Community Governance Review for unparished areas of Harrogate and Scarborough

Information about the Community Governance Review of the unparished areas of Harrogate and Scarborough, including boundary anomalies relating to the parishes of Eastfield, Newby and Scalby, and Osgodby.

Why are we conducting a Community Governance Review of Harrogate and Scarborough?

On 1 April 2023, a new unitary authority, North Yorkshire Council that will deliver all local services, replaced North Yorkshire County Council, Scarborough Borough Council, Harrogate Borough Council, along with the county’s five other district councils.

A central pledge in the bid for a new unitary authority was “double devolution”. This will enable town and parish councils the opportunity to take on greater responsibilities. Currently, parts of Scarborough and Harrogate towns do not have a parish or town council that could choose to take on these responsibilities.

Putting in place the most local tier of decision making could give residents more ownership and control of services delivered on their behalf. As well as taking on responsibility for some local services, parish and town councils have a strong voice in planning issues, separate to the statutory planning authority.  A more localised council would give residents a bigger say and there would be an additional tier of councillors to represent residents, focusing on more immediate local issues.

The unparished areas lie mostly within the more urban areas. Harrogate and Scarborough currently have Borough status, which entitles them to have a mayor. To preserve the historic property, privileges, rights and traditions, the structural changes order approved by the Government to allow the creation of the single North Yorkshire Council establishes Charter Trustee areas for both Harrogate and Scarborough from 1 April 2023.

Whilst Charter Trustee areas are intended to protect the history and traditions of an area, they have no powers in respect of providing services to residents and the trustees may carry out ceremonial functions only. Charter trustees are the councillors on North Yorkshire Council representing the electoral divisions in the unparished areas.

Parish and town councils play a key role in representing the views and promoting the needs of communities and provide services to their residents. Parish Councillors are directly elected to the parish council by the electors of the parish area. This review will seek views on whether town or parish councils should be created in the currently unparished areas and if so, what these might look like.

About parish councils

Parish councils (some are called town councils) are the first level of local government.

From 1 April 2023, the county and borough councils no longer exist and there are two tiers of local government in areas of Harrogate and Scarborough that have town and parish councils, North Yorkshire Council and the town and parish councils. There is only one tier for unparished areas.

Parish councils have relatively few statutory functions (things they have to do). The statutory functions are, for example, the holding of meetings, the management of its finances and the preparation of annual accounts. A parish council employs staff, owns and manages premises, and provides services.

How do Parish Councils operate?

Residents of the parished area elect councillors. They represent residents and their interests and councillors will make most of the decisions about what a parish council does in meetings. Although the public has a right to attend meetings of a parish council and its committees, It is the councillors who collectively make decisions about council business and what services or facilities it provides.

How are they funded?

The parish council must carefully budget for the expenditure it will have to pay in the next financial year. A parish council may generate income from money from rents from premises that it leases or licences for use by others, or from the services or facilities it provides, for example sports facilities, off street car parks. It may also receive grants for certain projects. The main source of income derives from the precept levied on the residents in its area. The precept is incorporated into a local resident’s council tax bill.

What do they do?

Although parish councils have few statutory functions or duties, there are many things they can do if they choose. What they choose to do will depend on the needs of the local community they serve. They have the discretion to exercise a range of statutory powers related to the provision or support of certain services or facilities which benefit their area, and/or the residents that live there. Examples might include sports facilities, allotments, local youth projects, bus shelters, litter bins, off street carparks, community centres, parks and open spaces, community transport schemes, neighbourhood planning, crime reduction measures, street lighting, festivals and fetes, traffic calming measures and tourism activities.

Is there a difference between a town and parish council?

No, they both have the same statutory powers and can provide the same services. The only differences are that a town council has decided that it should be known as a town council instead of a parish council, and a town council usually has a mayor. Since 2007 the alternative terms community, neighbourhood or village council can also be adopted, but there is also no difference in their powers.

Charter trustee areas

From 1 April 2023, the new North Yorkshire Council replaced the borough and county councils. Currently, Harrogate and Scarborough have borough status, which entitle them to have a mayor. The unparished areas of the town lie mostly in the urban centres and in the absence of an existing parish council, charter trustee areas will be established for these parts of the two boroughs. Charter trustee areas are intended to protect the historic property and traditions of an area, but they are not intended to act as administrative units. Trustees have no power in respect of providing services to residents and the trustees may carry out ceremonial functions only.

Unlike parish councils, the powers of charter trustee areas are limited to the following remits:

  1. to promote the historical links and traditions of the former borough
  2. to support activities that enhance the links
  3. to support activities of the Mayor in conjunction with those roles
  4. to determine expenditure that supports these objectives

There are similar statutory requirements as for parish councils relating to, for example, the holding of meetings and the management of their finances and accounts. 

How do charter trustee areas operate?

The charter trustees are the councillors chosen by the electors of the relevant electoral divisions to represent them on the new North Yorkshire Council. Charter trustees must have a charter mayor (chairperson). They are elected annually at the annual meeting of the charter trustees in May. Charter trustee meetings are led by the chairperson and advised by a clerk who is there to see that business is conducted within the law.

How are they funded?

Charter trustees have the ability to raise a precept in the same way as a parish council. The precept is incorporated into a local resident’s council tax bill.

What do they do?

Their role is purely ceremonial. Their task is to maintain the traditions and functions of the mayor and to safeguard historic and ceremonial property, other than land and buildings of the former borough area. Charter trustees do not have the power to deliver services or undertake other activities in the same way that a parish council does.

What will the review focus on?

We will consider the community governance arrangements for the areas under review and whether to recommend:

  • creating a parish council for the unparished areas, to take over the ceremonial functions of the charter trustees and provide other local services - charter trustee areas would be dissolved on creation of a new parish council
  • not creating a parish council in the charter trustee areas so that charter trustees continue to exist and undertake ceremonial functions only

Minor boundary changes to correct anomalies will be considered if necessary. During the review, boundary anomalies may become obvious where, for example, it may seem more appropriate for a small unparished area to be included within a neighbouring parish rather than either remaining within the unparished charter trustee area or becoming part of any new parish which may be created. Three such areas have already been identified, which are included within this review, all within the Scarborough Borough area, being:

  • Eastfield Town Council
  • Newby and Scalby Town Council
  • Osgobdy Parish Council. 

More about those areas can be found below. In any such case, affected residents and parish councils will be consulted.

How will the review be carried out?

Before making any recommendations or publishing final proposals, We must consult local government electors for the area under review and any other person or body, including a local authority, which appears to us to have an interest in the review. The review consists of 2 phases of consultation before reaching any final recommendations.

Stage 1

Date Action
19 July 2022 North Yorkshire County Council Executive, considered a report and approved the Community Governance Review:
August to September 2022 A formal stage 1 consultation was conducted (now closed)
October to December 2022 Consideration of responses and drafting of recommendations
10 January 2023

North Yorkshire County Council Executive to considered a report containing consultation responses and approved draft recommendations for each area under the review.  

(see below for further information)

Stage 2

Date Action
2 March to May 2023 Further public consultation on draft recommendations
May to June 2023 Formulation of final recommendations
July 2023 Final recommendations to be considered by full council.

Consequential Matters

Date Action
By summer 2023 Reorganisation order made
May 2024 Parish council elections to be held under any new arrangements that may be decided.

This review is now at the second stage of consultation, on the draft recommendations.

How do I get involved?

Your views on the draft recommendations set out below are welcomed. Follow the links below to see more detailed information about the draft recommendations and including a map, and to submit an online response.

Harrogate town centre

A total of 1,250 responses were received to the consultation from the Harrogate area. Of those, 934 (74.7%) preferred the option of the creation of a parish council; 181 (14.5%) did not want a parish council, and 135 (10.8%) selected some other option/don’t know.

The most common reason for objecting to the creation of a town council, related to objections to the cost, fears over increases to council tax and a belief that it would be a waste of money. The next most common reason was that there was no need for an additional tier of local government, particularly as the county was moving to a unitary council.

Reasons for supporting the creation of a town council related to the need for local community representation and for residents to be given a voice. Respondents felt it was important for there to be a local body to champion Harrogate’s interests, and that Harrogate would be disadvantaged within the county should it remain without local representation.  Many felt they would prefer to see some decisions made locally.

The draft recommendations for Harrogate

The recommendations that we are seeking your opinions on, are:

  • that a new parish be established for the unparished area of Harrogate
  • that the new parish be named Harrogate
  • that the new parish of Harrogate should have a parish council and be called Harrogate Town Council
  • that the parish comes into effect from 1 April 2024 for administrative purposes, and the first election for the town council be 2 May 2024 for a reduced term of three years, with ordinary elections taking place in 2027 and every four years thereafter - the change takes effect on 15th October 2023 for electoral purposes, ahead of publication of the revised register planned for 1 December 2023
  • that the parish be divided into wards using the division boundaries which apply to divisions for North Yorkshire County Council until 31 March 2023, and which will apply for North Yorkshire Council after 1 April 2023
  • that the ward names for the parish shall be those which apply to divisions for North Yorkshire County Council until 31 March 2023, and which will apply for North Yorkshire Council after 1 April 2023 - however, only part of Oatlands and Pannal division and the Killinghall, Hampsthwaite and Saltergate divisions are in the unparished area, these wards will be named Oatlands and Saltergate. The ward names to be as detailed below
  • that there should be 19 councillors elected to the parish 
  • that the number of parish councillors to be elected for each ward shall be

Based on the draft recommendation, the arrangements for the new Harrogate Town Council would be:

Proposed Ward of new council

Electorate

(Dec 2022)

Forecast

Electorate (2027)

Councillors

Bilton and Nidd Gorge

5,890

5,915

2

Bilton Grange and New Park

5,876

5,904

2

Coppice Valley and Duchy

5,554

6,615

2

Fairfax and Starbeck

5,996

6,188

2

Harlow and St Georges

6,495

7,016

2

High Harrogate and Kingsley

6,410

7,716

2

Saltergate

1,777

2,080

1

Oatlands

4,277

4,832

2

Stray, Woodlands and Hookstone

6,091

6,203

2

Valley Gardens and Central Harrogate

6,130

6,672

2

Total electorate

54,496

59,141

19

A map of the draft recommendations is shown here

Image
Harrogate town council boundary map

More detailed information

How much could a new Harrogate Town Council cost?

As parish councils do not receive money from central government, they are reliant on income raised from the precept. The precept would need to reflect the running costs of a town council including office accommodation, employment costs, office and IT equipment, insurances, professional fees and the costs associated with the civic function and the Mayor. The cost of delivering services will also need to be considered.  

The principal council, North Yorkshire Council, would need to set a precept for the first year of a town council, before any town councillors are elected. The precept will need to be sufficient to cover the set-up costs, administration and running costs and costs of service delivery for future years. It is anticipated that there would be a surplus in year one, which would go to reserves for use in future years and enable the parish to begin on a secure financial footing.  

The precepts levied by Knaresborough Town Council (£25.27 for a Band D property) and Ripon City Council (£70.77) were considered, and other town councils within North Yorkshire and towns of comparable size throughout the country have been looked at. Twelve of the 80 precepting parish councils in the Harrogate district have a precept of over £40.

It is not possible to state an exact figure at this stage, but it is anticipated the amount could be in the region of £40 to £60 per year for a Band D property. This amount could give a total precept budget in the range of £1m to £1.6m.

The closing date for responses is 5 May 2023.

Scarborough town centre

A total of 538 responses were received to the consultation from the Scarborough area. Of those, 376 (69.9%) preferred the option to create a parish council; 97 (18%) did not want a parish council, and 65 (12.1%) selected some other option/don’t know.

The most common reason for objecting to the creation of a town council, related to objections to the cost, fears over increases to council tax and a belief that it would be a waste of money. The next most common reason was that there was no need for an additional tier of local government, particularly as the county was moving to a unitary council.

Reasons for supporting the creation of a town council related to the need for local community representation and for residents to be given a voice. Respondents felt it was important for there to be a local body to champion Scarborough’s interests, and that Scarborough would be disadvantaged within the county should it remain without local representation.  Many felt they would prefer to see some decisions made locally.

The draft recommendations for Scarborough

The recommendations that we are seeking your views on, are:

  • that a new parish be established for the unparished area of Scarborough
  • that the new parish be named Scarborough
  • that the new parish of Scarborough should have a parish council and be called Scarborough Town Council
  • that the parish comes into effect from 1 April 2024 for administrative purposes, and the first election for the town council be 2 May 2024 for a reduced term of three years, with ordinary elections taking place in 2027 and every four years thereafter - the change takes effect on 15th October 2023 for electoral purposes, ahead of publication of the revised register planned for 1 December 2023
  • that the parish be divided into wards using the division boundaries which apply to divisions for North Yorkshire County Council until 31 March 2023, and which will apply for North Yorkshire Council after 1 April 2023
  • that the ward names for the parish shall be those which apply to divisions for North Yorkshire County Council until 31 March 2023, and which will apply for North Yorkshire Council after 1 April 2023
  • that there should be 15 councillors elected to the parish
  • that the number of parish councillors to be elected for each ward shall be 3

Based on the recommendations, the arrangements for the new Scarborough Town Council would be:

Proposed Ward of new council

Electorate

(Dec 2022)

Electorate Prediction (2027)

Councillors

Castle

5,369

6,027

3

Falsgrave & Stepney

6,137

6,170

3

Northstead

5,461

5,520

3

Weaponness & Ramshill

5,771

5,961

3

Woodlands

5,171

5,171

3

Totals

27,909

28,849

15

A map of the proposed town council is shown here:

Image
Scarborough town council boundary map

More detailed information

How much could a new Scarborough Town Council cost?

As parish councils do not receive money from central government, they are reliant on income raised from the precept. The precept would need to reflect the running costs of a town council including office accommodation, employment costs, office and IT equipment, insurances, professional fees and the costs associated with the civic function and the Mayor. The cost of delivering services will also need to be considered.

The principal council, North Yorkshire Council, would need to set a precept for the first year of a town council, before any town councillors are elected. The precept will need to be sufficient to cover the set-up costs, administration and running costs and costs of service delivery for future years.  It is anticipated that there would be a surplus in year one, which would go to reserves for use in future years and enable the parish to begin on a secure financial footing.

The precepts levied by Filey Town Council (£55.26 for a Band D property) and Whitby Town Council (£47.34) were considered, and other town councils within North Yorkshire and towns of comparable size throughout the country have been looked at. Of the 29 parish councils in the Borough of Scarborough which levy a precept, 15 have a band D precept of over £40.

It is not possible to state an exact figure at this stage, but it is anticipated the amount could be in the region of £40-£50 per year for a Band D property. This amount would give a total precept budget of approximately £490,000 to £610,000.

The closing date for responses is 5 May 2023.

Eastfield Town Council - boundary changes

A total of 151 responses were received to the consultation from the Eastfield area. Of those, 108 (73%) told us they are in favour of parishing the unparished part of Eastfield (area A in the map below), with 83 (56.1%) in favour if it becoming part of Eastfield Town Council and 25 (16.9%) favoured the option of including the unparished part of Eastfield within a new parish for Scarborough; 5 (3.4%) wanted all unparished areas to remain unparished, and 35 (23.6%) selected some other option/don’t know.

Image
Eastfield boundary map

The most common reason for not wanting the unparished part of Eastfield to form part of Eastfield Town Council, or any new parish arrangements for Scarborough, related to objections to the cost, fears over increases to council tax and a belief that it would be a waste of money. The next most common reason was that there was no need for an additional tier of local government, particularly as the county was moving to a unitary council.

Reasons for supporting the inclusion of all of Middle Deepdale within Eastfield Town Council related to the need for local community representation and for residents to be given a voice, and that those residents already identify with Eastfield and that it makes sense geographically for the area.

Draft Recommendations for the Eastfield Town Council

The recommendations that we are seeking your opinions on are:

  • that the north-eastern boundary line of Eastfield Town Council be extended towards the A165 to match the Eastfield Division and Ward boundaries 
  • that the change comes into effect from 1 April 2024 for administrative purposes, and the change takes effect on 15th October 2023 for electoral purposes, ahead of publication of the revised register planned for 1 December 2023

There are no proposed changes to Eastfield Town Council’s warding arrangements, council size, or electoral cycle. Based on the recommendations, the arrangements for Eastfield Town Council would be: 

Eastfield Town Council

Electorate

(Dec 2022)

Electorate Prediction (2027)

Councillors

Eastway Ward

2,769

3,479

6

Westway Ward

2,058

2,490

5

Totals

4,827

5,969

11

Image
Eastfield Town Council boundary map

More detailed information

What does this mean for residents in the affected area?

As parish councils do not receive money from central government, they are reliant on income raised from the precept. Those properties to be included within the area currently do not pay a parish precept, but would be included within the parish precept area for Eastfield from 1 April 2024. Currently this is set at £73.71 for a Council Tax band D property.  Properties currently within Eastfield Town Council already pay this precept. 

Properties will benefit from the services and local governance provided by Eastfield Town Council. Visit the Eastfield Town Council website to find out more.

The closing date for responses is 5 May 2023.

Newby and Scalby Town Council - boundary changes

A total of 20 responses were received to the consultation from the Newby and Scalby area. Of those, 14 (70%) told us they are in favour of parishing the unparished Charles Williams Apartments (hatched are in the map below), with 7 (35%) in favour if it becoming part of Newby & Scalby Town Council and 7 (35%) in favour of including the them within a new parish for Scarborough; 5 (25%) wanted all unparished areas to remain unparished, and 1 (5%) selected some other option/don’t know.

Image
Newby and Scalby boundary map

The most common reason for not wanting the unparished part of Charles Williams Apartments to form part of Newby and Scalby Town Council (or any new parish arrangements for Scarborough) related to objections to the cost, fears over increases to council tax and a belief that it would be a waste of money. The next most common reason was that there was no need for an additional tier of local government, particularly as the county was moving to a unitary council.

Reasons for supporting the inclusion of all of Charles Williams Apartments within Newby and Scalby Town Council related to the need for local community representation and for residents to be given a voice, that those residents already identify with Newby and Scalby and that it makes sense geographically for the area. Newby and Scalby Town Council are in support of resolving the boundary anomaly so that ‘once again it is coterminous’ with existing boundaries in the area. The Terms of Reference for this review also seeks to resolve anomalous boundary areas. 

Draft recommendations for Newby and Scalby Town Council

The recommendations that we are seeking your opinions on are:

  • to extend Newby and Scalby Town Council boundary to include all of Charles Williams Apartments, to become coterminous with the Scarborough Borough Council Newby Ward and North Yorkshire County Council Newby Division 
  • that the change comes into effect from 1 April 2024 for administrative purposes, and the change takes effect on 15th October 2023 for electoral purposes, ahead of publication of the revised register planned for 01 December 2023

There are no proposed changes to Newby and Scalby Town Council’s warding arrangements, council size, or electoral cycle. Based on the recommendations, the arrangements for Newby and Scalby Town Council would be:

Newby and Scalby Town Council

Electorate

(Dec 2022)

Electorate Prediction (2027)

Councillors

Newby

4,867

4,883

8

Scalby

2,934

3,464

5

Totals

7,801

8,347

13

Image
Newby and Scalby town council boundary map

More detailed information

What does this mean for residents in the affected area?

As parish councils do not receive money from central government they are reliant on income raised from the precept. Those properties to be included within the area currently do not pay a parish precept, but would be included within the parish precept area for Newby and Scalby from 1 April 2024. Currently this is set at £22.84 for a Council Tax band D property. Properties currently within Newby and Scalby Town Council already pay this precept. 

Properties will benefit from the services and local governance provided by Newby and Scalby Town Council. Visit the Newby and Scalby Town Council website to learn more.

The closing date for responses is 5 May 2023.

Osgodby Parish Council - boundary changes

A total of 3 responses were received to the consultation from the Osgodby area. Of those, 2 (66.6%) told us they are in favour of the 3 unparished properties becoming part of Osgodby Parish Council (hatched are in the map below), and 1 (33.6%) selected some don’t know/not sure.

Image
Osgodby boundary map

No respondents gave explanation, reasons or any comments. The Terms of Reference for this review seeks to resolve anomalous boundary areas. 

Draft recommendations for Osgodby Parish Council

The recommendations that we are seeking your opinions on are:

  • to extend Osgodby Parish boundary to include those 3 properties currently outside of the parish, at the northern boundary line, and to become coterminous with the Scarborough Borough Council Cayton Ward and North Yorkshire County Council Cayton Division 
  • that the change comes into effect from 1 April 2024 for administrative purposes, and the change takes effect on 15th October 2023 for electoral purposes, ahead of publication of the revised register planned for 1 December 2023

There are no proposed changes to Osgodby Parish Council’s warding arrangements, council size, or electoral cycle. Based on the recommendations, the arrangements for Osgodby Parish Council would be:

Osgodby Parish Council

Electorate

(Dec 2022)

Electorate Prediction (2027)

Councillors

Whole parish

1,064

1,260

7

 

 

 

 

 

Image
Osgodby Parish Council boundary map

More detailed information

What does this mean for residents in the affected area?

As parish councils do not receive money from central government, they are reliant on income raised from the precept. Those properties to be included within the area currently do not pay a parish precept, but would be included within the parish precept area for Osgodby from 01 April 2024. Currently this is set at £13.23 for a Council Tax band D property.  Properties currently within Osgodby Parish Council already pay this precept. 

The properties will benefit from the services and local governance provided by Osgodby Parish Council

The closing date for responses is 5 May 2023.