Taxi Quality Scrutiny

Appendix 9 (a)

TAXI QUALITY SCRUTINY

FINAL REPORT

CONTENTSPAGE

Foreword by Chairman 3

Background Information 4

Methodology 6

Detailed Findings and Recommendations

1. Age and Maintenance of Taxi Fleet 8
2. Dress Code and Conduct of Drivers 11
3. Advertising 11
4. Colour of Fleet 12
5. Penalty Points System 12
6. Taxi Ranks and Stewards 13
7. Customer Service 14
8. Incentives 15
9. Enforcement Officers 17

10. Landaus 18

Action Plan 19

Foreword

“This scrutiny was initiated by a request to the Neighbourhoods and Culture Overview and Scrutiny Committee to examine the operation of the taxi fleet in Blackpool. The town has a mixture of both hackney carriages and private hire vehicles, and has over seven hundred licensed vehicles in total.

Concerns had been raised that the Blackpool taxi experience, in a small number of cases, was falling below acceptable standards. More often than not, it is a Blackpool taxi that will be the first and last point of contact for visitors arriving and leaving the town, and therefore it is considered to be vital for Blackpool that this experience is both pleasurable and efficient.

It became apparent that we have problems, particularly with the age and maintenance of a small section of our taxi fleet.

We consulted with a wide range of people regarding their views on what was positive and negative about the ‘Blackpool Taxi Experience’. Those consulted ranged from taxi users, operators and owners, to the elderly, the Police Authority and the Council’s enforcement officers. We consulted other seaside towns as to how they managed their taxi fleets and had a tremendous response from everyone we contacted.

I would like to thank everyone who contributed to this taxi scrutiny review; be it with comments at open meetings, written submissions and to those who gave their time willingly so that this scrutiny could be completed in a timely manner.

I freely acknowledge the help and assistance given to me by the other Councillors on the Committee, and the Democratic, Legal and Licensing sections of Blackpool Council.”

Cllr Ian Fowler

Chairman, Neighbourhoods and Culture Overview and Scrutiny Committee

Background Information

At the February 2005 meeting of the Neighbourhoods and Culture Overview and Scrutiny Committee, a report on the Taxi Quality Partnership was presented which outlined the current situation of Blackpool’s taxi fleet. During this presentation, a number of major issues and concerns with the taxi trade were raised, including the quality of the fleet, and the appearance and customer service provided by the drivers. Recent examinations of vehicles had led to a significant number of vehicles being taken off the road, or issued with a notice due to un-roadworthiness or poor quality, and there had been a number of serious complaints relating to drivers’ appearance, image and behaviour.

Furthermore, the new Tourism Strategy that was being drafted at the time of the meeting also outlined the need for a significantly improved taxi fleet, demonstrating the importance of a positive first and last impression of Blackpool to it’s visitors, with the feeling that the drivers should act as ‘ambassadors of the town’.

At this meeting, it was agreed that a Taxi Quality Working Group would be established to co-ordinate work with the Licensing Section to formulate a solid Taxi Quality Partnership that could be implemented to significantly drive standards to a higher level.

Councillors Ian Fowler (Lead Member), Michael Bradley-Wilcox, Peter Evans and Carol Radcliffe volunteered to sit on the Working Group, and upon first meeting, established the following objectives for the scrutiny review:

1)To make recommendations to improve the quality of the taxi fleet in Blackpool.

2)To promote an effective Taxi Quality Partnership.

Issues that were considered during the course of the review included: assess the current problems and identify key issues; identify where improvements are required and ascertain how these can be introduced; identify and research other Local Authorities that may have a Taxi Quality Partnership, and ascertain a ‘best practice’ approach; obtain and gather evidence from outside representatives; identify how a Taxi Quality Partnership could be implemented in Blackpool, and outline any financial, legal, resource and time implications; and upon completion of the above, establish a number of recommendations regarding the implementation of a Taxi Quality Partnership in Blackpool.

In addition, the scrutiny review would also help the Council to achieve a number of priorities and ambitions, as outlined in the Corporate Performance Plan 2004/2007, under ‘The New Blackpool’ strategic objective:

Priority /

Ambition

Resort Regeneration / To become a world-class resort destination.
Living Environment / To develop a clean, safe and healthy town, with a safe, reliable transport system, where people feel confident in and are proud of their local environment
Tourism / Ensuring high quality in a range and standard of attractions and facilities, and visitors receiving a quality service, good customer care and value for money.

It was felt that the review would also aid the Council in it’s attempts to achieve value for money, by helping the Licensing Section to provide a better taxi service provision to Blackpool residents and visitors.

Methodology

The Working Group held a number of meetings in order to gather evidence, collect statistical data and consult with interested parties in order to ascertain a clear picture of the situation at present, and gain an idea of what improvements were required and how these could be implemented. The following meetings were held:

Date / Attendees / Purpose
30th March 2006 /

Councillors Fowler, Bradley-Wilcox and Evans

Georgina Atkinson (Scrutiny Officer), Tim Coglan (Public Protection Manager), Sharon Davies (Principal Licensing Solicitor)

/ To complete the scoping document for the Working Group.
27th April 2006 / Councillors Fowler and Evans
Georgina Atkinson (Scrutiny Officer), Tim Coglan (Public Protection Manager), Sharon Davies (Principal Licensing Solicitor), Ted Rhodes (Senior Licensing Officer) / Vehicle inspection reports
25th May 2006 / Councillors Fowler, Bradley-Wilcox, Evans and Mrs Radcliffe
Georgina Atkinson (Scrutiny Officer), Tim Coglan (Public Protection Manager)
Layton Depot: Steve Fulton (CVMU Manager), Danielle Lord (Public Protection Officer), Dave Verity (Public Protection Officer).
Albert Road: Mark Marshall (Public Protection Officer), Ian Taylor (Crime Reduction Officer), Helen Kennedy (Public Protection Officer), P.S. Richard Hurt / Site visit to Layton Depot and Albert Road offices
8th June 2006 / Councillors Fowler, Bradley-Wilcox and Mrs Radcliffe
Georgina Atkinson (Scrutiny Officer), Lorraine Hurst (Assistant Democratic Service Manager), Sharon Davies (Principal Licensing Solicitor), Ted Rhodes (Senior Licensing Officer)
Barbara Smith (Age Concern), Derrick Ellershaw (Blackpool Hotel and Guest House Association) / Feedback from outside representatives and the Taxi Quality Partnership
14th July 2006 / Councillors Fowler, Hardy and Jackson
Georgina Atkinson (Scrutiny Officer), Mark Marshall, (Public Protection Officer), Sharon Davies (Principal Licensing Solicitor), Ted Rhodes (Senior Licensing Officer)
Steve Fulton (CVMU Manager), Phil Brown (Blackpool Private Hotels Association) / Consultation meeting with taxi users/local businesses
18th July 2006 / Councillors Fowler, Evans, Hardy and Jackson
Georgina Atkinson (Scrutiny Officer), Julian Kearsely (Strategic Director for Business Services), Sharon Davies (Principal Licensing Solicitor), Ted Rhodes (Senior Licensing Officer)
Representatives from Blackpool taxi operators / Consultation meeting with taxi operators
11th August 2006 / Councillor Fowler
Georgina Atkinson (Scrutiny Officer), Sharon Davies (Principal Licensing Solicitor), Ted Rhodes (Senior Licensing Officer) / To discuss findings/evidence gathered so far and draft recommendations
17th August 2006 / Councillors Fowler, Evans and Mrs Radcliffe
Councillor Hardy, Chairman of Public Protection Sub-Committee
Ted Rhodes (Senior Licensing Officer), Georgina Atkinson (Scrutiny Officer), Mark Marshall (Public Protection Officer)
Nigel Hanson (Town Centre Manager), Steve Fulton (Manager of Layton Depot)
Phil Brown (Blackpool Private Hotels Association), Mike Wilkinson (Chief Executive of Lancashire and Blackpool Tourist Board), Helen Alders (Training Manager of Lancashire and Blackpool Tourist Board) / Information on tourism taxi schemes in Liverpool and Manchester; draft report and recommendations.

Detailed Findings and Recommendations

1. Age and Maintenance of Taxi Fleet

Upon commencing the work of the scrutiny review, it was reported that there were 256 hackney carriages, and 464 Private Hire Vehicles (PHVs) licensed by Blackpool Council. Of the PHVs, 29 per cent of the fleet were aged over 10 years. With regard to the hackneys, 73 per cent of this provision was also aged over 10 years, with almost half of these being aged at 16 years or over. These were perceived to be poorly maintained, had little customer comfort and look untidy.

In May 2006, the Working Group undertook a site visit of Layton Depot where taxi vehicle pit tests were carried out, to gain a snapshot of the condition of Blackpool taxis and the maintenance issues associated with these. A total of 12 inspection evenings are carried out per year at the site, to test vehicles for roadworthiness, condition, and meter accuracy. During the site visit, out of a total of ten vehicles that were pit tested, only one passed, which supported the need for standards to be raised.

The Working Group also undertook consultation with a number of similar local authorities, predominantly seaside resorts that had a high taxi demand due to visitor numbers. Of those who responded, 76 per cent had a maximum age limit policy in place, ranging from three years to 15 years. It was generally agreed that implementing a maximum age limit was an effective way to increase the standard of the taxi fleet, as newer vehicles are easier to maintain to a high standard, have improved levels of comfort, better emissions, and most significantly, have improved levels of safety. The Working Group felt that as a licensing authority, the Council’s main priority should be public safety, and so recognised the dangers associated and evidently found with a number of taxis at present.

A further reason for a maximum age limit is the exhaust emissions generated by older vehicles, which is substantially higher than newer ones, which have increasingly tougher emission standards. Local licensing authorities are being encouraged to consider how their licensing policies can and should support any local environmental initiatives by, for example, setting vehicle emissions standards.

One way that this could be carried out is through implementing a maximum age policy for licensed vehicles. Air quality improvements are clearly hampered by the length of time that it takes for vehicles to be retired. For example, even with a maximum age limit of 12 years, licensed vehicles would only begin to meet the absolute minimum Euro 1 standard. Vehicles manufactured prior to 1994 did not have to meet emissions limits designed to improve air quality. Members therefore felt that in the interest of improving air quality, any application for the grant or renewal of a taxi license shall not be granted for those aged over ten years.

Vehicle emissions test could also be included in the pit tests carried out on licensed vehicles, to ensure that a vehicle with dangerous or non-compliant emission levels would not go undetected.

In addition, under the Disability Discrimination Act 1995, Blackpool Council is required to ensure that all hackney carriages are wheelchair accessible by 2010. Currently, only 180 out of the 256 hackneys have such a provision.

Maintenance issues were also raised throughout the course of the review, with taxi operators failing to maintain their vehicles to a safe standard, and mechanical faults only being enforced during a vehicle inspection.

Inspection reports highlighted a concern for the types of mechanical faults that were found on vehicles, the majority of which were deemed to be dangerous and would fail a standard MOT test. These tended to be, in order of most prevalent:

1)Steering problems

2)Brake problems – some brakes not working at all and serious brake imbalances.

3)Corrosion within prescribed areas – seatbelts, engine mountings, etc.

4)Suspension problems

5)Tyre problems – cut to tyre wall, bald tyres, etc.

There was evidence to link the age of the vehicle to the occurrence of mechanical faults, and so raising the number of statutory tests per year would ensure that the Licensing Service would identify and remove vehicles that were potentially dangerous from the roads before an accident took place. With public safety being the main priority of the Council with regard to the licensing of hackney carriages and private hire vehicles, it needs to have procedures in place to ensure that priority is maintained. A stringent graduated taxi testing inspection policy would provide that level of assurance.

It is therefore recommended that hackney carriage and private hire vehicles are tested once per year until they are three years old, and thereafter twice per year, until reaching five years old when three tests will be required. The test must take place at a testing station approved by the Council, and be in addition to an MOT.

During a consultation exercise that was carried out with the taxi operators, many claimed that purpose-built vehicles were more durable, reliable and designed to endure a higher mileage than normal saloon vehicles. They felt that restricting the licensing of vehicles by imposing an age limit would unfairly penalise older vehicles that were maintained to a high and efficient standard.

In response to this, the Working Group carried out research to ascertain the feasibility of licensing vehicles over the maximum age limit under an ‘exceptional quality’ basis. Under this policy, an older vehicle would be granted a licence if it passed the criteria, and continued to be maintained to that high standard. Any defects discovered while under this policy would result in revocation of the licence. As this had worked positively in other authorities, Members were happy that those who maintained their vehicles to an exceptionally high and safe standard would not be prevented from operating under the maximum age policy.

Concerns had been raised with the quality of repairs that had been carried out on a licensed vehicle failing a pit or MOT test. Depending on the details of the failure, repairs were usually required by the Council within a certain time to allow the taxi to operate legally again, or avoid revocation of the plate. Operators were permitted to obtain their repairs from any source they wished, which in the past has allowed repairs that were insufficient, poor and of a low quality. It was felt that this defeated the object of a pit test, as vehicles that had failed were obtaining cheap, poor repairs in order to operate legally again, but would fail again in a short space of time.

To an extent, Recommendation 3 would help to eliminate this problem by testing vehicles more often, but Members felt that a further safeguard for members of the public travelling in licensed vehicles was required. Prior to the Council permitting the taxi to continue operating, it was suggested that those vehicles should be re-inspected by the Council once the necessary mechanical repairs had been completed. This would allow the operators to retain their flexibility and choice by obtaining a vehicle from any source, but would also maintain a high quality Council standard to ensure optimum safety for the travelling public.

In conjunction with Recommendation 1, Members recognised the financial impact that this would have on taxi operators, and so felt that licences should be transferable from one vehicle to another. For example, any operator wishing to upgrade their vehicle would be able to transfer the unexpired portion of their annual licence on the older vehicle (which would no longer be used) to the newer one, therefore only paying for the one licence per year per vehicle. This was a policy already adopted in other licensing authorities, and so it was felt that the same could be applied in Blackpool as an advantage to the taxi operator and prevent further costs to them for upgrading their vehicles.

1. Dress Code and Conduct of Drivers

As the first point of contact for many visitors to the town, the Working Group felt that taxi drivers should act as ambassadors for the town and present a positive impression. A significant part of this was to raise customer service levels – which is dealt with in Recommendations 16 to 20 – yet the image and conduct of the drivers while in their vehicles was also recognised as having a major impact of customer opinion.

There had been reported instances of drivers wearing inappropriate clothing while driving, such as string vests, sports shorts, flip flops and football shirts. In addition, the Licensing Section had also received complaints about drivers smoking in their vehicles, driving aggressively and poorly, and using a mobile phone while driving.

Consultation undertaken confirmed that enforcement of a dress code would help to improve the image of the drivers and therefore the town.