Horsham Town Community Governance Review
Horsham District Council has been asked to undertake a review of the unparished area of Horsham with a view to creating a town council. This work is called a Community Governance Review and was requested by Horsham Blueprint.
The unparished area of Horsham is the part of the district that is not covered by any parish council. It is currently represented by three neighbourhood councils:
- Denne Neighbourhood Council
- Forest Neighbourhood Council
- Trafalgar Neighbourhood Council
The Community Governance Review (CGR) process
A Community Governance Review is a legal process where the council will consult with those living in the area, and other interested parties, on the most suitable ways of representing the people in the area (in this case the unparished part of Horsham town centre). This means making sure that those living in the area, and other interested groups, have a say in how their local communities are represented.
The purpose of a CGR is to ensure that these arrangements are effective and efficient, and that they reflect the interests and identity of local communities. The review process gives you the chance to provide your view on how you would like to be governed.
| Action | Date |
|---|---|
| Report to Governance Committee to approve the Terms of Reference for the review. | 18 December 2024 |
| Commencement of review and publication of terms of reference. | 2 January 2025 |
| Report to Governance Committee to approve the consultation documents. | March/April 2025 |
| Undertake formal consultation with other interested bodies in accordance with Section 93 of the Local Government and public Involvement in Health Act 2007 (6 weeks). | 1 May – 16 June 2025 |
| Undertake formal consultation with local electors by means of consultation (6 weeks). | 1 May – 16 June 2025 |
| Governance Committee considers consultation outcomes and produces draft recommendations, which may include the creation of a new town council for Horsham or that no further action is taken. | July 2025 |
| Undertake formal consultation with local electors in relation to draft recommendations by means of consultation (6 weeks). | August – September 2025 |
| Governance Committee considers consultation outcomes and produces final recommendations, which may include the creation of a new town council for Horsham or that no further action is taken. | November 2025 |
| Full Council meeting to approve a reorganisation order, if required. | December 2025 |
We are required to take into account:
- the impact of existing community governance arrangements on community cohesion; and
- the size, population and boundaries of any local community or proposed parish or town council.
Government guidance indicates when undertaking such a review that criteria include:
- a sense of civic pride and civic values;
- a strong, inclusive community and voluntary sector;
- a sense of place – with a positive feeling for people and local distinctiveness;
- effective engagement with the local community at neighbourhood level
- strong leadership;
- the ability of local authorities to deliver quality services economically and efficiently; and
- an area that is of a size that is viable as an administrative unit of local government.
In carrying out a community governance review, HDC must also consider the wider picture of community governance. This includes taking account of well-established forms of community governance such as local residents’ associations and community forums. These can be considered as either alternatives to, or stages towards, establishing parish or town councils. In this case, this would include the current Neighbourhood Councils.
Horsham District Council is responsible for conducting the Review within its electoral area. The Governance Committee will undertake the Review and set the terms of reference. This committee will be responsible for undertaking the communication and consultation strategy, as well as making draft and final recommendations. Following the initial consultation, draft recommendations will be produced, and further consulted upon. This will enable the committee to form their final recommendations.
The Governance Committee will approve the final recommendations. If there is to be a Town Council a Community Governance Order would then need to be created. Full Council would need to approve the making of an order.
The meetings of the Governance Committee are open to the public and all documentation is available online - https://horsham.moderngov.co.uk/ieListMeetings.aspx?CId=243&Year=0. All meetings are available to view on our YouTube page - https://www.youtube.com/@horshamdistrictcouncil/streams
Legislation requires Community Governance Reviews to be completed within 12 months of the terms of reference being formally published. For this review the 12-month period will run from December 2024 and it is anticipated that the Governance Committee will approve a final recommendation in December 2025. Should the creation of a town council be the recommendation, the Community Governance Order would be made in December 2025.
Yes. Meetings of the Governance Committee are open to the public. The meetings will also be livestreamed on our YouTube page - https://www.youtube.com/@horshamdistrictcouncil/streams
No. District ward boundaries are reviewed by the Local Government Boundary Commission for England (LGBCE).
This Community Governance Review does not have the power to change any district ward boundaries.
What is a Town Council?
A town council is another term for parish council, and works within the same legal framework as a parish council. It is the lowest tier of local government below the “principal council”, in this case Horsham District Council.
A town council is a democratically elected and legally independent tier of local government with its own councillors. It can provide a range of local services within a defined area. Town councils’ activities fall into three main categories:
- Representing the local community;
- Delivering services to meet local needs; and
- Striving to improve quality of life and community well-being.
Town councils are not tasked with statutory responsibilities relating to the provision of housing, social care, education and waste collection. They are a statutory consultee in relation to planning, but they are not a planning authority.
When a town council is formed, it can enter into discussions with the district and county councils about handing over services. The town council would then take responsibility for these functions, subject to agreement by the district and county councils.
A town council can choose not to deliver any services and instead act purely as a means of influencing local service provision made by the district or county council or other partners, such as the police. Alternatively, a town council can provide additional services to those provided by the district and county councils.
The neighbourhood councils would no longer exist. A ‘shadow town council’ would be in place until the town council officially operates. This shadow council would look at the arrangements to transition from the three neighbourhood councils to a single town council.
The review is taking place because an application was received from a neighbourhood forum, the ‘Blueprint’. The application specified that the boundary of the review would be the unparished area.
A community governance review in future could look to group, or merge, the town council, if created, and North Horsham Parish Council, if there was support for this proposal.
The town council would set its own budget, which would be dependent on the services and facilities that its town councillors decide to run. The town council would need to be responsible for allotments in the unparished area.
The town council would be able to make representations on planning applications, but would not be able to decide whether a planning application goes ahead.
The town council can advocate for the provision of infrastructure, but cannot be responsible for repairs to roads, or the provision of schools, hospitals and doctors.
The town council could not be responsible for any statutory services that are provided by the district or county council. These are shown in the table. Please note this list is not extensive.
Facilities/services that must be run by Horsham District Council
- Benefits
- Bins & litter
- Council Tax & business rates
- Electoral Services
- Environmental Health & Licencing (including noise & nuisance complaints)
- Fly tipping
- Housing & Homelessness
- Parking enforcement
- Planning applications, development & enforcement
Facilities/Services that may be run by Horsham District Council, or the town council, or both
- Bus shelters
- Car parks
- Community centres
- Community events, consultation and engagement
- Electric charging points
- Grants
- Green spaces & play areas
- Leisure facilities
- Memorials
- Museum
- Public seating
Facilities/services that must be run by a town council
- Allotments
- Neighbourhood planning
- Planning application consultee
Facilities/services that must be run by West Sussex County Council
- Adult and children social services
- Asylum seekers & refugees
- Bus passes
- Education
- Libraries
- Public Health
- Public rights of way
- Roads & highway maintenance
- Street lighting
- Trading Standards
The town council would have authority to make decisions on the facilities and services that they provide. They would not have the authority to change decisions of the district or county council, however they can act on behalf of residents to raise concerns with those councils.
There would not necessarily be duplication of services. It is anticipated that the town council would work with Horsham District Council, and possibly West Sussex County Council to agree potential transfers of assets, and discuss provision of services to ensure that the relevant councils are working well together.
Town councils are funded by a precept, which is collected through Council Tax. In the first year, this would be set by Horsham District Council. It would then be set by the town council, once it is formed, and is invested back into the community for facilities and services.
Many town councils supplement their precept by applying for grants. These grants may be from the district or county council, Government, Heritage Fund, National Lottery Community Fund and others.
The cost to residents would depend on the services that the town council take on. As such, costs cannot be calculated at this stage.
The table below provides an indication of the precept set by parishes across the District:
| Precept level | Amount paid annually by Band D property |
|---|---|
| Average | £84.24 |
| Highest | £169.80 |
| Lowest | £17.37 |
| Special charge (Horsham town) | £40.59 |
Candidates for the town council could choose to stand for a political party, or as an independent. This is because the town council elections would be required to follow the legislation in relation to parish council elections.
Candidates at all parish council elections may stand under a political party, or as an independent candidate.
There could be no change. This would mean that the neighbourhood councils would continue to represent residents in the unparished area. As the neighbourhood councils are not legal entities, they are unable to provide many of the services listed above.
There could be a proposal for multiple councils within the unparished area. This was not proposed by the initial application for the review.
The town council, once established, would need to decide on where its offices would be. It is likely this would be somewhere central to Horsham town.
- A town council would ensure localised democracy, giving residents in the town more say in how some town facilities are run. It can also represent the interests of the town to other organisations.
- Councillors that would represent residents on the town council would be elected only by residents that live in the town, and could drive improvements.
- It is likely that between 15 & 20 councillors would be elected to the town council
- If formed, the first elections would be in May 2026.
- The neighbourhood councils of Denne, Forest and Trafalgar would no longer exist
- If in agreement, Horsham District Council and West Sussex County Council could handover some services to the town council, such as parks, play areas, toilets and allotments.
- Residents in the town would see a change to their Council Tax bill. They would no longer pay the ‘special charge’, which is £40.59 per year for a Band D Property and is set by Councillors from all over Horsham District.
- Instead there would be a new charge - the ‘precept’. This is currently the case for the existing 32 Parish Councils in Horsham District. The exact figure for the precept will depend on which services are transferred from the district council to the town council and, once set up, the rate would be decided by the elected town councillors.
- The neighbourhood councils would continue, however these councils have no power to run services in the same way that a town council would
- Services would continue to be run by Horsham District Council, and West Sussex County Council, and later managed by the new larger unitary authority.
- Residents would continue to pay the ‘special charge’, instead of the precept. The rate would be decided by Councillors from across a much wider area, rather than councillors specifically representing the town.
The neighbourhood councils are not legal entities. This means that they are unable to undertake certain activities, such as enter into contracts to provide services in the town. For this reason, they are funded by the ‘special charge’ which is collected by Horsham District Council (HDC) on behalf of the neighbourhood councils. HDC then spends this money on behalf of those councils.
A town council would be funded by a precept and would be able to spend this money on services in the town.
A town council, in agreement with the district and/or county council, as appropriate, would be able to take on services and assets from these councils and deliver and manage them.
Town councils are funded through a sum of money called a ‘precept’, which is collected along with your existing council tax. Residents of the unparished area currently pay the ‘special charge’, which funds services in the town, arranged by the neighbourhood councils.
If a town council was formed, residents in the currently unparished area would no longer pay the ‘special charge’, but would pay the precept instead. The town council, once formed, will decide what it will need for the coming year depending on what services and facilities are needed by the local community. Town councils can also apply for grants and loans.
It is proposed that there would be 15 town councillors.
It is possible for the same people to be elected to the district council and a town council.
To be able to stand as a candidate at a parish council election in England you must be at least 18 years old, be a British citizen, an eligible Commonwealth citizen or a citizen of any member state of the European Union, and meet at least one of the following four qualifications:
- You are, and will continue to be, registered as a local government elector for the parish/community in which you wish to stand from the day of your nomination onwards.
- You have occupied as owner or tenant any land or other premises in the parish/community area during the whole of the 12 months before the day of your nomination and the day of election.
- Your main or only place of work during the 12 months prior to the day of your nomination and the day of election has been in the parish/community area.
- You have lived in the parish/community area or within three miles of it during the whole of the 12 months before the day of your nomination and the day of election.
Parish and town councillors are not usually paid an allowance but may incur costs, which can be reimbursed. Whether the town councillors are paid an allowance would be for the town council to decide, if established.
If the town council decided to pay an allowance, individual councillors may opt not to take their allowance. An independent panel recommends this is 9.4% of district council allowance. This would be £638 for each town councillor per year, based on the current rates.
No, all the parish and town councils have their own budgets and fund their activities from their own Council Tax precept. There would be some cost to HDC to set up the town council but it would not continue after the new council is in place.
Our consultations on a Town Council for Horsham
We are asking you whether you would like a town council for Horsham and how it could work.
This is an important time to have your say as the Government has proposed that local government is reorganised, which would mean that Horsham District Council and West Sussex County Council would cease to exist and a new council would be formed. This is called a unitary authority which would be responsible for all their main services.
Final proposals to create one or more unitary councils in West Sussex will be submitted to the government in September 2025. If the plans are accepted, elections to the new council or councils could take place in 2027.
Moving to a unitary council means the future of services and facilities will be decided by a much larger organisation, possibly not based in our area. Examples of these services and facilities include the Neighbourhood Wardens, youth services, free live entertainment and events, enhanced street sweeping, the bandstands, the War Memorial, Hills Farm Cemetery, the Museum, community halls, Horsham Park and town allotments.
Under this new arrangement there would be fewer councillors representing the town. Alternatively, a newly-formed town council would be able to deal with these local matters, and could take over running these services, with decisions about them made locally.
Responses to Initial Consultation
The initial consultation showed overall support for the creation of a town council. The next stage of consultation will start on 14 August, and finish on 29 September 2025. We are now asking you how you think a town council in Horsham town should work.
Following the consultation, the initial proposals for the town councils are available as the draft recommendations, and a series of maps.
The consultation process for the Community Governance Review
Before making any recommendations or publishing final proposals, the council will take full account of the views of local people. The council will comply with the statutory consultative requirements by:
- consulting local government electors within the area under review;
- consulting any other person or body (including a local authority) which appears to the council to have an interest in the community governance review (e.g. West Sussex County Council and the neighbourhood councils); and
- take into account any views received in connection with the community governance review.
Residents and other interested parties will be able to complete the consultation online or visit the Council Offices and complete a paper copy. You can also contact your local Ward Councillor for assistance. Consultation on the initial recommendations proposal to introduce a town council for Horsham will take place from 14 August until 29 September 2025.
You can find out who your local ward councillor is and how to contact them, on our Ward councillors webpage or call Democratic Services on 01403 215465.
Each responder will be required to provide their postcode to enable us to map responses, but a name and address will not be required.
Yes, there is no age limit.
Yes, anyone with an interest in Horsham can take part. We ask for your postcode and won’t accept a response without it. This means we can work out the answers of those who live in the unparished area, those who live elsewhere in the District and those who live elsewhere altogether.
Referendums come at considerable cost, which would have to be funded by the Council Tax payer; estimated costs for a referendum in Horsham are in the region of £30,000.
With the exception of a referendum on governance arrangements of the district council itself (mayors, cabinets and committee systems), no power is available to local electors either to force their local authority to hold a referendum, or to oblige it to take any particular action following the result of a referendum.
In accordance with legislation Horsham District Council is able to determine the outcome of the community governance review, without the need for a referendum.
By undertaking the consultation by form of a questionnaire, it enables HDC to understand the views of the community better than a single referendum question.