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Meeting: |
Executive |
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Meeting date: |
27 January 2026 |
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Report of: |
Director of Finance, Debbie Mitchell |
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Portfolio of: |
Councillor Katie Lomas - Executive Member for Finance, Performance, Major Projects, Human Rights, Equalities and Inclusion |
Decision Report:
Capital Programme – Monitor 3
2025/26
Subject of
Report
1. The purpose of this report is to set out the projected outturn position for 2025/26 including any under/overspends and adjustments, along with requests to re-profile budgets to/from current and future years.
2. The Capital Monitor report is one of a number of reports taken to Executive on a regular basis to provide details of expenditure and how that impacts the financial standing of the council.
Benefits and Challenges
3. The capital programme is key in delivering the Council Plan. Members are able to prioritise capital expenditure to deliver improvements across all service areas notably Schools, Housing, Transport and Regeneration as well as supporting Climate Change ambitions.
4. The programme does involve significant levels of council borrowing which impacts the level of revenue expenditure. The cost of delivering the capital programme is therefore dependent on levels of external funding, inflation levels and interests rates
Policy Basis for Decision
5. The Capital Budget is set as part of the Council’s budget setting in February 2025. The capital programme is set alongside decisions to deliver a balanced revenue position.
Financial Strategy Implications
6. The Finance and Performance Monitor 3 report elsewhere on this agenda again outlines the council’s financial position. The identification of slippage particularly in relation to Council funding will reduce council borrowing costs and support the annual revenue expenditure.
Recommendation and Reasons
7. Executive is asked to:
· Recommend to Full Council the adjustments resulting in a decrease in the 2025/26 budget of £23.432m as detailed in the report.
· Approve the allocation of £40k from contingency to fund a Changing Places Toilet at SEND Central Family Hubs.
· Approve the purchase of £162k property to support the Rough Sleeping Programme funded from grant.
· Note the 2025/26 revised budget of £139.034m as set out in paragraph 10 and Table 1
· Note the restated capital programme for 2025/26 – 2029/30 as set out in Annex 1.
Reason: To enable the effective management and monitoring of the Council’s capital programme.
Background
8. The 2025/26 capital programme was approved by Council on 27 February 2025 and updated for amendments reported to Executive in the 2024/25 outturn report, which resulted in an approved capital budget for 2025/26 of £180.743m.
9. At Monitor 1 report (September 2nd, 2025) there was a decrease of £0.412m resulting in a revised capital programme of £180.331m.
10. A decrease of £23.432m is detailed in this monitor resulting in a revised capital programme for 2025/26 of £139.034m. There is an increase of £1.4m due to additional funding being awarded / approved and a re-profiling of budgets to future years totalling £24.834m. This is mainly due to a review of Transport project commitments.
11. Table 1 outlines the variances reported against each Directorate area and a summary of the key exceptions and implications on the capital programme are highlighted in the paragraphs that follow.
|
Department |
Current Approved Budget £m |
Projected Outturn £m |
Adjust £m |
Reprofile £m |
Total Variance £m |
Paragraph Ref |
|
Children’s services |
15.849 |
10.722 |
0.040 |
(5.167) |
(5.127) |
17-25 |
|
Adult Social Care |
1.039 |
1.039 |
- |
- |
|
26-32 |
|
Housing Services |
48.682 |
43.290 |
1.274 |
(6.666) |
(5.392) |
33-57 |
|
Communities |
4.017 |
3.977 |
(0.040) |
- |
(0.040) |
58-65 |
|
Transport, Highways & Environment |
58.062 |
46.047 |
- |
(12.015) |
(12.015) |
66-130 |
|
City Development |
27.691 |
27.881 |
0.168 |
0.022 |
0.190 |
131-142 |
|
Property Services |
1.701 |
1.316 |
- |
(0.385) |
(0.385) |
143-148 |
|
ICT |
3.929 |
3.306 |
0 |
(0.623) |
(0.623) |
149-151 |
|
Corporate Services |
1.496 |
1.456 |
(0.040) |
- |
(0.040) |
- |
Total |
162.466 |
139.034 |
1.402 |
(24.834) |
(23.432) |
|
Table 1 Capital Programme Monitor 3 2025/26
12. As a result of the changes highlighted above the revised 5 year capital programme is summarised in Table 2.
|
Gross Capital Programme |
2025/26 £m |
2026/27 £m |
2027/28 £m |
2028/29 £m |
2029/30 £m |
Total £m |
|
Children’s services |
10.722 |
13.479 |
0.187 |
- |
- |
24.388 |
|
Adult Social Care |
1.039 |
0.728 |
0.752 |
0.776 |
0.800 |
4.095 |
|
Housing Services |
43.290 |
31.187 |
33.525 |
31.490 |
16.010 |
155.502 |
|
Communities |
3.977 |
- |
- |
- |
- |
3.977 |
|
Transport, Highways & Environment |
46.047 |
50.790 |
40.420 |
35.399 |
52.252 |
224.908 |
|
City Development |
27.881 |
10.725 |
4.406 |
2.363 |
- |
45.375 |
|
Property Services |
1.316 |
1.638 |
0.275 |
0.275 |
0.275 |
3.779 |
|
ICT |
3.306 |
3.293 |
2.970 |
2.820 |
2.820 |
15.209 |
|
Corporate Services |
1.456 |
0.369 |
0.394 |
0.200 |
0.200 |
2.619 |
Revised Programme |
139.034 |
112.209 |
82.929 |
73.323 |
72.357 |
479.852 |
Table 2 Revised 5 Year Capital Programme
Funding the 2025/26 – 2029/30 Capital Programme
13. The revised 2025/26 to 2029/30 capital programme of £479.852m is funded from £176.482m of external funding and £303.370m of internal funding. Table 3 shows the projected call on resources going forward.
|
|
2025/26 £m |
2026/27 £m |
2027/28 £m |
2028/29 £m |
2029/30 £m |
Total £m |
|
Gross Capital Programme |
139.034 |
112.209 |
82.929 |
73.323 |
72.357 |
479.852 |
|
|
|
|
|
|
|
|
|
External Funding |
47.386 |
44.794 |
29.017 |
21.229 |
34.056 |
176.482 |
|
Council Controlled Resources |
91.648 |
67.415 |
53.912 |
52.094 |
38.301 |
303.370 |
|
Total Funding |
139.034 |
112.209 |
82.929 |
73.323 |
72.357 |
479.852 |
Table 3 – 2025/26 to 2029/30 Capital Programme Financing
14. The Council controlled figure is comprised of a number of resources that the Council has ultimate control over. These include Right to Buy receipts, revenue contributions, supported (government awarded) borrowing, prudential (Council funded) borrowing, reserves (including Venture Fund) and capital receipts.
15. In financing the overall capital programme, the Director of Finance will use the optimum mix of funding sources available to achieve the best financial position for the Council. Therefore, an option for any new capital receipts would be to use these to replace assumed borrowing, thereby reducing the Councils’ borrowing levels and associated revenue costs.
Consultation Analysis
16. The capital programme was developed under the capital budget process and agreed by Council on 27 February 2025. Whilst the capital programme as a whole is not consulted on, the individual scheme proposals and associated capital receipt sales do follow a consultation process with local Councillors and residents in the locality of the individual schemes.
Options Analysis and Evidential
Basis
Children and Education Services
17. The total approved budget within the Children’s Services and Education Capital Programme for 2024/25 is £10.722m. There are a small number of adjustments to report at this monitor, plus an update on the maintenance programme budget for 2025/26.
18. Within Basic Need - it is expected that works at St Oswald’s Primary will be completed in 2026/27 therefore £100k has been transferred from 2025/26 to allow works to be completed.
19. At St Paul’s Nursery, the majority of the work and expenditure will have taken place in 2025/26 however works are expected to complete in 2026/27 therefore £300k has been transferred into future years.
20. The scheme to create an Enhanced Provision unit at Huntington School is complete. The final phase was handed over in September 2025. It is proposed that a small amount of funding is re-profiled into 2026/27 to cover any retentions.
21. The major works at Applefields have continued in 2025/26. The planned work to refurbish and adapt 3 more classrooms, and an upgrade to the hydrotherapy pool has been completed in 2025.
22. The Children in Care Residential Commissioning scheme has not been fully committed this year, so it is proposed to reprofile an amount of £234k into 2026/27 at this monitor.
23. The maintenance schemes for 2025/26 are now substantially complete and planning is underway for the 2026/27 programme of essential maintenance. A further underspend is predicted to the overall programme with the final position available at the end of the financial year. At this point it is proposed to re-profile an amount of £990k into 2026/27 across all the maintenance schemes.
24. SEND Central is the new SEND family hub that is specifically for advice, information and sign posting for anything related to Special Educational Needs and Disabilities. It is important for the facility to be fully accessible and ideally the building needs to be physically adapted to have a changing space. The capital in the budget only covers a proportion of the costs, with additional capital from the family hub it will be necessary to identify a further £40k to cover the full costs proposed for the changing space.
25. It is proposed that the additional £40k is allocated from the capital contingency budget. The budget currently totals £1,126k and an allocation of £40k will reduce the contingency to £1,086k.
Adult Social Care
Disability Support Grant
27. The current projection is that the budget will be fully spent in the year.
Major Items of Disability Equipment
28. This budget funds high-cost equipment to vulnerable people, including ceiling track hoists, stair climbers, specialist beds, etc. This is joint funded by health. The supply of equipment is an essential component of prevention, enabling people to continue to remain in their own homes rather than moving to residential care. The budget also contributes to successful community reablement and is a key component of hospital discharge packages. The joint funded equipment is supplied when there is a clear health need. This is mostly beds for children and specialist seating for adults and children.
This scheme is projected to be on budget for Q3 based on spend to date
Telecare Equipment
29. Telecare Scheme supplies people with alarms and response equipment in their homes to deal with their specifically assessed risks. Sensors are installed which are linked to our Community Alarm system and trigger alerts automatically ensuring speedy response from the response service. The equipment provides customers with 24-hour monitoring of their circumstances, which can help to encourage independence and keep them in their own homes and communities. This improves their wellbeing and reduces the need for care packages.
30. The digital switchover programme due to be delivered in 2025, to upgrade existing customers telephone networks from analogue to digital in time for the national digital switchover has now been revised to the end of January 2027. As of October 2025, Be Independent have 2,698 active domestic connections with 1,999 active digital lifelines (Smarthubs and Lifeline Digital). The current number of devices which still need to be replaced is 699.
31. In line with ASC transformation plans going forward and to continue to focus on care outcomes for individuals, additional investment is being made in Telecare equipment and technologies.
32. The Robotics Scheme looks to develop the Council’s use of innovative pieces of equipment that can be used to support people to live independently and remain in their homes, with less need for formal care packages. £161k remains in the Adults’ Capital monitor from the initial £200k included in the 2020/21 budget. It is proposed to vire the remaining budget to further support the Telecare Scheme.
Housing Services
Disabled Facilities (£2,521k)
33. This budget is used to undertake adaptations to privately owned properties in order to help owner occupiers and tenants living in the properties to be able to live independently within the property in the future. 186 properties have received disabled adaptation works to date. Based on current expenditure, end of year expenditure is predicted to be around £2,000k plus around a further £300k for 51 grant approvals where payments are still outstanding. Meaning that there may be an underspend of around £220k.
CYC Adaptations Budget (£1,441k)
34. This budget is used to undertake adaptations to Council properties in order to help council tenants living in the properties to live independently within the property in the future. The budget is financed through monies allocated from the HRA budget. An additional £200k has been allocated from the Major Repairs underspend in order to manage an increase in demand for this work and to ensure that all priority needs can be met.
Home Upgrade Grant (HUG) (£1,354k)
35. The scheme is now completed, with the final stages of closure under way. In total 45 properties received funding under the scheme with a total spend of £855k, including all capital costs and admin costs, which has been funded by a grant from Dept for Energy Security and Net Zero (DESNZ).
36. Warm Homes Local Grant is the latest national energy retrofit project for private sector housing being run by DESNZ. CYC was successful in securing funding from April 2025 to March 2028, with a total fund pot of £2,037.7k over the three-year period.
37. Whilst this project has now started to spend, all spend has been on staffing costs involved in setting up the scheme at £25k. The actual budget for this year is £300k, including £45k on administration and ancillary costs (which includes staffing costs), and £255k for capital retrofit works to private sector properties. The administration and ancillary costs are now committed in full and it is planned that we will spend all of the capital monies.
Major Repairs (£11,774k)
38. The Investment Manager post became vacant in April 2025 and there have been continued staff absences within the team for most of the year. A temporary manager was appointed for 3 months while a permanent appointment could be made. This has resulted in reduced capacity across the service and has resulted in an anticipated underspend across these budget areas. There has still been some considerable work delivered however within the scheme with expenditure to date of £6m
39. The expectation to spend in full now looks extremely unlikely and a forecast of £10.3m has been provided. This is across a wide range of projects replacing doors and windows, kitchens and bathrooms, empty property repairs and damp works. Emergency repairs are being given a priority where damp and mould is present.
40. An additional £200k can be transferred to the adaptations budget in order to meet additional demand and the balance can be carried forward to 2026/27.
41. Any underspends being identified may be used for other projects within the HRA and the balance can be carried forward to 2026/27.
42. The priority now will be to recruit to the vacant posts and to put together a programme for 2026/27 working with existing and new contractors, doing work in-house if resources allow. The aim will be to deliver good value for money while providing a high-quality service.
43. At Monitor 3, £3,565k is identified to slip into 2026/27 as a result of the underspend on major repairs, as well as the £200k virement that is recommended to the Aids and Adaptations scheme.
Alex Lyon and Honeysuckle House Renewable Energy Heating
44. The project has been delivered on time and within budget with individual heating systems installed in all flats within these 2 ILC’s.
Energy Efficiency Retrofit
45. A new scheme (wave 3) is for 3 years, recently signed, will provide £1.4m of grant funding over 3 years to continue to improve the energy efficiency across the CYC social housing stock. Difficulties in recruitment of the right staff are meaning that there are delays to the start of this project.
Housing Delivery
46. Two schemes are now nearing their completion with the handover of completed homes happening in November.
47. All 34 Passivhaus homes at Duncombe Square have now been completed and handed over. There are still some issues with snagging works not being completed, but the site looks good, and the properties are completed to a high standard. Tenants have been identified for the social housing units and will move once defects have been rectified. 6 shared-ownership properties have been reserved, and the expectation is that some of the market sales units may sell now that they’re open for viewing.
48. Work is still progressing at Burnholme Green, the second Passivhaus certified development, with expected completions early in the new year. Most homes are now complete and internal snagging of individual plots is progressing well throughout the site. After recent delays due to a change of groundworks sub-contractor, groundworks have now fully resumed and are progressing well.
49. Tarmac was laid in the summer to the Lowfield Green site and the work signed off after significant delays over the past 12 months. S278 sign off may be delayed due to utility diversions required following the widening of the carriageway. The buyer for the last available property has withdrawn and the property is back on the market with viewings booked in.
50. The Willow House site redevelopment project is reaching the end of RIBA Stage 3, with the proposals soon ready for to be submitted to Planning. A separate planning application for the demolition works is about to be submitted. Procurement for the enabling works will start in the new year. The estimated cost of the enabling works is being refined and is currently higher than previously anticipated due to the scope of works including a relatively high contingency sum for archaeology. Engagement is ongoing with immediate residents and in particular the leaseholders and freeholders affected by the proposals.
51. RIBA Stage 2 design work has started for Lowfield Plot A but the prolonged design development programme, which has been necessary to collaborate effectively with key stakeholders, has resulted in additional design fees. Upcoming engagement activities with professionals and people with lived experience will help guide and inform the development process.
52. Bell Farm refurbishment and retrofit project has overcome a lot of the issues uncovered on site such as asbestos, bats, unforeseen building defects, replacement of drainage, and delayed water connections which has resulted in significant additional costs. The project is now in its final phase and a timetable of completion of the blocks has been agreed with first handover now started and project completion set at the end of March 2026. A working group has been established to agree the approach to reletting these properties and the previous tenants have been given the option to return to their original property should they wish. Three apartments have already been reserved for previous tenants.
53. The scheme had a budget of £4.831m, profiled across 3 years. The 2024/25 outturn reported an overspend of £1.2m. At Monitor 1, this had increased to £1.368m. The latest forecast is a total spend of £6.940m which is a total overspend of £2.109m. The increase in spend is largely due to the ongoing delays of the works resulting in uplifts to the contractor payments. This comes on top of the additional works such as asbestos removal and acoustic floor requirements, that were not specified correctly at the tender stage. The additional costs will be funded from the Major Repairs budget underspend.
54. Practical completion of the Glen Lodge refurbishment was achieved in August and the 12-month defects process was initiated. Works to address snags identified are being completed. Work is continuing across Housing, Communications and Adult Social Care to fully bring the building back into use with 24 units out of 32 now reoccupied. There is ongoing work to promote these high-quality apartments and enact a prevention strategy to ensure residents move at the right time for them to continue to live independently and avoid residential care wherever possible.
55. The redesigned 100% affordable housing Ordnance Lane scheme has been tendered for a Principal Contractor and submissions were received in late June 2025. We have been working with a preferred bidder to find an appropriate route to do VE and revisit the timber frame design to better fit Passivhaus requirements. A construction budget based on a full business case was approved by Executive in October 2025 giving £37m over 4 years with part funding coming from Homes England and the York and North Yorkshire Combined Authority.
56. The Council has received £479k in Rough Sleper Prevention and Recovery Grant (RSPARG) to reduce and prevent rough sleeping by increasing system capacity. Officers have developed plans to spend the funding. These are in line with the Council’s Homelessness Strategy which includes an expansion of social housing. MHCLG has confirmed that use of the funding is flexible so long as it meets the criteria of the grant.
57. An opportunity has arisen to purchase a one-bedroom flat in York using a revenue contribution to capital of c£162k from the RSPARG. Approval to add this to the capital programme within the LA Homes Phase 2 scheme is sought at Monitor 3.
Communities
Future Libraries Investment Programme
58. The three library projects (Haxby, Clifton and Acomb) have been combined and are reported within a single FLIP (Future Libraries Investment Programme). The capital budget this year is £798k including a Libraries Improvement Fund grant of £250k from Arts Council England. The total budget for the FLIP overall is £8,228k.
59. This programme is in its final delivery stage with the third and final project at Acomb library well under way and due to be completed and back open to the public in January 2026. The Acomb library will have had a full internal refurbishment based on resident’s feedback. The total budget for the Acomb library enhancements is £350k, which includes the Library Improvement Fund grant of £250k from Arts Council England. In addition, further funding of £40k has been secured towards the design and installation of Solar PV. This is a combination of £24k from the Mayoral Renewables Fund and £16k from the Council’s Climate budget. This additional element of works has a tight deadline due to the funding, but the project team hope to achieve. If unsuccessful, the project will be on hold until a new external funding window opens.
60. The FLIP programme should be complete by March 2026.
Energise Roof Works
61. These works have been complex to identify the exact root cause of the roof leaks and time is being taken to ensure any future repair is essential.
Mansion House Repairs
62. Some works were reprogrammed to allow the scaffolding on the south and east elevation to come down and the house re-open to the public safely and on time.
63. The raking out and repointing to the rear elevation are more extensive than expected with some areas of dangerous brickwork being removed and structural supports being inserted. Notice of delay has been received from W Birch, this is currently a contractual mechanism to warn the client completion date could be missed and this is in relation to the rear elevation works. However, no extension of time is anticipated at this stage which could incur additional costs.
Crematorium Waiting Room
65. Progress is still being made toward procurement of a contractor alongside a formal planning application
Transport, Environment & Planning
Bus Service Improvement Plan (BSIP)
66. During the financial year, £7,756k of BSIP and Combined Authority Bus funding has been moved from Transport to York Station Gateway to fund the bus loop requirements for the project. The remaining BSIP budget in 2025/26 is £3,073k.
City Centre Sustainable Corridor – Bus Priority.
67. The project to deliver a new City Centre Sustainable Corridor has been approved by the executive member to proceed to public consultation in June 2025 with a current milestone planning towards a spring 2026 delivery.
68. £1.795m has been reprofiled to 2026/27 to ensure logistical and optimal delivery alongside other critical city centre projects to avoid conflict of traffic flow.
69. Project consultation has launched and will run until 12th January 2026. Following consultation, a report will be taken to Executive for a decision on the future of the project. If approval is granted, then construction will follow Lendal Bridge works in order to manage traffic flow in the City Centre.
BSIP Bus Stop Upgrades
70. 18 kerb improvements have been completed, 3 new shelters at Joseph Rowntree School, Beech Avenue, Bishopthorpe and Strensall Library plus York Station Gateway bus stops. The 2025/26 Bus Grant budget is fully spent and a prioritised list for 26/27 is in development.
BSIP Real-Time Screens
71. All real time screens as part of the BSIP programme have been installed, with the exception of six locations that are dependent on the installation of new shelters by Bauer. These screens will be installed once the new shelters are in place. Replacement screens for station frontage scheme ready for installation – awaiting power connection. Six new displays were installed in new shelters in York Central.
Small Scale Bus Priority - Strensall Bus Terminus Improvements
72. The work is almost complete. At the time of writing Northern Powergrid still need to connect the bus shelter lighting.
Park & Ride Interchange Upgrades
73. BSIP 1 funding was secured to provide a new ticket office and public waiting area/ amenities of Grimston Bar P & R and various additional improvements and refurbishments of Askham Bar, Rawcliffe Bar, Poppleton Bar and Monks Cross. Overnight parking areas are proposed to be created at Askham Bar and Rawcliffe Bar and there will be improvements to site security and Park and Cycle facilities across the five sites. Designer Outlet Park and Ride is not within scope of these works as it is under a shorter term lease agreement.
74. Executive approved the funding for the project in October 2025. Subsequently further conversations have been held with First Group as current operator of the sites to ensure operational requirements inform the detailed design. Procurement routes are being identified and RIBA3 stage design is well underway.
Access Barrier
75. The Council has agreed to participate in a research project being undertaken by academics from the University of Westminster to monitor the impact on path users and nearby residents of removal or redesign of barriers to make them compliant with guidance. This is likely to be a 5year funded scheme addressing priority locations from c800 sites across the city.
76. A second batch of sites has been identified on a route basis – aiming to ensure that locations that deliver end to end route accessibility are chosen. This second tranche is being progress to design commission
Traffic Signal Asset Renewal (TSAR) Programme
77. The Copmanthorpe Link Road renewal was completed in November 2025. Estimated final costs for scheme delivery have been reduced to £225k due to slight design revisions whilst construction was taking place. The full cost of the scheme will now be met from Department for Transport Green Light Fund instead of just the cost of traffic signal equipment installed at the site in order to utilise these funds prior to the end of 2025/26.
78. Huntington Road/Hayleys Terrace construction is now proposed for Q2 2026/27 subject to principal contractor availability and streetworks permissions being granted. Estimated delivery cost remains £250k which will be incurred during 2026/27.
79. Foss Bank construction is scheduled for late Q4 25/26 subject to final approval from the Executive Member for Transport and the publication of a Chief Officer decision. Estimated cost remains £165k which will mostly be incurred during early 2026/27. The full cost of the scheme will now be met from Department for Transport Green Light Fund instead of just the cost of traffic signal equipment installed at the site in order to commit these funds prior to the end of 2025/26.
80. Holgate Road/Wilton Rise Feasibility design works have been prepared for consultation which will be completed during 2025/26. Delivery of the scheme is proposed for Q2 2026/27 with an estimated cost of £35k.
81. Clifton Moorgate/Water Lane feasibility design consultation has been completed and is subject to further consideration as to how the scheme will proceed. Construction during Q3 2026/27 is proposed with an estimated cost of £400k.
82. Department for Transport Green Light Funding has been used to deliver 4G communication upgrades at a further 3 locations and replacement traffic signal poles have been installed at 3 other crossing sites with works totalling £21k. Two additional traffic signal controller upgrades are proposed before the end of 2025/26. Total committed spend against the Green Ligh Fund award during 2025/26 will total £361k as per the DfT requirements for this funding to be utilised.
Active Travel Programme
83. The York and North Yorkshire Combined Authority agreed funding for active travel projects in York on 6th June 2025. The approved project list includes improvements to the Clifton Backies route, school streets projects, increased pedestrian crossing programme funding and a public right of way improvement programme, plus an increased focus on Local Cycling, Walking Infrastructure Plan (LCWIP) neighbourhoods. Projects are being scope ready for passing to delivery team.
Riverside Path Improvements
84. Principal Designer procurement route approved and supplier and associated contract to be in place prior to end of 2025. Estimated cost for delivery of the design brief and construction supervision remains £165k with spend commitment in place during 25/26 but this will not be fully utilised until 26/27. Scheme construction proposed for Q2/3 of 26/27 however this remains dependent on progress of the Riverbank Stability project.
Solar System Cycle Route Phase 1:
85. Solar System Cycle Route Phase 2: Comprises widening of the route between London Bridge and the beginning of the Solar System route. Project manager to be appointed to progress this work.
National Cycle Network Route 65
86. There are several locations requiring improvement on National Cycle Network Route 65. Project manager to be appointed to progress this work.
EV schemes
87. All EV projects are now fully funded following a successful bid to the MCA (Mayoral Combined Authority).
88. Union Terrace Hyper Hub Design and Build Contract drafted and procurement route confirmed. Contract award and associated spend commitment estimated before the end of 25/26 with construction to then commence during 26/27.
89. Askham Bar P&R Hyper Hub Design contract awarded October 25 with spend commitment raised however cost unlikely to be incurred until Q1 26/27. Legal discussions ongoing between CYC and previous land owners which impacts a future Executive Decision seeking approval to proceed with the scheme once these design works have been completed.
90. LEVI on street pilot proposals subject to further review by the Housing team and their DMT. Progression of the scheme is linked to the establishment of new EV supply/install/maintenance contract therefore spend against the scheme is unlikely to occur prior to 26/27.
91. EVCAR has received a refund from the contracted EV supply and install operator who can no longer honour the terms of their contract. Payments relating to charger installation works at Bishopthorpe Road and Monk Bar Car Park locations have been returned and works will now take place during 26/27 once a new EV supply/install/maintenance contract has been awarded.
Urban Traffic Control /Parking Guidance System (PGS) replacement
92. Discovery works have been completed to identify potential suppliers for these system replacements with a pilot test of the existing suppliers proposed option also completed during Q3 2025. Potential framework routes for the purchase of software have been agreed with CYC procurement officers and an EOI to potential suppliers on the framework will be offered when suitable specifications for both systems have been compiled. Establishment of a spend commitment before the end of 25/26 is intended with available funding being split estimated to be £60k for UTC and £200k for PGS.
Safety Schemes
93. Since September we have completed the following works or are on site:
· Aldwark dropped crossings – (3 pairs of dropped crossings) crossings installed at Hunt Court and Pear Tree Court junctions in June 2025.) Implementation of remaining crossing, at St Saviours Place junction was completed in November 2025
· St Mary’s Primary, Askham Richards Safer Routes to School was completed in September 2025 through improved lining and signing measures.
· York Road / Carr Lane Local Safety Scheme due on site in January 2026, introducing early start cycle facilities into existing traffic signalised junction.
· Irwin Speed management scheme is not being progressed due to a lack of public support and was removed from the programme by Executive Member approval
Hostile Vehicle Mitigation
94. An additional scheme is required, along with the requisite Capital funding with regards to proposals to make some amendments to signage; loading restrictions; and changes to one-way arrangements at Blake Street, with the aim of discouraging vehicles entering the street and/or facilitate safer exits from the area.
95. Funding was agreed at October Transport Board to proceed with proposed changes to the one-way system, introduce a loading ban; and advertisement of an associated TRO.
Highways
Resurfaced Roads
96. Carriageway resurfacing schemes have been delivered at Riverside Crescent, Hull Road, Heworth Green, Maple Avenue, Harrogate Road and Albermarle Road. A large patching scheme has further been delivered on Malton Road. To date we’ve delivered 45,000m2 of new surface course and 22,000m2 of binder course across the Highway Network, this financial year.
97. The entire surface dressing programme is now complete, with over 70,500m2 of roads dressed across nine separate locations. £500k has been reprofiled to 2026/27 to deliver 4 schemes next year.
Footpaths
98. The team have delivered a footway renewal scheme on the city centre location at Lendal Road, which has involved the replacement of over 300m2 of existing paving, kerb replacements and the installation of three tactile crossings to facilitate pedestrian access. Works have also been completed at Keble Park South, where elements of the tarmac footway have been replaced, and 5 sets of tactile crossings have been installed. Further schemes have now been delivered at Jackson Street, Shirley Avenue and Drummond View, with the final schemes at Lamplugh Crescent, Blake Street and Huntington Road due to commence imminently.
99. The Slurry Sealing programme has been completed for this year, treating 10,700 m2 of tarmac footway.
Highway Structures Maintenance
100. General inspections of nearly fifty existing highway structures have been completed, which will provide reports, noting any defects and the proposed remedial works required to these structures. All information has now been updated on the asset management system (AMX).
101. Structural reviews of assets at Haxby and Strensall are now complete.
102. An existing footbridge at Moor Avenue is to be demolished and replaced with a newly design footbridge, to facilitate both pedestrian and cycle access. Design works have commenced, and the new footbridge should be delivered within the next financial year.
103. Diving Inspections have been carried out at 10 separate locations on the River Foss and River Ouse.
104. Principal Inspections have been carried out on structural assets at Layerthorpe and The Tannery in Strensall.
105. Retaining Wall Inspections have been carried out at various locations across the service area, and details regarding maintenance requirements, have been added to the work bank schedule, on the asset management system (AMX).
106. A bridge strengthening scheme has been delivered at Bishopthorpe Bridge, which has involved the design, fabrication and installation of a new corrugated steel structure, below the existing bridge deck.
107. The tender documentation has been prepared for a large refurbishment scheme on Lendal Bridge, involving painting, repairs, waterproofing and resurfacing works. The works are programmed to commence on site in April next year. £1.3m has been transferred to this scheme from Local Transport Programme.
108. Design and survey works are being carried out for a painting scheme on Skeldergate Bridge, which will be delivered on site, in the next financial year.
Street Lighting Columns
109. The team are nearing completion of the street lighting asset renewal programme, within Maintenance Area 4 Strensall / Skelton / Towthorpe and Maintenance Area 8 Acomb. This has involved the replacement of the existing concrete street lighting columns, with new steel thermoplastic coated column assets, including new LED energy saving lights. This will result in significant energy and carbon reduction savings.
110. Lighting Upgrades to LEDs at two major highway structures are now being implemented. Skeldergate and Ouse Bridges have been difficult to maintain, due to water ingress issues, into bespoke luminaires, attached to the structures. We are hoping to alleviate the need for future maintenance works, with improved illumination on the highway, by installing sealed LED units and gear trays in the existing light casings. The scheme has been fully designed, the new units manufactured, and the installation works are 95% complete, with some minor remedial works left to resolve.
111. Further LED upgrades are being carried out, as a continuation of the previous year’s Net Zero funded programme. The additional works involve the upgrading of a further 500 existing units to LED luminaires in Maintenance Areas 3 and 5. The works are complete.
City Walls Maintenance
112. Investigation and maintenance work across the City Walls are ongoing.
113. The major conservation project on Bootham Bar, involving structural repairs to the existing roof and the installation of a new lead roof covering, is complete. The works have progressed as planned, despite the condition of the existing structure, being in a worse state of deterioration, than originally anticipated.
Drainage
Pre-Carriageway Drainage Schemes
114. The team have resolved a longstanding flooding issue on the outboard lane at Heworth Green, which included the installation of a piped road crossing, and new connection into the existing sewer system.
115. Eight non-running drainage gullies have been replaced on Maple Avenue, followed by the repair of the existing gully connections on Riverside Crescent.
116. A major scheme has been carried out on the A59 drainage system, which has included significant pipe jetting, gully cleaning, iron work replacements and clearance of the verge.
117. Further repair works have been carried out to the drainage system on Hull Road, to precede the delivery of the major carriageway resurfacing scheme. Various gullies have also been repaired on Albermarle Road and at required locations on Tadcaster Road.
Proactive Drainage Investigation / Repair Programme
118. The team have fully cleared the existing blocked sewer system from Wheldrake Village towards Crockey Hill, which was causing back-up into the village. Further drainage repairs and flood management works have been carried out at the following listed locations:
· Heslington Lane
· Bone Dyke Strensall
· Dauby Lane
· Askham Bryan Westwood Lane
· Moor Lane Murton
· North Moor Road Huntington Primary School
· Malton Road
· Huntington Road
· Mill Lane
· Corban Lane
Sink Holes
119. A 5ft deep by 5ft wide void was identified in the inbound traffic lane outside York Theatre Royal on St Leonards Place, which represented an immediate risk to road users and the public. The drainage team acted quickly in appointing a specialist contractor, with the capability of operating at 5m excavation depths, to investigate the issue, assess the competency of the existing sub ground, then reinstate the void with foam concrete, before reinstating the road construction in full. The cause of the problem was later found to be due to the demolished remains of the old City Wall and subsequent settling, occurring over many years.
Castle Mills Lock
120. An essential scheme to replace the existing timber lock gates at Castle Mills, has commenced, and the off-site manufacture of the gate components is now complete. Unfortunately, due to the recent dry weather and low river levels, the contractor was not able to commence the installation works in July, as planned, by using river craft to deliver the materials and access equipment to the site. The site installation works have now been programmed to commence in April 2026 and should be complete before the end of July. £600k has been reprofiled to 2026/27 to complete this work.
Fleet
121. The Waste Services vehicle replacement original budget was £6.6m. All the Waste Services vehicles has been replaced, 20/21 & 21/22 financial years total spend was £5,855,000 replacing 2 x eCollect 26t RCV’s & 24 x 26t RCV’s, 22/23 1 x estate car total spend 20k , 23/24 zero spend & 24/25 2 x 26t RCV, 1 x 12t RCV and 1 x Panel van total spend 640k. The programme was left with a surplus of 85k. This has been moved to m an existing Fleet Replacement Programme.
122. Fleet replacement programme - reprofiling £2.5m to 26/27 due to long lead times for assets currently on order or assets where orders have been delayed due to supplier challenges.
Flood Schemes
123. Ousewem, our strategic, catchment scale NFM project, has continued to progress our hydraulic and water quality modelling to help inform the most beneficial locations for natural flood management, as well as delivering 3 completed natural flood management projects and continuing to deliver another 8 projects. With the help of the University of York we are also progressing work looking at how we quantify the multiple benefits of natural flood management techniques and how they can best be measured and monitored going forward. We continue to work with multiple partners across the region to share our innovations as well as presenting our work at a number of conferences and climate change events.
124. The Germany Beck project is being progressed. Contractors WSP, JBA and AOC Archaeology have been commissioned to support in the discharge of planning conditions (including a series of surveys) and the drawing up of contract and design documents. The total spend in 2025/2026 is estimated to be £100k. The Flood Risk team have been working with legal and procurement and these documents/updated surveys will form the basis of a tender. The contract for delivery of the scheme will go out to tender April/May 2026 with construction intended to start on site in August 2026. £2,821k reprofiled to 2026/27.
125. Flood Contributions Scheme – The scheme is to be used for the Germany Beck Flood Alleviation Scheme. The full amount £1.5m reprofiled to 2026/27
Major Projects
126. Further to last Monitors narrative and following on from planning committee’s approval on Tuesday 19 March 2024, and referral to the Secretary of State, the York Outer Ring Road planning application was approved on the 12th April 2024. Since then, a milestone review has been undertaken, along with other works such as land purchase negotiations, contract procurement, and the business case also being progressed. Members agreed at Meeting on 15th July as a result of the milestone review that the scheme be delivered in four phases, due to the increased anticipated costs. This prioritises available funding to the local plan infrastructure requirements, unlocking key development sites and providing much needed new homes. Work is currently being undertaken on the procurement of services, renewal of ecology surveys, and the gaining of approval from the submission of a change request to WYCA. This change request will reflect the funding changes approved at Executive for both YORR and the YSG projects.
127. The York Station Gateway programme continues to progress on site, Package 1 Utility Diversion Works, (CYC delivered) completed September 2023. Package 2 Highways Works is being delivered by CYC via a contract awarded to John Sisk & Son in September 2023. The works are currently delayed against the original programme with the projected completion date being Spring 2026, (original completion date September 2024). Site works continue in Zone 12 the Portico Area & Tea Room Square, unforeseen ground conditions have been experienced and the Portico Canopy located in the area is now subject to a Listed Building Consent to allow for demolition. Works continue on the stone facing to Retaining walls and construction of new Substation and duct route through station platform. Package 3 Station Works (delivery by LNER) is now re-designed and revised funding arrangements are being agreed, LNER are to submit the scheme to planning Winter 2025/26. Package 4 Loop Road Works which have interdependencies with all packages/partners have progressed with the partners to the point of an agreed layout and design. Package 5 Multi Story Car Park Works (delivery by Network Rail (NR)), the enabling works contractor has been appointed by NR, with this element commencing on site in October 2025. Interfaces between packages are being managed through the partnership
Haxby Station
128. The project is now in the process of being resumed following the Government announcement in July 2025 which confirmed that this project was to be funded to full delivery. This followed a year of considerable funding uncertainty and relative inactivity as a result of last year’s cancellation of the DfT’s Restoring Your Railways programme (which this project had previously been part of) by the UK Government.
129. It should be noted that moving forwards, delivery of the new station will be led by DfT and Network Rail, with the council being a principal stakeholder and responsible for the delivery of enabling highways works. The Council remains the current freehold owner of the site of the new station following land acquisition four years ago. The council remains committed to supporting the delivery of the station (by Network Rail) and have specific responsibility for providing the associated highways works and measures to enhance active travel within the area.
130. The programme for delivery has undoubtedly been prolonged and the estimated date for completion and the new station opening has now slipped to circa end of 2027 / early 2028 (still contingent on a number of factors outside of the council’s control). Network Rail and the council have a planning application still pending, determination having been delayed due to statutory requirements to undertake further ecological surveys and investigations for protected species on-site, which have now concluded, plus a number of comments by statutory consultees which have needed to be resolved. The ambition is now for determination of this application early 2026.
City Development
Capital Program for Cultural Asset Masterplan/Heritage Programme
132. The 2 September 2025 Executive meeting agreed to allocate £250k from the capital contingency budget to invest in a cultural asset masterplan. Should further funding be identified, this should be used instead. A line was included in the Monitor 2 2025.26 Capital program for Cultural Asset Masterplan, £250k to fund this work.
133. November’s EMDS approved the initiation of the programme (now known as the Heritage Programme). Phasing is expected to be £50k/£200k over two years.
York Central
134. The project funding position for York Central was reprofiled in 2024/25 to reflect an updated funding agreement with project partners. The key change was that the £35m CYC contribution towards IP2 site infrastructure work moved to 2025/26 onwards. The developer teams forecast drawdown profile against project expenditure remains in line with this.
135. General progress on the project remains positive. The planning application for the Network Rail Access Infrastructure has been submitted and is pending validation. The Developer planning application for phase 1C is pending submission following pre-application engagement which has now concluded. Officers are reviewing the next steps for the scheme.
136. Delivery of York Central Highway Infrastructure Homes England are progressing with the delivery of the main York Central highway infrastructure. Phase 1, which provides the alternative route around the National Railway Museum, opened to traffic on 8 July 2025. Once the remaining works are completed, the authority will be able to issue the Part 1 Certification, enabling the stopping up of Leeman Road and allowing the NRM to commence its construction phase.
Phase 2 – Spine Road Connection
137. Phase 2 of the scheme, which will connect the new spine road through to Water End, is expected to be completed in 2027. Ground improvement works, foundations, and initial construction on the Severus Bridge foot and cycle bridge have already commenced. We also anticipate that work on the Wilton Rise footbridge will begin within the same timeframe.
Carbon Reduction Schemes
138. A decision is still pending regarding the potential land purchase for additional car parking at the York Community Woodland – engagement and surveys have been carried out over summer, with data currently being analysed. An assessment will be made following the conclusion of this work.
139. £96k has been committed to provide match funding against the Mayoral Renewable Fund, which will support the installation of solar panels at Yearsley swimming pool and Acomb Library.
140. Following the announcement by Government that the Public Sector Decarbonisation Scheme will not be continued, officers are undertaking an assessment of the capital cost requirements to decarbonise our estate. A business case is in development, which profiles capital works over the next three years, phasing has been adjusted to reflect this.
141. Due to a high failure rate associated with tree planting this year, additional restocking will be required at the end of 2025/26 from the Northern Forest budget, with additional maintenance requirements being slipped into following years.
142. There are also potential commitments for tree provision as part of the York Outer Ring Road Scheme. Key achievements include:
a) Completion of works for replacement heating system at Honeysuckle House and Alex Lyon House.
b) Application for additional £160k from the Mayoral Renewable Fund to install solar panels at Moor Lane Youth Centre, Elvington school, St Mary’s school and Knavesmire Pavillion.
c) Funding awarded through Great British Energy to install rooftop solar PV at Carr infants school
d) Award of £100k from the Department of Energy Security and Net Zero’s Heat Network Delivery Unit (HNDU) to undertake a techno-economic feasibility study for a city centre heat network
143. Property had a capital starting budget of £2,323k for 2025/26 including £644k slippage from 24/25.
144. Roofing works have been completed at the Shambles and structural repairs have completed on a CYC commercial property at Castlegate. West Offices data cooling equipment has been tendered and works anticipated to commence early next calendar year.
145. Refresher surveys are underway to update CYC’s asbestos records. No areas of concern have yet been flagged and whilst the surveys are not yet complete across the portfolio, we have reduced call on this budget slipping £100k to 26/27 at Monitor 1. At Monitor 3, it is requested that the remainder of this budget, £122k is slipped to 2026/27 to align with the completion of the surveys.
146. A specification has been drawn up for the works to the salt barn and Hazel Court roof with tender exercises to follow. Due to need to utilise the salt barn in Winter, works are likely to start Spring next year. Hazel Court roof works are also likely to take place in the spring, £300k for these were slipped to 26/27 at Monitor 1.
147. Works at Union Terrace and Robinson Court are expected to take place next financial year, along with works to upgrade the lighting at the vehicle workshops at Hazel Court scheduled for next calendar year. It’s requested that the budget for these (£141k) is also slipped to 26/27
148. As the Guildhall is vacant, £97k of the budget was slipped to 26/27 at monitor two. Since then, the Council has received firm interest in the Guildhall and we are proposing to undertake the works to install gates, in conjunction with the interested party, which will likely follow their fit out works into next financial year, for this reason the remaining £30k of the budget will be slipped to 26/27 at monitor three.
Corporate Services – IT
149. The ICT capital programme had a start budget of £4,109k for 2025/26 which included £939k slippage from last year.
150. Key achievements to date include:
· The Barracuda and Trend contracts were awarded in October 2025 securing essential elements of the ICT Security Technology Stack.
· The new/replacement MFD/print estate contract has been signed. New print machines have already been installed in the Print Unit with the rollout of new MFD’s to commence in January 2026.
· Procurement of the annual bulk laptop purchase has completed, and the contract (£250k) will be awarded with the next two weeks.
151. At Monitor 3 it is requested that £300k from the Tech Refresh scheme is split equally to 26/27 and 27/28 to cover increased consumption for hybrid workers. The laptop estate across the authority has increased 204% since Covid which has placed increased pressure on the refresh programme. £203k is slipped to 2026/27 following an audit of the existing WiFi hardware across the estate
Organisational Impact and Implications
The report has the following implications:
· Financial - are contained throughout the main body of the report. Given the forecast financial position of the Council and the need to reduce expenditure, there will be a review of the capital programme. This review will need to identify ways in which capital expenditure can also be reduced.
· Human Resources (HR) - There are no direct HR implications as a result of this report. Any variations to the capital programme that have staffing implications will follow appropriate consultation and HR policies and procedures.
· Legal - Whilst this report itself does not have any further legal implications, the schemes within the capital programme themselves will be in receipt of legal advice where necessary.
· Procurement – Whilst there are no direct procurement implications relating to the report itself, procurement will be a main tool used to deliver schemes in the capital programme. Any services of works required, will be procured in accordance with the Public Contract Regulations 2015, soon to be Procurement Act 2023 and the Council’s Contract Procedure Rules. Further advice regarding the procurement process and development of procurement strategies must be sought from the Commercial Procurement team.
· Health and Wellbeing, reductions in spend in some areas could impact on the health and wellbeing of both our staff and residents. The impact of any reductions in the capital programme will be carefully monitored so that implications can be considered and mitigated where possible.
· Environment and Climate action, as this report is mainly for information to update on the progress of delivery of schemes within the programme, there are no direct environment and climate action implications as a result of this report.
· Affordability, as this report is mainly for information to update on the progress of delivery of schemes within the programme, there are no direct affordability implications as a result of this report.
· Equalities and Human Rights -– as this report is mainly for information to update on the progress of delivery of schemes within the programme, there are no direct equalities and human rights implications as a result of this report. All individual schemes will be subject to Impact Assessments in the usual way.
· Data Protection and Privacy, As there is no personal data, special categories of personal data or criminal offence data being processed, there is no requirement to complete a data protection impact assessment (DPIA).
· Communications, the information set out in this report does not have any specific communications implications. The finance and performance monitor report elsewhere on this agenda includes details of the communications activity in relation to the overall council finances.
· Economy, there are no direct implications related to the recommendations.
Risks and Mitigations
152. There are a number of risks inherent in the delivery of a large scale capital programme. To mitigate against these risks the capital programme is regularly monitored as part of the corporate monitoring process, and the project management framework. This is supplemented by internal and external audit reviews of major projects.
Wards Impacted
153. All wards are impacted by the issues detailed in the report.
Contact details
For further information please contact the authors of this Decision Report.
Author
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Name: |
Emma Audrain |
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Job Title: |
Technical Accountant |
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Service Area: |
Financial Services |
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Telephone: |
01904 551170 |
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Report approved: |
Yes |
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Date: |
16/01/2026 |
Background
papers
· Capital Budget 2025/26 to 2029/30 - Executive 21 January 2025
· Capital Programme Outturn 2024-25 - Executive 15 July 2025
· Capital Monitor 1 - 2025/26 – Executive 2nd September 2025
· Capital Monitor 2 – 2025/26 – Executive 4th November 2025
Annexes
· Annex 1 – Capital Programme 2025/26 to 2029/30