Item 09 - Proposal to Commence Consultation on Services Provided by West Dunbartonshire Leisure Trust
West Dunbartonshire Council · 12 November 2025
Back to Corporate Services Committee — 12 November 2025 and its agenda
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WEST DUNBARTONSHIRE COUNCIL Report by the Chief Officer – Citizen, Culture & Facilities Corporate Services Committee: 12 November 2025 _______________________________________________________________________________ Subject: Proposal to Commence Consultation on Services Provided by West Dunbartonshire Leisure Trust 1. Purpose 1.1 The purpose of this report is to seek approval to commence a formal consultation and engagement exercise on the services provided by West Dunbartonshire Leisure Trust (the Trust). The consultation will provide an opportunity to review the effectiveness, accessibility, and sustainability of the Trust’s services and to ensure the current delivery model remains the most appropriate for meeting the Council’s strategic priorities in leisure, health, wellbeing, and community development. The consultation outcomes will inform future strategic decisions on the Trust’s service delivery model, including options for redesign, investment, or alternative management arrangements. 2. Recommendation 2.1 It is recommended Committee: approves the commencement of a stakeholder consultation on the current and future delivery of leisure and community services operated by West Dunbartonshire Leisure Trust notes officers will prepare and implement a detailed consultation plan, setting out the scope, timeline, and engagement approach notes the consultation document (Appendix 1) outlining the key themes and questions to be explored as part of the consultation approves a detailed value for money and financial resilience review is undertaken notes a report will be brought to a future meeting of the Corporate Services Committee with the consultation and review findings and recommendations for future service delivery options notes this consultation will complement ongoing engagement with WDLT management, staff representatives, and community partners. 3. Background 3.1 The Trust was established in 2012 as an Arm’s Length External Organisation and registered charity. It operates under a Service Level Agreement with the Council to deliver a range of leisure and sport services, including management of sport and leisure facilities, community facilities, sports development, Active Schools, outdoor recreation facilities and events. ITEM 9
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3.2 The Trust is governed by a Board comprising independent members, elected members, and staff representatives. The Council provides an annual management fee subject to annual review as part of the budget process. The Trust also generates income through memberships, admissions, and external funding. 3.3 The projected five year cumulative gap between the money the Council needs to deliver services and the funding it receives is projected to be £54.4m. We anticipate savings of £8.9 million will be required in 2026/27 to help address that gap with further efficiencies in future years. 3.4 In the current context of financial pressures, increasing energy costs, and changing public usage patterns post-COVID, it is timely to assess whether the Trust’s service model remains the most efficient and sustainable method of delivering high-quality, accessible leisure opportunities for all residents. 3.5 Historically, leisure and community facilities across West Dunbartonshire have experienced strong levels of attendance and participation, with consistent engagement from local residents, community groups, and partner organisations. Prior to the COVID pandemic, average annual attendances across leisure centres were approximately 809,000, with community centre occupancy levels averaging around 32%. However, the pandemic and associated restrictions significantly disrupted normal operations, leading to temporary closures, reduced capacity, and changes in user behaviour. Since reopening, overall attendance at leisure centres has gradually recovered and currently sits at approximately 808,000, (based on 2024/25 figures). Some facilities and programme areas of the Trust have shown stronger recovery than others such as outdoor recreation which has gone from 73,000 attendances to 138,000 attendances, this has been supported by the enhancement of the facilities at Mountblow. Community facility attendance post COVID has decreased from 299,000 to 169,000 however it should be noted during the period the number of facilities operated by the Trust also reduced from 12 to five. Shifts in working patterns, increased energy costs, and evolving lifestyle preferences have also influenced how residents use leisure and community services, with evidence of increased demand for flexible, low-cost, and health-focused activities. 4. Main issues 4.1 The Trust operates under increasing financial pressures from rising utility costs, inflation, and static or in some instances declining usage income, which threaten the long-term viability of services. It is recommended that, alongside the consultation, officers undertake a detailed value for money and financial resilience review. This should include exploring diversified income streams, potential efficiencies, and cost-saving initiatives without compromising service quality or accessibility. Establishing clear financial performance indicators will be essential for ongoing monitoring. 4.2 Analysis indicates disparities in service usage across geographic and demographic groups, with some vulnerable communities facing barriers to
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participation. The consultation should specifically target these groups to identify obstacles and gather their views. It is recommended the review incorporates a comprehensive equality and inclusion assessment, with recommendations for tailored programming, outreach, or transport solutions to enhance equitable access. 4.3 Many of the facilities operated by the Trust are ageing and require ongoing capital investment to address maintenance needs, modernisation, and compliance with health and safety standards. Current budget constraints and the existing arrangement, where repairs and maintenance are directed by the Trust, can limit the Council’s ability to manage its assets. This may also lead to deferred investment and further deterioration over time. As the Council retains ownership of these facilities, there is a need to review long- term asset planning in partnership with the Trust, including lifecycle costing, prioritisation of capital works, and alignment with funding opportunities and the Council’s net-zero commitments. A more integrated approach will help ensure the leisure estate remains safe, functional, financially sustainable and fit for purpose into the future. 4.4 The current governance structure of the Trust provides operational independence from the Council, but the review provides an opportunity to assess whether those governance arrangements continue to support transparency, strategic alignment, and public accountability. This includes evaluating the effectiveness of current performance reporting, the role of elected members, community representation, and whether the governance structures allow for timely and effective decision-making in response to changing demands and financial pressures. 4.5 Leisure services are a key contributor to wider Council objectives around health improvement, mental wellbeing, community cohesion, and reducing inequalities. The review will assess how well the Trust’s services and strategic plans align with national and local policy priorities, including the Council’s Local Outcome Improvement Plan, Active Scotland Outcomes Framework, and child and public health agendas. Ensuring the Trust’s activities are clearly contributing to these wider aims will help justify future levels of investment and support prioritisation of resources. 4.6 Within West Dunbartonshire, the successful transfer of certain community buildings to local groups has demonstrated the potential benefits of reducing the financial burden of maintaining underutilised or non- performing assets. These Community Asset Transfers or lease arrangements have enabled dedicated local organisations to take on the management and operation of facilities that are more closely aligned with community needs, while also unlocking external funding and volunteer resources not accessible to the Council or the Trust. These transfers have not only safeguarded valued local spaces but also reduced ongoing revenue pressures. 4.7 Several successful examples of Community Asset Transfers and lease arrangements are: Group Asset Benefit Delivered
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West Dunbartonshire Gymnastics Club West Dunbartonshire Activity Centre Allowed the club to continue to develop a dedicated gymnastics facility which they currently used. This not only secured the long- term future of a popular and growing sport but also ensured the continued use of a Council owned building, reducing the financial burden on local budgets. Old Kilpatrick Food Parcels Napier Hall Enabled the group to expand its work tackling food insecurity and supporting vulnerable residents in the community. The group has turned the building into a community hub, attracting volunteers and external funding while maintaining a vital service for local people Rock Community Church The Phoenix Enabled the group to repurpose the space into a vibrant centre offering a wide range of support services, youth activities, and community events. This has revitalised the building and ensured it continues to play a central role in serving the surrounding area Renton Craigandro Football Club Wylie Park Enabled the club to invest in and manage the grounds to better support youth and adult football programmes. The club's stewardship of the park has enhanced its usability and condition, strengthened community engagement, and reduced the Council’s direct maintenance responsibilities. The Antonine Trust Glenhead Community Centre Successfully preserved a valued community asset in Clydebank. The group has revitalised the facility, offering a diverse range of activities and services tailored to local needs. Through effective management and external funding, the centre continues to thrive, reducing the Council’s operational costs while strengthening community engagement. Looking ahead, the centre plans to expand its services by introducing a health café and
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childcare provision to further support the community. These examples evidence, where there is strong local capacity and a clear community benefit, asset transfer can deliver positive outcomes for both the Council and residents. They also highlight the potential for continued partnership with the third sector in managing and sustaining valued local facilities. Building on this success, further exploration of asset transfer or disposal, where appropriate, could support a more sustainable and community focused approach to the leisure and community estate. 4.8 It is proposed the Council undertakes a 12-week consultation commencing Monday 17 November 2025 through to Sunday, 8 February, encompassing public surveys, focus groups, staff engagement, and partner consultation. This process will also include a benchmarking review with other leisure trusts. Further details on the consultation approach and materials are set out in the consultation document attached as Appendix 1. Key consultation themes will include: Service accessibility and affordability Facility condition and investment priorities Service quality and satisfaction Value for money and financial transparency Alternative delivery options e.g. in-house management 4.9 The changes in usage patterns following COVID present both challenges and opportunities for the future delivery of community and leisure services. While some facilities and activities have returned to near pre-pandemic participation levels, others continue to operate below capacity, indicating a shift in how residents are engaging with local services. Factors such as increased financial pressures on households, altered work and lifestyle habits, and a growing preference for informal or flexible activity options have all contributed to these trends. It is therefore important that the Council and The Trust engage with communities and stakeholders to understand current needs, barriers to participation, and opportunities for improvement. The forthcoming consultation will help to shape how facilities and programmes can be better aligned with local demand, ensure best use of resources, and support the long-term sustainability of leisure and community provision across West Dunbartonshire. 5. People implications 5.1 At this stage, the report’s primary purpose is to seek approval to commence a consultation; therefore, there are no direct implications for staff at this time. Ongoing engagement with Trust management and staff representatives will be critical to ensure transparency, effective communication, and support throughout the consultation and any subsequent service redesign. The Council is committed to working collaboratively with all stakeholders to minimise any negative effects on employees while maintaining high-quality service provision to the community.
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6. Financial and procurement implications 6.1 The costs associated with the proposed consultation will be met from existing Council budgets, ensuring no immediate additional financial burden. Any future financial implications arising from changes to the leisure service delivery will be subject to separate Committee approval prior to implementation, allowing for appropriate scrutiny and budgetary control. 6.2 There are no procurement recommendations as a result of this report. Should the consultation identify the need for changes to service delivery models, any resultant procurement activities will be conducted in line with the Council’s Standing Orders and Procurement Regulations to ensure transparency and value for money 7. Risk analysis 7.1 There are risks associated with the consultation including the possibility of low stakeholder engagement which could limit the effectiveness of the review. Financial pressures may constrain service improvements, and deferred maintenance risks could affect asset condition and safety. Additionally, changes resulting from the consultation may impact staff morale and service continuity. To mitigate these risks, a robust consultation plan will be implemented to maximise participation, ongoing communication with staff will be maintained, and any future financial or operational decisions will be carefully managed with appropriate oversight. The consultation will also ensure alignment between the Trust’s governance and Council priorities to maintain transparency and accountability. 8. Equalities Impact Assessment (EIA) 8.1 An EIA is attached at Appendix 2. The consultation process is planned to ensure maximum coverage and accessibility for residents. Additional support is made available on request to ensure it is specific to the requirements of the individual. 9. Consultation 9.1 Regulatory & Regeneration, West Dunbartonshire Leisure Trust, Citizens, Culture and Facilities, and Resources have been consulted on the contents of this report. 9.2 If the recommendations are approved, officers will implement a detailed consultation plan, including engagement with the public, staff, and key stakeholders. Throughout the consultation period, comprehensive information will be provided to ensure transparent and meaningful participation. Feedback received will be carefully considered and used to inform future service delivery options, with a further report brought back to the Corporate Services Committee outlining the outcomes and proposed next steps.
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10. Strategic Assessment 10.1 In alignment with the Council’s Strategic Plan 2022–2027, this report demonstrates that undertaking a comprehensive consultation on the services provided by West Dunbartonshire Leisure Trust supports the delivery of key priorities: Our Communities – Resilient and Thriving: The consultation aims to ensure leisure and community services are accessible, inclusive, and responsive to local needs, promoting health, wellbeing, and social cohesion across West Dunbartonshire. Our Economy – Strong and Flourishing: By exploring sustainable and financially viable service delivery models, the Council supports the efficient use of resources, helping to maintain affordable and high-quality leisure opportunities that contribute to a vibrant local economy. Our Council – Inclusive and Adaptable: The consultation reflects the Council’s commitment to transparent and participatory decision- making, engaging residents, staff, and partners to shape future service provision that is adaptable to changing demands and financial realities. Through this consultation, the Council reinforces its commitment to these strategic priorities, ensuring the long-term sustainability and effectiveness of leisure services in meeting the evolving needs of the community. Amanda Graham Chief Officer – Citizen, Culture & Facilities Date: 10 October 2025 Person to Contact: Appendices: Appendix 1 – Consultation Document Appendix 2 – EIA 1338 Background Papers: Wards Affected: All
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