Introduction
The Programme for Government commits to the examination in the Green Paper of “The provision of quality customer service to the public.” Indeed, the stated objective of the reform process is to make local government more transparent and responsive to its customers.

The Challenge of Good Customer Service
Meeting quality customer service is both the fundamental rationale and the key challenge for the public service everywhere – and Irish local government is no exception.

The macro-economic policies of Government require that public services should be efficient, that public servants should be flexible and that overall staffing numbers should be contained in an economy which must remain competitive in an increasingly global environment.

Our changing society has also had an impact: Irish citizens are better off than ever before and expect to obtain high standards from public and private service providers. We also have a more highly educated population which is prepared to question authority. The public is entitled to have fairness in decision making, courtesy in the delivery of services, and accountability for both officials and public representatives.

That mix of a more demanding public, and a tight rein on local authority staffing and finance, provides a particularly challenging environment for Irish local government.

Local Democratic Government or Local Service Delivery
In a local government system consisting of 34 major local authorities and 80 smaller authorities, all with their own unique characteristics, it is inevitable that there will be differences in service provision from authority to authority. There are vast differences in size and population base between local authorities. Some authorities have strong commercial rate bases and others do not. Some authorities struggle with major urban expansion while others must face urban regeneration, or remain substantially rural.

If local authorities in Ireland were to be considered merely as service delivery agents of central government, then uniformity in service delivery would be the ultimate aim. Local government is much more than this however, although the ability of local authorities to deliver quality service to the customer is the most visible way that the public and central government measure local government performance. Poor performance in any one area can reflect badly on the local government sector as a whole. This in turn affects the perception of the ability of local government to deliver new services – see the discussion in Chapter 2.

A more holistic viewpoint would be to see local authorities in Ireland representing the democratically expressed priorities of local communities. This view allows for different priorities to be set at local level. This is not to excuse poor performance but a recognition that there should be some tolerance of difference between local authorities. (Such freedom to set priorities at local level must, of course, be subject to compliance with higher level national policies as discussed in Chapter 10).

Nor is performance uniform within authorities. Some local authorities will lead in some areas and fall behind in others. The reasons for these differences are many and include availability of resources, environmental reasons (differences between urban and rural authorities etc), local priority setting and the particular skills and enthusiasms brought by individuals working in the authorities.

Having recognised the need for local difference and local priority setting, it is then appropriate to ensure that the services delivered in accordance with those priorities are effective and meet the highest levels possible of service delivery. There are best practice models of service delivery, and customer service, in local government which can be applied right across the sector. Ultimately, the delivery of quality service will continue to be the primary measure by which both individual local authorities and the whole sector will be judged.

Recent Initiatives on Local Authority Service Delivery
Better Local Government (BLG), published in 1996, set out an improved, modern approach to the delivery of existing local authority services together with a strong focus on overall customer service ethos. A range of customer services initiatives were pursued as part of the implementation of the BLG programme and subsequent national social partnership agreements. As a consequence, local authorities have implemented many initiatives aimed at improving service delivery in recent years. These include the decentralisation of services and the use of one-stop shops, a greater focus on the use of ICT to deliver services, the putting in place of customer complaint and consultation procedures, and the introduction of local government wide service indicators.

The Department of the Environment, Heritage and Local Government chairs the Local Government Customer Service Group, made up of representatives of various local government interests. (In turn this Group inputs to the Taskforce on Customer Service chaired by the Department of the Taoiseach). Among the initiatives this group has overseen are the Local Authorities Service Indicators, now in their fourth year. These allow local authorities to assess their performance levels in relation to 42 different indicators across a broad range of functions. The indicators are common to each local authority and the data produced are independently monitored and verified. An annual report is published outlining performance. Local government is leading the public sector with this type of reporting on service delivery.

The Local Government Customer Service Group also produced guidelines for local authorities on customer consultation and customer complaints. All county and city councils have produced Customer Action Plans setting out the standards of service that customers can expect together with strategies for improvement. There are exemplars within local government of best practice in customer service and many authorities have won awards for customer service initiatives.

Notwithstanding the range of initiatives that have improved service delivery in the last decade, local government must continue to demonstrate flexibility and imagination to deliver quality services in a changing Ireland.

Submissions from the Public and Consideration by the Consultative Committee
The submissions received from the public contained no shortage of ideas on how to improve customer service. These included longer opening hours for local authority offices, more open provision of information, use of web cams to broadcast council meetings etc. There were also calls for greater community participation in decision making and more resources for local authorities, to allow them to fulfil all their functions, or for more efficient use of resources.

The Consultative Committee noted the complex role which local authorities play as part regulator, part service provider and part democratic forum. It is an ongoing challenge to balance these sometimes conflicting roles.

In terms of service, the Committee considered that it was a person’s status as citizen rather than consumer which underpins the relationship between the individual and local government. This is what should motivate local government service delivery. It was suggested that the view of local government as a service provider to isolated consumers overlooks the role of citizens as participants in a local democratic process. For example, local government is in prime position to reach out to new communities and to tackle social exclusion – in a role which goes much further than just providing services.

The Committee considered that many local authorities have led the way in providing top-class service delivery. However, this was not always recognised. Not all local authorities can be leaders in every field – and the media tends to focus on failure rather than success. It was also recognised that local authorities are not always the best at communicating success.

As noted above, there are examples of best practice in customer service and customer complaints systems, which need to be rolled out. There was also a suggestion that a stronger democratic mandate could help improve accountability in local government.

The need for quality service indicators and costing systems in local government was recognised. However, these needed to be appropriate, understandable and provide added value – not measurement for the sake of measurement. Flexibility in work practices, sharing of services and innovation in approach should all be pursued to improve service delivery.

The point was made at the Committee that while local authorities should not be afraid of comparison with the market place, it should be recognised that apparent efficiencies brought by private sector, single focus, service delivery operators do not always stand up when a multifunctional and flexible response is called for. Local authorities can deliver this flexibility in response but they also carry greater costs in carrying essential services, the democratic overhead and even promotional campaigns (e.g. in environmental areas) which private operators can avoid.

It was noted that, historically, local authorities focussed on providing ‘hard’ services such as water provision, road maintenance, housing and so on. The transition to a ‘softer’ role in terms of social inclusion, community development, crèches, providers or facilitators of sports facilities etc is ongoing.

There was also general agreement on the need for better engagement between local authorities and other local agencies and central government Departments. The democratic nature of local authorities gives them a mandate which Government should use when considering the provision of new services instead of establishing agencies or structures.

Options for Customer Service Improvement
As noted above there are quite a range of initiatives already underway which are aimed at improving customer service and service delivery at local level. These will continue to be pursued. The options below suggest some additional or enhanced measures which can be taken to improve local authority performance.

The Mayor – Champion of the Citizen, Champion of the Council
As set out in Chapter 4 a key theme running through this paper is the role that a directly elected mayor can play to address the challenges facing Irish local government. One of these key areas is customer service and service delivery. As the recognisable and elected head of the city or county council, local people will look to the mayor to address problem areas. The mayor will have to work with the manager and elected council, and within available resources, but he or she will have a strong mandate in doing so.

Likewise, where local authorities are performing well, and where they have a good story to tell, an elected mayor will have the standing and profile to communicate that good performance in a way which a manager or a transient mayor cannot do at present.

Local Authorities – Leaders in the Local Community
Innovative responses to emerging challenges can often best flow from those public bodies that enjoy democratic authority and legitimacy. Unlike single focus agencies, local government has the flexibility to be more creative about new services it can provide. Local authorities are now entering into new non-traditional services, which fit with the authority’s community development role, such as the provision of crèche facilities, playgrounds, installation of wi-fi, employment of sports officers and so on. They have a much more proactive role than ever before in promoting arts, culture and awareness of the built and natural environment. Local authorities are also key in providing for the needs of minority groups such as Travellers, meeting the challenges of integrating the new immigrant population and providing the access and facilities for the disabled as mandated under the Disability Act. Local authorities have great potential to build on this strong multi-disciplinary resource base.

Local authorities are recognised as local leaders through the County and City Development Boards which are intended to bring all State and local agencies together to coordinate their work. While County and City development boards may not have the power to direct the member agencies (although such agencies are required by law to have regard to the work of the board), they do have an important role in fostering greater understanding among all public bodies in the locality and in creating connections which did not exist in the past.

Towards 2016 and the National Development Plan identified County and City Development Boards as the most appropriate vehicle for drawing local and national agencies closer together in order to provide an integrated approach to local development and service delivery. Separate proposals have recently been approved by Government to strengthen and develop CDBs so that they meet these requirements.

At present CDBs are chaired by a member of the Corporate Policy Group of the city or county council. Again this is another area where effectiveness could be significantly improved by the presence in the chair of a full time mayor with a direct mandate from the people to lead the local community. This innovation could bring a new dynamic into the work of the City and County Development Boards and perhaps allow for an evolutionary process which would see greater connection generally between local democratic leadership and the activities of local public bodies.

Better Use of ICT
Local authorities can take pride in being leaders in the field in many areas. By use of ICT local authorities (with the assistance of the Local Government Computer Services Board) have developed sophisticated new systems to assist in their business activities and in their interface with the public. For example, eplanning systems have brought new levels of transparency and efficiency into the planning system. Libraries are providing more and more innovative services for children and adults. On-line electoral registers and on-line motortax services have been very popular. The use of innovative ICT will continue to be a major force in driving improved services, and maximising existing resource use, over the coming years.

Sharing Best Practice and Better Showcasing
Notwithstanding the significant dialogue and linkages at all levels between local authorities and between the sector and central government, it can still be difficult to take best practice from one local authority and introduce it across all authorities. For example, some local authorities have a very efficient planning application validation system while others do not. Continued effort will have to be made by the Department of the Environment, Heritage and Local Government, the LGMSB and CCMA etc to encourage the spread of best practice. For example, the Department’s Development Management Guidelines, published in June 2007, set out best practice in managing the planning system. These guidelines provide practical examples of how best practice can deliver better customer service, cost savings and greater staff productivity combined.

Where local authorities have led the way in customer management, such as in South County Dublin, it should be possible to roll out similar systems in other local authorities, tailored to local circumstances.

In pursuing best practice, better showcasing through awards is also very useful in highlighting and awarding best performance.

Customer Charters
The Government is committed to developing a Local Authority Customer Service Charter. This Charter will be informed by the recent evaluation of Customer Service Charters within the Civil Service, outcomes from the Department of the Taoiseach’s Taskforce on Customer Service, the local government reform process as addressed in this Paper and any recommendations from the OECD review of the Irish Public Service which is nearing completion.

Sharing Services
Towards 2016 commits the local authority sector to seek efficiencies in sharing services. Not all local authorities need to retain expertise in areas such as payroll and HR systems, procurement etc. There is potential to organise many of these backroom services on a multi-authority or regional basis.

There is also greater scope for more cooperation across boundaries in certain operational areas where optimal economies of scale can be achieved. Local authorities have worked closely with the National Roads Authority in operating regional design offices for the development of the national road network. There is similar scope for pooling strategic resources in other areas such as the water services programme.

Another recent example is the designation of Dublin City Council as the single national authority for issuing Transfrontier Shipment certificates for the export of waste. This is an example of the expertise of the local government sector being used to offer a national service, thereby removing the need to establish a new central body.

Modern Recruitment and Staffing Policies
There is no doubt that increasing service delivery performance while keeping appropriate control of public service numbers will continue to be a challenge. Part of the response will be to embrace the culture of continuous change as set out in Towards 2016.

While maintaining overall staffing numbers there is an opportunity to look at staff recruitment within the local authority sector. Local authorities can offer a very exciting and diverse career, from the more traditional services of housing and roads to newer areas of social inclusion and community building, economic development, arts and cultural development, the built and natural heritage and so on. Changes in technology have, and can, free up front line clerical duties and this allows for more resources to be applied in those areas mentioned above.

However, the greater complexity of local authority business means putting in place more flexible recruitment policies to meet organisational needs. Already, all higher-level posts are filled by open competition. It is also important that local authorities promote themselves as employers of choice for graduates. This can only be achieved by offering positions at an appropriate level within the local authority system.

Towards 2016 provides for more open recruitment at middle management level and a scheme of graduate recruitment targeted at the particular needs of local authorities.²⁵ With close to 60% of our young people now attending third level colleges it is important that local authorities avail of this important human resource.

Decentralisation of public service offices also offers an opportunity for greater public sector mobility across tiers of government at local level. This could bring greater exchange of skills and experience to the wider public service in Ireland.

Maintaining Balance between Outsourcing and In-house Capacity
Towards 2016 also seeks local government flexibility in the outsourcing of services. This will be important in allowing local authorities to respond quickly to new needs. There is a balance to be struck by local authorities between maintaining in-house service delivery functions and capacity and outsourcing for services. In some E.U. States, where a wide range of services have been outsourced, local authorities have found themselves short of essential skills to supervise outsourced work. Single focus outside contracts may undercut local authority delivery on price but may not provide the multi-disciplinary response which local authorities must bring to their operations. However, if local authorities are to maintain in-house operations, there must be flexibility in staffing response in a way which can compete with the private sector.