Who would someone complain to? Would you ring up the council or would you speak to the manager of the facility? Where would they log the complaints? Would they even log them? Would they pass them on? Do they have systems in place to do so?
I worked for the council as a summer job collecting payments. When we had letters of complaints along with the payments, we didn’t log them. I chucked them in the bin like everyone else.
Regarding the definition of public toilet. There are various definitions. The Sexual Offences Act (2003) defines it for
71Sexual activity in a public lavatory
a)he is in a lavatory to which the public or a section of the public has or is permitted to have access, whether on payment or otherwise,
Toilets are such vulnerable spaces they get their own section. It continues:
b)he intentionally engages in an activity, and,
(c)the activity is sexual.
(2)For the purposes of this section, an activity is sexual if a reasonable person would, in all the circumstances but regardless of any person’s purpose, consider it to be sexual.