in Scotland Act 2003, the Accounts Commission, in conjunction with Audit Scotland, has developed an audit approach to assess local authority compliance with their statutory duty to make arrangements to secure best value. The audit is also designed to identify and agree planned improvements with the council. These will be reviewed by the council's external auditor over two years following the audit. Audit Scotland began Best Value audits in councils in January 2004, and will work with HM Inspectorates before taking audits forward with police and fire joint boards the following year. Local Authorities will be subject to a Best Value Audit every 3 or 4 years: 6 authorities will be audited in 2004, with 10/11 authorities audited every year thereafter. Best Value Audits will concentrate on what available evidence sources say about the authority's performance. It will consider a self assessment from the authority, assess that against information from other sources ( SPIs, public performance reports, Inspectorate reports etc) and undertake a risk assessment with the authority which will drive identification of the areas on which the audit team should concentrate. Audits will focus on outcomes rather than processes. The Best Value audit will be carried out by a small team made up of specialist staff from Audit Scotland together with the council's appointed auditor. The Accounts Commission will receive a report following a Best Value Audit. The Accounts Commission will consider the reports, state their findings publicly, hold public hearings locally to discuss issues where appropriate and make recommendations as necessary. The last may include recommendations to Ministers for intervention. Best Value Audits will include a review of local authority performance in Community Planning and Public Performance Reporting.
6.5. Good Practice - Consultation
Whilst most Environmental Health managers may feel they are capable of intuitively understanding what their customers need, nonetheless the validity and accuracy of such a subjective process can be open to question and is no substitute for an objective and quantified analysis of customer service needs. This is especially important in the context of competition for resources and the need to ensure cost effective use of the resources that are available and the need for continuing performance improvements. Consultation with service customers and stakeholders can be a powerful tool that lends weight to consolidating and building on existing practices where feedback is positive and securing change where feedback is negative.
Example of Good Practice Westminster City Council carried out a Best Value Review of the Environmental Health Service in 2000/2001. As part of this review, a consultation exercise was carried out in which the following parties were consulted: - the local "Environmental Network"
- the police and alarm manufacturers regarding the design of car alarms and the use of silent intruder alarms
- public utility companies regarding measures to reduce noise when carrying out street works
- construction companies on measures to control noise nuisance and the use of s.61 consents
- Housing Associations regarding measures to control neighbourhood noise through the use of tenancy conditions
- local amenity and resident groups
- Magistrates regarding their availability to issue warrants out of hours and the enforcement policy for noise.
(Note: Whilst this was carried out as part of Best Value, the consultation exercise is a good model for the general review of the service in order to reduce the effects of noise) |
6.6. Review of Existing Service
Local Authorities will need to consider how to respond to customer surveys. For example, where a need for a comprehensive noise service is demonstrated, there is an expectation under Best Value that a service will be provided. A review of the service might then examine how such a service can be best accommodated from within existing budgets or allow objective reckoning of what additional resources are necessary to achieve the desired objective.
The review of the service should include some form of appraisal of the outcomes achieved by the service, including:
- The current performance of the service in terms of time scales for initial response and resolution of complaints, and customer satisfaction data. Based on this information, comparisons can then be made against any performance indicators or standards adopted; and
- An assessment of current levels of statutory enforcement activity in terms of:
- Number and type of noise complaints.
- Number of statutory nuisances resolved with an abatement notice being served
- Number of statutory nuisances resolved without an abatement notice being served, including informal intervention/mediation/negotiation.
- Number of statutory notices issued.
- Number of seizures or work in default actions to abate noise nuisances
- Number of prosecutions instigated.
- Number of successful prosecutions
To achieve a service that is best accommodated from within existing budgets or to justify the diversion of resources from other service areas, local authorities may have to look for innovative solutions. For example many authorities report that during winter months the demand for their noise service is less. By concentrating on routine food or health and safety or housing inspections during the winter months authorities may find that there are opportunities to re-deploy enforcement officers during the summer months to provide a more responsive noise service.
6.7. Challenging the Existing Service
As part of the process for continuous review it is important that authorities should challenge the way that their existing service is delivered.
Good Practice - Challenge Westminster City Council in its 2000/2001 Best Value Review of its noise service identified the following challenges to the noise service. - a quality assurance system was introduced which focuses upon officer's adherence to the enforcement policy for noise to ensure that effective and consistent enforcement action is taken
- an investigation of the use of Fixed Penalty Notices ( FPNs) was carried out
- a project for co-ordinated working was undertaken with the City Council Housing Estates with respect to neighbourhood noise
- a review of the use of Section 61 ( CPA 1974) consents was undertaken
- discussions took place with the Council's Parking Service to initiate a review of the provisions of residents' parking permits with a view to withdrawing permits from residents whose vehicles persistently cause noise nuisance.
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Good Practice - Inter Authority Review In 2002, Thirteen Sussex Authorities took part in a review exercise to compare the provision of noise services across both West and East Sussex. The review was in two parts. The first part comprised a self-assessment questionnaire and the second part an inter-authority audit. The purpose of the audit was to verify the results of the questionnaire; and audit files against the Council's own procedures and identify examples of good practice. The review collected 43 data sets across the 13 authorities. The results showed: - the criteria for operating an "out of hours" noise service varied considerably, with three authorities choosing to outsource this work to a private contractor
- considerable variation in how complaints were counted and recorded. The review also identified that only a minority of authorities routinely visited complainants
- less than half of authorities involved carried out any regular customer satisfaction surveys in respect of their noise service
- significant variation in the numbers of FTE staff appointed by each authority to deal with noise
- two neighbouring authorities successfully operated a joint "out of hours" noise response service
In addition, the review identified a number of examples of good practice and the authorities concerned intend to repeat the questionnaire part of the review in 2004 and carry out a further audit in 2006. |
Reference Documentation
Best value guidance is available from the Scottish Executive at www.scotland.gov.uk/bestvalue/perf-info.asp
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