- Conference
- 2025 National Delegate Conference
- Date
- 1 January 2025
- Decision
- Carried
Conference notes that local government in England continues to face unprecedented challenges and changes. UNISON welcomes the government’s ambition to bring power closer to communities. We recognise that well-designed devolution can revitalise local economies, enhance service delivery, and empower citizens. While Westminster’s devolution agenda promises greater local powers, concerns remain about implementation, funding, and democratic deficit.
The white paper outlines comprehensive changes to mayoral and strategic authority powers across England. The government’s stated aim is to achieve “Universal coverage” of Strategic Authorities, led by directly elected mayors wherever possible. Mayors are set to receive significantly expanded powers across multiple areas such as transport, housing, and skills. Public service responsibilities will also grow – in areas where geographies align, mayors will automatically become Police and Crime Commissioners and lead Fire Authorities, while also taking on new roles in health through Integrated Care Partnerships. Local government reorganisation has the potential to impact on the services our members provide and their roles and responsibilities across the whole of the public sector at a local level, as well as the organisation of our members within UNISON’s democratic frameworks.
Conference believes that the white paper’s proposal to abolish two tier authorities and create unitary councils must not lead to a reduction in both jobs and local services. Conference notes recent proposed devolution deals in East Anglia highlight these concerns, with Suffolk and Norfolk facing major reorganisation despite local opposition and without guarantees about service provision or workforce protection.
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.
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 the proposed creation of a workforce development group.
Conference recognises that the greatest direct impact of the proposals will be on our members in the local government sector. However, regional devolution in England is not “just” a local government issue with existing devolved authorities covering a range of services including police, fire and transport. 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.
One of the most important changes, 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.
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.
Conference reiterates its concerns of the potential of the directly elected mayoral model to concentrate power and influence into the hands of just one person, leading to less accountability and transparency; prioritise the vested interests of the private sector in decision-making; and further remove powers from ordinary councillors, which may do little to promote active engagement in local democratic processes.
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.
Building strong working relationships with Mayors and local authorities is essential to ensure that decision-making reflects community needs. A prime example is the work of the North East Mayor in establishing the North East Child Poverty Reduction Unit and investing in The Crown Works Studios development in Sunderland.
Conference notes the success of UNISON’s bargaining guides and charters and identifies a need to consider similar resources to assist regions and branches in influencing Combined and County Combined Authorities, in line with UNISON’s priorities.
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 supports UNISON’s principles for English devolution:
1) Devolution deals must be developed from the bottom up, not through backroom deals in Whitehall; Decision making must take place at the appropriate local or regional level, rather than being retained in or recentralised by Westminster;
2) Full engagement with local people, staff, and their trade unions must precede and shape any new governance structures;
3) Deals should draw powers from the centre, not reduce local community power;
4) No devolution deal should result in job losses, erosion of terms and conditions, outsourcing of services, or reduction in collective bargaining rights;
5) Deals must include predictable, secure, and sufficient funding based on need;
6) Regional and city level devolution should enhance union representation on regional bodies;
7) Local communities must have genuine oversight of decisions, not only through elected mayors or combined authorities but also via transparent consultation and accountability structures;
8) Devolution should demonstrably improve the coordination, quality, and efficiency of services;
9) Devolution must help drive sustainable local and regional prosperity, delivering benefits to all communities;
10) No region should be financially disadvantaged by devolved arrangements, nor should public service reforms be used to impose cuts;
Conference calls upon the National Executive Council to:
a) Campaign for full funding for devolution, urging the Government to address the £3.4billion funding gap and invest in the future of public services and good jobs; and campaign against any threats to local government jobs, terms and conditions, service delivery;
b) Where devolution deals are in place, support regions to scrutinise proposals and, if necessary, provide alternatives in line with UNISON’s bargaining priorities;
c) Where they exist, work with UNISION Combined Authority branches to develop model UNISON charters specifically for Combined and County Combined Authorities to aid bargaining at this level;
d) Collaborate with the TUC and other unions to develop progressive alternative models of local taxation and advocate for greater redistribution based on need;
e) Support branches and regions in England to engage in local discussions on devolution deals and reorganisation proposals, providing resources for local campaigns based on UNISON’s principles;
f) Engage with the government to demand trade union representation in devolution planning and workforce development, and to respond to government consultations on English devolution;
g) Continue to make the economic case that public service pay and jobs are key to sustainable regional economic growth;
h) Offer appropriate support to the Local Government service group, regions and branches fighting any attempt to introduce non-NJC pay and conditions in new local government 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.