Throughout its history, the United Kingdom has used flags as powerful symbols to represent people, places, and shared identity. From medieval banners on battlefields to the flags flown at county halls or major public events today, these emblems have long served to express pride, belonging, and political meaning.
The most iconic British flag is the Union Flag, commonly known as the Union Jack. Created in 1606 following the union of the English and Scottish crowns, and modified in 1801 to incorporate Ireland's St Patrick's Cross, it symbolises the unity of the UK's constituent nations. For many, it is a proud emblem of national identity, often seen at royal celebrations, international sporting events, and on official buildings.
Moreover, flags like the red dragon of Wales, the saltire of Scotland, and the cross of St George for England foster strong regional pride. These flags often appear at cultural festivals, sporting fixtures, and political events, representing people's connection to their heritage and homeland.
Flags have also been powerful tools for social cohesion and resistance. For example, the rainbow flag, though not uniquely British, has been embraced across the UK as a symbol of LGBTQ+ rights and inclusion. In Northern Ireland, the Irish tricolour and the Union Flag represent competing identities, but have also become focal points in peace-building discussions about respect and shared space.
However, the symbolism of flags is not always unifying. At times, they have been used to assert dominance or exclude others. The Union Flag, for instance, was once closely associated with imperialism and colonial rule. In some communities, particularly where there are histories of oppression or marginalisation, it has been seen as a symbol of authority rather than inclusion.
In Northern Ireland, flag symbolism remains highly sensitive. The flying of certain flags in public spaces can inflame tensions, reflecting long-standing political and sectarian divides. As such, governments and community leaders often have to carefully manage the use of flags in shared areas. But despite these challenges, flags remain powerful cultural tools. When used inclusively, they can inspire unity, express diversity, and celebrate shared history. When misused or not used they can risk reinforcing division or historical grievance.
Understanding the history and meaning behind these symbols is key to using them responsibly in the present and over the past five decades, the framework guiding policy, strategy, and decision-making in English local authorities has also evolved significantly, shaped by political reforms, economic pressures, and shifting public expectations. While the core purpose of local government – to provide services and represent local communities – remains constant, the means by which authorities make decisions and plan strategically has changed dramatically.
The 1990s saw moves toward more strategic governance. The Local Government Act 2000 introduced executive models of leadership (such as directly elected mayors and cabinet-style governance) and mandated community strategies – long-term plans for local well-being, developed in partnership with other agencies. This marked a shift toward outcome-based planning and greater inclusion and community involvement.
The 2000s and 2010s brought both innovation and constraint. Devolution and Local Strategic Partnerships encouraged collaboration across sectors, while performance frameworks such as the Comprehensive Performance Assessment (CPA) and Local Area Agreements (LAAs) aimed to standardise outcomes and accountability. However, the 2010 austerity agenda significantly reduced local budgets, forcing councils to prioritise essential services and find innovative ways to deliver more with less.
Legislation such as the Localism Act 2011 offered new powers, including Neighbourhood Planning and the General Power of Competence, allowing councils greater freedom to act in the interest of their communities with equality, diversity and inclusion at their core. At the same time, City Deals, combined authorities, and the introduction of metro mayors marked a new phase of strategic, sub-regional governance – particularly in urban areas.
Political and strategic change is a constant in local government and strategy has increasingly focused on place-based leadership – aligning public, private, and voluntary sector efforts to address complex social and economic challenges. The rise of Integrated Care Systems (ICSs) and partnerships with the NHS and education providers signal a more joined-up approach to planning and service delivery.
Part of the DNA of community and place based decision-making is the embodiment of equality of opportunity and inclusion across all cross-cutting themes. Officers must continue to feel confident in guiding their councils to balance statutory duties with local aspirations, often having to navigate tensions between members, central government priorities, finances and local needs.
Regardless of the ongoing chatter and the notion of removing roles that focus primarily in promoting diversity and equality or net zero ambitions, these are all values-led cross cutting themes that are central to all sustainable and meaningful decision making. This defines not just what councils do, but how they sustain, influence, and lead.
Let's raise our flag to the many officers and members who continue to provide our most vulnerable communities with the services they deserve.
Pete John is senior consultant at Penna
● All our Penna team are trained in diversity and inclusion and familiar in supporting candidates and clients through difficult change. Please don't hesitate to contact the team if you are feeling uncertain or anxious about the changes ahead.
