Hounslow’s Cemetery Strategy Draft 2019-2029 draft

1 Hounslow’s Cemetery Strategy Draft 2019 - 2029

Contents

Section 1 4 1. Introduction 4 1.1 Aim 4 1.2 Background 4 2. sCOPE OF THE STRATEGY 5 3. tHe Legal framework 6 3.1 The Local Authorities Cemeteries Order (1977) 6 3.2 Public Health Act 1857 6 3.3 Ecclesiastical laws 6 3.4 Legislation related to Reclamation and Re-use of grave Space. 6 4. Planning Framework 7 5. EQUALITIES 8 5.1 Where we want to be 8 Section 2 8 6. Burial Demand and cemeteries capacity 8 6.1 Projection of burial space methodology 8 6.2 Demographics 8 7 Closed cemeteries and Virgin land 10 7.1 Current burial capacity 10 7.2 Pre-purchased (reserved) graves Exclusive burial rights (ERB) 12 7.3 Future Demand for Burial Space 12 7.3.1 Meeting future demand 12 7.4 Excess death emergency plans 13 7.5 Where we want to be 13 Section 3 14 8. oPerational Management and Assets 14 8.1 Service Provider 14 8.2 Funeral Director 14 8.3 Chapels and Buildings 14 8.4 Official documentation 14 8.5 Archive and data management 14 8.6 Rules and regulations 14 8.7 Grounds maintenance, Grave Digging, and memorials 15 8.8 Stakeholders and Community 15 8.9 Where we want to be 15 Section 4 draft 16 9. Conservation management and Heritage 16 9.1 Greening Cemeteries 16 9.2 Grounds maintenance 16 9.3 Heritage 16 9.4 Where we want to be 16 Section 5 17 10. Income and cost 17 10.1 Fees and charges 17 10.2 Cremated remains 18 10.3 Exclusive Burial Rights 18 10.4 Where we want to be 18 section 6 19 11. Recommendations and Action Plan 19 References and Source 20 Appendix I 21 Appendix II 21 Appendix III 21 Appendix IV 21

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1 - Executive Summary

Hounslow’s Cemetery Strategy provides an opportunity burial capacity some are culturally and financially more for delivering a forward-looking approach to improving challenging such as reclamation or re-use of existing burial our cemetery service for future generations and meet spaces to acquiring new sites. Prior to pursuing these the current needs of our diverse local community and options, there are low risk options that should be explored faith groups. first such as utilising reserved graves that have expired; land used for borders and shrubs; and reassigning virgin The council cemeteries service covers 36.9ha of land; land used for consecrated Christian/other faith burials comprise of 9 cemeteries and 4 churchyards with which are seeing a decrease in demand than other faiths, over 30,000 headstones and memorials. Within the such as Muslim burials that are representing a larger cemeteries there are provisions for various types of proportion of the borough’s population. graves from the traditional earthen burial to brick internments to burial via a shroud. The council is to develop existing unused virgin land at Hatton Cemetery, Borough Cemetery, Hounslow Only Hatton, Chiswick Old, Borough, Hounslow, cemetery and Bedfont Cemetery which will create more Bedfont and Chiswick New cemeteries are currently than 2000 additional burial spaces. Further exploration open to purchasing new burial spaces. The other for potential land for new cemeteries is being pursued cemeteries may permit burials only where there are through our long-term planning strategies to meet reserved graves that have not been used or allow for future demand. multiple internments within the same grave. Within the borough is Gunnersbury cemetery which is owned and All local authorities must maintain their cemeteries managed by Kensington and Chelsea council that is an ‘in good order and repair’ as set out by the Local open cemetery. Government Act 1977 although there is no statutory obligation for local authorities to provide new burial Religion and cultural values greatly affect people’s space or create new cemeteries. The revenue raised preference of how and where they are buried (as well however from the purchase of burial spaces and as choice of cemetery). Predominantly cremation is the other services helpS to fund the maintenance of our preferred choice amongst those who are secular who cemeteries now and for the lifespan of the cemetery. now represent a growing majority of the population. Although Christian Denominations still represents most Cemeteries accounts for a significant portion of burials, it is projected that 21% of all burials will be our land portfolio and should contribute more to Muslim by 2031.draft our green infrastructure, heritage and open spaces amenities. Many already have significant biodiversity An average of 423 burials currently take place every value, listed buildings, and there are possibilities of year in Hounslow. Using current actual burial rates, introducing woodland/natural burials to reflect a more there is a potential of a total 211 average years left environmentally responsible alternative to cremations. until reaching full capacity for burial spaces borough There are many decommissioned buildings that could wide within current cemeteries and churchyards. have a new lease of life more appropriate to the However, most significant is that there is only 21 years community or if not possible these could be demolished for Muslim burials capacity should no additional space to create more burial spaces or disposed of to meet for burial spaces be added. wider council needs.

If net migration and personal preference are not factored, How we interface with our cemetery services users the projected estimated burials based on estimated death and maintain public records is part of a modernisation rates in the borough paints a different picture in that full objective that is required to ensure compliance with burial capacity will be reached in 138 years and Muslim current practises. Digitisation of the archive and online burial sections will be filled in the next 10years. service will require further investment that will greatly There are several options available to increase our improve the public access to our service. Improving

3 Hounslow’s Cemetery Strategy Draft 2019 - 2029 our relationship with Funeral Directors, Officiants and of fees and charges this will greatly improve not only Memorial Masons from all cultural sectors will ensure choice but customer experience as one of London most we develop a more inclusive service that understands its affordable cemetery services. customers better. Cemetery management is a long-term process and the An update of the cemetery rules and regulation is to be council commitment to delivering the strategy’s action adopted to simplify some of the arcane and obsolete plan will ensure that the service will remain relevant and regulations and practices. Along with annual reviews fit for purpose for current and future generation. Section 1 1. Introduction

This strategy assesses the current burial provision for Hounslow and how we will meet the challenges of the future and provide resilience within the services affected by demographic change, and range of religious values in our local communities.

The strategy is informed by recent cemetery studies, benchmarking against neighbouring local authorities. We acknowledge the significant reference made throughout from the ‘Planning for burial space in London’, August 1997 by London Planning Advisory Committee (1986-2000) and ‘An Audit of London Burial Provision’, Greater London Authority and University of York (2011) which represents and remain the most definitive assessment of cemeteries to date in the UK.

1.1 Aim The strategy’s aim is to provide an overview of the status of our cemetery service and a programme of key actions that will address broader issues across the service in the short and medium term between 2019 and 2029.

1.2 Background The potential crisis regarding the lack of burial space in London was initially identified in Planning for Burial Space in London, a report published in August 1997 by the London Planning Advisory Committee (LPAC, (1986-2000). Since this time, there havedraft been numerous reports and parliamentary debates, which also attempt to address the problem. Therefore we have not reproduced such information herein but are referenced in the Appendices of this report for source material.

The 1997 report on Planning for burial space in London, by the London Planning Advisory Committee (1986-2000) raised the following questions: • Should London Boroughs set aside more land for burial space? • What are the open space implications of this? • Are they catering for the burial space of all sections of the community? • Should they promote more novel alternatives, such as the reuse of graves, woodland burial and various forms of ‘green’ burial? • Will the current ratio in London stabilise at about 71% cremations to 29% burials? and went on to say: In Inner London, where demand and supply [of burial spaces] mismatches are most acute, it is unlikely that new cemeteries will be capable of development without significant implications for other open space uses, including playing fields, allotments and nature reserves. The potential of new conventional cemetery provision to meet the need for local, affordable burial space in these areas seems limited.

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These questions are still relevant, although the parameters have changed. We now have a broader view of open space, which sees cemeteries and graveyards as valuable assets and part of the green infrastructure. As such, the decision is not one of change of use from open space to a cemetery but rather how can the cemetery be a shared, multifunctional public asset. This may take a gradual change of attitude to burial sites and a greater social acceptance of death. Cemeteries are an ideal asset to create nature reserves and conserve the land from infill and urban sprawl as most are relatively undisturbed and become wildlife havens with the social, environmental and health benefits that such spaces bring. 2. sCOPE OF THE STRATEGY

This reports only covers public cemeteries and churchyards owned and managed by the council (See Map 1). It does not include Gunnersbury Cemetery which is within the borough but owned and managed by Kensington and Chelsea Council or other private burial sites nor churchyards still under the jurisdiction of the church. Quaker Burial Ground in Isleworth and St Lawrences Burial Grounds in Brentford are private cemeteries.

Table 1 - 1 -The council currently manages the following cemeteries and churchyards: CEMETERIES Churchyards Bedfont Cemetery All Saints Churchyard Chiswick New Cemetery, St Leonard Churchyard Chiswick Old Cemetery St Mary Churchyard Feltham Cemetery St Nicholas Churchyard Hatton Cemetery Hounslow Cemetery Isleworth Cemetery New Brentford Cemetery Borough (Powder mill Lane) Cemetery Map 1 - Locationdraft of Cemeteries and Churchyard managed by LB Hounslow

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3. tHe Legal framework

Across Europe, cemeteries have evolved to be the culturally accepted locations for communal public burials. With this communal form of memorialisation evolved a need to minimise risks to public health that has now been embedded in many legislations that impact on how cemeteries are managed or operated.

It is not practical to provide an extensive overview of legislation that covers cemeteries, the more pertinent legislations are detailed below and sources available in the references.

3.1 the Local Authorities Cemeteries Order (1977) This key legislation establishes Local Authorities as Burial Authorities and powers to “do all such things as they consider necessary or desirable for the proper management, regulation and control of a cemetery.”

The legislation also requires all Burial Authorities to make and keep plans of all graves, vaults and grave spaces subject to burial rights. It also gives powers for setting cemetery land apart for specific denominations or seek permission for consecration of land.

3.2 Public Health Act 1857 As a burial authority, which own and manage cemeteries, we have a duty under the act to “have the care of any vaults or places of burial, for preventing them from becoming or continuing dangerous or injurious to the public health.” It also makes it an offence to remove any body or human remains that have been interred without permission.

The council also has a duty to bury or cremate anyone who has died within the Burial Authorities district that can demonstrate that they cannot afford this service. These public funded service are invariable via coroner service and only after no surviving relatives can be traced or financial support is available by a relative which result in either burials in a common grave or cremations.

3.3 ecclesiastical laws There are number of ecclesiastical legislations affecting cemeteries, again these are not fully detailed herein. In the main these legislations limit what works or (faculty) permissions may be required for burial grounds, or parts of burial grounds whichdraft are subject to the jurisdiction of the diocesan Bishop of the Church of England. 3.4 Legislation related to Reclamation and Re-use of grave Space. Re-use of grave spaces is perhaps one of the most sensitive and contentious issue cemetery manager may have to consider. The law does permit re-use and reclamation which a growing number of local authorities are now using these powers to increase burial capacity (See Appendix IV).

Before reclamation and reuse of a burial grave can take place, certain criteria must be met. • any burial rights to ‘identified’ graves are extinguished • sufficient depth being available in ‘identified’ graves • proper investigation is made to contact relatives of previous burials and ‘additionally’ to properly promulgate (local press) the intention of the local authority to re-use graves • any new recipient of the burial rights to the grave are aware of previous burials. • any new recipient of burial rights is subject to the fact that retention of any existing memorial is made ‘re- used’

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The City of London is one of the 33 local authorities in Greater London, to have reused just under 900 graves in the four years up to 2013, it did this in nearly every case not using the powers in the 2007 Act but those under ecclesiastical law.

4. Planning Framework

Cemeteries and their provision are considered within Hounslow’s planning framework and Hounslow’s Local Plan. Policy GB9 in Volume One of the Local Plan set out the council’s aim for cemetery provision as

Policy GB9: Play space, outdoor sports facilities and burial space states: ”We will protect and improve the provision of play spaces, outdoor sports facilities and burial spaces to meet the diverse needs of the borough’s population now and in the future.”

We intend to achieve The rationale for taking this approach is because Supporting facts state: this by: (paragraph 7.18): The borough contains “(d) Ensuring burial “Cemeteries, churchyards and other burial grounds have about 39.6ha of space is preserved a distinct primary function which needs to be protected cemeteries and burial to ensure availability so that there is sufficient burial space available in the grounds. This represents of provision to meet short, medium and long term. However, cemeteries and a good supply, and the borough’s burial churchyards also provide green, quiet areas for passive there is scope for needs now and in the recreation and walking (often forming part of Green expansion to meet future” Chains and Corridors) and for biodiversity.” demand for burial.

At a regional level the issues of cemeteries have also been recognised; the draft London Plan (GLA, 2018), key objectives are: 1. Cemeteries should be protected and the re-use of burial space supported. 2. When preparing Development Plans, boroughs should ensure provision is made for the different burial needs and requirements of London’s communities, including for those groups for whom burial is the only option. Cross-borough and/or sub-regional working is encouraged where appropriate to identify and address the requirements of these groups and to tackle burial space shortages within the sub-region. 3. Development proposals for new cemetery provision should be supported. This may include provision in one draftborough to assist faith groups from another borough facing burial space shortages

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5. EQUALITIES

Our cemeteries’ aims to provide a service to diverse communities and faith groups and meet our obligations under the Equalities Act. Historically, most cemeteries in England are a product of its association with Church of England (C0E) as the dominant faith so have larger dedicated areas that are assigned to this faith known as consecrated areas.

However, within some of our cemeteries there are specific service provision in Hounslow to meet other Christian and Muslim faith groups. The demand for other faiths groups will be continually reviewed and considered as population changes in Hounslow and where practical these needs could be met within the resources available.

5.1 where we want to be

Vision The council will seek to develop and implement better polices to secure the continued protection of our cemeteries and burial provision for present and future generations of our residents.

Key Actions: To reinforce significance of cemeteries in corporate policies such as local Plan and that provide local authorities guidance and authority to manage and protect cemeteries where required. To work across services and external partners to lever in investment as well as to find mutual solutions to meet broader faith needs, maximise their community benefit and provide best value to the authority. draftSection 2

6. Burial Demand and cemeteries capacity 6.1 Projection of burial space methodology Assessing current and future burial capacity is complex as not all data is available and the range of factors involved are very variable. We have simplified this calculation and have used basic assumptions around population demographics, land availability, historical trends along with available benchmarking data.

6.2 Demographics The composition and characteristics of the Borough’s population is a helpful indicator of burial demand and gives us a better understanding of the demand on our cemetery service. It should be noted that burials in our cemeteries are not exclusively all Hounslow residents.

The 2017 GLA Ethnicity projections estimate Hounslow’s population as 48.5% White, 36.7% Asian, 6.7% Black, 4.4% mixed ethnicity and 3.6% from other ethnic groups. There are quite distinct differences across each ward and

8 Hounslow’s Cemetery Strategy Draft 2019 - 2029 between the East and West of the borough, with the Heston and Cranford areas having the highest proportions of BAME residents and Chiswick the lowest.

In terms of religion, figures from the 2011 Census demonstrate that 42% of Hounslow residents identify as Christian, 14% Muslim, 10% Hindu, 9% Sikh and 1% as Buddhist. At 9%, Hounslow has the largest proportion of Sikhs in London, and the third highest proportion in England and Wales, after Slough (10.6%) and Wolverhampton (9.1%) local authorities. In total, 78% of Hounslow residents identified with at least one religion, whilst 16% stated they were not religious and 6% did not state a religion.

The Office for National Statistics (ONS) projections suggest a steady increase in deaths in London between 2018 (47,600) and 2039 (60,100). In Hounslow, over the same time, the annual number of deaths are expected to increase from 1,400 to 1,900 which is a 35% increase.

Demand for burial space and cremation rates are interlinked. The most recent estimates from “The Cremation Society of Great Britain” suggest a cremation rate of 75% for 2014 and this demand has been constant with average of 36,000 cremations across London.

Changes in cremation rates are closely linked to burials and faith. The 2011 GLA Audit of London Burial Provision showed that there is a strong preference particularly for Muslim/Buddhist (for burial) and Hindu/Sikhs communities (for cremation) (See Fig 1).

Fig.1 - London population preference for Cremation (GLA -Ref 1) draft

Illustrated by Figure 1 that aside from the high demand from Hounslow’s Muslim population on burial space which is project to increase from 14% to 21% by 2030 and there is also a need identified for cremated remains form Hindu and Sikhs communities.

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7. Closed cemeteries and Virgin land

Data from Hounslow Registry office shows that deaths in the borough have increased from 1253 deaths in 2014 to 1437 deaths in 2016 which may reflect the increasing population of the borough. However, deaths registered within the borough do not necessarily relate to number of burials in our cemeteries. There are many factors that determine where someone choose to be buried although a historical or social connection to the area is strong indicator. Over the past 4 years, the average burials of 423 per year.

Assessing current burial capacity of cemeteries is further complicated as some cemeteries are classified as ‘closed’ (of which there are 5 cemeteries in the borough) but may still offer capacity for additional burial spaces if they allow graves to be re-opened for additional burials. If the unused land has had no previous burial, then this is referred to as ‘Virgin Land/Grave’.

In the UK, it is commonly the case that graves contain more than one burial. Where graves allow for multiple burials it can be ’re-opened’ for later internments.

7.1 Current burial capacity Of the 9 cemeteries within the borough, only 5 cemeteries have virgin land still available for burial within their existing defined boundaries.

Based on current data (see Table2) the critical demand is for future Muslim burial space as the current Muslim designated areas (Hatton and Borough cemetery see Map 2 and 3 below) will be at full capacity within 21 years. The total number of years left for all cemeteries is 190 years to reach capacity within Christian/other faiths burial spaces.

Table 2 - existing Cemeteries lifespan for Burial Lifespan cemetery based Burials Virgin Graves Cemetery Re-open current death rate per annum (2017) available (Years) Christian Christian Christian and other Muslims and other and other Muslims faiths faiths faiths Hatton Cemetery draft10 5 1 1000 100 14 (2.7acre) Bedfont(4.5acre) 20 0 12 400 20 0 Borough (9acre) 20 130 27 300 15 7 Chiswick New 20 0 29 400 20 0 (7.8acre) Hounslow 25 0 12 878 35 0 (7.7acre) Total 95 135 121 2978 190 21 2978 burial Grand Total 351 211yrs spaces

There is approximately 1.2ha of virgin land in Borough Cemetery and the development of path and other infrastructure will see this area supplying 1500 burial spaces.

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Map 2 - Borough cemetery showing Virgin land

Hatton cemetery has approximately 1ha of virgin land (see Map3) that is planned to be now brought to use and provide 950 new burial spaces. Map 3 - Hatton draftcemetery showing Virgin land

Although the council has recently re-appropriated land that was surplus to Borough cemetery it does have cemetery land, known as Chiswick new allotment that was originally part of Chiswick New Cemetery which can accommodate a potentially 2500 burial spaces.

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7.2 Pre-purchased (reserved) graves Exclusive burial rights (ERB) All graves are purchased for fixed period known as Exclusive burial rights (ERB). Hounslow has set its ERB at 60 years. A burial space can also pre-purchase/reserve without it being used for limited period of 75 years. If pre- purchase burial rights have elapsed before usage, then the land reverts to the council to be re-sold.

There are an estimated 98 grave spaces that were reserved prior to 1942 (75 years) that are subject have not been used and may be offered for new purchase as follows:

Bedfont None Borough None Chiswick new 2 Chiswick old 12 Feltham 17 Hatton 0 Hounslow 29 Isleworth 31 New Brentford 4 Total 95

Where cemeteries are limited to single depth burials, such as Muslim burial areas, it is more common for those areas to have more reserved graves to reflect the desire for relatives to be buried nearer together. Reserved burials will account for all additional burial taking place in closed cemeteries.

7.3 future Demand for Burial Space Although current data of burial rates (see Table 2) it suggests that we have approximately 211 years of cumulative years before reaching burial capacity across all our cemeteries with average life span of about 38 years for individual cemeteries, if factoring projecting population increase by 26% and death rates increase of 35% (see section 6.2) then this capacity is substantially reduced. This notable draftdiscrepancy between projected and actual burial rates could be accounted for by increasing culturally diverse populations, more choice in private sector cemeteries, personal preferences of where people choose to be buried and population net migration. These factors are difficult to assess but does skew our calculation of future burial capacity.

Using the predicted 50% increase in demand for Muslim burial by 2031 then the Muslim sections at Hatton and Borough capacity could be reduced from 21 years to 10.5 years if no further virgin land is brought forward to use.

It is therefore reasonable to also assume based on the ONS data of a 35% increase in predicted deaths by 2039 that the future burial capacity would reduce significantly from the predicted 211years (based on actual death rates) to possibly 138 years or even lower if those new populations in Hounslow have a greater preference for burials.

7.3.1 meeting future demand If using the projected estimated deaths as a prediction of Hounslow burial capacity, then the borough does have a critical shortfall for Muslim burials. However, this can be addressed by designating other virgin land for this purpose. The overall burial capacity is good but long term planning for future additional space should start to be considered.

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The options available to ensure we continue to provide a burial service are many but not are all practical, economical or feasible for a variety of reasons. Below are some of the options available: • Developing land currently not designated as cemetery land, e.g Greenbelt designated land • Extending use of land within cemeteries that have been used as borders, lawns, access ways, parking etc. • Deconsecrating land for other faiths where there is demand • Smaller plot sizes for ashes • Demolition of derelict structures and buildings to create new burial areas • Re-use of public (common) graves • Re-use of private graves. • Reclaiming reserved graves • Use of burial chambers/mausoleum. • Working with other local authorities to source shared land for new cemeteries. • A new burial site outside the borough • Buying of grave space from a private supplier • Introduce Garden for Cremated remains • Apprentices in Burial and cemetery work

Many of these options have been explored with varying degrees of success by other local authorities. It should be noted that timescale for some of these options to be implemented are significant with many taking at least 4-6 years due to the planning process and environmental constraints that need to be overcome. The council is in the early phase of exploring possibility of expanding land to the south of Hatton Cemetery (see map 3). Many authorities are currently facing similar issues with some having much reduced capacity than Hounslow council and due to having far smaller land area are either pursuing purchasing land outside borough boundaries or having to re-use burial spaces that have extinguished ERB.

7.4 excess death emergency plans Contingency planning is required to meet the potential high demand for burial spaces in the event of mass death from war, health pandemic or other disasters. Hounslow emergency plans has identified several potential sites that could be used as location for mass burials. This contingency plan for excess burials should be reviewed to find more suitable location will less impact on civic amenities.

One estimation of potential scale of mass death by UK influenza Pandemic preparedness strategy in 2011 had predicted a severedraft outbreak could result in 210,000 deaths across the UK over a 15-year period. In such an event, Hounslow would need to have adequate land to accommodate mass burials for between 700-1050 additional burials.

7.5 where we want to be

Vision Hounslow cemeteries will continue to provide sufficient burial capacity for its residents and to meet its diverse community needs.

Key Actions: To explore options to use virgin land and expired reserved graves for burial use. Allocating proportionally burial land to meet cultural needs as reasonably as possible and to start planning for future generations burial capacity by exploring land options through a review of our assets and closed cemeteries.

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8. oPerational Management and Assets

8.1 service Provider The Cemeteries administrative service is provided by LBH which includes, booking funerals, allocating plots and updating plans and deeds. LBH is the first point of contact for families and funeral directors. The operational and maintenance service will be provided by GS360 which includes but not limited to digging graves, grounds maintenance and building upkeep. The two services will work in partnership to ensure high level service delivery and customer care.

8.2 funeral Director There is no specific legislation limiting funeral services to funeral directors or official registrations, however, there are regulations for premises that offer such services and how deceased bodies should be kept.

In the main, Funeral Directors are the main providers, acting on behalf of clients seeking to bury their deceased within our cemeteries. The council does not have a standing list of preferred funeral directors giving customers the choice of the national market. Faith groups may have specific organisation or members that also manage funereal services such as Muslim faith groups that use the services offered by a Mosque.

8.3 Chapels and Buildings Hounslow has three chapels at Brentford, Hounslow and Chiswick cemeteries used for ceremonial for religious and secular ceremonies. However, due to their condition, they are not well utilised and provide a perfunctory service.

Isleworth cemetery chapel, which was decommissioned for 15 years, has recently been brought back to use by Men’s Shed charity for community use under a long-term lease. This is initiative that could be rolled out to other derelict buildings in cemeteries.

There is a need to develop an asset management plan for our derelict and decommissioned buildings that have been boarded up that may include options of demolition or re-provision for more relevant community or commercial purpose. draft 8.4 official documentation To permit a burial, there is a legal requirement to possess a Disposal Certificate issued by registrar office or coroners order, which must be presented to the cemetery office to confirm identity and cause of death.

8.5 archive and data management As required by law, the council must maintain a record of who and where a person is buried. The council maintains a hardcopy record and has begun to transfer this information to software database called BACAS.

8.6 rules and regulations Local Authorities’ Cemeteries Order 1977 gives powers to burial authorities for establishing rules and regulations relating to the management of the cemeteries and the memorials permitted with them and setting fees for burials and memorials.

In Appendix II, are the new set of rules and regulations which hope to simplify previous rules, and regulations as well as improve customer experiences.

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8.7 Grounds maintenance, Grave Digging, and memorials Cemeteries cover a total area of 36.9acres across the borough. The maintenance and setting of cemeteries is an important factor that influence choice of which cemetery to be buried in. Most cemeteries have significant area laid to lawn however maintenance is costly due to the obstruction caused by headstones and other features.

The cemetery ground maintenance team is traditionally a specialised dedicated team due to grave digging and dealing with grieving families. Recent years have highlighted the issue of water ingress in burial flooding caused by high rainfall and local geology particularly Hatton and Borough Cemetery. The issue has been found to localised and not related to groundwater levels. Staff are experienced and will continue to be trained to manage such challenges on site going forward.

As many of our cemeteries are now coming to their centenary, so too are headstones, statutes, and other structures which all require regular testing for structural integrity. Where found unsafe would be set down safely.

8.8 stakeholders and Community There are a range of stakeholders and communities who have an interest in our cemeteries from Historical Societies due to the its heritage value to Wildlife conservation groups, Faith representative community leaders and Funeral directors.

There is clearly a need to develop these community relationships and foster better partnerships to improve our services. We hope to engage more with all interested parties through more formalised working groups as we have done for some of our faith groups as well having more training for staff dealing with customers from different communities and faiths.

8.9 where we want to be

Vision To have an accessible and modernised service for all, and for maintenance of cemetery grounds and assets to be safe, and welcoming.draft Key Actions: To develop a grounds maintenance specification that enhances cemeteries, introduce an online centralised and transparent payment and customer focus ICT services, digitise archival records and establish stakeholder working groups for both customers and cemetery professionals.

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9. Conservation management and Heritage

Cemeteries are part of our green infrastructure and should be managed as both a public service and a natural habitat. Many authorities have taken this approach and developed individual management plans to steer delivery of grounds maintenance to more ‘green’ objectives as well as to meet the standards of Green Flag, a National award for parks and green spaces.

There are many opportunities to enhance cemeteries’ environmental credentials as well as fulfilling the primary purpose of a place of burials such as Green Burials. Often such initiatives are not only good for the environment but also economically more sustainable and reduce cost to the service.

9.1 Greening Cemeteries Woodland burial is a real choice for many people. Woodland and natural burials are no longer ‘novel’ alternatives. There are now over 270 natural burial sites nationally, varying in ownership, planting and management. This is not an indicator of the number of burials although the Natural Death Association cites a recent poll that concluded that ‘two thirds of us would seek a green resting place if one existed locally.’ (Source: Natural Death website). Woodland burial, also known as natural burial is becoming a popular choice. The nearest registered site is Woodcock Hill Woodland Cemetery, Rickmansworth and 7 unregistered members in the London area.

Metropolitan Green Belt are ideally more suitable for green burial as the protection affords longevity to the site and in turn would attract more uptake. However recent court case has limited development of cemeteries on green belt. This is an option that can be explored in Hounslow.

9.2 Grounds maintenance The general upkeep of cemeteries is a much-reduced grounds maintenance specification than other parks and open spaces focusing on grass cutting, litter and shrub/trees management. Although visitors to cemeteries are much lower than in our parks, there is an expectation that these grounds should provide a respectful and appropriate setting. This expectation can be met by better horticultural practise, greater investment in physical assets such as pathways, buildings and boundaries and through the establishment of “friends of” cemetery groups.. 9.3 Heritagedraft Many of our cemeteries have listed building and structures which celebrate their cultural and heritage value from significant architectural chapels such as the Grade2 listed Isleworth chapel to war memorials and the boundary walls of Heston Cemetery.

9.4 where we want to be Vision - Our cemeteries to be an integral part of the green infrastructure and contribute to borough’s habitat and heritage value.

Key Actions: To develop management plans for each cemetery and churchyard to focuses on more environmentally friendly specification for grounds maintenance. To explore green burials as means to achieve our vision and register of historical and listed assets.

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10. Income and cost

10.1 fees and charges Setting an appropriate fees and charge for the service we provide is undertaken annually by the council, benchmarking other local authorities to ensure that they are affordable and competitive. The Fees and Charges for 2017-18 are included in Appendix III. We remain one of the most affordable burial service across London.

Comparison of 7 London Boroughs including Hounslow show great variations in costs across all 7 boroughs from £2362 (Hounslow) to £5855 (Lambeth) (see fig.4). Below is a comparison of the ERB and costs of purchasing a traditional grave and interment charges

Figure 4 - Comparison of burial charges in 7 London boroughs – 2017-2018 draft

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10.2 Cremated remains Cost of cremated and first internment remains range from £900-£1,900 in other local neighbouring local authorities. Presently, the only option to bury cremated remains in Hounslow is to purchase an entire grave.

Streamlining the means of paying for cremated should be reviewed and having a dedicated area for cremated remains will improve customer experience with new set of fees for this specific burial service area.

10.3 exclusive Burial Rights As many of our cemeteries burials are coming to the end of their exclusive burial right (ERB) period, consideration must be given for extending ERB and appropriate fees set. This not only provides customers more certainty of the options available to them when ERB expires but an income to continue to maintain cemetery.

As demand for burial spaces decreases across London, pressures from other authorities’ population could be displaced to Hounslow. This anticipated shortage may increase demand for pre-purchase graves and therefore appropriate preferential fees for pre-purchase graves should be set to ensure adequate burial space for Hounslow’s present population.

10.4 Where we want to be

Vision For Hounslow cemeteries to remain affordable and self sufficient.

Key Actions: To continue to benchmark other local authorities and introduce a wider a range of services such as a dedicated cremated remains gardens within cemeteries and churchyards and provisions for more choice for faiths groups wheredraft reasonably practical.

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11. recommendations and Action Plan

Cemeteries are part of our green infrastructure and should be managed as both a public service and a natural habitat. Many authorities have taken this approach and developed individual management plans to steer delivery of grounds maintenance to more ‘green’ objectives as well as to meet the standards of Green Flag, a National award for parks and green spaces.

There are many opportunities to enhance cemeteries’ environmental credentials as well as fulfilling the primary purpose of a place of burials such as Green Burials. Often such initiatives are not only good for the environment but also economically more sustainable and reduce cost to the service.

Table 6 - Summary of Key Cemetery Recommendations Short RISK/ Section Aim Deliverable Medium Owner(s) Term COST Raise profile Review and reaffirm Policy and of Cemeteries Planning and status in next Local Plan By 2023 years Low Planning as an essential Parks Team and develop service Deliver improvement to Increase burial Burial capacity virgin land at Hatton By 2019 Parks Team Low capacity and Borough Cemetery Development of new Hatton cemetery By 2023 years Parks Team medium extension Preferred option appraisals for future By 2023 years medium draftburial capacity Review and reallocate By 2023 years Medium reserved graves Improve Operational Draft Management Plan By 2020 Leisure team/ service for low management for each cemetery years stakeholders customers Roll out Online and By 2020 payment and booking low years service Improve website and on site information through By 2020 low better content and years signage Complete digitisation of By 2020 medium archive service years

19 Hounslow’s Cemetery Strategy Draft 2019 - 2029

Review of building Within 2 low assets years Continuous testing of headstones and annually low memorials Establish Stakeholder forums and community annually low charter Green Greening infrastructure Consult on Green cemeteries and By 2023 years medium burials and heritage recognising heritage value Complete register of By 2020 listed buildings and low years structures Affordable and Fees and Introduce cremated Within 2 competitive low charges remains with new fees years cost of service Pre- purchase graves Within 2 Medium fees reviewed years

References and Source

Reference 1: Planning for burial space in London, Policies for sustainable cemeteries in the new millennium, London Planning Advisory Committee (1986-2000) in conjunction with Confederation of Burial Authorities Institute of Burial and Cremation Administration, August 1997

Reference 2: House of Commons Library, Briefing Paper, Number 04060, 6 June 2017, Reuse of graves by draftCatherine Fairbairn Reference 3: An Audit of London Burial Provision, A report for the Greater London Authority by Julie Rugg and Nicholas Peace, Cemetery Research Group, University of York, 2011

Reference 4: Burial Law and Policy in 21st Century; the need for a sensitive and sustainable approach, January 2004, Question 22 p.15

Reference 5: Southwark Council, Cemetery Strategy, April 2012

Reference 6: Hounslow Local Plan, 2015-2030, Volumes One and Two

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Appendix I Relevant legislation • Burial Act 1857 • Local Government Act 1972 section 214 • Local Authorities Cemeteries Order 1977 • Reuse with Church of England permission: Section 2 of the Church of England (Miscellaneous Provisions) Measure 2014) allows for the disturbance of remains in churchyards and other consecrated ground with Church permission. • Item 21: City of London (Various Powers) Act 1969 and the Greater London Council (General Powers) Act 1976 • Item 22: London Local Authorities Act 2007 Section 74

Appendix II Rules and Regulations

Appendix III Fees and Charges 2017-2018

Appendix IV – Legislation relating to Reclamation and Reuse of graves Disturbance Process Legislation Function Applicable to of Remains allowed? Purchased grave where the S21 of the Greater last interment was 75 years London Council Burial authority able to previously Reclamation (General Powers) No extinguish burial rights Un-consecrated ground; and/or Act 1975 (the 1975 consecrated ground if Faculty Act) secured Purchased grave where the S9 of the last interment was 75 years Greater London Burial authority able to previously Reclamation (General No draftextinguish burial rights Un-consecrated ground; and/or Powers) Act consecrated ground if Faculty 1976 (the 1976 Act) secured Burial authority able to Purchased grave where the S74, London Local disturb remains in last interment was 75 years Reclamation Authorities Act, graves where right had previously Yes and re-use 2007 been extinguished Un-consecrated ground; under the 1976 Act consecrated ground if Faculty Disturbance of remains No time limit on previous permitted in burial Re-use under Permitted under consecrated land Consecrated land only, if Faculty S25 Burial Act, where body is moved Yes Faculty jurisdiction 1857 from one consecrated Secured place to another, under Faculty

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