As local government reorganisation (LGR) gathers pace, councils embarking on the journey can learn from those that have already been through it.
Herefordshire became a unitary authority on 1 April 1998, when local government responsibilities previously split between Hereford and Worcester CC, South Herefordshire DC, Hereford City Council and parts of Leominster and Malvern Hills district councils were brought together under a single authority. Nearly three decades later, the county offers a long-term perspective on the benefits and challenges of structural reform.
Herefordshire Council Leader, Cllr Jonathan Lester witnessed the creation of the authority first-hand. He worked at the new council as a junior employee in 1998 while also serving as a town councillor: ‘My recollection is that the transition felt largely evolutionary rather than revolutionary. A huge amount of groundwork had already been done and, because the new structure reflected a recognised historic county identity, it felt natural rather than imposed.'
Current Chairman of the Council, Cllr Roger Phillips, who was first elected in 1997 and later led the authority through much of its development, agrees: ‘Many residents felt they were getting their county back,' he says. ‘People understand and identify with places. Reorganisation works best when the structures reflect communities people already recognise.'
Cllr Lester argues that one of the enduring benefits of unitary government has been clearer accountability and a stronger focus on county-wide priorities: ‘Bringing responsibilities together reduced duplication, improved clarity about who was responsible for decisions and created greater opportunities to focus resources on the things that matter most to residents.'
While debates about reorganisation often focus on structure, both leaders believe the practical work of implementation is far more important. Cllr Phillips points to the 11-month shadow authority period before Herefordshire officially came into being as one of the key reasons the transition succeeded. ‘That period is invaluable', he says. ‘It gave members and officers time to establish governance, appoint leaders, prepare services and resolve practical issues before vesting day.'
‘The goal should be straightforward. Residents should experience a seamless transition and continue receiving the services they rely on.'
For Cllr Lester, that remains a crucial lesson for councils preparing for change today: ‘The real measure of success isn't the organisational chart, but whether residents experience disruption.'
But all this can't happen without sustainable funding, particularly in rural areas. Cllr Lester adds: ‘Structural change can help councils work more efficiently, but it does not remove the financial pressures they face. Capital investment is welcome and can support growth, but new authorities also need reliable revenue funding to deliver services day in, day out - not just during transition.'
That is borne out by Herefordshire's recent experience. Despite continued financial pressure, reduced central government support and the loss of rural services funding, the council has balanced its budget year after year while delivering around £50m in savings over the past five years. External assessments have also recognised progress, with Ofsted rating children's services as ‘good' with ‘outstanding' leadership, while the LGA's Corporate Peer Challenge described Herefordshire as a ‘good' council with ambitious plans.
Cllr Phillips says Herefordshire's own creation showed why funding assumptions must be realistic from the start: ‘Government funding assumptions changed shortly before the council came into existence, creating immediate budget pressures,' he says. ‘Savings forecasts do not automatically become reality the moment a new authority starts operating. My advice to new unitaries is to hold the Government's feet to the fire on their funding promises.'
He adds that rurality must be properly reflected in any funding model: ‘Population alone does not tell the whole story. Rural councils deal with long distances, dispersed communities, transport pressures and extensive infrastructure networks. Those costs do not disappear because the structure has changed.'
Both councillors also return to the importance of people and leadership. ‘Authorities succeed or fail because of their workforce', says Cllr Phillips. ‘One of the biggest risks during any reorganisation is losing experienced staff and valuable institutional knowledge.'
Cllr Lester believes leaders must pay as much attention to culture and communication as they do to structures. ‘I believe unitary authorities are the right structure for local government. But whether they succeed or fail is dependent on the right leadership and right funding, as well as a talented, committed workforce.'
Looking back over 28 years, neither councillor presents reorganisation as a silver bullet. Both acknowledge continuing challenges around finance, capacity and service demand. Equally, both believe Herefordshire has benefited from having greater control over its own priorities and decision-making.
For councils now embarking on LGR, Herefordshire's experience suggests the structures themselves are only the beginning. Lasting success will depend on strong leadership, talented people, sound finances, a clear sense of place and sustainable revenue funding beyond transition.
