11 Lack of Housing and Garden Maintenance Final Report Audit Council_18 May 2026
Renfrewshire Council · 18 May 2026
Back to Audit, Risk and Scrutiny Board — 18 May 2026 and its agenda
Text extracted from the council's PDF. Layout and reading order may differ from the original.
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OFFICIAL ___________________________________________________________________ To: Audit, Risk and Scrutiny Board On: 18 May 2026 ___________________________________________________________________ Report by: Lead Officer ___________________________________________________________________ Heading: Lack of Housing and Garden Maintenance – Final Report ___________________________________________________________________ 1. Summary 1.1 As part of the annual programme of activity for 2022/23, the Audit, Risk and Scrutiny Board instructed a report on Lack of Housing and Garden Maintenance. 1.2 The attached paper provides the final part of the review, along with findings and recommendations and will, subject to approval by the Audit, Risk and Scrutiny Board, be submitted to Council for consideration at its meeting on 22 June 2026. 1.3 The report demonstrates that the Council has effective and proportionate arrangements in place, has fully addressed members’ areas of concern, and is managing risks through ongoing service improvement rather than requiring new policies, powers, or resources. 1.4 Overall, the findings indicate that current arrangements are sound and proportionate. Ongoing risks are best managed through continued service refinement, clear communication, and routine performance oversight, rather than through further formal investigation or policy intervention at this stage. 1.5 The review confirms that improvement activity already underway, particularly relating to digital content, customer journeys, and service coordination, directly addresses the issues raised through scrutiny. ___________________________________________________________________
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OFFICIAL 2. Recommendations 2.1 Elected Members are asked to: Consider the findings and recommendations. Approve the report for submission to Council on 22 June 2026. Note the author’s appreciation to all council officers involved on the preparation of the report. ___________________________________________________________________ 3. Background 3.1 The report to Council describes the purpose and scope of the further review into issues of house and garden maintenance and their links to neighbour disputes and antisocial behaviour. It summarises the matters considered by the Audit, Risk and Scrutiny Board, sets out the key findings, and concludes with the proposed recommendations for members. 3.2 Previous briefing papers and related reports considered by the Audit, Risk and Scrutiny Board are noted as background papers to the Council report. ___________________________________________________________________ Implications of the Report 1. Financial - None 2. HR & Organisational Development - None 3. Community/Council Planning - None 4. Legal - None 5. Property/Assets – None 6. Information Technology – None 7. Equality and Human Rights - None 8. Health and Safety - None 9. Procurement - None 10.Risk - None 11.Privacy Impact - None 12.Climate Risk - None 13.Children’s Rights - None
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OFFICIAL 14.COSLA Policy Position - None ___________________________________________________________________ List of Background Papers: Neighbour Disputes Paper - Audit, Risk and Scrutiny Board, January 2023 Neighbour Disputes Paper - Audit, Risk and Scrutiny Board, March 2023 Neighbour Disputes Paper - Audit, Risk and Scrutiny Board, January 2024 Neighbour Disputes Paper - Audit, Risk and Scrutiny Board, March 2024 Neighbour Disputes Paper - Audit, Risk and Scrutiny Board, May 2024 Neighbour Disputes Paper – Council, December 2024 Briefing on Lack of House and Garden Maintenance - Audit, Risk and Scrutiny Board, September 2025 The foregoing background papers will be retained within Chief Executive’s Service for inspection by the public for the prescribed period of four years from the date of the meeting. The contact officer within the Council is the Promise Manager, Children’s Services, who can be contacted at maurice.gilligan@renfrewshire.gov.uk Author: Maurice Gilligan, Promise Manager, Children’s Services, Renfrewshire Council. ___________________________________________________________________
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OFFICIAL ___________________________________________________________________ To: Council On: 22 June 2026 ___________________________________________________________________ Report by: Lead Officer ___________________________________________________________________ Heading: Lack of Housing and Garden Maintenance – Final Report ___________________________________________________________________ 1. Summary 1.1 This report presents the findings of the further investigation requested by the Audit, Risk and Scrutiny Board at its meeting on 22 September 2025, following consideration of the Briefing on the Lack of House and Garden Maintenance. The Board asked that further examination be undertaken in the following four areas: Public/Council Interface. Interdepartmental Communication. Issues with Flatted and Communal Garden Areas. Sanctions for Antisocial Tenants. 1.2 The purpose of this work was to evaluate whether the Council’s existing arrangements in these areas remain appropriate, effective, and proportionate, and to determine whether any systemic gaps, risks or unmet issues required escalation through further investigation, policy change or additional controls. 1.3 The review examined relevant policy, operational practice, governance arrangements, legislative constraints, and service interfaces. This included housing, neighbourhood services, customer services, communications, digital services, and community safety. It also took account of prior scrutiny activity, audit findings, resident feedback themes, and known operational pressures, particularly within mixed-tenure environments.
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OFFICIAL 1.4 The report confirms that concerns relating to house and garden maintenance, particularly in flatted and communal settings, continue to feature in neighbour disputes and can contribute to escalation into antisocial behaviour where early resolution is not achieved. These risks are recognised and actively managed within existing service models and governance arrangements. 1.5 The report finds that Renfrewshire Council has established and legally compliant frameworks in place for: Early engagement, advice, and mediation. Coordinated operational responses. Graduated and proportionate enforcement of antisocial behaviour. Partnership working with Police Scotland, Registered Social Landlords and community safety services. These frameworks are operating as intended within existing legislative, policy, and resource parameters. 1.6 Areas identified for refinement relate primarily to clarity, coordination, and the management of resident expectations, rather than to any lack of statutory authority, enforcement powers or policy coverage. In particular, the report highlights: Gaps and inconsistencies in public-facing guidance, especially for residents in mixed-tenure and communal settings. Opportunities to strengthen joined-up service alignment at the earliest point of contact. Ongoing practical challenges inherent in communal and shared ownership environments, where outcomes often depend on cooperation beyond the Council’s direct control. 1.7 Overall, the findings indicate that current arrangements are sound and proportionate. Ongoing risks are best managed through continued service refinement, clear communication, and routine performance oversight, rather than through further formal investigation or policy intervention at this stage. 1.8 The review identified no evidence of systemic failure, unmet statutory duties, or deficiencies requiring additional enforcement powers, policy changes, or new resources. It confirms that improvement activity already underway, particularly relating to digital content, customer journeys, and service coordination, directly addresses the issues raised through scrutiny.
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OFFICIAL 1.9 The report therefore provides assurance to the Audit, Risk and Scrutiny Board that: The four areas identified by the Board have been fully considered. Existing arrangements are fit for purpose within the Council’s remit. Ongoing risks are recognised and managed through established service improvement and governance processes. ___________________________________________________________________ 2. Recommendations 2.1 Elected Members are asked to: Note the findings of this report into house and garden maintenance and its relationship to neighbour disputes and antisocial behaviour. Note that the review has addressed the areas specified by the Board and has identified no need for further investigation, new policy frameworks, or changes to statutory powers. Agree that the further review is complete and that any ongoing assurance or challenge will be undertaken through the Board’s normal scrutiny role. ___________________________________________________________________ 3. Key Findings 3.1 The review provides assurance that the Council’s arrangements for managing house and garden maintenance issues are appropriate, proportionate, and effective within the Council’s statutory remit. 3.2 Strong early action is consistently taken across services, including: Clear advice and signposting. Access to mediation services. Operational neighbourhood services activity. Community Wardens and Community Support Wardens providing visibility, reassurance, and early intervention. These measures are effective in resolving issues at an early stage and in reducing the risk of escalation. 3.3 Enforcement action is applied only where behaviour clearly meets the antisocial behaviour threshold and where early, supportive interventions have not resolved the issue. This demonstrates that enforcement powers are used consistently, appropriately, and proportionately.
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OFFICIAL 3.4 The main opportunities for improvement relate to: Clearer public-facing guidance on responsibilities, particularly in mixed-tenure and communal settings. Earlier and more visible coordination between services when issues first emerge. Improved management of expectations regarding the Council’s legal remit and limits. 3.5 Feedback indicates that where housing, environmental and antisocial behaviour issues overlap, residents may contact multiple services before receiving joined-up advice. While this does not delay enforcement or support where thresholds are met, it highlights an opportunity to strengthen early multi-service alignment at the first point of contact. 3.6 Taking account of ongoing legislative change, audit findings, resident feedback and the Board’s oversight role, the review confirms that current governance and operational arrangements remain appropriate and effective. No requirement has been identified for new policies, additional powers, or additional resources at this time. 3.7 This work was undertaken to support Board scrutiny and provide assurance rather than to propose changes to policy or funding. The findings confirm that arrangements are operating as intended and that any required refinements are being addressed through routine service improvement activity. ___________________________________________________________________ 4. Key Parts of the Report 4.1 Public / Council Interface (covers 5.1 – 5.14) Reinforces the importance of accessible, inclusive service delivery, recognising the Council’s role as a visible and trusted point of support for residents, regardless of tenure. Recognises the Council as a first point of contact for residents, even where the issue sits outside direct Council responsibility. Clarifies that, in cases involving private owners, private landlords or mixed-tenure arrangements, the Council’s role is to provide clear advice, explain legal responsibilities, manage expectations, and signpost residents to appropriate routes for resolution rather than leaving them without guidance. Identifies gaps in public-facing guidance on garden maintenance responsibilities and antisocial behaviour reporting, particularly for mixed-tenure properties, which risk confusion and increased contact demand. Confirms that antisocial behaviour webpages have been updated and that further work is underway to strengthen garden maintenance guidance, clarify service scope for non-Council tenants, and improve understanding of reporting routes.
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OFFICIAL Emphasises the importance of clear communication, early engagement, consultation activity, participatory budgeting initiatives (such as You Decide), and complaints handling aligned with Scottish Public Services Ombudsman (SPSO) standards. Highlights the Council’s digital transformation activity, including the redevelopment of Renfrewshire.gov.uk and the use of AI-enabled tools such as Millie, which have improved accessibility, reduced avoidable enquiries, and supported more efficient service delivery. 4.2 Interdepartmental Communication (covers 6.1 – 6.11) Stresses the importance of strong internal communication and collaboration, particularly at the point of first contact, in delivering timely, joined-up responses to housing and garden maintenance issues. Sets out the coordinated roles of Customer Services and Neighbourhood Services as primary points of contact and operational response for maintenance-related enquiries. Clarifies the user-experience responsibilities shared by Digital Experience, Marketing and Communications, Customer Services, and Neighbourhood Services teams in ensuring guidance, reporting routes and forms are clear, accessible, and consistent across online and offline channels. Highlights the use of CRM systems and feedback from frontline teams to improve information quality, reduce repeat enquiries, and support continuous service improvement. 4.3 Issues with Flatted and Communal Garden Areas (covers 7.1 – 7.20) Explains the inherent challenges of managing shared and communal areas, including coordination of maintenance, disputes over costs, delays caused by non-participation, and the absence of property factoring arrangements. Identifies common problem issues such as fly-tipping, dog fouling, bulky waste, misuse of communal spaces, blocked access ways, and unauthorised alterations that can undermine safety and neighbour relations. Emphasises early communication, informal resolution, and mediation as effective tools to prevent escalation into entrenched neighbour disputes or antisocial behaviour. Highlights the Council’s Missing Share Scheme under the Housing (Scotland) Act 2006, which enables essential repairs to proceed where a majority of owners agree where one or more refuse to pay, with costs recovered through a repayment charge. Clarifies the Council’s role in environmental maintenance, including where it applies only to Council-owned or Council-maintained areas, and provides advice on appropriate reporting routes and available support.
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OFFICIAL 4.4 Sanctions for Antisocial Behaviour (covers 8.1 – 8.33) Clearly defines antisocial behaviour as conduct causing alarm, distress, or nuisance, while also explaining what is not normally classified as antisocial (e.g. everyday household noise), to support realistic expectations. Sets out a graduated, proportionate response based on the PIER model: Prevention, Intervention, Enforcement and Rehabilitation, with early help and resolution as the starting point. Details available measures ranging from advice, warnings, mediation, and monitoring to formal enforcement, including statutory notices, fixed penalties, Antisocial Behaviour Orders (ASBOs), tenancy enforcement and eviction as a last resort. Clarifies that Acceptable Behaviour Contracts (ABCs) are used only within youth services and not for adults, reflecting current practice. Explains the different powers and limitations relating to Council tenants, private tenants, private landlords and owner-occupiers, and the use of landlord regulation where direct housing powers do not apply. Highlights strong partnership working with Police Scotland, Community Wardens, housing associations, youth services, and the Community Safety Partnership Hub. Underlines trauma-informed practice, proportionality, equality and human-rights considerations throughout assessment, investigation, and enforcement processes. ___________________________________________________________________ 5. Public/Council Interface 5.1 Core services such as waste collection, education, housing, roads, social work, and benefits remain central to public confidence. The Renfrewshire Council Plan 2022–2027, (refreshed June 2024), reinforces the commitment to high-quality universal services while ensuring targeted support for those most in need. 5.2 However, the recent Briefing on Lack of House and Garden Maintenance Report highlighted that estate management and property maintenance, particularly in communal areas, are increasingly linked to neighbour disputes and antisocial behaviour. Issues such as overgrown gardens, neglected shared spaces, and misuse of bins often act as early triggers for conflict, underscoring the importance of timely intervention. 5.3 Digital Access and Inclusion remain a strategic priority. Platforms such as Renfrewshire.gov.uk, MyAccount, and social media channels are now the primary gateways for information and self-service. Audit Scotland has recognised the Council’s digital inclusion work as good practice. At the same time, telephone, face-to-face, and assisted options remain available to ensure fairness and accessibility.
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OFFICIAL 5.4 A recent snapshot review of the relevant pages on the Council website found identified gaps in guidance on garden maintenance and antisocial behaviour reporting, particularly for mixed-tenure properties. While antisocial behaviour guidance has been updated, garden maintenance information remains unclear, particularly around communal responsibilities, tenure types, and available support. These gaps risk confusion, increased enquiries, and reputational impact. 5.5 Work is underway to update website content and to confirm service scope for non- council tenants. The aim is to provide clear, accessible guidance for all residents, improving the public interface and reducing operational inefficiencies. 5.6 The Council Plan and the Renfrewshire Council Customer Strategy 2023–2028 emphasise active community involvement in shaping priorities and services. Engagement methods include targeted consultations, local partnerships, thematic panels, community planning, and participatory budgeting initiatives such as You Decide. The Consultation and Engagement Policy (February 2025) strengthen governance and consistency across all engagement activity. 5.7 The Briefing on Lack of House and Garden Maintenance reinforces the importance of communication in preventing disputes. Many residents remain unclear about how to report maintenance issues or what support is available. Improving communication channels, including non-digital options, is essential to promote early reporting and reduce frustration. 5.8 Renfrewshire Council continues to refine complaints handling in line with Scottish Public Services Ombudsman (SPSO) standards. Improvements include clearer quality assurance and annual reporting to the Audit, Risk and Scrutiny Board. These measures ensure accountability and embed organisational learning. Performance indicators, such as the proportion of complaints resolved at the frontline stage, provide transparency and help track progress. 5.9 Clear, inclusive communication is a stated priority for Renfrewshire Council. The Marketing and Communications Strategy 2024–2027 sets out values and actions to support the Council Plan and the Chief Executive’s Service Improvement Plan. It provides a framework for delivering consistent, accessible messaging across all channels, including collaboration with community-run platforms. This approach is essential to address gaps in public awareness identified in the Briefing on Lack of House and Garden Maintenance. 5.10 Digital innovation underpins the Council’s ambition for modern, efficient services and would support the reporting and accessibility to raise any issues of concerns to the council such as issues with flatted and communal garden areas, and anti-social behaviour.
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OFFICIAL Key initiatives include: Website Redevelopment: The new Renfrewshire.gov.uk was launched in July 2025. All content on the new website has been re-written to make it clearer and accessible. The review and migration of content is expected to be completed in 2026. AI Digital Advisor – Millie: Launched in November 2024, Millie handled over 240,000 enquiries in its first year, reducing call volumes by 35,000 and earning national awards. Digital Strategy 2025–2030: Positions AI as a core enabler for efficient, accessible services, supporting projects such as website redevelopment and expanded AI tools. 5.11 As noted in the Briefing on Lack of House and Garden Maintenance Report Renfrewshire Council has implemented several effective interventions, including the Neighbourhood Environmental Trainee Team (NETT), the Team Up to Clean Up campaign, and targeted regeneration projects such as Moorpark. These initiatives have improved local environments and reduced complaint volumes. The NETT programme has recently expanded from two squads to four, reflecting the Council’s commitment to proactive estate management within council properties. 5.12 Renfrewshire Council can act as a first point of contact for residents raising concerns about a wide range of public services, community issues, and statutory matters, including issues relating to housing conditions, lack of housing, garden maintenance, and environmental concerns. 5.13 Given the Council’s statutory duties and remit, not all matters raised by residents will fall directly within the Council’s powers to resolve. In particular, issues involving private owners, private landlords or mixed-tenure arrangements may sit outside direct Council responsibility. 5.14 In these circumstances, the Council’s role is to provide clear advice, explain legal responsibilities, manage expectations, and, where appropriate, refer or signpost residents to the correct organisation or route for resolution. This approach supports early clarity, reduces frustration, and ensures residents are not left without guidance, even where the issue itself is not a Council responsibility. ___________________________________________________________________ 6. Interdepartmental Communication 6.1 Effective interdepartmental communication is essential for the early identification and coordinated management of housing, garden maintenance and environmental issues.
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OFFICIAL 6.2 Clear and timely information-sharing helps clarify responsibilities, prevents issues escalating into neighbour disputes or antisocial behaviour, and reduces the need for residents to contact multiple services. It also enables staff to understand their respective roles and how these contribute to wider council priorities. 6.3 Renfrewshire Council’s Marketing & Communications Strategy 2024–2027 highlights the importance of strong internal communication in driving performance and service quality. Clear communication supports efficient working, shared understanding and collaboration, and reinforces the Council’s vision, objectives and shared purpose. 6.4 In line with this strategy, the Council’s communications approach translates strategic aims into clear, practical guidance to support staff in their day-to-day roles. During periods of change or transformation, consistent messaging ensures teams remain informed, engaged and confident about what is happening and why. 6.5 Enquiries and issues raised by residents are managed through a coordinated approach involving the: Customer Services Team – first point of contact, expectation setting, enquiry logging and routing. Digital Experience Team – clear, accessible guidance and consistent reporting routes. Neighbourhood Services Teams – on-the-ground assessment, response and feedback. Each service has a defined role, and effective delivery depends on close collaboration across teams. 6.6 The Digital Experience Team maintains and updates Renfrewshire.gov.uk, working with service areas to ensure content reflects current policy and operational practice. In partnership with Neighbourhood Services, the team provides clear and accessible guidance on responsibilities and reporting routes for mixed-tenure properties, while also signposting alternative access options for residents unable to use online services. 6.7 The Customer Services Team acts as the primary contact point for residents via telephone, email and face-to-face channels. The team provides clear advice on responsibilities, available support and next steps, sets appropriate expectations, and ensures enquiries are logged, categorised and routed through MyAccount and Customer Relationship Management (CRM) systems. 6.8 Insights from CRM data and frontline feedback are shared with Digital Experience and Neighbourhood Services teams to improve guidance, refine messaging and strengthen advice at the earliest point of contact. 6.9 While residents may contact different services depending on the nature of an issue, effective internal communication ensures responsibilities are clarified quickly and consistent advice is provided regardless of the entry point.
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OFFICIAL 6.10 Neighbourhood Services Teams respond to operational issues such as neglected communal areas, overgrown gardens and bin misuse. They work with housing and environmental services to coordinate appropriate interventions, including specialist maintenance or NETT deployment, and report recurring issues to Customer Services and Digital Experience teams to support continuous improvement. 6.11 This integrated approach ensures enquiries are captured, tracked and resolved efficiently. Learning from frontline activity informs improvements to communication and service delivery, helping to avoid siloed working and ensuring residents receive timely, consistent and proportionate responses across Renfrewshire’s communities. ___________________________________________________________________ 7. Issues with Flatted and Communal Garden Areas 7.1 Flatted properties and communal garden areas are an important part of shared living environments. They provide residents with access to outdoor spaces such as landscaped grounds, back courts, paths, and shared gardens, alongside common elements like stairwells, entrances, roofs, and external walls. 7.2 These spaces are communal rather than private, meaning their upkeep depends on cooperation and collective responsibility among all residents. While these areas enhance the quality of life, managing them presents persistent practical, social, and organisational challenges that require clear oversight and effective communication. 7.3 One of the most significant challenges is coordinating maintenance and repairs among multiple owners. In many cases, reaching agreement on routine or essential work can be slow and contentious, particularly in buildings without a property factor or owners’ association to guide decision-making. 7.4 Owners can differ in their willingness to fund improvements or undertake proactive maintenance. This can lead to delays in carrying out necessary work, allowing problems such as overgrown gardens, deteriorating surfaces, or unsafe access points to worsen. 7.5 Disputes over non-payment for communal upkeep are also common, creating frustration and strained neighbour relations. When essential repairs are delayed, the consequences can extend beyond appearance, affecting the structural integrity and safety of the building and even reducing property values. 7.6 Misuse and neglect of shared outdoor spaces add another layer of difficulty. In many flatted developments, bulky household waste, such as mattresses, broken furniture, or excess refuse, is left in communal garden areas or back courts. This creates hazards, attracts vermin, and diminishes the amenity value of shared grounds. 7.7 Dog fouling is another frequent complaint and a source of friction between households, particularly where there is no agreed system for managing pets in communal spaces.
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OFFICIAL 7.8 Unequal use of shared gardens can also cause disputes. For example, one household may informally take over part of the garden, install seating or fencing, or engage in exclusive planting without consulting others. Such actions undermine the communal principle and can lead to conflict, loss of access, and deterioration in community relations. 7.9 Neighbour disputes often arise from unauthorised changes to communal areas. These include installing barriers, removing landscaping, or disagreements over trees and plant overhang. Problems also occur when residents make alterations without seeking consent or attempting to achieve consensus. 7.10 Similarly, managing access paths, bin storage areas, and shared courtyards can become problematic where space is limited or poorly maintained. Blocked routes and cluttered areas not only look unattractive; they also create safety hazards, particularly in emergencies. 7.11 To reduce these problems, communication and cooperation are essential. Residents are encouraged to discuss concerns informally at an early stage, especially where expectations about maintenance differ or where minor issues could escalate. Mediation services provide a useful route when direct communication fails, helping neighbours reach agreements without resorting to legal action. 7.12 Many buildings choose to appoint a property factor to coordinate repairs, organise cleaning, manage bills, and ensure consistent standards across communal areas. Factors can play a critical role in maintaining accountability and reducing the administrative burden on individual residents. 7.13 Keeping communal spaces safe and clean is another priority. Stair cleaning is a routine responsibility, and residents may arrange rotas, hire professional cleaners, or agree on communal contracts to ensure compliance. Stair lighting is crucial for safety, particularly in older tenement buildings, and requires ongoing management to maintain fixtures and energy supply. 7.14 Improper storage of bicycles, prams, or other items on stairwells is discouraged because of obstruction and fire risks. Intervention may be necessary where residents refuse to comply. Likewise, effective refuse management, whether through improved bin capacity, new bin stores, or block-wide cooperation, is essential for maintaining sanitary and safe communal garden areas. 7.15 Renfrewshire Council provides structured support to help resolve issues, particularly those involving communal gardens. Residents are advised to start by reviewing responsibility arrangements and then attempt constructive discussion with neighbours to promote shared upkeep. If dialogue fails or essential repairs are needed and one or more residents refuse to participate, the Council’s Missing Share Scheme becomes an important mechanism.
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OFFICIAL 7.16 Through this scheme, the Council can pay the outstanding share owed by the non-participating owner, provided that a majority of owners support the proposed repairs and efforts to engage the non-payer have been exhausted. The Council then seeks to recover costs from the absent party. 7.17 The Council has powers under the Housing (Scotland) Act 2006 to pay the missing share of the non-contributing owner's costs. This allows essential repairs to proceed and helps avoid more serious and costly problems later. The Council will then seek to recover the missing share costs, including administrative and interest charges, from the owners who have not paid, via a charge on the title to their property, known as a Repayment charge. A Repayment Charge is a yearly instalment that has to be paid along with interest and any administrative expenses for a minimum of 5 years or up to 30 years. 7.18 The Council can assist with environmental issues in communal garden areas only where these spaces are Council-owned or shared areas identified within Title plans. Routine grass-cutting or hedge maintenance is normally provided only for Council properties, or for residents who receive support through the Garden Assistance Scheme or the Council’s Common Maintenance Programme (close cleaning and garden maintenance). 7.19 Issues such as overgrown grass, hedges, or vegetation can be reported through the ‘Report a Neighbourhood Issue’ service only where they relate to public places, or where the Council is already responsible for maintaining the garden. This ensures that hazards and amenity concerns in Council-maintained areas are addressed appropriately, complementing the responsibilities held by individual owners and residents. 7.20 Where disputes escalate beyond property maintenance, particularly in cases involving antisocial behaviour, Council tenants are encouraged to involve their local housing officer or contact the Community Wardens Service. These teams can assist with investigation, intervention, and mediation, helping to restore a safe and cohesive environment for all households. Council tenants can also seek support or clarification from their area Housing Services Team. ___________________________________________________________________ 8 Sanctions for Antisocial Tenants 8.1 Antisocial behaviour means behaviour that causes, or is likely to cause, alarm, distress, or nuisance to people in another household. It can involve a single serious incident or a pattern of actions over time. Typical examples include persistent and unreasonable noise, intimidation or threats, harassment including hate-related conduct, rubbish dumping and fly-tipping, dog fouling and animal-related nuisance, vandalism, graffiti, and drug-related activity.
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OFFICIAL 8.2 Behaviour in public places is also included where it harms communities, for example disorder associated with the night-time economy or gatherings that cause fear or disruption. This definition reflects the concerns residents consistently identify and provides a clear basis for proportionate action. 8.3 It is equally important to be clear about what is not normally classed as antisocial behaviour. Everyday domestic sounds (e.g. footsteps, doors closing, children playing, or occasional social events are part of normal life in shared communities. 8.4 These matters are not generally considered antisocial unless they are persistent, unreasonable, and cause sustained harm. Council staff use professional judgement, taking account of context, frequency, impact, previous warnings, and any vulnerabilities. This ensures fairness, balanced expectations, and that enforcement is focused on behaviour that genuinely harms others. 8.5 Sanctions for antisocial tenant’s form part of a comprehensive, fair, and evidence-led system. The starting point is prevention and early help. Mediation and clear advice are used to support positive change and do not replace enforcement. Where investigation shows that a warning is warranted, a warning will be issued regardless of whether mediation is also being offered. Acceptable Behaviour Contracts (ABCs) are not used for adults. They are used only within youth services where appropriate. 8.6 If behaviour continues or becomes serious, formal measures are taken. These include written warnings, targeted monitoring, legal orders to restrict harmful actions, and environmental penalties. Closure Orders are police-led, with Police Scotland serving notices and applying to the Sheriff when criteria are met. Tenancy enforcement is used only where proportionate, and eviction is reserved for cases of sustained harm after support and alternatives have been tried. 8.7 The approach recognises the limits of housing powers for private tenants and owner-occupiers. The Council uses landlord regulation and other legal tools, along with strong partnership working and trauma-informed practice, to protect communities. This balance of fairness, support, and enforcement helps maintain public confidence and residents’ quiet enjoyment of their homes. 8.8 The Council’s approach is set out in the Anti-Social Behaviour Strategy and is guided by the PIER model: Prevention, Intervention, Enforcement and Rehabilitation, with help offered first and enforcement used when necessary to protect others. Prevention includes setting clear expectations, explaining rights and responsibilities, and encouraging early reporting. Intervention includes timely support, mediation, noise management advice, and referrals to relevant support services. Enforcement is used only where proportionate and necessary. Rehabilitation addresses underlying causes such as substance use, mental health needs, family pressures, or financial stress.
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OFFICIAL 8.9 Proportionality and fairness guide decision-making and council staff consider safeguarding, disability, health, and vulnerabilities when assessing risk and planning action. 8.10 Complainants are kept updated where confidentiality and data protection permit. Outcomes cannot always be disclosed, e.g., incidents recorded as domestic matters or other sensitive issues. Staff explain these limits clearly to manage expectations and maintain trust. Where applicable Victim support is available. 8.11 Residents are encouraged to begin with safe, calm conversations where appropriate, as misunderstandings can often be resolved informally. Where this is not possible, the Council offers a free, confidential mediation service. Mediation is voluntary and may be considered as part of the escalation assessment if issues continue. 8.12 When a concern is reported formally, clear, factual information is required. Residents are encouraged to keep diaries noting times, dates, incident details, and impacts. Audio or video clips may assist where lawful and safe. 8.13 Council tenants may use the antisocial behaviour reporting app. Private residents and tenants may report to Community Support Wardens, who patrol neighbourhoods, act as professional witnesses, and provide reassurance. Suspected crimes must be reported to Police Scotland (101, or 999 in emergencies). 8.14 All reports undergo proportionate assessment. Staff consider seriousness, frequency, patterns, evidence, previous reports, vulnerabilities, and community impact. If the threshold for antisocial behaviour is not met, advice and signposting are still provided. The first step is often advisory, an officer contacts the alleged perpetrator, explains the impact, and seeks immediate change. This often leads to improvement. 8.15 Where behaviour continues, formal steps may include written warnings or tenancy breach letters. Community Support Wardens may undertake additional monitoring to gather corroborated observations. 8.16 For higher-risk cases, the Antisocial Behaviour Investigation Team leads on coordination. Youth Services investigate youth antisocial behaviour cases independently. The Council also links with environmental services, mental-health teams, and addiction services where support could reduce risk. 8.17 If harm persists, legal action may be necessary. The Council may seek Antisocial Behaviour Orders (ASBOs). For persistent noise, officers can use statutory noise control powers, including warnings, fixed penalties, and, where justified, the seizure of noise-making equipment.
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OFFICIAL 8.19 Environmental offences such as fly-tipping and dog fouling may result in fixed-penalty notices and follow-up enforcement. Where a property is associated with serious nuisance or disorder, Police Scotland, not the Council, may apply to the Sheriff for a Closure Order. 8.20 Tenancy enforcement progresses only where other options have failed. Registered social landlords and the Council can take proportionate action against their own secure tenants, including court action to stop tenancy breaches. 8.21 Eviction is always a last resort, and evidence must show that support and alternatives were offered and that action is fair. For streamlined eviction processes under Scottish secure tenancy law, the Sheriff is not required to consider “reasonableness”. 8.22 Private landlords must follow procedures under the Private Residential Tenancy (PRT) framework, where the First-tier Tribunal considers reasonableness for many eviction grounds. 8.23 Staff preparing eviction cases ensure that vulnerabilities, safeguarding issues, and impacts on victims are fully documented. Support continues even at this stage. 8.24 Where the person responsible is a private tenant or owner-occupier, the Council cannot pursue eviction. Instead, it uses regulation, legal powers, and partnership working to protect neighbours. 8.25 Where a private landlord fails to manage antisocial behaviour linked to their property, the Council’s Landlord Registration/Licensing functions can issue an Antisocial Behaviour Notice requiring reasonable steps to be taken. Continued failure may result in rent penalty orders, restrictions on letting, management intervention, or referral for prosecution. 8.26 For owner-occupiers, the Council may use ASBOs and environmental enforcement. Closure Orders are not a Council tool for owner-occupied properties where Police Scotland lead on closure powers. 8.27 The Community Safety Partnership Hub brings together key services, including Police Scotland, Fire and Rescue, youth services, housing associations, mental-health professionals, and voluntary partners. 8.28 Community Support Wardens deliver targeted patrols and reassurance. Youth officers and partners deliver diversionary activities such as Street Stuff (Youth diversionary activities with St Mirren FC), which help reduce disorder. 8.29 Trauma-informed practice underpins all engagement, helping people feel heard and enabling constructive participation. While accessible formats and multilingual resources support early reporting and inclusive participation.
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OFFICIAL 8.30 The Council measures performance through key indicators such as response times, early-resolution rates, and use of formal sanctions. Case reviews support ongoing improvement. 8.31 Residents may provide feedback, and complaints follow the formal procedure. If dissatisfied after completion, residents may appeal to the Scottish Public Services Ombudsman. 8.33 The Council continues to work with relevant services to manage risks and reduce harm. This balanced approach supports both community safety and individual wellbeing. ___________________________________________________________________ 9. Sources and Documents Referenced 9.1 Scope Documents Audit, Risk and Scrutiny Board - Terms of Reference (May 2024) Audit, Risk and Scrutiny Board – Your Role As Lead Officer (March 2025) 9.2 Primary Council Documents Audit Scotland Reports on Digital Inclusion (August 2024) Briefing on Lack of House and Garden Maintenance (22 September 2025) Chief Executive’s Service Improvement Plan (2025) Organisation-Wide AI Assessment Report (ICS.AI) (January 2026) Renfrewshire Council Plan 2022–2027 (refreshed June 2024) Renfrewshire Council Customer Strategy 2023–2028 Renfrewshire Council Digital Strategy 2025–2030 Renfrewshire Council Marketing and Communications Strategy 2024–2027 Renfrewshire Council Consultation and Engagement Policy (February 2025) Scottish Public Services Ombudsman (SPSO) Complaints Handling Standards 9.3 Legislation and Regulatory Framework Housing (Scotland) Act 1987 – Section 86 (Tolerable Standard) Housing (Scotland) Act 2001 – Schedule 4 (Repairing Obligations for Social Landlords) Housing (Scotland) Act 2006 – Repairing Standard for Private Landlords
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OFFICIAL Private Housing (Tenancies) (Scotland) Act 2016 – Private Residential Tenancy Framework Antisocial Behaviour etc. (Scotland) Act 2004 – Powers and responsibilities Housing (Scotland) Bill 2024 – Stage 3 reforms Housing (Scotland) Act 2025 – Updates on tolerable standard and rent control. Housing (Scotland) Act 2025 – 29 Scottish secure tenancies etc.: duty to consider delay to eviction. 9.4 Operational Guidance and Services Renfrewshire Council Missing Share Scheme Guidance “Report a Neighbourhood Issue” Service (online and telephone reporting) Community Wardens Service Protocols Community Safety Partnership Hub Protocols Community Support Wardens Service Protocols Mediation Service Guidance Antisocial Behaviour Investigation Team Procedures Acceptable Behaviour Contract (ABC) Guidance Antisocial Behaviour Reporting App User Guide 9.5 Strategies and Policies Renfrewshire Anti-Social Behaviour Strategy 2022–2025 (PIER model: Prevention, Intervention, Enforcement, Rehabilitation) Renfrewshire Council Customer Strategy 2023–2028 Consultation and Engagement Policy (February 2025) Marketing and Communications Strategy 2024–2027 Chief Executive’s Service Improvement Plan 9.6 Enforcement and Legal Procedures Tenancy Enforcement Procedures Antisocial Behaviour Notice Guidance for Private Landlords Rent Penalty Order Procedures Closure Order Application Protocols 9.7 Partnership and Prevention Initiatives Community Safety Partnership Hub Tasking Reports Street Stuff Programme Delivery Plan Trauma-Informed Practice Training Framework
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OFFICIAL ___________________________________________________________________ 10. Acknowledgements and Thanks 10.1 A range of senior officers from across the council have contributed to the work to date, including: Adele Andrews – Area Housing Manager David Christie – Strategic Communications Business Partner Evonne McMahon – Housing Estate Manager Fiona Macdonald – Senior Solicitor Gary Innes – Senior Service Delivery Manager Gill Darbyshire – Senior Service Development Manager Gordon McNeil – Director of Environment, Housing and Infrastructure Iain Park – Neighbourhood Services Manager Julie McBride – Service Delivery Manager Lindsey Hepburn – Senior Manager, Neighbourhood Services, Waste and Fleet Louise Feely – Head of Housing Services Lucy Adamson – Head of Marketing and Communications Lynn Mitchell – Managing Solicitor Mark Conaghan - Head of Corporate Governance Tony Pitt – Lead Content Designer 10.2 Thank you to all council officers involved on the preparation of the report. ___________________________________________________________________ Implications of the Report 1 Financial - None 2 HR & Organisational Development - None 3 Community/Council Planning - None 4 Legal - None 5 Property/Assets – None 6 Information Technology – None 7 Equality and Human Rights - None 8 Health and Safety - None
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OFFICIAL 9 Procurement - None 10 Risk - None 11 Privacy Impact - None 12 Climate Risk - None 13 Children’s Rights - None 14 COSLA Policy Position - None ___________________________________________________________________ List of Background Papers: Neighbour Disputes Paper - Audit, Risk and Scrutiny Board, January 2023 Neighbour Disputes Paper - Audit, Risk and Scrutiny Board, March 2023 Neighbour Disputes Paper - Audit, Risk and Scrutiny Board, January 2024 Neighbour Disputes Paper - Audit, Risk and Scrutiny Board, March 2024 Neighbour Disputes Paper - Audit, Risk and Scrutiny Board, May 2024 Neighbour Disputes Paper – Council, December 2024 Briefing on Lack of House and Garden Maintenance - Audit, Risk and Scrutiny Board, September 2025 The foregoing background papers will be retained within Chief Executive’s Service for inspection by the public for the prescribed period of four years from the date of the meeting. The contact officer within the Council is the Promise Manager, Children’s Services, who can be contacted at maurice.gilligan@renfrewshire.gov.uk ___________________________________________________________________ Author: Maurice Gilligan, Promise Manager, Children’s Services, Renfrewshire Council.