Public Conveniences
North Ayrshire Council · 18 February 2025
Back to Cabinet — 18 February 2025 and its agenda
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NORTH AYRSHIRE COUNCIL 18 February 2025 Cabinet Title: Public Conveniences Purpose: To provide Cabinet with advice in relation to the provision of public conveniences following a series of recent engagement. Recommendation: It is recommended that Cabinet: a) Notes the engagement undertaken in relation to the future provision as detailed the report; and b) Approves the proposals for the future operation of Council- operated facilities as set out in the report. 1. Executive Summary 1.1 In January 2024, Cabinet agreed to a consultation with community groups to gauge the appetite of local groups to take over the operation of some/all council owned public conveniences. Briefings were held with ward members for both areas to discuss the consultation results and agree a way forward prior to reverting to Cabinet with next step proposals. 1.2 In Saltcoats there is a strong aspiration from a community group to progress a Community Asset Transfer (CAT) for Melbourne Gardens, with The Braes also under consideration at a later stage. An Expression of Interest, which is the early stage of the CAT process, has been submitted to the Council. 1.3 Following extensive discussions with the North Coast ward members, officers reached an agreed position on the proposals for the future of the five sites in Largs. 1.4 The objective of this consultation and engagement and subsequent proposals, is to ensure a good standard of public convenience provision is available and delivered within an affordable and sustainable model. 2. Background 2.1 Historical decisions regarding the provision of public conveniences have led to a variety of models of service provision being developed as well as some strategic closures of sites. These models range from community groups having Temporary Operational Licences for an existing facility to a CAT which resulted in the demolition and rebuild of an enhanced facility for the community (Ardrossan Community Development Trust Hub and Cafe). Over time, different funding routes have also become available via local funding (Largs Car Park Fund) and national funding streams (Islands Pit Stop Project) which has allowed ongoing funding for sites and/or the enhancement of facilities. Opportunities to reconsider the model of operation for the remaining Council owned sites
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continue to be taken. 2.2 There are six council owned facilities currently in operation in North Ayrshire and one which has been closed for several years due to fire damage. The current provision of Council operated sites is concentrated in two towns – Largs and Saltcoats. Site Location Opening Schedule Notes Largs - Gallowgate Full Year Largest of the sites and income used from the Largs Car Park Fund to recently refurbish to a high standard. Pay on entry. Largs - Broomfields Full Year Requires capital investment to be sustainable in the medium to long term. Six-minute walk from Mackerston facility. Largs – The Pencil 1st April-30 September Requires capital investment to be sustainable in the medium to long term Largs - Mackerston 1st April-30 September Requires capital investment. Six-minute walk from Broomfields facility. Largs – Aubery Park 1st April-30 September Requires capital investment. Additional gender inequality due to the female facility being closed for over 6 years due to a significant drainage issue. Saltcoats – The Braes Full Year Requires capital investment Saltcoats – Melbourne Gardens N/A Closed due to fire damage 2.3 In January 2024, Cabinet gave approval to engage with recognised community groups in Saltcoats and Largs to assess the appetite of local groups to take over the operation of any or all of the sites. The objective of this was to explore alternative models and funding options which would support an affordable and sustainable provision of good standard facilities in key sites for residents and visitors. 2.4 In February 2024 a survey for community groups was launched and was open for six weeks. Additionally, condition surveys were carried out by the Property Team to provide an updated assessment of the sites and components therein. All bar one of the remaining facilities requires capital investment as well as regular repair and maintenance due to ongoing vandalism or ageing components. Consultation Results 2.5 A survey was developed and issued to constituted community groups in Saltcoats and Largs. Groups were supported during the consultation period by the Connected Communities Locality Officer for their area. • Largs – two groups responded. One group noted potential interest in all five sites in Largs and the second group noted interest in the Broomfields site only. • Saltcoats – four groups responded. Two groups did not have any interest in this proposal and two responded positively: one for The Braes and one for Melbourne Gardens.
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2.6 Of the two positive responses for Saltcoats, one group, Ripple Effect Saltcoats (RES), was already engaging with council officers with a view to progressing plans for the Melbourne Gardens area including the toilet facility, via a CAT. Notice was received after the consultation that the two Saltcoats groups who registered interest for the separate sites would align their aspirations and RES would be the lead group for both sites for a potential community asset transfer of both facilities with Melbourne Gardens being their priority. Actions Since January 2024 Saltcoats 2.7 In February 2024 a condition survey was carried out for The Braes which identified required capital spend of c£90k. Following the closure of the consultation, separate briefing sessions were held with ward members to advise them of the results and gather feedback from members. 2.8 It was agreed that there had been and continued to be, positive engagement across council services and The Ayrshire Community Trust (TACT) with RES regarding progress of the group’s readiness for a project of this scale for the Saltcoats facilities. It was also agreed that support would continue to be offered to progress their aspirations for both Melbourne Gardens and any future consideration for The Braes. Largs 2.9 In February 2024, condition surveys were carried out for four of the five sites in Largs. A survey was not carried out for Gallowgate as this site had recently been refurbished to a high standard. The outcome of the surveys for the four sites (Broomfields, Aubery Park, The Pencil and Mackerston) deemed all four to be in poor condition and set out estimated capital costs totalling c£160k, required to replace components based on their useful life cycle or condition. There is not currently any allowance for such capital funding within the council’s budget. 2.10 The Largs Car Park Fund currently contributes £35,000 annually to Facilities Management for the cleaning of the five sites in Largs, however this does not fully cover the costs and results in a shortfall of c£45,000 which is met by the service. There are also costs for utilities of c£25k. 2.11 Pay gates were installed early in 2024 at the Gallowgate site and are contributing the income available for redistribution to agreed Largs projects. 2.12 Several meetings have taken place with North Coast ward members as well as site visits to all facilities to allow ward members to discuss each site in turn with officers and the Executive Director (Education). These meetings have acknowledged a shared aim to maximise access to good standard facilities in Largs. This aim recognises the importance of such access both to residents and to the tourism industry. 2.13 Details of communications with North Coast ward members including meetings, briefing papers and site visits are listed below: • 2nd September 2024 – Meeting (Ward members, Executive Directors for Education and Communities & Housing, Senior Manager Facilities Management) • 5th November 2024 – Site visits to all five facilities (3 ward members, Executive Director Education, Senior Manager Facilities Management, Team Manager PMI)
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• 10th November 2024 – Briefing paper issued to all ward members responding to model/funding proposals at 2nd September meeting. • 13th November 2024 – Meeting (Ward members, Executive Director (Education), Senior Manager Facilities Management). • 5th December 2024 – Final summary paper issued to ward members • 10th December 2024 - Meeting to agree final proposals/way forward (Executive Director Education, ward members, Senior Manager Facilities Management). 2.14 During this time, different ideas for both recurring revenue solutions (for day to day running costs) and capital investment solutions (to address condition survey results) were explored by officers. Proposals Agreed with Ward Members (Largs) Gallowgate 2.15 This site has recently been refurbished with loan fees and charges being met by the Largs Car Park Fund. Income generation from the pay gates is being held in the Car Park Fund. As a result, it was agreed that this site would remain in Council ownership and be fully funded from the Car Park Fund (to include all running costs cleaning, repairs and utilities etc). Broomfields & The Pencil 2.16 The condition surveys for both sites shows that capital investment is required if they are to remain open over the medium-to long-term. The Pencil is open April-October each year and there is no electricity on site. Due to the location of this site and the distance from the facilities in the hub of the town, there was an appetite for this site to remain. A future revenue funding model is required to ensure all recurring revenue costs are covered. It was proposed that recent changes to the car park charging structure may lead to an increase in income. As a result, income from the pay gates at Gallowgate along with the Car Park Fund could be sufficient to fully fund both of these sites. It was agreed to test this projected income model for one year. If this model results in an in- year deficit, one-off revenue reserves of the car park fund will be deployed to offset the shortfall. Equally, if at the end of the year it is evident that the income position will not support these sites for future years, alternative models will be explored. In contrast, if this funding model is sufficient to cover the recurring revenue costs on a sustainable basis, the priority will turn to the need to identify funding for the future required capital works. Mackerston 2.17 This site is open part year from April-October and is within a six-minute walk to the Broomfields facility. There is a kiosk in the middle of the building which is under lease and there is commercial interest in the rest of this building via a lease which would not be for use as a public convenience. It was agreed that this building would remain closed, and an alternative use explored. Aubery Park 2.18 This is the smallest of the facilities in Largs and due to historical drainage issues, it only offers a male facility. Earlier exploration of the work required deemed the cost was prohibitive. There was a suggestion that the male facility could be made unisex however there are concerns regarding the safety of users in a shared space and particularly in
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one which has the smallest footprint of the sites. There was previous interest in using this site for storage by a local group. It was agreed that this site remains closed, and an alternative use could be explored to determine if further alternative options were viable for this site. Summary of Current Position 2.19 Saltcoats: RES is being heavily supported by TACT and the Locality Officer and has now submitted an Expression of Interest for a CAT for Melbourne Gardens. At this point, Estates has raised no objection and responded to this effect to the group. We currently await Legal Services feedback on the suitability assessment document which assesses the group’s constitution. TACT advised that they would support RES with any required amendments to allow them to move to the next stage. TACT also confirmed that there is a continuing strong aspiration and group support for this project with RES. The group’s plan is to progress a CAT for Melbourne Gardens in the first instance and consider The Braes at a later stage. Based on estimates from the Council’s Property Team and loss adjuster, £150k has been reserved for reinstatement on a like for like basis for Melbourne Gardens, this funding is available to support the group’s work to reinstate this facility. 2.20 Largs: Communication with ward members has been ongoing throughout 2024 and the current agreed position for the sites is noted above in 2.15-2.18 and was issued in an email to members on 11 December 2024. This period has involved many different proposals being explored from both officers and members with consideration to balancing access to good quality facilities, with the financial means to support them. Financial sustainability was a key factor when exploring models to provide some stability for a future provision in the town. Recommendations 2.21 Due to the situation outlined above, the following is recommended: Saltcoats 2.21.1 Melbourne Gardens: continue to support RES to progress the CAT application to achieve their aspirations for this site and which compliments the wider community aspirations at the shore front in Saltcoats. 2.21.2 Melbourne Gardens: approve the use of the insurance fund reserve of £150k as a contribution to the required capital work to support RES to bring the building back into use via a CAT. 2.21.3 The Braes: will remain open for the financial year 2025-26 to allow the CAT process to progress for Melbourne Gardens, and close thereafter. Largs 2.21.4 Gallowgate: remain open and in Council ownership and all running costs to be fully funded by the Largs Car Park Fund from April 2025. 2.21.5 Broomfields & The Pencil: to remain open for the next year to allow monitoring of income levels of the Car Park Fund. If the funds are insufficient, an alternative model/funding will be required from 2026-27 onwards. 2.21.6 Mackerston: to remain closed and explore alternative commercial interest in the site. 2.21.7 Aubery Park: to remain closed and explore alternative use of the site.
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3. Proposals 3.1 It is recommended that Cabinet: a) Notes the engagement undertaken in relation to the future provision as detailed in the report; and b) Approves the proposals for the future operation of Council-operated facilities as set out in the report.
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4. Implications/Socio-economic Duty Financial 4.1 The proposals for the closure of two sites and funding of recurring revenue costs for the Largs sites would result in all costs for Facilities Management and utilities being met by the Car Park Fund rather than service budgets, resulting in a service budget saving of c£70k p.a. There is also cost avoidance for future repairs for the two sites proposed for closure and capital costs of £55k for Mackerston. There is no capital estimate for Aubery Park as investment works are deemed prohibitive. Income streams from the Largs Car Park Fund following the changes to the charging structure will be monitored over the next year to assess the viability of the proposed model of funding. In-year LCPF reserves will be used for any shortfall incurred during this year. Melbourne Gardens: Insurance fund of £150k to be available to support the CAT process and reinstatement of a facility at this site by a community group. Reinstatement costs will be in excess of this value however RES plan to apply to other funding sources to augment the available funds. Human Resources 4.2 A review of hours and work patterns would be required to service the remaining public conveniences. Legal 4.3 None. Equality/Socio-economic 4.4 Under the proposals, three sites would remain open in Largs with Gallowgate being the exemplar site with a large number of facilities in the building as well as a changing places space and located in the hub of the town centre. Aubery Park, Largs only has a male facility available, and no fix is for the female facility is foreseeable due to costs being prohibitive. The proposals in this paper address this inequality to ensure all operational sites offer an equality of service. Supporting a local community group in Saltcoats to progress a CAT helps to deliver on the wider aspirations of the community for this area and will ultimately provide good quality services for the area. An equality impact assessment has been undertaken using the Council’s integrated assessment toolkit. Climate Change and Carbon 4.5 A new building or improvements to the existing site at Melbourne Gardens would incorporate climate and sustainability considerations. Key Priorities
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4.6 These proposals will address all four Council plan priorities: • Wellbeing – to transition to a wellbeing economy, delivering prosperity, wellbeing, and resilience for local people. • Communities and Local Democracy – we will have active, inclusive, and resilient communities. • Climate Change – achieving net-zero by 2030. • A Sustainable Council – a Community Wealth Building Council that is efficient and accessible, maximising investment and focusing resources towards our priorities. Community Wealth Building 4.6 A focus on quality local facilities will be achieved through these proposals, and community organisations will be supported to achieve their aspirations. The repurposing of under-utilised facilities through community asset transfer or commercial use would contribute to the land and assets pillar by bringing them into productive use for community benefit. 5. Consultation 5.1 A survey was issued to community groups in February 2024 to gauge the interest in taking over the running of the current sites in Saltcoats and Largs. 5.2 In respect of Saltcoats, extensive discussions have taken place with Inspiring Scotland and RES with council officers from many services including Estates, FM, Connected Communities, Estates, Legal and Economic Development & Regeneration. 5.3 Elected members have also been consulted for both areas. Due to the various options available for Largs, the consultation process has been lengthy but proved valuable in coming to an agreed position. SAM ANSON Executive Director (Education) For further information please contact Carolyn Hope, Senior Manager. Background Papers Cabinet paper 23 January 2024 Public Conveniences