- Conference
- 2025 Local Government Service Group Conference
- Date
- 1 January 2025
- Decision
- Carried
Conference notes the publication of the English Devolution White Paper, which will significantly impact our members’ employment in every region of England. The proposals could diminish the role of district councils in strategic governance by reorganising or consolidating them into unitary authorities. The remaining district councils will be expected to focus on hyper-local service delivery and collaborate more closely with the new Mayoral Strategic Authority. This transformation reflects the government’s push for streamlined governance and greater efficiency at a strategic level.
County councils will also be impacted, leaving our members currently employed by districts and county councils with uncertainty about the identity of their employer, their roles, and their pay, terms and conditions.
Conference notes that ‘English devolution’ is not the same as the devolution of powers to Scotland, Cymru/Wales and Northern Ireland, but many of the ideas within the White Paper could be replicated in those nations/administrations, and so we need a UK-wide approach to the proposals.
Conference notes the publication of the new Labour Government’s White Paper on English Devolution. UNISON welcomes the government’s ambition to democratise decision-making and bring power closer to communities. We recognise that well-designed devolution can revitalise local economies, enhance service delivery and empower citizens.
Conference recognises that the greatest direct impact of the proposals will be on our members in the local government sector. The proposed abolition of district councils and the rapid creation of large, combined authorities, run by directly elected mayors, is the biggest change in the governance of the English regions in 50 years. Mistakes made now will have a long-lasting legacy for decades to come.
Conference believes that councils are at breaking point. After years of damaging austerity, investing in services and staff must be central to any reforms made as the White Paper progresses towards becoming legislation. Any proposals to phase out smaller district councils must not undermine local decision-making or the ability of public service workers to deliver services. Nor must the plans lead to further micro-management by Whitehall. Local communities and council employees are best placed to know what works in their areas. Powers given to new or existing mayoral strategic authorities must be devolved from central government, rather than taken from local councils.
Conference, therefore, remains concerned about certain aspects of the White Paper. While it seeks to address the existing patchwork of responsibilities among combined authorities, metro mayors and local councils, it does not resolve the democratic deficits and funding challenges created by over a decade of austerity. We believe that the success of any devolution settlement hinges on robust financial support for local authorities, as well as clear and consistent frameworks for accountability and service coordination.
Conference believes that local authorities in the North East have endured years of funding cuts, leading to staff shortages and the loss of vital local services. While the devolution of power from Westminster is a positive step, much remains to be done to address the lasting damage caused by severe cuts to regional funding since 2010.
The publication of the English Devolution White Paper signals significant changes to the governance of local authorities across the country. However, the North East has already undergone substantial restructuring, with no district councils remaining. In addition, all twelve local authority areas are now part of either the North East Combined Authority or the Tees Valley Combined Authority.
One of the most important changes for the region, as outlined in the White Paper, is the introduction of Integrated Settlements. This will consolidate budgets across key areas such as housing, regeneration, local growth, transport, skills, retrofit, and employment support. The aim is to offer greater flexibility in allocating funding across these policy areas, along with more streamlined reporting on their outcomes.
While this appears broadly positive, Conference reiterates its concerns about the directly elected mayoral model in terms of: potentially concentrating power and influence into the hands of just one person, leading to less accountability and transparency; fears that the vested interests of the private sector could be the likely winners in more centralised decision-making; and, the further removal of powers from ordinary councillors may do little to promote active engagement in local democratic processes.
In the Northern region, there is a stark contrast in terms of UNISON’s working relationship between The North East and Tees Valley combined authority mayors, which reinforces the strategic importance of having an incumbent that shares our interests.
Close working relationships with mayors and local authorities is also vital to ensure decision-making is in line with community need. A good example of this is the work of the North East mayor on establishing the North East Child Poverty Reduction Unit and investment in the development of The Crown Works Studios in Sunderland.
While the governance structure for devolution in the North East is now in place, there is a continual need for trade union influence in Mayoral strategy to drive regional growth in line with our bargaining agenda. This, in turn, will benefit local authorities and local government workers.
Trade unions must be a key stakeholder at local, regional and national levels in the implementation of English devolution or any other local government reorganisation.
Conference believes that devolution deals must be developed from the bottom up, not through backroom deals in Whitehall. Public sector workers must be involved in developing the proposals. Devolution deals should draw powers from the centre, not reduce local community power. Mayoral devolution should enhance union representation and not lead to a reduction in our influence.
Conferences notes that while central government civil service numbers have increased substantially, local government workforce numbers have declined dramatically under successive Conservative governments. The White Paper acknowledges significant recruitment and retention problems in local government, and conference notes that proposed creation of a workforce development group.
Conference also notes that recent history has shown how reduced central funding – alongside increasing demand – has pushed many local authorities to the brink of financial collapse. Although the White Paper acknowledges these issues, it must go further in ensuring that councils have the resources to deliver vital public services. UNISON insists that new responsibilities conferred by devolution must be matched with adequate funding, preventing any erosion of service quality or workforce capacity.
It’s also vital the changes outlined in the White Paper are not a smokescreen for cutting local authority jobs or eroding local government workers’ pay, terms and conditions. Any local government reorganisation must take place alongside a proper re-set of pay and conditions, so that years of decline in real terms pay are reversed. The Government’s plans for devolution must not be used as a smokescreen for further austerity or job cuts. Local authorities need proper funding and the autonomy to make decisions that benefit their communities. UNISON is committed to protecting public services, safeguarding local government jobs, and ensuring that workers’ voices are heard in shaping the future of devolution. Conference, the Government’s recent publication of the devolution white paper, which outlines proposals for restructuring local government, including the potential phasing out of smaller district councils. The Government does not fully understand the critical role local government workers play in delivering vital public services to communities across the UK. Conference, members are acutely aware of the ongoing financial challenges faced by local authorities due to years of austerity, which have left many councils struggling to maintain essential services.
Democratising and empowering local government can play a key role in strengthening the economy and improving outcomes for local communities. Local decision-making is most effective when it is inclusive of council workers’ expertise and reflective of the needs of the community, without unnecessary interference from Central Government. Any reforms must prioritise investment in services, safeguarding jobs, and ensuring that restructuring does not lead to further redundancies or reductions in the quality of public services. Local government employees, as front line workers, are best placed to provide insight into what works in their communities, and their voices must be central to any proposed changes.
Conference also notes the impact on the NJC could be significant, affecting some UNISON regions more than others where regional and local bargaining has taken our members away from the NJC. By the same token, reorganisation could be an opportunity to bring those authorities that have opted out of the NJC back into its purview.
Conference further believes that insourcing is the preferred model for service delivery, regardless of the governance of local communities, and we must use these proposals as an opportunity to campaign for this.
Furthermore, Conference recognises the importance of preserving national collective bargaining arrangements. In previous debates on regional devolution, proposals to introduce regional pay threatened to undermine national pay standards and terms and conditions. It is essential that the White Paper clearly rules out any fragmentation of national bargaining, safeguarding staff from a potential “postcode lottery” in wages and employment protections.
Conference notes:
1) The publication of the English Devolution White Paper, which proposes significant changes to local governance structures, including the creation of Strategic Authorities, the promotion of unitary councils, and the centralisation of strategic functions such as transport, housing, and economic development;
2) The potential impact of these reforms on district and county councils, including the reduction of their autonomy, the reorganisation of local government structures, and the potential dissolution of district councils in some areas;
3) The implications for our members’ jobs, including the transfer of staff to new authorities, the redefinition of roles, restructures, reorganisations, potential redundancies, and the need for retraining and reskilling;
4) The lack of explicit recognition of the role of trade unions in the White Paper, despite the critical importance of engaging with staff and their representatives to ensure a fair and effective transition;
5) The ongoing challenges faced by local authorities, including years of austerity, underfunding, and increased demand for services, which must be addressed as part of any reform process.
Conference believes:
a) The proposed reforms must prioritise the protection of jobs, terms and conditions, services, and local democracy, ensuring that any changes to governance structures do not undermine the quality of public services or the rights of workers;
b) The creation of unitary councils and Strategic Authorities must be accompanied by adequate funding, capacity-building, and meaningful engagement with staff and trade unions to ensure a smooth transition and ongoing trade union input;
c) The centralisation of strategic functions must not come at the expense of local accountability and representation, and district councils must retain a meaningful role in addressing hyper-local issues and community needs;
d) Any reorganisation of local government must include robust protections for staff, including guaranteed employment rights, no detriment to terms and conditions, access to retraining and reskilling opportunities, and measures to avoid compulsory redundancies;
e) Trade unions must be recognised as key stakeholders in the devolution process, with a formal role in shaping the implementation of reforms and ensuring that the voices of workers are heard.
UNISON’s core principles remain central to evaluating devolution reforms:
1) Democratic Renewal: Local communities must have genuine oversight of decisions, not only through elected mayors or combined authorities but also via transparent consultation and accountability structures;
2) Better Government: Devolution should demonstrably improve the coordination, quality and efficiency of services;
3) Devolving Power: Decision-making must take place at the appropriate local or regional level, rather than being retained in or recentralised by Westminster;
4) Economic Imperative: Devolution must help drive sustainable local and regional prosperity, delivering benefits to all communities;
5) Equitable Settlement: No region should be financially disadvantaged by devolved arrangements, nor should public service reforms be used to impose cuts;
6) Consultation and Stakeholder Input: Full engagement with local people, staff, and their Trades Unions must precede and shape any new governance structures.
By adopting this motion, UNISON reaffirms its commitment to a fair, inclusive, and democratically accountable approach to devolution – one that invests in public services, empowers local government staff, and ensures stronger communities across England.
Therefore, Conference calls upon the National Local Government Service Group Executive to work with the Labour Link and the Labour Government to:
a) Secure Funding: Commit to properly resourcing local authorities, reversing cuts and ensuring any new powers come with matching revenue streams;
b) Protect Jobs and Pay: Guarantee that national collective bargaining is upheld and that devolved authorities cannot introduce inferior terms and conditions;
c) Enhance Accountability: Implement transparent structures, ensuring local people genuinely shape and scrutinise how services are run.
Conference calls on the Local Government Service Group Executive (SGE) to:
1) Campaign for a fair and inclusive devolution process that protects jobs, terms and conditions, services, and local democracy, and ensures that any reforms are underpinned by adequate funding and resources; Continue to make the economic case that Councils are crucial to sustainable regional economic growth and delivering the government’s missions;
2) Lobby the Westminster Government to press for a guarantee that there will be no loss of pay and conditions for any staff affected by the White Paper’s proposals, that TUPE will apply to all transfers, and that national bargaining will remain the basis for pay-setting in any new Unitary Authorities, Strategic Authorities, Combined Authorities, or Combined Mayoral Authorities;
3) To continue to highlight the impact of austerity and underfunding on local government, and to campaign for increased investment in public services and staff as part of any reform agenda.
4) Campaign for proper funding for any reorganisation or devolution, calling on the Government to close the £3.4bn funding gap and invest in the future of local services and good jobs; Campaign for full funding for devolution, urging the Government to close the £3.4 billion funding gap and invest in the future of local services and good jobs;
5) To demand that the government engage meaningfully with trade unions, including UNISON, in the design and implementation of devolution reforms, ensuring that the rights and interests of staff are safeguarded; Engage with the Government to demand trade union representation in devolution planning and workforce development, and to respond to government consultations on English devolution;
6) Continue to push for democratic accountability of the Mayoral model with meaningful trade union representation.
7) Campaign against any devolution proposals that may result in job losses, reduced funding for services, or the undermining of local decision-making;
8) Call on the Government to prioritise investment in local services and staff, ensuring that reforms strengthen, rather than weaken, the ability of councils to deliver high-quality services;
9) Support branches and regions in advocating for the involvement of local government workers and their unions in shaping any proposed restructuring plans;
10) Work with other unions, community groups, and stakeholders to promote an alternative vision for devolution that focuses on empowering communities, protecting jobs, and delivering sustainable investment in local government;
11) Monitor the impact of the devolution white paper and report back to members with updates on how proposed changes could affect jobs, services, and local communities. Where those reports show a detrimental impact, work to provide robust challenge in response to government and support regions and branches to challenge the same at a local level
12) Work with sectors, regions and branches to ensure that any staff transfers arising out of these proposals take place using TUPE, with protection from redundancy, and that trade union recognition and facility time are transferred and enhanced as part of any employment transfer;
13) To support our members affected by reorganisation, including through legal protections under TUPE or “TUPE like” transfers, access to retraining and reskilling programmes, and opposition to any worsening of terms and conditions and compulsory redundancies;
14) Work with sectors, regions and branches to press for full equality impact assessments of any staffing changes arising out of the creation of new authorities, using the opportunity to identify and close any gender, ethnicity or disability pay gaps;
15) Provide guidance to branches and regions on negotiating and dealing with the full range of impacts of English devolution.
16) Fight to maintain national bargaining within all devolution proposals, while ensuring the protection of local government jobs and services;
17) To work with local authorities, combined authorities, and other stakeholders to ensure that the transition to new governance structures is managed in a way that minimises disruption to services and staff. Also seek to ensure ongoing trade union engagement through workforce engagement boards for example;
Eastern Region (Motion 1)
East Midlands Region (Amendment 1.1)
Local Government Service Group Executive (Motion 2)
North West Region (Motion 3)
South West Region (Motion 5)
Northern Region (Motion 8)
