A clear implementation approach including shared plans and defined roles enables essential services to transition effectively without interruption.
A clear implementation approach brings together governance, HR, finance, assets, procurement, digital and frontline operations so that essential services continue without interruption. With shared plans, defined roles and consistent reporting, councils coordinate activity across predecessor bodies and present a single, reliable picture of readiness to members, staff, partners and residents.
Key considerations for effective transition and continuity include:
- Standing up a single implementation function; councils may wish to use the Solace Guide to Standing Up an LGR Implementation Team to define purpose, roles, decision routes and a practical set of rhythms for progress tracking.
- Establishing clear milestones, aligning political and officer leadership and connecting transition activity to future operating models.
- Building a shared view of key metrics, enabling services to report consistently on demand, performance and outcomes during and after vesting, using tools such as LG Inform Plus.
- Recognise the value of disciplined critical path management, documenting benefits and transparent readiness reporting; the closure report for the Cumbria LGR programme offers helpful reflections on this.
- Clear communications, agile decision making and strong data when services are adapting to new structures.
- Careful consideration of the practicalities of service handovers, including rota planning, supplier liaison and resident updates; this was a key theme of a District Councils’ Network roundtable on maintaining service quality during LGR.
- Having a clearly understood ‘day one’ digital plan for both customers and employees.
This combined approach helps councils coordinate effort across every workstream and present a single plan. It also enables services to test and rehearse day one activities, confirm incident routes and ensure that colleagues know exactly how to escalate and resolve issues.
Overall, strong transition management creates confidence, continuity and clarity. With one implementation team, aligned milestones and consistent reporting, the new authority begins life ready to deliver trusted services and plan the next steps of improvement.
Top resources
A practical 'how-to' guide for councils undergoing Local Government Reorganisation (LGR) under the UK Government’s Devolution White Paper (2024). It explains how to establish an implementation team capable of managing the transition, sustaining essential services, and ensuring compliance with governance, financial, and legislative frameworks.
Page 4: Pre-implementation
Page 6: Implementation – primary considerations
Page 7: Implementation team – key roles
Page 11: Key considerations for a successful team
Page 13: Potential pitfalls
Page 14: Cost considerations for personnel
A presentation capturing the experience of Buckinghamshire Council as it transitioned to a unitary authority, focused on implementation structure, service continuity during the change, budget and savings outcomes, staff and cultural integration, and key lessons about transition vs transformation.
Slide 2: Buckinghamshire context
Slide 3: Our unitary story
Slide 4: Timetable
Slide 5: Programme governance
Slide 6: Unitary programme team
Slide 7: Programme management office
Slide 8: Programme management – Implementation plan and governance
Slide 9: A snapshot of the Shadow Executive forward plan
Slides 10-14: Review of milestones achieved
Slide 15: A council that celebrates a one-council culture
Slide 16: Financial overview
Slide 17: Implementation considerations
Slide 18: Reflections
This day one checklist was developed by Cumberland Council to support their own implementation planning and transition a unitary council, as the county was split into the two councils of Cumberland and Westmorland and Furness.
This is included in the toolkit as an example. Councils going LGR today can use this to help their own planning for day one ‘must haves’, but should consider their own local context when doing so.
The Excel spreadsheet includes a sheet on the day one requirements and dependencies each of the following topics:
- corporate and enabling services
- information and technology
- finance
- people
- place.
Further reading
This roundtable discussed the significant pressures local government reorganisation (LGR) places on council services, leadership capacity and working relationships.
Attendees discussed that some areas are already using LGR as an opportunity to strengthen place-based working by linking district and county services and agreeing shared principles for tackling inequality. Many are exploring shared staffing and expertise before vesting day, with Norse Group offering support to integrate services and avoid complex disaggregation, including through potential joint ventures.
This document outlines the planned process for establishing LGR programme boards and workstream initiation agreements in Buckinghamshire Council. It outlines the key milestones and phases of this process.
Page 1: Flowchart of key phases of programme board establishment and workstream scoping Page 2: Timetable
This guide by Browne Jacobson provides a practical, high-level overview intended to help councils in England to understand the main legal, procedural and organisational considerations related to reorganisation. This includes highlighting relevant statutory instruments.
Pages 3-6: Process including legal mechanics, proposals, consultation and Structural Changes Orders
Page 7: Governance and constitution
Page 9: Transitional arrangements
Pages 10-11: Transfer of assets
Pages 12-13: Commercial considerations including contracts, branding and intellectual property
Page 14: Property considerations
Pages 15-16: Staff and employment including TUPE and practical issues
Pages 17-18: Finance and council tax including through transition periods and shadow
Pages 19-20: Risk and insurance including liabilities and knowledge capture
This report highlights some key learning from the implementation on 1 April 2009 of unitary structures in seven county areas. That process established nine new unitary councils:
- Bedford Borough Council
- Central Bedfordshire Council
- Cheshire East Council
- Cheshire West & Chester Council
- Cornwall Council
- Durham County Council
- Northumberland County Council
- Shropshire Council
- Wiltshire Council.
Following their establishment, this paper sought to draw together the key learning from implementing those unitary structures.
Pages 1-2: The key areas of learning
Page 3: Overall approach
Pages 3-5: Timing of elections
Page 5: Implementation model — continuing council with implementation executive or shadow council
Pages 6-8: Staffing issues
Pages 8-9: Appointment of chief executive and senior management
Pages 9-10: Financial framework
Page 10: Framework for the transfer of property, rights and liabilities
Pages 10-11: Shared services
Pages 11-12: Localism agenda
Pages 12-13: Relations with others
Page 13: Communications
Pages 13-14: Local performance framework
Page 14: Ceremonial issues
Page 15: Engagement and support from central government
In this presentation Alyn Jones, Executive Director for Strategy, Workforce and Localities at Somerset Council, shared insights into Somerset's approach LGR during a Local Government Association (LGA) Transformation Masterclass. He highlighted Somerset's rural context, economic challenges, and the opportunities presented by becoming a unitary authority. The presentation covered the council's preparedness, critical path delivery, and customer-focused initiatives, emphasising the importance of sound programme management, leadership engagement, and effective communication to ensure a smooth transition and continued service delivery.
Slide 2: Context
Slides 3-4: LGA readiness review
Slide 5: Critical path
Slide 6: Customer focus
Slide 7: Workforce and members
Slide 8: Finances and savings
Slides 9-10: Financial emergency
Slide 11: Organisational redesign
Slide 12: Structural principles
Slide 13: Timelines
Slide 14: Lessons learned
A legal-and-operational commentary that reviews recent examples of local government reorganisation (LGR) and offers guidance for authorities considering the shift to single-tier/unitary models. It explores the drivers for reform (financial, governance, service efficiency), the legal processes involved, and the practical challenges of implementation.
Page 6: Case study 1 – Buckinghamshire
Page 8: Legal process for reorganisation
Page 10: Case study 2 – Northamptonshire
Page 12: Transitional considerations, including assets and employee transfers
Page 14: Case study 3 – Dorset
Page 16: Governance
Page 18: Links to interviews with LGR‑experienced officers
The article discusses North Yorkshire Council's experience with LGR, highlighting challenges such as an unexpected £22 million funding shortfall and the complexities of merging multiple councils. Insights from leaders like Richard Flinton (Chief Executive, North Yorkshire Council) and Ed Hammond (Deputy Chief Executive, Centre for Governance and Scrutiny) emphasise the importance of governance, planning and relationship-building during reorganisation.
The piece also draws on lessons from other councils, including Buckinghamshire and Westmorland and Furness, underscoring the need for strong programme management and early certainty to navigate LGR effectively.
Closure report for the Cumbria LGR programme, documenting how six district councils and Cumbria County Council transitioned into two new unitary authorities (Cumberland and Westmorland & Furness) and transferred the Fire and Rescue Service to the Police, Fire & Crime Commissioner. It reviews governance, delivery, risks, staffing, finances, achievements, and lessons learned on ensuring safe, legal, and continuous service operation.
Page 4: Programme scope
Page 5: Timeline
Page 6: Delivery approach
Page 7: Governance
Page 8: Achievements and outcomes of the programme
Page 9: Our learning
Page 11: Programme transition and next steps
Civiteq hosted a virtual round table specifically for senior leaders in local government who are facing Local Government Reorganisation (LGR). On the round table’s panel were experienced professionals from councils and national bodies who have led or supported digital and ICT transformation through LGR. The insights they share, summarised in this whitepaper, are grounded in real-world delivery, strategic planning, and post-vesting day operations.
Page 4: Starting position
Page 5: Workforce
Page 6: Shadow councils
Page 7: Change management
Page 8: Internal communication
Page 9: Legacy systems
Page 10: Managing expectations
Page 11: Safe and legal
Page 12: Prioritisation
Page 14: One thing I wish I had known
Request for information templates
Since the summer of 2025 Surrey District & Borough Councils, with support from Local Partnerships, have completed an extensive data gathering and analysis exercise in support of their LGR process. This work has included, among others, the establishment of a Project Management Organisation to facilitate the data gathering exercise, a standardised process for the collection, review and analysis of data and the development of Requests for Information (RFIs) in support of that process.
Based on this work, in support of the wider sector, the Data & Analytics team of Local Partnerships has developed an initial sub-section of the RFI’s into a set of generic templates, and an RFI tracker document to help manage the project management of the data workflow.
The RFI Tracker is designed to support PMOs across councils in the LGR process by providing a clear, central view of information gathering and RFI management.
The dashboard provides an overview of RFI progress and council submissions.
The tracker monitors RFIs that have been issued, capturing progress, submission status across councils, deadlines, and relevant notes, enabling PMOs to coordinate efficiently and track responses.
Example implementation plans from previous rounds of LGR
This document is a version of the implementation plan used through LGR in Buckinghamshire. It sets out the visions and aims of LGR, before detailing governance structures, programme principles, transitional arrangements, and vesting day ‘must haves’.
Page 2: Introduction
Page 4: Design principles
Page 6: Values and behaviours
Page 6: Branding
Page 7: Organisational structure
Page 8: Transition and transformation
Page 9: Programme principles
Page 9: Member engagement
Page 10: Key deliverables on vesting day
Page 12: Employees
Page 13: Members
Page 15: Customers
Page 17: Locality working
Page 18: Partnership working
Page 18: Financial strategy
Page 20: Member governance
Page 21: Governance arrangements
Page 24: Resource implications
Page 25: Assurance, audit and risk
Page 26: Transition budget
Page 27: Appendix A — Programme must haves
This document sets out the high‑level implementation plan for creating the new Dorset Council, detailing the required governance, planning phases, workstreams and timelines for the 2019 local government reorganisation.
Page 1: Executive summary
Page 2: Introduction
Page 2: Programme approach
Page 4: Programme methodology
Page 5: Workstreams
Page 6: Workstream plans – high level project scope
Page 15: Service critical changes
Page 16: Task and finish groups
Page 17: Key programme milestones
Page 19: Resources and core structure
Page 20: Programme board arrangements
Page 21: Budget
Page 22: Communications plan summary and approach
Page 22: Branding
Page 22: Tactics
Page 24: Communications resources and budget
Page 26: Governance map
Page 27: Risk management
Page 28: Risk management methodology
Page 29: Programme risks
Page 30: Risk landscape for Dorset Council
The document outlines the programme for creating two new unitary councils in Cumbria, detailing the vision, values, governance and phased approach required for a safe and legal transition by 1 April 2023.
It sets out the design principles, planning stages, blueprints, governance structures and timelines guiding both the shadow authorities and officer workstreams.
Page 1: Delivering two unitary councils for Cumbria
Page 2: Vision and ambition for Cumbria
Page 3: Two new councils for Cumbria
Page 4: Our implementation approach – values
Page 5: Our implementation approach – design principles
Page 6: Timeline and phasing
Page 7: LGR programme – timeline and phasing
Page 8: Design phase
Page 9: Design phase (stages 1-4)
Page 10: Design phase – design options, Day 1 requirements and initial blueprints
Page 11: Design options
Page 12: Democratic and programme governance
Page 13: Democratic governance to May 2022
Page 14: Democratic governance to April 2023
Page 15: Programme governance and structure
Page 16: Programme structure
Page 17: Programme governance
Page 18: Implementation phase
Page 19: Implementation phase – high level timeline
Page 20: Blueprints, service plans and strategic financial planning
Page 21: Next steps
This document sets out North Yorkshire’s plan for transition from eight councils to a single unitary authority on 1 April 2023, outlining the vision, design principles and organisational model for the new council.
It describes the governance structures, workstreams and programme management framework that will oversee delivery, along with key milestones and Day 1 deliverables.
Page 4: Vision, aims and ambitions
Pages 5-6: Design principles, values, branding and organisational culture
Pages 6-7: New organisational structure and staffing approach
Pages 7-9: Transition and transformation phases, programme principles and member engagement
Page 9: Key deliverables for Vesting Day
Pages 10-12: Employees, members and customer arrangements
Pages 13-16: Locality model, partnership working and financial strategy
Page 17: Capital programme
Pages 18-19: Member and officer governance
Pages 19-20: Implementation team and programme workstreams
Pages 20-22: Programme governance lifecycle and PMO
Pages 22-24: Resourcing, assurance, risk management, and equality/climate approaches
Page 24: Transition budget and conclusion
Page 25: Appendix A – critical milestones
Page 28: Appendix B – key deliverables on Vesting Day
This plan sets out how Somerset planned to transition to a single unitary authority on 1 April 2023, explaining the mission, strategic objectives and governance required for safe and legal implementation. It describes the planned delivery approach – including organisational design, financial planning, and the programme structure intended to guide the transformation. Finally, it outlines the expected roles of members, staff and workstreams, as well as the readiness, risk, budget, equalities and climate considerations.
Page 6: Introduction
Page 7: Creating Somerset Council (mission, vision, values)
Page 8: Strategic objectives
Page 9: Council plan
Page 9: Target operating model
Page 10: Organisational structure
Page 10: Medium‑term financial plan
Page 10: Transition, transformation and tranche delivery
Page 12: Member engagement and arrangements
Page 13: Transition arrangements
Page 13: Structural Changes Order and governance requirements
Page 13: Governance arrangements and programme structure
Page 18: Programme Management Office (PMO)
Page 19: Quality assurance and delivery partner
Page 20: Day 1 readiness
Page 20: Change readiness
Page 20: Risk and issue management
Page 20: Climate change and ecological emergency
Page 21: Equalities
Page 21: Transition budget
Page 22: Recruitment protocol and mutual aid
Page 22: Communications
Page 23: Appendices
Equality impact assessments
The guidance from Buckinghamshire explains how to complete an Equality Impact Assessment to ensure decisions and services consider the needs of people with protected characteristics.
It outlines legal duties under the Equality Act 2010 and the steps required to assess and mitigate potential inequalities. It emphasises starting EqIAs early in project planning so equality issues can meaningfully shape policies and outcomes. Finally, it goes through the key steps associated with a full equality impact assessment.
Page 1: What is an equality impact assessment?
Page 1: Why carry out an equality impact assessment?
Page 2: Who should carry out an equality impact assessment?
Page 3: When should an equality impact assessment be carried out?
Page 3: Steps in full impact assessments
The Buckinghamshire equality impact assessment (EqIA) template is designed to help officers assess whether a policy, service, strategy, or project could have positive, negative, or unintended impacts on different groups – particularly those with protected characteristics under equality legislation.
The document guides users through a structured process to ensure fairness, accessibility, and inclusion are considered in decision‑making.
Page 1: Screening template
Page 4: Full equality impact assessment
Waste and resource services
Since the summer of 2025 Surrey District & Borough Councils, with support from Local Partnerships, have completed an extensive data gathering and analysis exercise in support of their LGR process. This work has included, among others, the establishment of a Project Management Organisation to facilitate the data gathering exercise, a standardised process for the collection, review and analysis of data and the development of Requests for Information (RFIs) in support of that process.
Based on this work, in support of the wider sector, the Data & Analytics team of Local Partnerships has developed an initial sub-section of the RFI’s into a set of generic templates, including a template on waste services, that councils can use for collecting consistent and comparable data required for Local Government Reorganisation (LGR), alongside an RFI tracker document to help manage the project management of the data workflow.
The aim of the RFI templates is to help:
- Build a robust, evidence-based baseline to support planning for service transition and, subsequently, service transformation
- identify opportunities, risks, and integration challenges early
- reduce duplication, improve data quality and ensure data is collected once.
This toolkit provides strategic and operational guidance to help councils undergoing Local Government Reorganisation (LGR) manage their waste and resource services. It includes frameworks, checklists and practical tools designed to maintain service continuity, support contractual/infrastructure transitions, and ensure compliance during the restructuring of waste and resource services.
Page 5: Statutory waste duties
Pages 6-7: Policy landscape
Page 8: Emissions trading scheme
Page 9: Deposit return scheme
Page 10: Extended producer responsibility
Page 11: Simpler recycling
Pages 13-14: The LGR journey
Page 15: Scope and governance
Pages 16-20: Establishing a baseline including data lists
Page 21: Preparation for vesting day
Pages 22, 25-26: The case for change
Page 23: Quick wins
Page 24: Setting the vision
Pages 27-30: Business cases
Pages 31-33: Mobilisation for BAU
Page 34: Review and iterate
Managing LGR and Devolution at the same time
The Institute for Government's report outlines the complexities of implementing LGR alongside the establishment of mayoral combined authorities with devolved powers, emphasising the need for coordinated planning and strong local leadership to navigate these concurrent reforms.
Pages 6-7: Why are leaders being asked to reorganise local government?
Pages 7-8: Which local authorities have been invited to develop LGR proposals?
Pages 10-13: What trade-offs should leaders consider when developing proposals?
Pages 18-19: What can leaders learn from past waves of LGR?
Pages 20-26: How can local leaders and central government successfully navigate the challenges of dual delivery?
Highlighted pages
LGR Toolkit
This toolkit hub brings together resources from across the sector to help those going through local government reorganisation (LGR).
LGR: Checklist
The following checklist outlines a range of key actions that must be undertaken at each stage of the LGR process, along with links to resources that will help councils to deliver those actions.