Texting While Driving - On the phone drivers!

A while back I saw a dustcart driver reversing in to a yard by a block of flats with a phone clamped to his ear. I reported him, he got told off, I got an apology from the council and that was that.
Then back in March I saw the same guy driving down my road, while his colleagues collected the bins, using his phone again. I reported it, only this time he denied it.
The council did send a memo to all drivers about using a phone while driving. It said that anyone caught using a phone would be disciplined. The driver though was not disciplined.
To my astonishment the same driver drove past my house two weeks later with the phone to his ear for at least two minutes, all the time he was in view.
I of course reported it, and this time it was escalated to a more senior manager.
Today they wrote to me and told me that as there was no evidence there was nothing they could do, so I have complained again and asked for it to be escalated.
No evidence. Do they think I was making it up? Did they check his phone?

the old adage of pics or it didn't happen stands true here