An Inspector Calls: Citizen-Led Service Inspection by West Lothian Council

The CLI end-to-end process is outlined below:

All but the first (“team selection”) and last two (“report and plan published” and “6-12 month review”) boxes in the process are completed by the team, working within the 6-day timescale projected for the CLI process. The “team selection” and “report and plan published” activities are the responsibility of West Lothian Council.

West Lothian Council set up a project team of 2 members, led by a Depute Chief Executive as the project sponsor, each working part-time on the process.  Because it was delivered within existing resource, the two project team members were selected for their knowledge of this type of activity (one in customer participation, one in quality assurance), as opposed to bringing in dedicated resource.  It is anticipated that, as the project matures, the inspection team will increase their control and autonomy, with a corresponding reduction in the council resource required to deliver inspection activity.  At present each inspection requires around 8-10 FTE days from council staff.  This includes recruiting, training and supporting the team.

It was clear to the project team that the process had to be robust and challenging, but also accessible and understandable for the citizen inspectors. Furthermore, the project team had to ensure that it could be replicated across the authority.  In particular, if public money was to be used to implement improvements from the inspection recommendations then it was important to ensure they were structured and based on facts. The project team developed a robust inspection process with a comprehensive inspector’s toolkit of materials, including the creation of an inspection framework, adapted from the EFQM Excellence model. This involved a 5-point rating system (1 unsatisfactory, 2 weak, 3 adequate, 4 good and 5 excellent). Citizen-led inspections were also capped at 6 days (not including training) to make it more convenient for the citizens and minimise any negative impact on service delivery.  For each inspection, timescales are agreed between the service and the inspection team to identify the best dates and times for both parties.

Furthermore, the team at West Lothian Council created a bespoke 2-day training course to provide citizen inspectors with the skills, knowledge and capabilities to carry out the inspection and reporting activity effectively and the confidence to critically evaluate services. The training was designed to be engaging and participative, and focused on providing the inspectors with an understanding of the council; and knowledge of the inspection process, framework and scoring, report writing and how to deliver feedback. It also explained the inspection techniques available to them, such as interviewing; shadowing; mystery shopping; desk top audits; surveys and focus groups and site visits. 

At the early stages of the development of the CLIs, it was important that the areas to be inspected captured the public interest.  Therefore, following a difficult winter period and a challenging school placement process in 2010, winter maintenance and pupil placement were selected as the first inspections.

The council was keen for inspectors to come from a representative sample of people from the community. As a result, it launched a multi-media information and recruitment campaign. This involved:

• the creation of CLI pages on the council website;
• articles in the local media and council newsletters;
• Twitter and Facebook updates; direct mailings and emails to participants in existing forums and community groups, including the parent councils, tenants groups, older and younger people forums and the disability and race forums.

Interest built as information was cascaded through the different media.  There was a high volume of telephone and email enquiries and an open evening was held. The intention was to raise awareness across the community but it was recognised that the initiative should start from a low base to build experience and knowledge of the process, on the part of both the inspectors and the council. The recruitment generated 35 notes of interest/applications, from which 15 were placed on a Register of Interest.  From the Register, 8 people were trained, making 2 inspection teams of 4 people.  These 8 people ranged in age fromearly 30s to early 60s, with three-quarters being female.  There were representatives from 4 different towns in West Lothian, with 5 inspectors coming from Livingston, the largest settlement.  For future inspections, the council aims to ensure balanced representation on the Citizen Inspection register and particularly hopes to ensure more involvement from young people through greater engagement with the Youth Congress in West Lothian.

The citizen inspectors are volunteers, receiving no payment and are only compensated for out-of-pocket expenses, such as travel costs. 

The winter maintenance and pupil placement services were fully engaged in the development of the process and welcomed the inspectors, giving them full access to any information, staff or sites that were requested. This open acceptance was in large part due to West Lothian Council’s strong culture of self-assessment and mature, honest critical evaluation of practice and performance.  

The two inspection teams completed their inspections in June and July 2011.  Across the inspection process the teams reviewed hundreds of pieces of information, interviewed Deputy Chief Executives, managers, staff, partners and customers, conducted on site visits and carried out research and online mystery shopping. The teams each produced a feedback report that critically evaluated the services, providing challenging scores and recommendations for future improvement. These reports have since been used to create improvement actions that make significant changes to service provision. 

The key successes of this process have been the improvements being developed by services, driven by the feedback of customers.   This kind of participation and co-production with the local community usually comes only as a result of expensive, high volume, repeated interfaces through a myriad of engagement exercises.  By investing in citizens, the council is building capacity in people that it will continue to nurture and engage in future council improvement processes.

The process also means that council officers are gaining valuable insights about community needs and preferences that bring about positive changes in the planning, prioritisation and improvement of services.    Detailed responses from the community are being used to develop customer-led improvements, saving time and costs of consultation and, crucially, getting it right first time with meaningful improvements for the customer. The two inspection processes undertaken to date have been responsible for the direction of tens of thousands of pounds of investment in service improvement and staff development.  Following the success in winter maintenance and pupil placement, the council is now expanding the process into a rolling inspection programme that will be targeted at services with the greatest impact on the people living in West Lothian.