Dumfries and Galloway Council
Report
BURIAL SERVICE
1
30 March 2004
- FEES AND CHARGES AND LAIR SPACE
Reason for Report
1.I At its meeting on 17 February 2004, the Combined Services Committee
agreed, within Report No 3 Fees and Charges, that due to the financial implications
and wider corporate issues associated with the proposed increase in the purchase
price of burial lairs, that a report should be presented to Full Council on 30 March
2004.
2
Background
Fees and Charges
Removal of delegation from Combined Services will be required so that
2.1
Members can consider the issues raised in relation to burial lairs.
2.1 .I The current and proposed charges are outlined in Table I.As reported last
year, prices had been held pending the outcome of a Best Value Review. It appears
unlikely that the original Review will now proceed and Members are, therefore,
invited to consider data collected in respect of charges levied by other Scottish
Authorities, as indicated in Table 2. From this, it can clearly be seen that Dumfries
and Galloway charges less than half the Scottish average for lairs, whilst its burial
charges are slightly in excess of the average.
2.1.2 Members will be aware that there is significant current and potential pressure
on lair space as well as the maintenance budgets. It is suggested that increasing lair
charges in line with Scottish average would enable the Council to take realistic steps
towards building up a fund to deal with such pressures. It is suggested that a
phased increase would not be necessary in this instance, the service is not generally
a “recurring” service from the perspective of the public. The total Council charge for
burial (lair plus interment) would therefore be f583 (and Members will be aware that
a lair can normally accommodate three family members).
2.1.3 Members may wish to note also that cremation costs are typically f340
(including funeral service, but excluding medical fees of around f IOO), whilst the
total cost of a woodland burial lair and interment (locally) is f850.
There are clearly political implications arising from such an increase in the lair
charge, but the Council has to address the issue of pressure on burial grounds, and
we would advise that unless some steps are taken now, there will be a critical point
in the next two-three years in respect of at least one burial ground. On the basis of
estimated lair sales of between 650 and 700 per annum, additional income of f95 f 102k per annum could be generated.
2.1.4 It is recommended that all income generated from lair sales should be held for
the improved maintenance of burial grounds andlor to expand the availability of lair
space through funding burial ground extensions.
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Dumfries and Galloway Council
Report
30 March 2004
2.1.5 It is recommended that all other burial charges are increased in line with
inflation (RPIX December 2003 = 2.6%).
2.1.6 It is also recommended that a charge for burial of Non-Viable Foetuses be
levied at the same rate as for still-born infants, f32.
Burial Grounds
- Table 1
Scottish Burial Ground Charges 2002103 - Table 2
Dumfries & Galloway
Lowest
Higher
Average (mean)
Cost of Lair
Cost of Interment
Cost of Casket Interment
f130.00
f130.00
f623.15
f285.51
f299.00
f90.00
f573.71
f264.78
f72.00
f38.00
f157.50
f72.48
Source: Angus Council Leisure Services Survey
2.1.7 Increasing charges in line with inflation will generally have a neutral impact on
revenue budgets. Increasing the charges for lair purchases will enable essential
improvements to be made to the facilities provided by the Council over the longer
term.
2.2
Lair Spaces
2.2.1 At its meeting on I O July 2003, the former Combined Operations Committee
considered a report on available lair space in cemeteries. It noted the critical
position regarding lair space availability and agreed;
0
to include future capital funding requirements for burial ground provision,
including memorial walls, in the Capital Expenditure Programme bidding
process; and
to receive a report to a future meeting on the position with specific regard to
cemeteries at EastriggslDornock and Whithorn.
2.2.2 Combined Services manages 171 burial grounds on behalf of the Council as
Burial Authority. The service includes strategic provision, arranging all burials,
strategic maintenance of burial grounds, including memorials, and management of
burial records. Combined Services also carries out grave digging and grounds
maintenance works related to the burial service.
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Report
Dumfries and Galloway Council
30 March 2004
2.2.3 An assessment has been made of the lair space available at all burial
grounds. The assessment is based on the current levels of uptake.
2.2.4 Appendix 1 indicates those burial grounds that have 20 years or less capacity.
It should be noted that 10 burial grounds have five years or less lair availability and
27 have 20 years or less lair availability.
2.2.5 Notices of Intention to Develop (NID) extensions to existing burial grounds
have been progressed for Rigg and Johnstonebridge burial grounds.
2.2.6 At St Michael's, an amendment to the layout increased the capacity by one
year. However, due to poor ground conditions, some lairs may be able to
accommodate only one or two interments as opposed to the original estimate of
three. Therefore, two adjacent lairs may have to be sold to allow family members to
be interred side by side.
2.2.7 It will be seen from the Appendix that unless funding for new or extensions to
existing burial grounds is provided, several towns and villages, including parts of
Dumfries, Stranraer, Langholm, Castle Douglas and Dalbeattie, will not have burial
ground space available in approximately seven years time.
2.2.8 As was indicated at the former Environment and Infrastructure Committee in
July 2001, it is essential that funding is made available in future years if the Council
wishes to continue to provide local burial facilities. Many village burial grounds
around larger settlements would rapidly fill.
2.2.9 The Council provides a burial service in terms of the Burial Grounds
(Scotland) Act 1855, including provision of suitable burial ground, maintaining
grounds (including closed cemeteries) and maintaining records.
2.2.10 The Head of Legal Services has confirmed there is no duty on the Council to
continue to provide any specific replacement of burial grounds as they fill. The
Council can use Compulsory Purchase powers to acquire ground for burials.
2.3
Future Provision
2.3.1 At the October 2001 meeting of the former Environment and Infrastructure
Committee it was agreed to identify, through public consultation, by assessment of
Council land and by advertising, two suitable and available sites to provide
green/woodland burial facilities to serve the east and west of the Council Area.
2.3.2 Future Dumfries and Stranraer burial ground provision is likely to require the
development of new greenfield sites. As well as those indicated above, there is also
a requirement for larger scale burial ground development to commence within the
next ten years at Langholm, Thornhill, Dalbeattie, Castle Douglas and Whithorn and
in some twelve other villages as detailed.
2.3.3 The Finalised Wigtown Local Plan (May 2003) identifies as a policy the
allocation of land adjacent to the existing Glebe Burial Ground. Members should
note that an objection has been received to this site in the Local Plan. Unless it can
be resolved, this will require to be heard at a Local Plan Inquiry. In respect of other
locations, a site searchlappraisal will be undertaken with a further report. The
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Dumfries and Galloway Council
Report
30 March 2004
outcome of that exercise can be incorporated in the relevant Local Plan at a
subsequent revision.
2.3.4 Consideration will also be given to the possible reuse of some alder areas of
burial grounds. However, re-use of old graveyards can raise both social and
archaeological issues and will require careful consideration.
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Financial Implications
3.1 The estimated cost to develop a new burial ground in a green field site to serve
Dumfries or Stranraer to provide up to 4000 lairs each is in excess of f 1m per site.
Because of the large scale of the investment required for Dumfries and Stranraer,
alternative methods of funding such provision, possibly involving the Private Sector
will be examined. A green burial site is now operating in Kirkcudbright, provided by a
private sector operator. As outlined at 2.1.3, interment charges (inclusive of lair
purchase) at this site are f850.
3.2 Any new site would be subject to planning approval through the Notice of
Intention to Develop process. Any new site could include for a woodland burial area.
3.3 Bids for capital funding from the previous years' Capital Expenditure
Programme have been unsuccessful.
It is essential that funding is made available in future years if (i) the Council
3.4
wishes to continue to provide burial ground facilities; and (ii) the capacity
requirements for Dumfries and Stranraer are, in particular, to be addressed.
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Staffing Implications
The development of any new burial ground will be achieved utilising existing
4.1
staff resources. The funding for staff would, as with any Capital Projects, be from
the fee element contained within the funding to develop new burial grounds.
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Consultations
The Director for Finance, The Corporate Director Planning and Environment,
5.1
Area Managers and the Head of Legal Services have been consulted on the terms of
this report.
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Recommendation
Members are asked to:-
6.1 To remove delegation from Combined Services to consider the issues raised in
relation to burial lairs ;
6.2 Agree the proposed increase to charges to the public detailed in Table 1 ;
6.3 Note the critical position regarding lair space availability as shown in the
Appendix to this report ; and
6.4 Agree to include future capital funding requirements for burial ground provision
in the Capital Expenditure Programme bidding process.
Report
Dumfries and Galloway Council
30 March 2004
Report prepared by David Allan
Group Manager - Local Services (Nithsdale)
Harry Thomson
Group Manager - Business
Eastfield Road
Dumfries
01387259934
Geoff Lewis
Director for Combined Operations
Eastfield Road
Dumfries
Date of Report: 17 March 2004
File Ref: B.3
Background Papers:
Fees and Charcles
Environment & Infrastructure Committee, February 2003: ‘Charges for Services,
Planning & Environment”
Commercial Services Committee, February 2003: “Charges for Services to the
Public”
Combined Services Committee, December 2003: “Commercial Waste Charges”
Planning & Environment Committee, February 2004: “Planning & Environment Fees
& Charges”
Combined Services Committee, February 2004: “Fees & Charges”
Lair Space
Environment and Infrastructure Committee, July 2001 : “Burial Service:
GreenNVoodland Burial Concept’’
Environment and Infrastructure Committee, October 2001: “Burial Service Strategy
on Lair Space”
Environment and Infrastructure Committee, February 2002: “Burial Service - Lair
Space”
Combined Operations Committee, July 2003: “Burial Service Strategy on Lair Space”
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Report
Dumfries and Galloway Council
30 March 2004
Appendix
Burial Grounds with less than 20 Years life expectancv (February 2004)
Area
innandale & Eskdale
llithsdale
Stewartry
Wigtown
Cemetery name
Rigg, Gretna (lair map redrawn)
Langholm, Langholm
Dornock, Nr Annan
Wamphary, Moffat
Dalton
Ewes, Langholm
Hoddom
Moffat (due to ground conditions)
Hutton & Corrie, Boreland
Middlebie
Istimated
40 of
.airs
fears Left h aiI able
0
14
4
2
15
5
6
17
12
10
10
40
10
30
20
11
50
150
28
50
Torthorwald, Dumfries
St Michael's Burial Ground, Dumfries
Caelaverock Burial Ground
Morton, Thornhill
Ruthwell, Dumfries
St Blane's
2
4
6
17
12
10
9
427
21
161
19
134
Anwoth, Gatehouse
Colvend, Dalbeattie
Dalbeattie, Dalbeattie
Castle Douglas Cemetery
Kirkcudbright
Girthorn, Gatehouse
Crossmichael
Glebe, Stranrear
Whithorn
Machermore, Minnigaff
Bargrennan, Newton Stewart
3
3
12
18
20
1
17
18
19
318
29 1
562
105
118
52
121
66
17
1
13
15
17
NB - In addition, Dumfries High Cemetery, New Luce and Inch all have only an
estimated 21 years of available space remaining