Best Value Review of The Catering Service
Best Value Review of The Catering Service
Best Value Review of The Catering Service
EDUCATION DEPARTMENT
REPORT
SERVICE
December 2001
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CONTENTS
TITLE PAGE NO
Recommendations 5
Introduction 6
Consult 7
Compare 8–9
Compete 10
Challenge 11
Conclusion 12
Annexes:
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EXECUTIVE SUMMARY
The Best Value report focuses on the review of the schools meals and civic catering
service provided by the Merthyr Tydfil County Borough Council. The mission statement,
current performance and priorities of the service are outlined in the document entitled
"Defining Best Value - Catering Services" (Annex Two). The appendices to this
document are included in the portfolio of evidence (Section 2). Membership of the
Review Team included:
24 May 2000
8 June 2000
22 June 2000
12 July 2000
20 September 2000
10 November 2000
5 December 2000
The agendas of the meetings were informed by the use of the Authority's document
entitled "Best Value Review Tool Kit", with its emphasis on Challenge, Compare,
Consult and Compete. Issues relating to the description of the service, the planning
and policy framework, resources employed and the management of people were
discussed by the group as part of the review process and detailed information related to
those issues was incorporated in the document entitled "Defining Best Value - Catering
Service" included in (Annex Two). The agenda’s and minutes of the meetings are
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contained in the portfolio of evidence (Section 1). Those issues deemed necessary for
refinement or further review are outlined in the appropriate section of the Action Plan
(Annex One).
The review has been undertaken in accordance with the Best Value Principles of
Challenge, Compare, Consult and Compete and the review team have, at the
appropriate stages of the process, challenged the current service with a view to
achieving continuous improvement in service delivery. The review team has discharged
its duties through identifying those targets most likely to improve the efficiency,
effectiveness and cost of the service as outlined in the action plan. Evidence has been
drawn from Benchmark Partners, Stakeholders and External Organisations.
Questionnaires;
Observations;
Scrutiny of existing documentation;
A range of opportunities to comment freely on the service;
Stakeholder Forums.
A number of key issues have been identified by the Best Value Review Team which are
incorporated in the summary of issues and targets contained in the Action Plan (Annex
One).
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RECOMMENDATIONS
As a result of a rigorous appraisal of the service, members of the team recommended
14 tasks for action. These tasks are underpinned by the ambition to continually improve
the quality of the catering service. The team recognises that this ambition is best
served through a partnership approach consisting of headteachers and their staff,
school governors, pupils, parents, members, other service users and the catering
service.
The support for the catering service is formalised, in the secondary sector, through a
Service Level Agreement reviewed on an annual basis. A copy of the agreement is
contained in the portfolio of evidence (Section 3) and outlines the services provided and
the standards of service delivery.
Whilst recognising the current strengths of the catering service, the issues for future
action determined by the Best Value Review Team include:
Marketing improvements;
Menu development;
Reduction of queues;
Environmental improvements;
- service counters
- dining areas
Updated/upgrading of equipment;
Administrative improvements;
Staff development;
Communication;
Performance management;
Staff structure;
Capital resources
- kitchens
- dining centres
Central Services;
Cost of service
Service Charges
The Action Plan, agreed by the Best Value Review Team, is included in (Annex One).
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INTRODUCTION
In its Best Value Performance Plan 2000, the County Borough Council has outlined its
five main objectives as set by the Council for the next three years. Included as one of
the key themes is the aim "to provide a high quality, lifelong education service available
from early years through initial stages of formal education and training and beyond".
The Education Strategic Plan 1999-2002 refers to the role of the Local Education
Authority in securing and providing a range of support services that will contribute to the
creation of an environment conducive to learning. The school catering service is one of
the many support services to schools that fulfils this role.
Targets and aims set out in the Authority's Best Value Performance Plan 2000 are
ultimately geared to the National Assembly's agenda for "continual improvement" for all
services outlined in “Better Wales” and in Education to raising the standards of pupils
learning and teaching.
The catering service became the direct responsibility of the Education Department in
October 1998 and is a service that was delegated to secondary schools on 1 April 2000
under "fair funding". The service was included in year one of the Best Value Service
Reviews to provide the department with an opportunity to review the service with a view
to securing a more economic, efficient and effective service that better meets customer
needs and expectations.
The contractor and client side of the catering service were amalgamated on transfer to
the Education Department in 1998.
It is implicit in each of the targets that the client and contractor side of the service be
included in the targets identified throughout the action plan. It is also implicit, that,
where appropriate the review will include all aspects of the school milk process.
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CONSULT
Consultation was undertaken with stakeholders and service users utilising a number of
consultation arrangements, as follows:
Catering staff - Cluster meetings were utilised for consultation and staff were
requested to detail their views on the service and suggest improvements through
completion of a questionnaire;
The purpose of this wide basis of consultation was to ensure that the catering service is
able to clearly demonstrate:
That they are delivering services of high quality and effectiveness while continually
striving to improve performance;
The consultation has revealed that the service users are generally satisfied with the
current service, however areas for improvement have been highlighted and these have
been incorporated by the review team as key issues in the summary of issues and
targets contained in the Action Plan (Annex One).
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COMPARE
The Education Department and catering service has compared itself with other
providers utilising a variety of indicators which include the Audit Commission National
Performance Indicators, Local Indicators and Process Benchmarking.
In addition, a financial comparison of the cost of the catering service has been
undertaken to illustrate past and current trends of expenditure. Detailed information on
the aforementioned indicators is contained in Appendix 6 and 7 of the document entitled
"Defining Best Value - Catering Service" (Annex Two) refer to the portfolio of evidence
(Section 2). A summary of this information is outlined below:
Price of a primary school meal - Merthyr Tydfil's charge per meal has historically
been and continues to be one of the lowest in Wales. In 1998/99, it was £1.15,
which was the fifth lowest charge in Wales.
Percentage of primary pupils where meals are available - Meals are available to one
hundred per cent of Merthyr Tydfil's primary school pupils
Take-up of school meals - Merthyr Tydfil has one of the highest level of school
meals take-up in Wales.
Take-up of school meals - Merthyr Tydfil has a proportionally high take up of free
meals in comparison to paid meals when compared to other Authorities.
Income per meal - The charge per meal is one of the lowest in Wales.
Subsidy per meal - The subsidy per meal is approximately average for Wales.
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Process Benchmarking
Process Benchmarking was undertaken with Rhondda Cynon Taff County Borough
Council and Blaenau Gwent County Borough Council, which illustrated that, the delivery
of the school meals service in those authorities was very similar to that in Merthyr Tydfil.
The provision of menus and method of meal preparation in all three authorities differed
slightly.
The Merthyr Tydfil Catering Service has achieved the Investor in People standard
award and has been operating single status for all catering employees since 1 April
1999. Rhondda Cynon Taff has also achieved the Investor in People Standard but the
single status proposals have not been implemented in either Rhondda Cynon Taff or
Blaenau Gwent.
Financial Comparisons
The service has consistently made surpluses since the inception of the Authority.
However, these have varied during this period due to, inter alia, falling pupil
numbers, revised charges per meal and inflationary factors.
The above-mentioned analysis was utilised by the review team throughout the Best
Value Review process.
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COMPETE
The school catering service was subject to open competitive tender prior to
reorganisation, but has not been subjected to tender, in whole or in part, within the last
three years due to the moratorium on CCT. However, a new tender document was
prepared in 1997 and the current service is provided in accordance with that
specification. Since the Education Department became responsible for the civic
catering service in April 1999, the Authority has benefited from economies.
In addition, in April 2000, monies were delegated to the secondary schools within
Merthyr Tydfil under "fair funding", which provided the schools with the opportunity to
purchase catering services through the open market if they so wished. The secondary
schools, however, chose to purchase the catering service provided by the Authority
through a Service Level Agreement for the year 1 April 2000 to 31 March 2001. The
secondary sector have been included fully within the consultation process relating to the
catering service and, as a result, have decided to buy-back the catering service, via a
Service Level Agreement until 31 March 2002, subject to an improvement plan being
prepared and implemented in relation to the service. Their views have been
incorporated into the Best Value Review and have informed the key issues and targets
contained in the Action Plan (Annex One).
The primary schools and the special school also have the opportunity to request
delegated status in relation to the catering service but, to-date, none of the schools
have indicated that they wish to take up the option of delegated status so far as the
school meals service is concerned. The primary sector has been fully involved in the
consultation process and the Best Value Review and their views in relation to the
catering service form part of the Action Plan.
The Authority has explored the market and there are alternative suppliers who have
indicated a willingness to provide the service in one form or another, which may be an
alternative if the in-house provider does not demonstrate continuous improvement over
a period of time. Further in-depth consideration of this issue will be necessary before
any conclusion is reached. This will be undertaken during the implementation of the
financial targets in the Action Plan (Annex One).
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CHALLENGE
The principle of challenge underpins the process of best value and has been
incorporated by the review team throughout the Best Value Review of the catering
service.
The school catering service has a statutory minimum level, which is the provision of free
school meals. The current level of service is provided above the statutory minimum
because a policy decision has been made by the Authority to do so. The civic catering
service is however discretionary. The consultation exercise that was undertaken with
stakeholders and service users revealed that the service users are generally satisfied
with the current service, however areas for improvement have been highlighted and
these have been incorporated by the review team as key issues in the summary of
issues and targets contained in the action plan (Annex 1).
Since the inception of the Authority in 1996, the school catering service has consistently
made surpluses. However, these have varied during this period due to, inter-alia, falling
pupil numbers, revised charges per meal and inflationary factors. The services was
subject to open competitive tender prior to reorganisation, but has not been subjected to
tender, in whole or in part, within the last three years due to the moratorium on CCT.
However, a new tender document was prepared in 1997 and the current services is
provided in accordance with that specification. The service has a record of
improvement which includes an overall reduction in the budget and the achievement of
the Investors in People standard. Since the Education Department became responsible
for the civic catering service in April 1999, the Authority has benefited from economy.
The Authority has explored the market and there are alternative suppliers who have
indicated a willingness to provide the service in one form or another. However, the
secondary schools are committed to buy back the service, under a Service Level
Agreement, until 31 March 2002, subject to improvements. In addition, the primary and
special schools have the opportunity to request delegated status. They have not
indicated that they wish to take up the option so far as the school meals service is
concerned. The views of the schools have been incorporated into the best value review
and have informed the key issues and targets contained in the action plan (Annex 1).
The provision of the service by an alternative supplier may be an option if the in-house
provider does not demonstrate continuous improvement over a period of time. Further
in-depth consideration of this issue will be necessary before any conclusion is reached.
This will be undertaken during the implementation of the financial targets and the action
plan (Annex 1).
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CONCLUSION
The Best Value Review has acted as a catalyst for informing the Local Education
Authority's constant quest for continuous improvement in the range of services it offers
to support school improvement. Of particular interest and importance has been the
perceptions of the service held by the various stakeholders. The key issues which have
arisen as a result of the review relating to service provision and quality have been
incorporated in the Action Plan devised by the review team.
Throughout the review process, there was an understanding, within the review team
that there was a need to secure provision that would stand full scrutiny in relation to
quality and price, thus ensuring that it contributed to a coherent overall strategy that met
needs of stakeholders. The targets contained in the Action Plan will be incorporated
into the business plan of the catering service and will contribute to the aim of school
improvement, incorporated in the Education Strategic Plan and to the key theme
"Education for Life" contained in the Authority's Best Value Performance Plan 2000.
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ANNEX ONE
ACTION PLAN
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INTRODUCTION
The enclosed action plan describes how the catering service will address the key issues identified by the Best Value Review Team.
Each "Key Area" is broken down into specific targets with key issues aligned where appropriate. For example,
Staff development
Communication
Performance management
Staff structure
Each target is broken down into specific actions with delegated responsibilities and deadlines for completion. Success criteria are
expressed in measurable terms (qualitative and/or quantitative) and provide a framework to support monitoring, evaluation and
review.
Successful implementation of the plan requires close liaison between the catering service and its stakeholders. It is envisaged that
this approach will facilitate the joint planning that is required.
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1 Operational Marketing improvements Target 1(i) - To develop and implement a marketing strategy.
Menu development Target 1 (ii) - To continually enhance the menus to meet customer
requirements, subject to nutritional guidelines and the Authority's
healthy eating policy.
Reduction of queues Target 1 (iii) - To improve service delivery to reduce the service
waiting time.
Environmental Improvements Target 1 (iv) - To improve the service areas and eating
- service counters environments.
- dining areas
Administrative improvements Target 1 (vi) - To further develop systems for the provision of
management information.
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2 People Management Staff development Target 2 (i) - To improve the current programme for staff
development.
Staff structure Target 2 (iv) - To examine to identify the most appropriate staffing
structure for service delivery.
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3 Financial Capital resources Target 3 (i) - To identify the most appropriate combination of
- kitchens kitchens/dining centres for service delivery.
- dining centres
Cost of service Target 3 (iii) - In conjunction with other relevant targets, to examine
service costs to identify economies and possible resource
realignment.
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Cost/ Personnel
Actions To Be Taken Success Criteria Completed by
Resource Responsibility
1. To set up a task group Task group established Staff Acting Catering End of December
Manager 2000
2. To undertake a review of the current Strategy reviewed Staff/Printing Task Group End of February
strategy, consult with service users Services users consulted 2001
and develop a service strategy New strategy formulated
3. To implement the new strategy Strategy implemented Costs dependent Catering Service End of
on development April 2001
of strategy
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Target 1 (ii) - To continually enhance the menus to meet customer requirements, subject to nutritional guidelines and the
Authority's healthy eating policy.
Cost/ Personnel
Actions To Be Taken Success Criteria Completed by
Resource Responsibility
1. To consult with service users to Consultation undertaken Staff Acting Catering End of February
establish requirements Service users requirements identified Manager 2001/Ongoing
2. To enhance menus to meet customer Customer requirements incorporated Within current Catering Staff End of April
requirements into menus resources 2001/Ongoing
3. To monitor and evaluate effectiveness Evaluation undertaken Staff Acting Catering Ongoing
of new menus Increase demand for new meals Manager
developed
High degree of satisfaction recorded
Increased awareness of healthy
eating
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Target 1 (iii) - To improve service delivery to reduce the service waiting time
Cost/ Personnel
Actions To Be Taken Success Criteria Completed by
Resource Responsibility
1. To undertake a feasibility study into Feasibility study completed and most Staff Acting Catering End of July 2001
alternative methods of reducing appropriate alternative identified Manager
service waiting time
2. Introduce most appropriate method of Reduction in service waiting time Costs dependent Acting Catering End of December
reducing service waiting time on outcome of Manager 2001/Ongoing
feasibility study
and availability of
finance
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Cost/ Personnel
Actions To Be Taken Success Criteria Completed by
Resource Responsibility
1. To consult with service users to Consultation undertaken Staff Acting Catering End of February
establish requirements Service user requirements identified Manager 2001 - Ongoing
2. To undertake a feasibility study into Feasibility study completed and most Staff Acting Catering End of July 2001
identified service user requirements cost effective option identified Manager - Ongoing
3. Implement the most cost-effective Service areas and eating Costs dependent Acting Catering Ongoing rolling
option to improve the service areas environments improved on outcome of Manager programme
and eating environments feasibility study
and availability of
finance
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Cost/ Personnel
Actions To Be Taken Success Criteria Completed by
Resource Responsibility
1. To undertake an audit of equipment Audit completed Staff Acting Catering Completed June
and review on a regular basis Manager 2000 - Ongoing
2. Identify additional/replacement Additional resource requirement Staff Acting Catering December 2000
equipment required to enhance the identified Manager
service
3. To provide additional equipment Equipment provided Within existing Acting Catering Ongoing rolling
identified resources where Manager programme
possible
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Target 1 (vi) - To further develop systems for the provision of management information
Cost/ Personnel
Actions To Be Taken Success Criteria Completed by
Resource Responsibility
1. To develop an information system to System developed and implemented Staff Head of Completed
record, monitor and reconcile school Operations Unit
meal income
2. To develop an information system to System developed and implemented Staff Head of Completed
record, monitor and reconcile school Operations Unit
milk income
3. To review and develop current Financial systems reviewed and Within existing All staff August 2000
financial systems to enhance budget developed budget March 2001
monitoring Financial monitoring information
available at school level
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Cost/ Personnel
Actions To Be Taken Success Criteria Completed by
Resource Responsibility
1. To develop the staff training Staff development reviews undertaken Within existing Acting Catering April 2002
programme to achieve the objectives Staff training implemented budget Manager
contained in the Education Strategic Service improvements achieved
Plan 1999/2002 and the Catering
Business Plan for 2001/2002
2. To renew the achievement of the Awarded Investors in People Staff Acting Catering February 2001 –
Investors in People Standard Standard Manager Sept 2001
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Cost/ Personnel
Actions To Be Taken Success Criteria Completed by
Resource Responsibility
1. To develop current systems to Communication improved at all levels Staff Acting Catering December 2000
improve communication at all levels Manager Ongoing
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Target 2 (iii) - To participate in the development and implementation of the corporate performance management system
Cost/ Personnel
Actions To Be Taken Success Criteria Completed by
Resource Responsibility
1. To work in partnership with all Corporate performance management Within existing Acting Catering April 2001 -
Corporate Departments to develop a framework developed budget Manager Ongoing
corporate performance management
framework based on the County
Borough's final corporate plan
2. To implement the corporate Corporate performance management Within existing Acting Catering April 2001 - April
performance management system system implemented budget Manager 2002
within the Catering Service
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Target 2 (iv) - To identify the most appropriate staffing structure for service delivery
Cost/ Personnel
Actions To Be Taken Success Criteria Completed by
Resource Responsibility
1. To undertake research into alternative Research completed Staff Assistant End of March
staffing structures to meet the criteria Education Officer 2001
of best value
2. To identify the most appropriate cost- Most appropriate cost-effective Within existing Assistant February 2001 -
effective alternative to achieve structure identified budgets Education April 2002
continuous improvement Structure implemented and Officer/Acting
continuous improvement achieved Catering
Manager
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Target 3 (i) - To identify the most appropriate combination of kitchens/dining centres for service delivery
Cost/ Personnel
Actions To Be Taken Success Criteria Completed by
Resource Responsibility
1. To identify, in conjunction with other Alternative combinations of Staff Acting Catering End of March
initiatives identified in the Education kitchen/dining centres identified, if Manager/ 2001
Strategic Plan, an alternative range of appropriate Assistant
combinations of kitchen/dining centres Education Officer
for appropriate service delivery
2. To undertake a cost/benefit analysis of Cost benefit analysis undertaken and Within existing Education February 2001 -
potential alternative options, if most appropriate option identified budgets Accountant/ April 2002
appropriate Consultation with service users Acting Catering
undertaken Manager
Most appropriate combination of
kitchen/dining centres implemented
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Target 3 (ii) - To work in partnership with central departments to develop agreements for service provision to catering
Cost/ Personnel
Actions To Be Taken Success Criteria Completed by
Resource Responsibility
1. To identify current level of service Current level of service provision Staff Acting Catering End of March
provided by other departments identified Manager 2001
2. To establish level of service provision Appropriate level of service provision Staff Acting Catering End of March
required to achieve service objectives established for each service area Manager 2001
3. To obtain comparative costs of Costs obtained and compared Staff Acting Catering End of March
required service provision Manager 2001
4. To work in partnership with other Agreements developed and Staff Acting Catering End of March
departments to develop agreements implemented Manager 2001
for service provision
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Target 3 (iii) - In conjunction with other relevant targets, to examine service costs to identify economies and possible resource
realignment
Cost/ Personnel
Actions To Be Taken Success Criteria Completed by
Resource Responsibility
1. To examine and compare all service Value for money achieved in service Staff Acting Catering November 2000 -
costs on a continual basis to ensure costs Manager Ongoing
that the service is achieving value for
money
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Cost/ Personnel
Actions To Be Taken Success Criteria Completed by
Resource Responsibility
2. To consider introducing charges at the Charges introduced in line with other Potential For consideration June 2001
level of Authorities of a similar Authorities increase in by elected
socio/economic background income Members
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