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Hackney Council Complaints and Members Enquires Annual Report 2022-23

Meeting of Scrutiny Panel, Monday 4 December 2023 7.00 pm, MOVED (Item 4.)

Minutes:

4.1 A key function of the Scrutiny Panel is to retain oversight of council performance and the delivery of quality services. To support this role, Scrutiny panel receives a report on Complaints and Member enquiries annually. The annual report of Complaints and Member Enquiries provides an analysis of the nature and volume of complaints received, the performance of the authority in responding to these complaints, and how the complaints service uses this data to develop and improve the quality of local service provision.

Officer presentation

4.2 The Head of Business Intelligence & Member Services (HBISMS) presented the report to members, highlighting the following issues.

§ Complaints and Member & MP Enquiries continued to record substantial increases in 2022/23, which were now running at almost double historical norms (pre-pandemic). It was anticipated that the current level of complaints would continue for the foreseeable future. Hackney was not an outlier in this respect, but was part of a wider regional and national trend.

§ In 2022/23 there were over 5,400 Stage 1 complaints of which 344 progressed to Stage 2, an escalation rate of 6.4% which has been consistent for some time. This would suggest that there has not been an increase in escalation of complaints, just an increase in the volume of issues being raised. There were over 4,300 MP and Councillor Enquiries and these figures are now twice that of the historical norm.

§ Despite the increase in the volume of complaints, the response time for dealing with Stage 1 complaints improved from 32.1 days in 2021/22 to 23.9 days in 2023/23, Stage 2 were dealt with on average in 22 days in 2022/23 compared to 23.5 in 2021/22.

§ Housing repairs remains the service area with the highest level of complaints followed by Benefits and Revenues.

§ The rise in the number of complaints resulted in a significant increase in workloads for those services handling these complaints, and whilst services were managing the volume of complaints there were significant pressures within these services.

§ Complainants who are not happy with the Stage 2 response of the Council can take their case to the Ombudsman, and whilst there has been an increase in the numbers of these cases which were escalated these were not significantly higher and, there has been an improvement in the Ombudsman outcomes for the council. Again, this data is comparable to other similar authorities.

4.3 Cllr Chapman noted that, although Mayor Enquiries were not covered in the report, a new dedicated team of (5) caseworkers had been established to respond to Mayoral enquiries whose work was overseen by a newly appointed service manager. This should result in service improvements for members.

Questions from the Panel

4.4 (Chair) Whilst there are some encouraging signs within the complaints data, the fact remains that significant numbers of local residents are unhappy with local services that they have received. Given the volume of complaints and the resources needed to administer them, what is the council doing on a more strategic level to analyse and respond to the underlying factors which may be driving this dissatisfaction? Has there been any collaboration with neighbouring boroughs who may be experiencing similar issues within their complaints system?

§ (HBISMS) noted that the drivers for each individual line of complaints were listed in the report. Thus for example in relation to housing repairs, the most numerous source of complaints, there were over 1,300 complaints, mostly as a result of delays doing something works and communicating (757), failure to deliver service/take action (298) or poor info, advice, communication (50). There was a lot of new activity in the Housing Repairs Service including the establishment of new systems and increased officer capacity to handle complaints. There has also been a focus on addressing the most complex cases, where progress had been outstanding for some period of time, so as to make sure the service achieved the right outcomes for these tenants/ leaseholders. There is regular analysis of these cases to ensure that there is sufficient progress and that issues are addressed.

(7.15pm) Cllr Soraya Adejare joined the meeting and the meeting was therefore quorate.

4.5 (Chair) Whilst the cost of handling complaints is absorbed into the operational budgets of respective services, are legal fees also met by individual services or centrally within the Council? Are there any figures on the cost of complaint handling and administration across the council?

§ (HBISMS) The total costs for complaint handling was not to hand, and could only be produced in consultation with all services and with corporate finance colleagues. Any costs related to a specific complaint will be picked up by the relevant service. Complaints about housing disrepair generally do not incur direct legal costs as such complaints are handled through a separate statutory process. As a general rule, except for when legal opinion might be needed, complaints do not incur legal costs.

4.6 (Chair) Given the volume of complaints received, has the Council set any targets to help reduce them or is there a strategy to try and address some of the underlying issues? Is there any general learning in the way that complaints have been handled which can be used to inform a strategic response to complaint handling (e.g. communications)?

§ (HBISMS) Whilst complaint levels were closely monitored and there was a clear ambition to reduce the overall volume received, there were no explicit targets set as it was believed that these could drive different behaviours, some of which would be negative. It was emphasised that all services were working to reduce the number of complaints in their respective areas.

§ (HBISMS) The key preventative action was the delivery of high quality core council services which would be instrumental in bringing the number of complaints down. There were a number of contributors which drive complaints, including changes to local policies and practices. At present, it was clear that the current state of the local housing stock was a key driver behind the volume and nature of complaints received by the Council.

4.7 (Cllr Conway) What are the processes for ensuring that those complaints which require a more strategic response are triggered? For example, multiple complaints about the same issue would suggest, in some cases, the need for a more strategic approach?

§ (HBISMS) There is a published complaints policy and the council works within the complaints frameworks of both the Housing Ombudsman (HO) and Local Government office (LGO). There are numerous case studies provided by these organisations to provide best practice examples as to how types of complaints should be addressed. All complaints are signed-off by the service manager so there should be oversight of the nature/location of complaints within respective departments which should prompt coordinated action where necessary. It was also noted that all Stage 2 complaints were handled centrally in the council, and that there was a strategic analysis and overview at this corporate level which often resulted in a dialogue with Group Directors / Directors requesting a more systemic response to recurring complaints.

4.8 (Cllr Patrick) Why are Stage 2 complaints such a small percentage of Stage 1 complaints? Is this because residents' complaints have been fully resolved, or is it that they are unhappy with the Stage 1 response and do not feel that they will get a better response through the Stage 2 process? Is this assessed in any way? Similarly in terms of housing disrepair, members were aware of instances where residents had been asked to drop their complaint before remedial work was undertaken?

§ (HBISMS) To be clear, the housing disrepair cases are not part of the complaints process. In terms of Stage 1 complaints and escalation to Stage 2 the figures in Hackney are broadly comparable to other similar local authorities. It was also reiterated that the escalation process was clearly stated if they were dissatisfied with the outcome at Stage 1. This process is not hidden and it is actively used by residents, as is evidenced in the most recent figures. Stage 2 complaints are handled corporately by a different team who make an independent assessment of the complaint and frequently come to a different judgement to that which was obtained at Stage 1.

4.9 (Cllr Adejare) Further clarification is needed as to how and when a stage 1 complaint is escalated to Stage 2, as in some cases, dialogue between the complainant and the service goes on for many months yet there is still no resolution and no escalation.

§ (HBISMS) It was noted that there had been some recent changes to the Stage 2 process, as the central complaints team had a concern that some complaints, most from housing services, were not being put through for escalation. If a complainant wishes to escalate the complaint to Stage 2, there is now a much clearer set of instructions to do this and this was now handled by the corporate complaints team rather than the Stage 1 officer (in the service where the complaint was made). It was acknowledged however, that sometimes there was a ‘discussion’ about whether a complaint would be progressed to Stage 2, for example if there were multiple parts to a complaint of which most had been resolved bar for one outstanding part. But if there was clear dissatisfaction at the end of Stage 1, then this would be escalated to Stage 2 to be further investigated.

4.10 (Cllr Adejare) A consistent complaint from residents about the complaints service, is that there is a lack of customer care throughout the process, with a lack of communication and update as to how their complaint is being addressed or resolved. In many cases, complainants have to actively chase the service for a response to their complaint after it has initially been submitted. What is the council's policy or approach in this respect?

§ (HBISMS) These concerns around customer care were recognised by the council. At Stage 2, there was a dedicated team handling these complaints and there was regular contact between the investigating officer and the complainant. Investigating officers would also undertake property visits if this was necessary to see the source of the problem. The quality of customer care in different services does vary but this performance is impacted by the volume of complaints received and the high turnover of staff in some service areas. In many areas the same numbers of staff were handling twice or sometimes three times as many complaints and are clearly unable to spend as much time on each case as they would like (or previously could). This was also the case for Stage 2 complaints handling. Stage 2 officers have previously undertaken training with other officers and dip-sampled Stage 1 cases for quality assurance, but this is not possible now with officers at full capacity.

4.11 (Cllr Adejare) There has been a 97% increase in housing repairs complaints. What has the service learnt from the administration and resolution of these complaints and how has it informed priorities for service improvement?

§ (VS) There is currently a review of how complaints are handled across the housing services team, not just housing repairs or building maintenance. The service area was beginning to identify what could be done to improve complaints handling in the short term, and those aspects of this service which would require much more longer term solutions. The aim of this service is to reduce the volume of complaints submitted and the number of those complaints escalating to Stage 2. It was emphasised that internal workings in response to complaints were complex, and this would take some time to review.

4.12 (Cllr Adejare) In terms of the housing service, there were specific concerns around data and record management and case handling as experience would suggest that information systems are not integrated.

§ (HBISMS) It was acknowledged that the Housing Service did not have a single record management system, but instead rely on up to 30 different management information systems, which is undoubtedly a significant challenge for this service and those other services which utilise this data (e.g. complaints, Member enquiries, casework).

4.13 (Cllr Patrick) Lift maintenance and repairs was also a significant area of concern and further clarification was requested on the Lift Maintenance Policy and the Customer Journey Review (of lifts complaints). Have there been any improvements in this service in response to these reviews? A case was cited of as a 12 story apartment block where both lifts have been out of action on numerous occasions which had resulted in residents being stuck in their apartment or not being able to return to their apartment. What is the council policy in this respect?

§ (HBISMS) This would require a response from the respective housing service as this information was not available at the meeting.

Action: BDV to provide (via housing) further information on the lift policy (as referred to in the report) and the outcomes of the Customer Journey Review. It would be helpful to have clarification on the policy / approach of the Housing Service when residents could not access / leave their apartments?

4.14 (Cllr Lynch) Can the Corporate Management team reassure members that the development of an integrated housing information management system is a priority for the Housing Service? Given the huge volume of complaints and associated casework of members, it is clear that an effective information management system should be an organisational priority.

§ (HBISMS) It was noted that the Strategic Director of Housing does see this as a priority and that a procurement process is underway to secure this for the housing service. Although a date for installation could not be provided by officers present, it was emphasised that procurement was at an advanced stage. There are a number of routes for procurement including Cabinet and Cabinet Insourcing and Procurement Committee and members would be notified of that process once it has reached that stage.

(Chair) Related to the above, the report notes that there have been a number of technological developments in relation to the management and oversight of repairs, yet none of these seem to have had an impact on performance to date.

4.15 (Cllr Conway) It is apparent that with no central records system that there can be little analysis of complaints or issues arising, and as a result, oversight of specific housing locations is limited. A case was cited of a housing block which repeatedly had back surges flooding downstairs apartments with sewage which was costing the council enormous sums to continually resolve, yet there has been no strategic response to rectify the underlying problem. A drainage company repeatedly attended to ‘fix’ the problem, but the problem remains. At what point does the Housing Service step in to intervene?

§ (HBISMS) The issue was not that the Housing service did not have this data, it was just that individual information systems were not joined up. This data needed to be in one place. Therefore a contractor/ repairs team visiting a specific block would need to interact with a number of databases to get a full picture of what was happening on this specific site. Spot checks were taking place across the housing system (estates) to identify common issues. If members are aware of specific housing blocks which would benefit from a spot check, then this information should be passed on to the HBISMS or the Strategic Head of Housing to make sure these residences were included in these spot check programmes.

(Chair) Emphasised the concerns that members of Scrutiny Panel, and indeed other members, had about the issue of housing repairs and hoped that there would be an improvement in this area of council services.

4.16 (Chair) noted that there had also been a significant increase in complaints about Benefits and Revenues, and in particular, housing benefits and the council tax reduction scheme. Are there any plans to turn this service response around to complaints in this directorate?

§ (JM) Officers with knowledge of this service were not present but these would be approached for further information.

§ (Cllr Chapman) It was noted that it was difficult for the HBISMS to provide detail on specific service areas. The cost of living crisis had greatly impacted on the work of the Benefits and Revenue service and presented some significant challenges. In the last 6 months there had also been a more active strategy to recover bad debts accrued through the lockdown period. The service was also looking at the interconnectivity of information systems to make sure these were as helpful and operationally smooth running.

Agreed: Benefits and Revenues to provide further information on the nature of complaints to the service and those priorities and actions to reduce them.

4.17 (Cllr Conway) In relation to children's social care it was noted that the complaints process had raised the issue of fathers not being systematically consulted in case assessments. Given that this was an important reflection on local social work practice which had repercussions for local children’s social care policy, what assurance can be provided that similar strategic links were being made from complaints from other areas of children's services?

§ (HBISMS) Complaints process for children’s social care was a statutory process, which is separate from the main complaints process wihtin the council. The HBISMS did not have access to information to be able to respond to these questions, and suggested that these are directed toward the Director of Children's Social Care.

4.18 As there were no further questions, the Chair thanked officers for attending the meeting. The Chair also wished to note the following:

Concern at the high level of complaints received;

§ A desire to see progress in housing repairs service through the introduction of information management system;

§ Further evidence of impact of other digital technologies on complaints

§ More detail on the cost of increasing handling complaints;

§ That senior officers from respective services should be invited next time, so that they can respond to questions around complaints in their service area.

Agreed: That Scrutiny Panel would request further information on the cost of complaint handling across the council and any associated legal fees.

Agreed: That when this report is taken next year, that the group Directors are also present to enable them to respond to member questions on complaints in their respective service areas (as well as what has been learnt and new developments arising from the complaints process).

Supporting documents: