Agenda item

This report provides a review of the first year of the Grounds Maintenance Contract with Continental Landscapes and covers information relating to the overall performance of the contract across Parks, BHM land and highway verges, and clarifies performance issues that have arisen and also those mitigations introduced to prevent re-occurrence.  The report also details challenges faced in the first year of the contract and the lessons learnt from the  first year of operation to allow improvements to be delivered moving forward.

Councillor Muhammed Butt (as Leader of the Council attending on behalf of Councillor Krupa Sheth - Cabinet Member for Environment & Enforcement) was invited to introduce a report providing a review of the first year of the Grounds Maintenance Contact with Continental Landscapes.  In presenting the report, members were advised that the information provided included details on overall performance of the contract across parks, Brent Housing Management land as well as highways. The report also provided information relating to the challenges faced in the first year of the contract as well as lessons learned to allow improvements to be delivered moving forward with the contract, overall, felt to be making positive progress.

Following on from the Leaders introduction, Chris Whyte (Director of Public Realm) then continued by outlining the three primary challenges experienced during the first year of operation for the new contract, as identified in the report, including the need to embed and develop local working relationships with the new contractor after the previous arrangements, dealing with adverse weather conditions that had disrupted performance and grass-cutting, and integrating new machinery and electrical equipment. The Committee heard that the Council had been able to maintain an open and honest relationship with the new contractor in seeking to address these initial challenges, who had also acknowledged and reflected on the issues identified. Whilst it was acknowledged challenges remained around grounds maintenance performance on housing estates, larger parks were generally felt to have been maintained to a high standard, however issues with litter and fly-tipping during the summer season were also noted. Looking ahead, there would be ongoing evaluation of current practices to drive further improvements for the coming year. As part of the contract performance arrangements, Continental Landscapes would be conducting a comprehensive review of the summer season with insights and lessons learned to be shared with the Cabinet Member which members were advised could also be shared with the Scrutiny Committee.

Following on from presentation of the report, the Chair then invited David McClement (representing Dollis Hill Copse and Friends of Gladstone Park) to present his deputation outlining his experience of the new Grounds Maintenance Contract.  Having thanked the Chair for the opportunity to speak, Mr McClement advised of the work undertaken by the Groups he was involved in supporting in seeking to maintain a small wooded copse area within Gladstone Park.  Whilst thanking Continental Landscapes for their ongoing support, the opportunity was taken to highlight challenges which had been experienced following introduction of the new contract.  These included the arrangements and delay in provision of a significant amount of woodchip to finalise works to footpaths and a lack of effective communication and flexibility between different teams and management in collaborating with one another. Clarifying questions were raised about practical measures that could enhance communication between different teams with David McClement’s view that communication could be improved through knowledge of locality and improving clarity in communication between different teams and management. In recognising and valuing the important role played by Friends of the Park Groups and the volunteers who supported them, the Committee were keen to ensure that the issues highlighted in relation to communication and engagement between the contractor and volunteer groups such as Friends of the Park were addressed, including the need for a communications plan and ongoing support for the community support officer roles in the Grounds Maintenance contract, given their recognised source of valuable local knowledge.  Questions were also raised around delivery of the shared vision for the Dollis Hill Copse, which the Committee were reassured the Group along with their dedicated and experienced group of volunteers would continue to pursue.

The Chair thanked David McClement for his deputation and then invited Suzanne Morpurgo (as the co-ordinator of Brent Parks Forum) to address the Committee. In presenting her deputation on behalf of the Brent Parks Forum and Friends of the Park Groups Suzanne Morpurgo (participating online) began by informing members that Brent Parks Forum was a member of the National Federation of Parks, London Federation of Parks, and Brent Friends of the Earth. The organisation had also carried out educational work with children and engaged in various biodiversity work.  Focussing on performance of the contract based on experience highlighted from feedback provided by different Friends of Parks Groups, the Committee was advised of concerns expressed about what was felt to be a reduction in contract specification overtime, compared to the specifications in the former Veolia contract including the loss of key staff. Further issues around tree care, training and staff retention, maintenance of pathways, loss of machinery and the need for new machinery (including reprovision of a haulage vehicle with chain to support brook clearance) were also highlighted.  As a result of the issues raised, members advised they would be keen to seek clarification on how the specification of the new Grounds Maintenance Contract had changed when compared to the previous arrangements. As a further issue highlighted, the Committee were advised of specific concerns relating to the maintenance and planting programme for meadows and verges with the specific example provided of Fryent Country Park, meadows not being reseeded and concerns about the lack of a rotavator.  In thanking Suzanne Morpurgo for her comments and contribution, the Chair noted a need for improved collaboration and communication between Brent Parks Forum and Continental Landscapes to effectively implement the more detailed horticultural recommendations.

Having thanked both deputations for their contribution and attendance at the meeting the Chair then moved on to invite questions and comments from the Committee in relation to the update provided on first year performance of the grounds maintenance contract, with the following comments and issues discussed:

·            Following on from the query relating to specifications, Kelly Eaton (Head of Parks and Green Infrastructure) highlighted a number of key features regarding the differences between the current and previous contract specifications.  Whilst the previous contract had been robust, gaps had been acknowledged particularly around the maintenance of pathways with steps taken to address this within the new contract. Given the broad scope of the contract, members were advised that Continental Landscape as the new contractors would be delivering a 5-year rolling programme to deal with the extensive range of tasks that needed to be completed. The new specification had also sought to tighten arrangements and charges for issues such as litter collections in parks which were now included as part of the contract fee. There had also been increases in the frequency of cutting on verges compared to only eight cuts a year in the past. Specifications had been established for the maintenance and cutting of verges. An enhancement of biodiversity had also been specified in the new contact. Additional costs had been reduced where necessary to ensure the Council was delivering an enhanced programme including a focus on biodiversity and the provision of a fleet of electric vehicles substantially lowering the contract's carbon footprint.

·            In response to additional questioning, members were advised that whilst comparison specification details had not been requested as part of the original scope for the report commissioned these could be provided as part of any information request made by the Committee following the review.  In noting the challenges identified in terms of the move to a new contractor from the previously long-established partner and operational framework, members were informed that the Grounds Maintenance Contract had been based on an output specification. This included a maximum height for verges although it was noted that the grass height had exceeded these limits due to unexpected adverse weather conditions, making this an atypical year of delivery. Although under normal conditions the electric machinery would operate well, Continental Landscapes had sought to acquire additional machinery that would perform better in challenging weather conditions.

·            Referring to paragraph 3.6 within the report, which highlighted a new and clear process of monthly contract monitoring, members sought further details on how this operated in practice and how it differed from the framework that was in place under the previous contractor (Veolia). Kelly Eaton (Head of Parks and Green Infrastructure) responded that the previous contract had no formal contract monitoring between the park service and the grounds contractor. Now, there were monthly contract review meetings, weekly operational meetings and briefings for the Lead Member led by Continental Landscapes, all of which provided more robust monitoring arrangements. The system also included an enhanced IT package, although it was recognised the system required more intensive use in order to meet the Council’s needs in extracting the necessary information to effectively monitor KPIs. Continental Landscapes were therefore working on a revision to their system with the first test of the new system expected in the coming months.

·            Members also referenced paragraph 3.8 in the report around the challenges relating to the use of IT and accuracy of performance data as a means of supporting a meaningful and robust contract monitoring process. In response, Kelly Eaton (Head of Parks and Green Infrastructure) explained that a current problem with the system was that if an issue was marked as closed, such as through Fix My Street, but a resident later reported that it had not been resolved, there was no existing method within the system to escalate this issue or track duplicate reports. As a small team, it was crucial to identify where the problems were to determine wider issues that could then be reported to the contractor. The new system would enable the team to track escalations and duplicate reports from residents and was anticipated to be operational within the next few months. Paul Norton (Continental Landscapes) added, prior to the implementation of the new system, an interim solution would be put in place until the full development was finalised and would be able to provide a report based on a set of KPIs stipulated in the contract.

·            Further details were sought on the challenges identified in relation to poor weather as an obstacle to delivery of the contract, given that extreme weather was likely to remain an ongoing challenge in the future, with the Committee keen to explore the measures being put in place to adapt and address weather-related obstacles. In response, the Committee were advised that whilst Continental Landscapes had sought to purchase electric machinery, where concerns about poor weather affecting the use of this equipment had been identified, they had sought to hire alternative machinery powered by a low carbon fuel, which permitted grounds maintenance activity and verge cutting in wet or more challenging weather conditions and would be used going forward. Additionally, plans were being developed to undertake grass cutting earlier in the season to better manage weather-related challenges.

·            Members expressed concerns about the effectiveness of electric machinery in certain weather conditions, with additional questions raised regarding whether the electric machinery was operating at full capacity, given the challenges mentioned in the report. There were also concerns around whether purchasing low carbon fuel, which was approximately four times the cost of petrol, was a suitable use of resources. Members also noted that high grass verges concealed cans and broken bottles, posing a hazard to people and animals. As a further issue highlighted, the Chair sought details about who bore the additional costs of hiring the new machinery and the extra expense of using low carbon fuel. In response, Paul Norton (Continental Landscapes) clarified contract arrangements. The Committee were advised that when machinery was purchased for the contract, it underwent rigorous testing and multiple demonstrations over several weeks. These tests showed that under normal conditions the electric machinery used in parks and on verges could operate for 7-9 hours per day, depending on the length of the grass.  In terms of initial performance, as a result of the initial verge cutting programme being delayed due to early-season rain, the grass had grown rapidly and by the time it was dry enough had become too long and damp, which drained the battery of the electric machinery. In response to these issues, additional machinery had been added to the contract and alternative fuels investigated for running the equipment. The Committee were advised that Continental Landscape had borne the costs of the machinery as well as the fuel and would continue with that commitment.

·            Reference was made to paragraph 3 regarding the various aspects of the Grounds Maintenance Contract with specific queries relating to the maintenance of waterways. In response, Members were advised that the contract specification included clearing general litter from the waterways. A notable challenge for Continental Landscapes was the removal of larger items found in waterways, including fly tip bags of waste containing building materials, shopping trolleys and bikes. The review referred to during the introduction of the report would provide a more detailed exploration of the impact on waterways. Following on from the previous question, details were sought about why the inclusion of a haulage vehicle with chain that could be used for removing larger waste items from waterways had not been included within the initial contract specification given access the previous contractor had to similar machinery, and what the costs would be if that were now to be added. The Committee were advised that the costs would not be known until those options were explored. The reason a vehicle for removing larger waste items from waterways had not initially been considered was that such incidences were sporadic, although these were now recognised (through the contract monitoring process) as increasing and as a result options were being explored in relation to a potential enhanced partnership arrangement with Veolia to access equipment they operated.

·            As a separate issue, questions were raised about access issues when it came to waterway clearance. Members were informed that access to waterways largely depended on the type of waterway involved, with access more challenging for areas with steeper banks. The Council had liaised with Thames Water, Thames 21, and the Environment Agency to explore the most appropriate access points and were also undertaking a comprehensive review of access issues based on recognised fly tipping hotspots to understand how best to be able to address and access these sites safely.

·            Further details were also sought on the collaboration being undertaken with Thames 21 and if they were continuing to use their resources to support Continental Landscapes work on waterways. In response, the Committee heard that the Council was continuing to work with Thames 21 and also remained part of the Brent River Catchment Partnership to gain insight into the interconnections between the waterways flowing through Brent.

·            Moving on, details were then sought on the reference to the monitoring of poor quality/inappropriate work undertaken by the Community Payback Service such as cutting down healthy trees. Members posed questions around the scope in the contract for Continental Landscapes to provide horticultural supervision of the work of Community Payback teams to help support the aims of the contract whilst also developing the skills of those on probation being supervised through the service. In response, Paul Norris (Continental Landscapes) advised that whilst working closely with Friends of Parks Groups they had not yet had direct connection with the Community Payback Service. The opportunity to establish such as connections would, however, be welcomed as a means of seeking to offer meaningful work opportunities and deliver improvements to the service area.

·            As a further issue in relation to contract delivery, reference was made to section 3.11 of the report and challenges identified around staffing.  Clarification was sought on the issues identified and why it had not been possible to identify these during the initial tender process along with the due diligence conducted at the tender stage to ensure these would not remain as issues once the contract had commenced.  In response, members were advised that this had involved problems with the reading and uploading of data by staff through the Fix My Street reporting system. In terms of lessons learnt the Committee were informed that, for this contract, there had been a mapping of all parts of the borough included under the contract, which was something that had not been previously undertaken. It was noted that Fix My Street was not in place at the point of tendering. Love Clean Streets as a system was in place at that time. At the point of the tendering specification, an IT system was explored to connect with staff on the ground who were using handheld devices with the integration of Fix My Street having subsequently taken place later and staff therefore requiring additional training on use of the new system. Furthermore, it was noted that whilst there had been some staffing issues, Continental Landscapes had worked quickly to recruit additional staff with the recruitment of appropriately trained and qualified grounds maintenance staff recognised as a problem across London.

·            Following on from the previous question, reference as also made to paragraph 3.5 within the report in relation to improvement in staff morale under the new contract and on what evidence this had been based. Additional questions were raised about the factors that had contributed to this assessment. Members were keen to seek details on whether staff morale had improved, and if there was any evidence of improved productivity from the previous contract. In response, the Committee heard that the issue with staff morale did not necessarily indicate poor morale under the previous contract. The transition of staff between the old and new contracts caused a period of anxiety and uncertainty regarding the change. It was important that the incoming contractor reached out to staff providing the right level of engagement and training from the outset as a willing and caring employer. It was added that during the commencement of the contract, one-to-one meetings, comprehensive staff training and engagement had been undertaken. Members were also advised of the annual staff appraisal process and staff surveys which had been undertaken. Paul Norris (Continental Landscapes) advised that employee morale was taken seriously within the workforce with the company committed to a process of continuous invest in their staff. The Committee expressed interest in receiving information about the staff survey results for future reporting as a means of identifying any specific trends, although it was recognised these would be focussed on the staff group as a whole.

·            As a separate issue the Committee then moved on to focus on challenges relating to ground maintenance provision within housing estates, which it was noted often related to disputes around land ownership and responsibility between different housing providers and the Council.  In response, Members heard that through a process of liaison with housing colleagues and land registry searches investigations had been undertaken to address issues relating to land ownership and areas included within the contract.  If it was discovered disputed land fell under the ownership of the Council or had not been included a variation would be arranged to ensure this was added to the contract, following a cost estimation. Members were advised that Continental Landscapes were currently working on variations for housing sites and small pockets of land that had not been included in the original scope of the contract, which would involve an uplift of £38,000 in the contract price, The Chair enquired further as to whether the scale of variation was manageable and accounted for under the financial planning process for the contract with it confirmed that both the number of sites and the associated costs were manageable and had been accounted for within the wider costs of the contract.

·            Returning to staffing issues, details were sought around how Continental Landscapes sought to retain staff. In response, Paul Norton advised of the TUPE arrangements established as part of the award of the new contract designed to support the transfer and retention of staff. Additionally, an apprenticeship scheme had been established with the company committed to continue investing in training with the aim of retaining staff and boosting job satisfaction.

·            The Committee then turned their attention to the position regarding the clearance of litter on verges, with members advised that this remained the responsibility of the Council’s Street Cleansing contractor. It was recommended that this area of work be reassessed to ensure a more co-ordinated approach was established between the grass cutting and street cleansing programme given the level of complaints being received by local ward councillors, with specific concerns highlighted in relation to Sudbury, Wembley, and Alperton.

·            Continuing on the issue of litter and fly-tipping reference was made to the detail provided within section 3.28 of the report given the large number of reports related to fly-tipping and littering continuing to be received.  Highlighting concerns relating to the time taken to respond to these reports, further details were sought on the relevant KPIs and standards being adhered to. In response, the Committee were advised that the integration of Fix My Streets to the litter clearance schedule had not been in place when the original KPIs were drafted. This would, however, now form part of the review process identified at the start of the meeting in order to consider response times for litter clearance and whether there were any new KPIs that needed to be integrated as a result. There was currently a statement of reasonable time in place, which amounted to approximately 5 days for the clearance of overflowing litter bins within parks or open spaces.  As part of the annual report, a more detailed review of the KPIs for litter clearance would be conducted to ensure their effectiveness and the information was clear to local residents. Following up, Members raised questions about what information the public would receive regarding the KPIs to be agreed. The response was two-fold, relating to how KPIs were practical and meaningful for members of the public, and the schedule and times of year the works were carried out. Housing colleagues were already displaying notifications on housing boards which set out expectations for works to be carried out. These actions helped members of the public to find out when works were due, expected and when they had not been undertaken.

·            In terms of litter bin clearance, members highlighted the details provided within paragraph 3.26 of the report which provided figures on overflowing litter bins being dealt with in sufficient time (currently only 66%) and queried whether alternative solutions, such as larger bins, could be explored. Whilst recognising the issues highlighted, members were advised that larger bins often attracted more large waste items being left in them.  The use of larger bins was not therefore currently being recommended given the efforts being made to discourage fly tipping and also in recognition of the impact on size of the vehicles that would be required to deal with the increased capacity of the bins.

·            Further details were also sought around specific targets relating to biodiversity and climate change commitments. In response, it was confirmed that whilst specific targets did not currently exist the opportunity to develop targets was due to be considered as part of the review process previously highlighted. Members advised they would be keen to ensure this was picked up as a recommendation arising from the review with the Parks and Green Infrastructure team encouraged to liaise with the Climate Action team to produce more specific targets.

·            As a final issue raised, reference was made to paragraphs 3.3. and 3.18 within the report relating to the quality of maintenance of sports pitches based on feedback provided by sports clubs.  As a specific example, the Chair cited the example and concerns raised about drainage works affecting East Lane sport pitches querying if these types of works and the maintenance of drainage measures were included as part of the regular maintenance programme or needed to be included as variation of the contract.. In terms of the specific site highlighted, Kelly Eaton acknowledged the concerns and outlined the work being undertaken to address the specific problems identified which (given the initial approach identified) had not been included as part of the original contract specification. There were similar minor impacts across some other sports pitches though these were not to the same extent as those experienced at the East Lane and Vale Farm sports pitch sites. An assurance was provided that work was ongoing with Continental Landscapes in order to seek a final remedy, enabling the ditches to be permanently reinstated and reseeded on which it was hoped to be able to provide further feedback over the next week.

Given the time remaining and in seeking to bring consideration of the item to a close, the Chair thanked officers and Members for their contributions towards the review of the first year of the Grounds Maintenance Contract.  In view of the issues highlighted during the discussion the actions agreed as an outcome of the scrutiny process were AGREED as follows:

Suggestions for improvement

(1)           To publish a user-friendly summary of the annual report for residents highlighting expected standards, performance, key achievements, challenges, and priorities of the Grounds Maintenance contract.

(2)           To improve coordination and scheduling between Continental Landscapes and Veolia for verge cutting and street cleansing operations across the borough.

(3)           To work more closely with probation and community payback teams to create a focused work programme for offenders, exploring opportunities for relevant training and skills development.

(4)           To enhance communication and collaboration with volunteer groups (e.g., 'Friends Of' groups, Thames 21, etc.)

(5)           To consider introducing larger and more varied bins in problem areas in parks/open spaces to reduce littering and fly-tipping.

Information Requests

(1)      To provide a high-level overview of the differences between the current and previous contract specifications, focusing on significant changes, new features, enhancements, and any potential shortcomings.

(2)      To provide an annual report of the Grounds Maintenance contract's first year performance, highlighting key performance metrics, successes, challenges, and priorities for year 2.

(3)      To provide biodiversity key performance indicators (KPI’s).

(4)      To provide a strategic plan and roadmap to restore Brent parks to green flag standards.

(5)      To provide action plan for the ongoing maintenance and improvement of sports pitches throughout the borough.