Cabinet, at its meeting on 18 June 2025, will consider and report setting out the highlights of the first year of the new leisure contract and to approve the Annual Service Plan 2025-26, which is an annual requirement of the operator, aiming to align outcomes to the council’s priorities and to address health inequalities.

Councillor Chewe Munkonge, Cabinet Member for A Healthy Oxford, Hagan Lewisman, Active Communities Manager, and James Baughan, Leisure and Active Wellbeing Manager have been invited to present the report and answer questions. Robert Jennings, Contract Manager (Serco) has also been invited to attend the meeting for this item.

The Committee is asked to consider the report and agree any recommendations.

Cabinet, at its meeting on 18 June 2025, will consider and report setting out the highlights of the first year of the new leisure contract and to approve the Annual Service Plan 2025-26, which is an annual requirement of the operator, aiming to align outcomes to the council’s priorities and to address health inequalities.  

 

The Committee were asked to consider the report and agree any recommendations. 

 

Councillor Chewe Munkonge, Cabinet Member for A Healthy Oxford, Hagan Lewisman, Active Communities Manager, and James Baughan, Leisure and Active Wellbeing Manager were present to answer questions. Robert Jennings, Contract Manager (Serco Leisure) was also present. 

 

The Chair introduced the title of the report and reminded the Committee that, whilst legitimate, it would not be the appropriate time for members to raise wider concerns relating to Serco Group beyond its remit as a contracted leisure provided to the Council during discussion of this item.

 

Councillor Munkonge introduced the report and echoed the Chair’s request that discussion remain focused on the performance of More Leisure.  Councillor Munkonge praised the work of the officers, clarified that the Council is entering the second year of the contract, and summarised some highlights from the report.  

The Chair invited comments from officers. 

 

The Active Communities Manager welcomed Rob Jennings from Serco Leisure as the face of the contract, praising his ongoing hard work in conjunction with Council officers.  The Committee also heard that the need for some improvements is recognised, and that feedback and suggestions were welcome.  

 
The Chair invited the Contract Manager from Serco Leisure to speak. 

 

The Contract Manager from Serco Leisure provided an overview of the contract and explained that data from year one has been utilised as a baseline dataset to assess performance and outline investment to date. The Committee were informed of the growth in customer usage of health and fitness facilities and swimming products and noted the inclusion of the Annual Service Plan within the report which outlines the partnership work and connection with the Council’s priorities.  

 
The Chair invited questions from the Committee. 

 

Councillor Ottino thanked officers for the provision of refugee and women only swimming sessions and noted his recognition of the difficulties that have existed around this. Councillor Ottino asked the following questions: 

 

• More information was requested on the ‘pool water features’ mentioned on page 48 of the report.  

• Clarification was requested regarding the meaning of ‘3%’ on page 49 of the report, and whether this referred to an increase.  

• More information was requested in reference to page 51 of the report focused access to, and use of, leisure services by multicultural communities.  

 

Councillor Rowley asked the following questions:   

• In reference to page 40 of the report which detailed a reduction in usage and membership, it was asked whether the current leisure provider has confidence in the previous provider’s figures and whether more anecdotal evidence could be provided to make the data more robust.  

• In reference to page 14, it was queried whether issues with online transfers of membership had been resolved and whether this accounted for some of the decline in membership numbers overall. 

• What work is ongoing to rectify longstanding issues with the lift at Barton Leisure Centre; specifically, who is responsible for monitoring this. 

• Whether reporting on KPIs in the future could continue to focus on the number of concessionary memberships being used.  

 

In response to Councillor Ottino, the Active Communities Manager confirmed that the reference of 3% on page 49 of the report does denote an increase.  

 

The Contract Manager from Serco Leisure also informed Councillor Ottino that pool water features mentioned on page 48 refer to ongoing sourcing of quotations for features such as interactive panels for children.  

 

The Active Communities Manager committed to providing more detail in response to Councillor Ottino’s request regarding multiculturalism and leisure access in future reports but agreed that the service must be accessible and inclusive for all. The Committee were assured that work is ongoing to define how this can be done.  

 

In response to Councillor Rowley, the Active Communities Manager explained that is challenging to evidence reductions in the usage of leisure facilities with the older provider as there is limited access to their data. The Committee heard a summary of the difficulties experienced with obtaining data from the previous provider and understood that officers were unsatisfied with the quality of the data available.  

 

In relation to issues with transferring memberships, the Active Communities Manager confirmed that work has been ongoing to rectify this and deal with customer complaints; it was clarified that progress has been made. The Contract Manager from Serco Leisure recognised the challenges experienced when transferring between providers but confirmed that no further issues have been experienced recently although gaps in data in the new system may have altered the future for year one, as outlined in the report. 

 

In relation to the lift at Barton Leisure Centre, the Active Communities Manager recognised and empathised with the repeated issues that customers had experienced and explained that work has been ongoing to learn lessons from the previous provider.  The Committee learned that the Council now employs a property services specialist technician who advises on maintenance; monthly meetings take place to manage maintenance governance to ensure issues are being rectified and accessibility is ensured. That officers were working closely with More Leisure to provide an effective solution to the lift at Barton Leisure Centre. 

 

The Active Communities Manager confirmed that they can report on concessionary usage as a KPI within future reports and committed to doing so.  

 

Councillor Jarvis requested more information on usage figures. In relation to paragraph 5 on page 40 dealing the loss of usage data, it was also asked what percentage of information was not captured as a result of the transition issue and for how long. Councillor Jarvis raised concern as to how this may have impacted the accuracy of KPI and goal setting. Finally, in relation to page 49, the accuracy of data relating to usage by the age 50+ group was questioned.  

 

Councillor Latif left the meeting and did not return.  

 

Councillor Miles thanked officers for the report and asked, in reference to a creche at Leys Leisure Centre, whether this would be available for use by staff as well as customers. Councillor Miles requested further information regarding the availability and consideration of healthy food and fairtrade options at leisure centre cafes, noting her concern for whether products were being produced and sourced sustainably.  Finally, Councillor Miles queried whether Padel is being considered as a leisure option.  

 

Councillor Munkonge, in response to Councillor Jarvis, explained that whilst data has been lost, it is important to focus on developing an accurate baseline figure to measure future performance against. To this end, further information can be provided in time when comparison is possible. Councillor Jarvis requested further clarification on how long usage data was not being tracked. Councillor Munkonge confirmed that comparison would be made to measure performance across the future of the 10-year contract.  

 

In response to Councillor Miles, Councillor Munkonge explained that under the previous provider, the creche was closed and currently a new business case is being developed to support its reopening. The Committee learned that work is underway to source a budget. In relation to sourcing healthy and fairtrade café options, Councillor Munkonge explained that a balance is required, but that support exists to ensure that this is considered. The Committee were also informed that Councillor Munkonge is now the Council’s representative for Fair Trade and seeks to ensure that it is considered throughout all systems, for example we’re working with the County Council’s Public Health to assess and advise on healthy products.  

 

In response to queries regarding usage figures for those in the 50+ age bracket, the Contract Manager from Serco Leisure committed to reviewing this for accuracy and reporting back.  

 

In response to Councillor Miles’ question regarding cafes, the Active Communities Manager also noted that close work has been ongoing with the health system and ICB to identify healthier as well as sustainable alternatives in the leisure centre cafes and vending machines. 

 

The Contract Manager from Serco Leisure in relation to RAG ratings, explained that programmes of additional activities for key user groups are assessed, particularly for periods such as the school summer holidays, and it is intended that a diverse range of activities is offered to ensure children are continuously connected with their local leisure centre. The popularity of Padel was recognised, and the Committee learned that a dialogue is ongoing with the Lawn Tennis Association to put together a business case to introduce provisions for Padel tennis which should come forward to members later in the year.  

 

The Chair invited further questions. 

 

The Chair asked, in relation to Councillor Jarvis’ earlier questions, whether there could be capacity to make an educated estimate of the missing data based on data already collected to support the use of a better baseline dataset.  

 

Councillor Mundy in relation to the assisted lifeguarding technology mentioned in the report, asked if the leisure provider and Council are currently in contract with the named technology provider, and whether consideration has been made of compliance with human rights policy and the motion recorded at Council on 24 March 2025. 

 
Councillor Qayyum thanked officers for the report and welcomed the expansion of women’s swimming lessons in Oxford. It was asked, in connection with noted health inequalities across some regions of Oxford, whether an explanation could be provided for the influence that the Council has on membership fees and the costs of activities. Councillor Qayyum also asked if prices could be lowered in certain regions of Oxford to encourage more physical activity. Finally, she asked whether under 17s can access any swim sessions at leisure centres or just allocated free sessions.  

 

Councillor Munkonge, in response to Councillor Qayyum, provided information on the fund available to support those experiencing financial constraints as means of encouraging more physical activity and improving health inequalities. Councillor Munkonge also provided information regarding the availability of free swimming for those under 17.  

 

The Active Communities Manager, in response to the Chair’s question, confirmed that work could be done to assess whether an educated estimate could be made for the missing data by using industry benchmarks. The Committee were cautioned that the accuracy of this would not be perfect. 

 

In response to Councillor Mundy’s query, the Active Communities Manager explained that the company utilised for provision of assisted lifeguard technology is recommended by Swim England (the national governing body), and the Royal Life Saving Society and has been tried and tested. The Contract Manager from Serco Leisure provided explanation of how the technology works and clarified that it is intended to save lives by supporting the lifeguards on duty to detect any bathers who may be at risk of or are drowning. 

 

Regarding concessionary access, the Active Communities Manager detailed the reduced cost options already available to Oxford residents and explained that whilst seeking lower costs to residents, that there needs to be a balance to ensure that leisure contract is financially sustainable in the longer term.  

 

In connection to his earlier question, Councillor Mundy thanked officers for their explanations and referred to the motion Council passed on 24 March 2025 to emphasise the need for more information on whether there is an ongoing contract with the technology provider. The Contract Manager from Serco Leisure noted not being aware of an active maintenance contract as the technology was procured at the national level. As such no information could be provided during the meeting. The Contract Manager from Serco Leisure committed to sourcing the relevant information and reporting back to the Committee. Councillor Miles asked whether human rights due diligence is conducted and whether there was any information on this process which could be provided. The Contract Manager from Serco Leisure confirmed that human rights due diligence is conducted, and he could obtain further information to report to the Committee in the future. It was reiterated that he was not aware of any active contract.  

 

Councillor Altaf-Khan asked, in relation to multiculturalism and ladies swimming, queried any ongoing issues with ensuring provisions of the sessions, noting issues during the period in which the leisure provider changed. The Contract Manager from Serco Leisure outlined the programme of session for ladies only swimming that exists and noted refugee groups, and Muslim based user groups who are offered allotted times. The Committee learned that it was the intention to roll these sessions out across the city. Councillor Munkonge also assured the Committee that More Leisure are actively recruiting female lifeguards.   

 

Councillor Altaf-Khan left the meeting and did not return. 

 

The Chair invited discussion of recommendations. Councillor Miles and Councillor Jarvis discussed a recommendation in reference to missing data and KPIs. Councillor Ottino requested a report to update the Committee before the next annual report. The Chair supported a discussion with Councillor Miles and Councillor Mundy relating to information behind the company providing assisted lifeguarding technology to leisure centres in connection with the motion passed by Council on 24 March 2025. 

 

The Committee resolved to make the following recommendation(s) on the report to Cabinet: 

 

1. That the accuracy of the data presented within the Annual Service Plan, particularly regarding baseline usage figures and the 3% growth KPI's, be improved by utilising best estimates for the quantity of missing visits; and that the revised data be included in the update report to be brought back to the Scrutiny Committee in six months’ time. 

2. That the Council seek confirmation as to whether there is an ongoing contract between Serco and Lynxight and, if so, examine the nature of Lynxight’s engagements. This should include providing further details on how human rights and ethical procurement policies are applied within the leisure service contracts, ensuring this information is published to reassure residents that these commitments are being upheld. 

 

 

Chair thanked Councillor Munkonge and the officers for the report and their time.  

 

The Chair proposed that the Committee adjourn for a short break and return at 19.33. 

 

The Active Communities Manager, the Leisure and Active Wellbeing Manager, The Contract Manager from Serco Leisure and Councillor Munkonge left the meeting.  

 

The Committee resumed at 19.34.