PAPER C2

Purpose : For Decision

REPORT TO THE EXECUTIVE

Date : 29 JANUARY 2003

Title : BEREAVEMENT SERVICES ISSUES

REPORT OF THE PORTFOLIO HOLDER for fire, emergency planning and Consumer Protection

IMPLEMENTATION DATE : 10 FEBRUARY 2003

SUMMARY/PURPOSE

1. On 19 August 2002 the Fire and Public Safety Select Committee received a report from the Bereavement Services Task Group reviewing the Task Group’s work to date and importantly identifying a series of issues where it deemed policy decisions to be necessary. The Select Committee determined that officers should carry out further investigative work in key areas and thereafter resolved that a report with recommendations be presented to the Executive. This report is directed at satisfying that resolution.

BACKGROUND

2. The Select Committee resolved that the following be recommendations to the Executive:-

3. A scheme be developed and costed to extend East Cowes cemetery for a minimum period of 30 years.

4. On the basis of financial prudence, and as a one off, grant aid of £6,000 be given to Gatcombe Parochial Church Council to enable a cemetery extension to be built on the understanding that closed churchyard status will be not be sought.

5. No funds be allocated for new Island cemeteries.

6. A suitable budget should be provided, at an estimated cost of up to £10,000, to allow continuation of grants for churchyard maintenance.

7. Consideration should be given as to whether Bereavement Services should aim to operate on a budget neutral basis as a matter of policy.

8. A contingency fund be formalised for cremator renewal, and that annual payment be made to it.

9. Extended opening hours be introduced at weekends at the Crematorium as a six month pilot.

10. The Cemetery and Crematorium regulations be formally amended if the hours become permanent and these to also include compulsory insurance cover for monuments.

11. Information to support each of these recommendations follows in the numbered paragraphs below:

12. The cemetery at East Cowes contains grave space for 3 or 4 years. The Council has ownership of a plot of land adjacent to the cemetery measuring approximately 0.6 hectares or 6000 square metres. A covenant on the land directs that it should be retained for burial purposes. It is suggested that ground works and hard landscaping be undertaken on part of this to provide burial space for at least a further 30 years. An area measuring 100 metres x 45 metres will provide approximately 300 burial plots. Potential income generation from sale of graves in this area, at current rates, would be approximately £140,000. Estimated development costs of this area however amount to £100,000 [Property Services]. The Executive may wish to identify options for exploring alternative uses for the remaining area of land.

13. The Isle of Wight Council has a legal duty to maintain 11 closed churchyards. Effectively, when a churchyard is full the relevant Parochial Church Council can apply to the Home Office for an Order in Council declaring the churchyard to be closed. The Isle of Wight Council must then meet all reasonable maintenance costs. The Council currently spends approximately £2000/year maintaining each closed churchyard. Gatcombe Parochial Church Council have requested a grant to fund infrastructure costs associated with development of a plot of land they have purchased. The extension would provide burial space for approximately 100 years at current rates.

14. There remains an outstanding request for the Council to provide a new cemetery in the west of the Island. There is no duty on the Council to invest in infrastructure to provide cemeteries in specific locations. The Council has capacity at larger cemeteries such as Northwood, Shanklin and Mountjoy to provide the Isle of Wight community with burial space for at least 30 years at current rates.

15. A modest budget has historically been provided to fund amenity and graveyard maintenance grants. This non statutory arrangement was inherited from the former South Wight Borough Council. The Isle of Wight Council continued to reimburse up to 75% of graveyard maintenance costs incurred by town and parish councils. The concept of the grant was to make applications to the Home Office for closed churchyard status unnecessary. The grant was withdrawn at the start of this financial year but subsequently reinstated for 2002/3 only.

16. Broadly, the Council’s Bereavement Service budget has been approached from a position of budget neutrality; surplus income from crematorium operational activity albeit the Island crematorium continues to be one of the most expensive in the Country subsidises an operational deficit associated with managing cemeteries and closed churchyards. The 2002/3 approved budget provided for a surplus of £16k. Latest budget forecasts suggest an actual surplus higher than this figure. Budget neutrality could be regarded as an irrelevance; on the other hand it could be seen as a long term policy goal.

17. The Council’s 3 cremators were installed in 1997. Manufacturers predict life expectancy of approximately 15 years. Cremator replacement costs and ancillary emissions monitoring equipment are estimated to cost approximately £1 million at today’s prices. It may be seen as prudent to build a contingency fund by making annual payments to mitigate against a one-off capital bid in about 10 years time.

18. Crematorium grounds are open at weekends and bank holidays. The chapel and book of remembrance can only be accessed when a part time weekend attendant is on duty between the hours of 2.00pm – 4.00pm. The Select Committee recommended increasing these hours to 12.00am – 4.00pm, as a pilot, at a cost of approximately £1000 per annum.

19. Permanently increased crematorium opening hours will require a modest change to the Council’s Cemeteries and Crematorium regulations. The reference to compulsory insurance reflects an extensive memorial risk assessment programme currently underway.

STRATEGIC CONTEXT

20. Recommendations in this report are all consistent with the Council’s Corporate Plan and in particular the aim to provide high quality services.

CONSULTATION

21. This report is based on extensive Task Group and Select Committee considerations. The Task Group met with a representative of Gatcombe Parochial Church Council to hear that organisation’s views.

FINANCIAL/BUDGET IMPLICATIONS

22. The Bereavement Services function currently provides a revenue surplus to the Council. Officers continue to strive to be prudent and at the same time deliver a quality service. A 1% increase in fees and charges produces a net increase in annual income of approximately £7000.

23. There is no particular logic in having a position of budget neutrality. Such a position may require higher charges than the market might bear and additional net costs to council tax payers.

24. The cremators have a life expectancy of about 10 years. If the replacement cost were £1 million then a sum of approximately £100,000 per annum would have to be set aside in order to make advance provision for replacement. The Council does not currently make such advance provision.

25. If there is any logic for advance provision then the cost should be borne by the users rather than tax payers. This would require an increase in charges of over 16%. It might however draw the criticism that today’s users are being asked to pay for something which will benefit only future users. The same argument would also apply to the council tax payers being asked to set aside monies now for future replacement. £100,000 is equivalent to a 0.22% increase in Council Tax.

26. Some of the other recommendations will need consideration as part of the budget process if there is support for them.

LEGAL IMPLICATIONS

27. The local authority has the power under s214 Local Government Act 1972 to provide cemeteries and to contribute towards the expenses incurred by other bodies providing cemeteries.

EVALUATION/RISK MANAGEMENT

28. Several aspects of this report are aimed at managing risk:-

29. The Council has significant land holdings earmarked for burial purposes. In particular at East Cowes there is a 0.6 hectare plot (6000 square metres) adjacent to our existing cemetery. A covenant on the land currently restricts its use for burial purposes. The Council could theoretically initiate legal steps and attempt to lift the covenant on some or all of that land.

30. A modest grant to a parochial church council on the basis of a proven business case is financially prudent. This is viewed by officers as an “invest to save” issue.

31. Withdrawal of graveyard maintenance grants from those organisations that have previously been recipients is likely to stimulate interest in closed churchyard status and bring about a greater financial burden on the Isle of Wight Council in the medium term and beyond. This is again viewed by officers as an “invest to save” issue.

32. Failure to build a cremator renewal contingency fund exposes the Council to having to address a major capital investment in about 10 years time. The alternative to a contingency fund is to acknowledge and plan spending at the required level at the necessary time.

RECOMMENDATIONS

33. That the Executive agrees in principle to a cemetery extension in East Cowes to measure approximately 100 metres x 45 metres at a maximum cost of £100,000 [Property Services advice]. This sum of money will be used to level the site, construct paths, install necessary drainage, erect a boundary fence and plant a boundary hedge. Works would begin as and when a capital bid is approved.

34. That officers be instructed to negotiate a legal agreement with Gatcombe Parochial Church Council in respect of a one-off grant of £6000 to partially fund infrastructure costs associated with a cemetery extension. The grant to be subject to a condition that it be repayable in full if an application is made for closed churchyard status within 10 years. The grant will be paid from Bereavement Services budget subject to approval in the budget process.

35. That the Executive resolves not to fund the provision of new Island cemeteries for the foreseeable future.

36. That a budget of up to £10,000 be established to enable continued funding of graveyard maintenance grants and that officers be authorised to reimburse up to 75% of graveyard maintenance costs to those specific bodies that have previously received grants. Grants will be paid from Bereavement Services budget subject to approval in the budget process.

37. That no action be taken in respect of setting up a Cremator Renewal Contingency Fund.

38. That the hours of weekend opening at the Isle of Wight crematorium be increased and be from 12.00 am – 4.00 pm with effect from 1 April 2003.

39. That proposed minor changes to the Council’s Cemeteries and Crematorium regulations be considered by the Portfolio Holder and if necessary be implemented using delegated decision making powers.

BACKGROUND PAPERS

Fire and Public Safety Select Committee minutes 19 August 2002.

Bereavement Services Task Group file.

Isle of Wight Council Cemeteries and Crematoriums Regulations.

Contact Point : Rob Owen 823388 [email protected]

Malcolm Houghton 882288 [email protected]

J PULSFORD Strategic Director for Finance and Information

D KNOWLES Portfolio Holder for Fire, Emergency Planning and Consumer Protection