North Yorkshire
Council
Transport,
Economy, Environment and
Enterprise
Overview and Scrutiny Committee
Review of Public
Conveniences Working Group – Final Report
1.0
INTRODUCTION
1.1
Public toilet
provision is a vital element of local infrastructure, supporting
community wellbeing, accessibility, and economic activity across
North Yorkshire. Well-maintained public facilities play a vital
role in safeguarding public health, promoting tourism, and
fostering inclusivity for both residents and visitors. Yet, despite
their significance, the provision of public toilets remains a
discretionary service rather than a statutory
requirement.
1.2
North Yorkshire
Council operates more toilets than any other Council in the United
Kingdom and it is estimated that between 1 and 2 million people
visit our facilities each year. The importance of this
network to both users and the wider visitor economy is widely
recognised, which is why public toilets remain a core element of
the Council’s service provision across North
Yorkshire.
1.3
Following the
creation of the new North Yorkshire Council in April 2023, the
responsibility for operating 85 traditional toilets and eight
Changing Places toilets transferred to the Environment Directorate
as part of the Waste Operations and Street Scene Service. Changing
Place toilets are for users with profound needs and offer
additional functionality – an adult changing bench, hoists
and height adjustable basins.
1.4
In addition to
Changing Places facilities there are 76 traditional disabled
toilets in the publicly accessible network managed by the Council.
North Yorkshire Council also financially supports the provision of
two toilets through the Community toilet scheme, whereby the
Council provides revenue support for third party operators. The
next largest operator within North Yorkshire of public toilets are
the two National Park Authorities, which together operate 19
sites.
1.5
Most sites operate on
a fixed opening and closing schedule with less than
9% operating on a 24/7
basis. While this reduces functionality it is largely driven by
experience around an increase in anti-social behaviour into the
evening, in some of our blocks. Most of the network is still opened
and closed manually, however the roll out of automatic opening and
closing technology has been ongoing to reduce this cost pressure.
The functionality ensures sites open and close at the same time and
are not reliant on teams traveling between sites, allowing more
time to focus on cleaning the network.
1.6
Of the 93 public
toilets across the County, 65 are free of charge to use. The access
control technology varies across the County, all are automated with
no attended toilets in operation across North Yorkshire. In 2025-26
the entry fees are forecast to raise £220,000 of income which
is used to offset the operating costs for the service,
83% of this income is
generated by just nine coastal sites.
1.7
Historically busy sites operated with attendants, but the high cost
of labour saw these sites move to automated systems. It is
important to recognise the limitations of these systems –
vandalism and tailgating to avoid the fee, it also offers limited
opportunity to offer discretionary access for groups.
1.8
Overall the service is operating with a recurring budget shortfall,
with 2025-26 forecast to be overspent by circa
£260k.
2.0
BACKGROUND TO REVIEW
2.1
It is against this
backdrop and in recognition of the non-statutory status of the
Service, that Officers took a report to TEEEOSC on the 04 September
2025 to set out the issues facing the network and work done to
date. Following the discussion, it was agreed to form a working
group on public conveniences. Expressions of interest were sought
ahead of the meeting, with the membership confirmed as;
·
Cllr Staveley
[Chair]
·
Cllr
Bastiman
·
Cllr
Gostlow
·
Cllr Noland
·
Cllr Sharma
·
Cllr
Trumper
2.2
This report sets out the findings of the Working Group, including
an assessment of the network, financial considerations, and
recommendations for a sustainable approach to public toilet
provision across the authority. The aim was to balance service
quality with operational efficiency, ensuring that facilities meet
the needs of all users while remaining financially
viable.
3.0
INFORMATION GATHERED
3.1
Context
Considering the
financial realities of local authorities across the Country the
provision of public conveniences represents an ongoing challenge.
The Association of Public Service Excellence’s [APSE] Local
Authority Public Conveniences Provision Report of 2024 found that
34.15% of Council’s report that their provision has decreased
or significantly decreased since 2012.
3.1.1 Offsetting
operating costs with an entry fee is an established principle
across the Country, common fees locally and nationally can range
from 20p up to £1 per user.
|
Free
|
20p
|
30p
|
40p
|
50p
|
60p
|
£1
|
|
East
Riding Council
|
Durham C.
Council
|
Redcar and
Cleveland
|
East
Devon
|
Plymouth
|
Bowness
& Windermere
|
Eastbourne
|
|
|
Richmond
locality
|
Torbay
|
York
City
|
Weymouth
|
|
|
|
|
|
|
Scarborough
locality
|
Newquay
|
|
|
|
|
|
|
|
Whitby
|
|
|
|
|
|
|
|
Llandudno
|
|
|
3.1.2
Across the NYC estate, the entry fee currently varies
between 20p in Richmond to 40p along the Coast. These charges have
remained static since April 2017 and 2007 respectively, if these
charges had risen by inflation, then the entry fee in April 2025
would have been 27p and 67p.
3.2
Task Group Meeting One – 30 September.
In attendance:
Councillors David Staveley (Chair), Derek Bastiman, Hannah Gostlow,
Subash Sharma, Phil Trumper and David Noland
3.2.1 Apologies:
None
3.2.2 Members
discussed the importance of the Service and its’
non-statutory nature and how this classification can diminish the
contribution to public health, accessibility, and tourism. The
Group welcomed the expansion of Changing Places facilities for
people with profound disabilities. They also considered the 2024
draft Service Plan and the double devolution proposal, which was
initially agreed, but not implemented at Malton.
3.2.3 Financial
and operational challenges were highlighted, including avoidance,
vandalism, and downtime affecting revenue. Charging technology and
cash handling remain costly, and while card-only options are being
considered, they require reliable connectivity, which is not always
available. Consensus that any system needs to reliable and robust
with different payment options for customers.
3.2.4 The
Working Group discussed charging strategies, ranging from removing
all fees—which would create a cost pressure - to increasing
the entry fee, which could generate further income. Concerns were
raised about affordability and anti-social behaviour in general.
Suggestions included standardising fees, ensuring consistent
payment methods, and maintaining free access for RADAR key
holders.
3.2.5
Alternative funding models were explored, such as linking toilet
costs to car park tariffs, forming partnerships with town and
parish councils, introducing advertising or sponsorship, and
considering innovative solutions. The Group also identified
information gaps, including the need for a comprehensive site
condition survey, proximity data and usage patterns.
3.2.6 Next steps
include officers providing a detailed network and budget profile,
which will then help to develop principles. Regular updates and
pre-meeting circulation of data were requested.
3.3
Task Group Meeting Two – 16 October
3.3.1 Attendees:
Cllr Staveley [Chair], Cllrs Derek Bastiman, Hannah Gostlow, Subash
Sharma and David Noland
3.3.2 Apologies:
Councillor Phil Trumper
3.3.3 The
Working Group began by considering the current challenges facing
the public convenience network. Financial pressures continue to
place these facilities under scrutiny, with maintenance issues and
low footfall at certain sites, adding to the complexity. Charging
technology was also highlighted as a concern, given its high
installation costs and long payback periods.
3.3.4 In terms
of charging and funding options, the Group agreed that direct
charging for all toilets is not always practical and is unlikely to
realistically eliminate the overspend entirely. Instead, a proposal
was put forward to incorporate the cost of providing toilets in and
around car parks into the overall operating costs of the car park
service.
3.3.5 Emerging
Principles
The discussion led to
several emerging principles:
·
Maintain and improve
toilets located in car parks through a County wide tariff
increase.
·
Ring-fence proceeds
from disposals for toilet estate improvements.
·
Consider alternative
funding mechanisms such as honesty boxes, apps, and
advertising.
·
Develop clear closure
criteria based on usage, condition, and proximity to alternatives
and clear governance process, with appropriate
consultation.
3.4
Task Group Meeting Three – 31 October
3.4.1 In
attendance: Councillors David Staveley (Chair), Derek Bastiman,
Subash Sharma, Phil Trumper, David Noland (part)
3.4.2 Apologies:
Councillor Hannah Gostlow
3.4.3 The
Working Group considered the significant funding challenges facing
the Council and the current public conveniences spend;
|
Element
|
24-25
Budget
|
24-25
Actuals
|
25-26
Budget
|
25-26
Forecast Q1
|
25-26
Forecast Q2
|
|
Service
Cost
|
£1.091m
|
£1.410m
|
£1.144m
|
£1.310m
|
£1.407m
|
|
Income
|
-£213k
|
-£181k
|
-£220k
|
-£194k
|
-£220k
|
|
Overspend
|
N/A
|
£351k
|
N/A
|
£206k
|
£262k
|
3.4.4
The group explored
how to comprehensively assess sites to include potential strategic
importance and agreed this was best done through local consultation
with stakeholders. The Group felt it important they do not focus on
individual sites, more on principles and the process for
consideration.
3.4.5
Charging arrangements
and technology were also reviewed. With details on the current
systems in place; with coin-operated doors and access gates in
place at high-footfall coastal sites, alongside card-operated
options. However, the installation costs for charging
infrastructure can be significant compared to the potential
returns.
3.4.6
Risks and
considerations were acknowledged, including potential public
perception issues if parking charges rise. Members felt that clear
messaging about service improvements will be essential to mitigate
these concerns.
3.4.7 The
Working Group recommended that receipts from any future public
convenience asset disposals should remain ring-fenced for toilet
estate improvements.
3.4.8 The
Working Group agreed that any proposals should avoid the need for
repeated Member decisions on closures. The car park levy model was
considered the most viable option, subject to legal consideration.
Disposal of assets should directly support improvements to the
remaining toilet estate, and rationalisation criteria should
include condition, usage, and proximity. The overarching aim
remains the delivery of a sustainable, well-maintained, and
rationalised public convenience network.
3.5
Task Group Meeting Four - 11
November
3.5.1 In
attendance: Councillors David Staveley (Chair), Derek Bastiman,
Hannah Gostlow, David Noland, Subash Sharma and Phil
Trumper
3.5.2 Initial
discussion points raised included the requirement to engage with
Town and Parish Councils at an early stage. Officers set out the
engagement process to date detailing the written correspondence
sent to all Parish and Town Councils previously, but also the
follow-up meetings that had been held with those councils who had
expressed an interest in delivering public conveniences. There was
a desire to engage in a collaborative way and ensure support from
North Yorkshire Council is available as part of any devolution
process.
3.5.3
Furthermore, it was felt there was a need to highlight good
examples of the transfer of public conveniences to use as positive
case studies, to help support consideration.
3.5.4 The
proposal for a future capital improvement programme to improve
existing facilities was looked at in detail and whether this could
be a further draft principle. Working Group members agreed there
was an ambition to see improved facilities such as baby changing,
sanitary waste and water bottle filling included, along with
improved signage to clearly show site opening hours and important
contacts.
3.5.5 The
working group agreed there should be a consistent fee across the
board to avoid confusion.
3.6
Task Group Meeting Five – 19 November
3.6.1 In
attendance: Councillors David Staveley (Chair), Derek Bastiman,
Hannah Gostlow, David Noland, Subash Sharma and Phil
Trumper
3.6.2 The
Working Group worked through the revised set of principles and made
a number of minor changes to come to a final set to take forward,
as detailed at section 6.0 to 10.0.
3.6.3
The breakdown of the potential
impact of the proposed principles on the service budget was set out
and discussed.
4.0
CONSULTATION
4.1
The Group noted the consultation previously with Members, Business
Improvement Districts, National Park Authorities, Disability Action
Groups and Parish and Town Councils.
5.0
REVIEW CONCLUSIONS
5.1
The Working Group recognised the current situation is
unsustainable. To address the issues, they considered the challenge
and agreed five principles to guide Service delivery and to support
the provision of high quality public toilets on a sustainable
financial footing;
6.0
Principle 1 - Support for Alternative Delivery Models
6.1
The
Service is committed to enabling alternative models for the
operation of public conveniences. To assist organisations
interested in managing these facilities to make informed decisions,
we will provide a comprehensive information pack, this will
include:
·
Utility and
maintenance considerations
·
Cleaning and
consumable costs
·
Income generation
opportunities
·
Any
available grants and funding options
·
Examples of good
practice
·
Cost-reduction
strategies
·
A
clear and consistent financial framework for one-off
support
7.0
Principle 2 - Consistent Entry Fee Policy
7.1
To ensure the network operates on a sound and sustainable financial
basis, a standard entry fee will be introduced at all sites, where
it is practical and effective.
7.2
Where such infrastructure cannot be implemented, alternative
solutions such as physical or digital ‘honesty boxes’
will be considered.
8.0
Principle 3 - Rationalisation of Underperforming
Sites
8.1
Where facilities are in poor condition, have low usage, or are
located near alternative conveniences, rationalisation will be
considered.
8.2
This process will involve:
·
Consultation with
Town/Parish/City Councils, Area Committees, Ward Members, and the
Executive
·
Quantifying usage
and condition
·
Offering
Parish/Town Councils the opportunity to operate the site under an
enhanced support package. If all alternative options are exhausted,
the site will be closed and disposed of. Any capital receipts will
be ring-fenced and reinvested into improving the remaining
network.
9.0
Principle 4 - Integration with Car Park
Operations
9.1
Public conveniences are an essential part of North
Yorkshire’s visitor experience, with many located within or
close to chargeable car parks. High-quality toilet facilities are
an essential component of the service provided to car park users.
Consequently, the associated cleaning and consumable costs should
be fully accounted for as part of the overall car park operating
cost. As part of the next tariff review, all revenue costs for
these facilities - along with a contribution towards a capital
modernisation programme - should be funded through the overall car
park tariff income, supplemented by any pay-on-entry revenue where
applicable.
10.0
Principle 5 - Capital Improvement Programme
10.1
All sites across the network will go through a clear and consistent
condition assessment, to identify areas for improvement and
compliance with best practice. The Service will then work
collaboratively to seek to deliver a capital improvement programme
aimed at ensuring all sites achieve a ‘good’ or
‘excellent’ condition rating by 2030.
10.2
Enhancements will aim to include:
·
Water
bottle refill stations
·
Baby
changing facilities and Sanitary waste disposal options in both
male and female spaces
·
Improve signage
within and externally to promote network visibility, responsible
use of the space and relevant contact details.
·
Environmental
initiatives such as greywater recycling, renewable energy
generation, and efficient energy use that support the
council’s ambition to achieve net-zero carbon neutrality by
2030.
11.0
CONTRIBUTION TO COUNCIL PRIORITIES
11.1 The
public convenience service supports a number of the Council
themes.
·
Support thriving places and empowered communities that live, work,
visit and do business in North Yorkshire
·
Ensure the people of North Yorkshire are safe, healthy and living
well
11.2 The
work to align and harmonise the Service also supports the ambition:
One Council with strong, local and customer-led services alongside
supporting and enhancing the four pillars of locality working;
local services and access, local accountability, local action and
local empowerment.
12.0
RISKS AND IMPLICATIONS
12.1
Financial Implications – The service is
currently facing a recurring budget shortfall, which will persist
without a change in strategic direction and a capital
investment. If
all principles are implemented in full, the current overspend is
expected to be resolved. However, if the
Executive does not wish to take forward all principles, the service
is likely to continue to overspend, or the ask on individual
principles will need to increase.
12.1.1
Currently, the service’s income target increases annually in
line with inflation. Without introducing new chargeable sites or
revising entry fees, additional financial pressure will arise from
April 2026. Nearly 90% of the service’s income comes from
sites where the fee level has remained unchanged for 17 years.
While any adjustment to entry fees may influence public behaviour -
an outcome that is difficult to predict - this risk can be
mitigated by setting fees within the recommended range.
12.1.2 The
capital investment required to bring the entire network up to a
‘Good’ or ‘Excellent’ standard is estimated
to exceed £3 million and will continue to grow as other sites
deteriorate. The proposed funding model, combined with requests
through the standard capital governance process, may not be
sufficient to achieve this aspiration. Executive commitment to the
service and the principles developed by the Group will be critical
to delivering a high-quality network. This also affects the
proposal to expand pay-on-entry technology across the network,
which will require capital investment on an invest-to-save basis
and must be considered alongside other Council
priorities.
12.1.3 Financial
support will also be needed to encourage alternative delivery
models that provide long-term savings. This will require a
short-term invest-to-save business case and associated funding
allocation.
12.1.4 It is not
feasible to meet all ongoing capital requirements for the service
solely through capital receipts from asset disposals. If Principle
4 is adopted, a revenue contribution for capital works would be
drawn from car park tariff income; however, this would only apply
to sites directly associated with car parks. Achieving the desired
improvement in standards across the entire network will therefore
require additional support from the corporate capital
fund.
12.1.5 Asset disposal is ordinarily a key source of
income for the Council’s capital account. However, Principle
3 prevents any benefit from rationalisation of the toilet estate
contributing to the fund. If all services operated under similar
restrictions, the capital fund would face additional
pressure.
12.1.6 Despite these constraints, the Group believes
the service’s importance to users and its current condition
provide strong justification for revising this approach.
12.2
Legal Implications
12.2.1 The new
funding model of recognising the cost of operating toilets near car
parks, across the whole car park estate tariff setting process, is
not consistent with the current operating model for the car parking
service.
12.2.2 However the
proposal is lawful under section 32 (3), section 33 and section 35
Road Traffic Regulation Act 1984 (RTRA), which empower authorities
to provide public conveniences as part of parking facilities and to
regulate charges accordingly. If this principle is implemented, the
Council must evidence that integrating the cost of toilet provision
into car park tariffs is consistent with its general duty to
balance traffic movement, access, amenity, and environmental
considerations. This will not reduce existing obligations set out
in the Act, such as separate account for income and expenditure,
with conditions set out for the expenditure of any
surplus.
12.3
Equalities – An equality impact assessment has been
undertaken (Appendix 2).
12.4
Environmental – A Climate Change Impact Assessment has been
undertaken in respect of the proposals (Appendix
2).
13.0
REPORT RECOMMENDATIONS
13.1 The
Working Group asks the Committee to recommend to the Executive the
following findings:
1) As a priority collaborate with
others, including the Combined Authority, to identify opportunities
for financial support in operating tourist infrastructure and to
actively pursue external funding to enhance and sustain the
service.
2) To set a consistent entry
fee, the Group recommends the entry fee for 2026-27 to be set at
either 40p or 50p per user, with the final value decided by
Executive.
3) To endorse a capital allocation
to expand the locations where a charge is levied.
4) To endorse a capital allocation
to enable officers to explore alternative funding streams,
including honesty boxes, app-based donations, advertising,
sponsorship, and community partnerships.
5) To continue to offer free access
for disabled users, through the National RADAR key scheme.
6) To maintain and seek to expand
Changing Places provision to meet the needs of people with profound
disabilities, supported by external funding.
7) To implement as part of the next
car park tariff review, an increase to the per ticket price across
all off-street parking to fund all revenue costs for toilets within
the immediate vicinity of any NYC car park. In addition to the
revenue costs, the uplift in the tariff should include a
contribution towards a capital modernisation programme - should be
funded through the overall car park tariff income.
If this is approved, the group would like consideration to be given
to how this could also support ongoing revenue contributions to
Parish and Town councils interested in devolution of any public
conveniences.
8) Consider closure of sites which
are in a poor condition, have low footfall and/or are in close
proximity to other sites, subject to consultation with Parish/Town
Councils, Division Members, Area Committee, Executive and with the
final decision to be taken by the Executive Member for Managing Our
Environment.
9) To ring-fence proceeds from the
disposal of any public conveniences for reinvestment into the wider
toilet network.
10) To commit to a capital improvement programme
to ensure that by 2030 all sites are in a good or excellent
condition. Enhancements will aim to include:
·
Water bottle refill stations
·
Baby changing facilities and Sanitary waste disposal options in
both male and female spaces
·
Improve signage within and externally to promote network
visibility, responsible use of the space and relevant contact
details.
13.2
Environmental initiatives such as greywater recycling, renewable
energy generation, and efficient energy use that support the
council’s ambition to achieve net-zero carbon neutrality by
2030.
Appendices:
Appendix 1: Equalities
Impact Assessment
Appendix 2: Climate
Change Impact Assessment
Background
Papers: None
Report of; Cllr David
Staveley – Chair of Public Conveniences Working Group and
Members of the Group; Cllr Bastiman, Cllr Gostlow, Cllr
Noland, Cllr Sharma and Cllr Trumper.
Report Author: Harry
Briggs – Head of Service – Waste Operations and Street
Scene
