Key actions for establishing new local councils in England within the context of the government’s invitation for proposals for a single-tier of local government.
In February 2025, SLCC published a simple ten-point plan (below) on setting up a new local council, aimed at senior managers and decision-makers in principal councils on the verge of reorganisation. We wanted to prompt conversations about the value of ultra-local services delivered by local councils, through the creation of new ones and the devolution of assets and services to existing ones.
Building on this foundation, we have developed a comprehensive report that explores each of these ten points in greater depth, outlining them as key steps in the process of establishing a new council. This isn’t and can’t be a manual for every action required, but it is a summary of best practice and leading examples drawn from the wealth of experience, knowledge and skill within our membership, with links to source material published by SLCC and other organisations dedicated to the delivery and support of effective public services at all levels.
Full Report
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STEP 1
A Community Governance Review (CGR) offers several benefits compared to a structural change order as part of the creation of a new unitary council:
1. Community engagement: CGRs involve extensive consultation with local residents and stakeholders, ensuring that the new parish council reflects the community’s needs and desires1. This process fosters a sense of ownership and support among residents.
2. Tailored solutions: CGRs allow for the creation of parish councils that are specifically designed to address the unique characteristics and requirements of the local area2. This can lead to more effective and responsive local governance.
3. Flexibility: CGRs provide the flexibility to make various changes, such as creating, merging, altering, or abolishing parishes, and adjusting electoral arrangements3. This adaptability ensures that the governance structure remains relevant and effective.
4. Local representation: Parish councils created through CGRs ensure that local representation is maintained or enhanced, preventing the democratic deficit that might occur with broader structural changes4. This helps keep decision-making close to the community.
5. Incremental implementation: CGRs can be conducted at a pace that suits the community, allowing for gradual implementation and adjustment5. This can be less disruptive than a large-scale structural change and could proceed at a locally determined pace.
6. Proven process: The CGR process has been successfully used in many areas, providing a well-established framework for creating effective parish councils1. This experience can be leveraged to ensure a smooth transition.
Benefits of using a structural change order
SLCC’s Governance Toolkit6, provides more background on the processes involved in the formation and amendment of parish councils. In contrast, the benefits of using a structural change order as the mechanism to set up a new parish are7:
1. Streamlined process: Structural change orders can streamline the establishment of new parish councils by integrating the process into the broader reorganisation plan. This can reduce the time and administrative burden compared to conducting a separate CGR.
2. Comprehensive planning: By incorporating parish council creation into the unitary council’s formation, planners can ensure that local governance structures are aligned with the new unitary authority’s strategic goals and service delivery models. This holistic approach can lead to more cohesive and efficient governance.
3. Immediate implementation: Structural change orders allow for the immediate establishment of parish councils as part of the overall reorganisation. This can provide communities with local representation and governance structures from the outset, avoiding potential gaps in local democracy.
4. Resource allocation: Integrating parish council creation into the unitary council’s formation can facilitate better resource allocation. The new unitary authority can allocate resources and support to newly established parish councils more effectively, ensuring they are well-equipped to serve their communities.
5. Consistency and uniformity: Structural change orders can ensure consistency and uniformity in the creation of parish councils across the new unitary authority. This can help standardise governance practices and service delivery, making it easier for residents to understand and engage with their local councils.
6. Strategic alignment: Creating parish councils through structural change orders allows for strategic alignment with the new unitary authority’s objectives. This can enhance collaboration and coordination between different levels of local government, leading to more effective and responsive governance.
While CGRs offer a more community-driven approach, structural change orders provide a streamlined, strategic, and immediate method for establishing parish councils within the context of broader local government reorganisation. However, structural change orders, as part of creating new unitary councils, might not provide the same level of community involvement and tailored solutions, potentially leading to less effective local governance. If a structural change order is the preferred local mechanism, it needs to be recognised that there is significant benefit to engaging the local community anyway to ensure that there is buy-in, and that the activities, scale and impact of a new local council are legitimate reflections of community aspiration for ultra-local services distinct from other areas.
Changes which come from a CGR, led by the (outgoing) district, start from the principle of engaging a local community in the opportunities to define a new parish council from the outset. It is (should be) rooted in consultation and buy-in. It is more likely to define a parish council by what it can and should do. Form follows function and a new council constructed on these principles is more likely to have a sustainable purpose and command local democratic support. This is not to deny a structural change order as the mechanism to deliver this change, but realistically, parish councils created by that mechanism risk being footnotes in the much bigger process.
The creation of new parishes should not be seen as a disruptive or rear-guard move. The government’s intention is clear. It has been seen that a local government reorganisation tends to establish competing camps – but the benchmarks set out by the Minister of State, Jim McMahon, point clearly to the abolition of districts. Where those are centred on unparished towns, the conversation around creating one or more parishes to retain and curate ultra-local services inevitably will focus on the discretionary district services like children’s play, markets, leisure, public toilets, etc. that are district functions, and not strategic functions managed at county level. There are, of course some exceptions, such as community libraries and non-statutory youth services which have successfully devolved to local councils. Within existing unitaries, many of those ultra-local services are those which are sporadic, localised, hard to equalise across geographies, and often prone to cuts rather than economies of scale. There’s a strong logical argument for equalising or baselining the delivery of discretionary services prior to vesting day if there’s a will to do it, by offering local communities the opportunity to determine their preparedness to maintain enhanced services in their town through a parish council.
1 How to establish your own parish or town council
2 Community Governance Review – North Somerset Council
3 What is a Community Governance Review? – Cornwall Council
4 Benefits of creating a parish or town council
5 Community Governance Review FAQs – North Lincolnshire Council
6 Formation, abolition and alterations of parish councils
7 The Impact of Unitary Authority Creation on Town and Parish Councils, Keppel-Green, 2023
STEP 2
Defining the council’s role
Parish and town councils are the most local tier of government in the UK, playing a crucial role in representing the interests of their communities. These councils are responsible for a range of local services and facilities, including parks, community centres, and local events. They have discretionary legal powers to take action on various issues, from planning and development to, community safety and environmental initiatives.
The primary role of a parish or town council is to act as a voice for the local community, ensuring that the needs and preferences of residents are considered in decision-making processes. This involves providing ultra-local services, protecting local assets and safeguarding the character of the community. By delivering services that reflect the unique needs and character of the local area, these councils can enhance the quality of life for residents and foster a sense of community pride and cohesion.
Communicating the benefits
To win public support, it is essential to communicate the benefits of establishing a local council (this may include, parish, town, community, neighbourhood and, in exceptional cases, city), clearly and effectively. Here are some key points to highlight:
1. Accountability: Local councils are accountable for their actions on the doorstep ensuring that services are delivered efficiently and effectively. This local oversight can lead to better outcomes for residents and greater transparency in decision-making processes.
2. Protection of local services: These councils play a vital role in protecting and enhancing local services, such as libraries, parks, and community centres. By managing these services at a local level, councils can ensure they meet the specific needs of the community.
3. Safeguarding community character: Local councils are well-placed to safeguard the unique character and identity of their communities. They can influence planning and development decisions to ensure that new projects are in keeping with the local area’s character and heritage.
4. Localised service delivery: By delivering services that reflect the needs and character of the local area, local councils can provide more tailored and responsive services. This can lead to higher levels of satisfaction among residents and a stronger sense of community.
Key actions and stakeholders
Establishing a parish council involves several key actions and the involvement of various stakeholders.
Here are the main steps and the parties responsible:
1. Community Governance Review (CGR): A CGR is a formal process that assesses the need for a new parish or town council. It involves consultation with residents and stakeholders to gather feedback and build support. The local principal authority (e.g., district or county council) is responsible for conducting the CGR – This is outlined in Step 1.
2. Petition and support: Residents can initiate the process by submitting a petition to the principal authority. The petition must be signed by a certain percentage of the local electorate, demonstrating sufficient support for the establishment of a council.
3. Consultation and engagement: Engage with the community through public meetings, surveys, and other forms of consultation to gather input and build support. This step is crucial for ensuring that the council reflects the needs and priorities of residents.
4. Drafting proposals: Based on the feedback gathered during the consultation process, draft detailed proposals for the new council. These proposals should outline the council’s structure, responsibilities, and funding arrangements.
5. Approval and implementation: Once the proposals are finalised, they must be approved by the principal authority. If approved, the new council can be formally established, and elections can be held to appoint councillors.
6. Ongoing support and development: Provide ongoing support and training for councillors and staff to ensure the effective functioning of the council. This may include training on governance, financial management, and community engagement.
By following these steps and engaging with the community, stakeholders can successfully establish a parish or town council that delivers tangible benefits for residents and enhances local democracy.
STEP 3
Transferring assets and services between local authorities can be complex, but there are several resources available to help guide parishes through the process:
Diagram showing the proportion of principal councils cutting the following services:
From LGiU publication – https://lgiu.org/wp-content/uploads/2025/03/2025-State-of-Local-Government-Finance-in-England.pdf – published 6 March 2025
Reducing spending: cutting services
Our survey has found that 63% of councils will be cutting spending on services this year. However, the areas in which respondents indicated that they would be making savings were highly varied between authorities. The most common services identified as areas for reductions in the next financial year were parks and leisure facilities, business support services, arts and culture programmes, adult social care, and libraries, though a notable proportion of respondents are making reductions in other areas.
STEP 4
The following table shows the reported gross income and expenditure for the first 50 parishes from the above list, based on returns covering 2023/24.
This table identifies the significant direct income which many of these councils derive from fees and charges to provide services in their communities.
STEP 5
There is a range of sources for case studies and reports on successful town and parish councils following local government reorganisation in the UK:
STEP 6
The importance of appointing an interim officer for shadow town and parish councils
Local government reorganisation in England since 1997 has led to the creation of numerous local councils. These councils play a crucial role in representing local communities, delivering services, and improving the quality of life for residents. However, the establishment of a new council can be a complex and challenging process, requiring expert guidance and experienced leadership from day one. This is where the appointment of an interim chief officer becomes essential.
One notable example is the creation of Northampton Town Council in 2020, which serves a population of approximately 130,000. Another example is the Salisbury City Council, established in 2009 following the reorganisation of Wiltshire County Council. These councils were formed to ensure that local governance remained effective and responsive to the needs of their communities.
The need for expert guidance
Establishing a new council involves navigating a myriad of legal, administrative, and operational challenges. From setting up governance structures to managing budgets and engaging with the community, the process requires a deep understanding of local government operations, and the specific requirements and limitations placed on local councils. Expert guidance is crucial for several reasons:
1. Legal compliance: Ensuring that the council operates within the legal framework is paramount. An interim chief officer with extensive knowledge of local government law and regulations can help the council avoid legal pitfalls and ensure compliance with statutory requirements.
2. Effective governance: Setting up effective governance structures is essential for the smooth functioning of the council. Experienced guidance can help in establishing clear roles and responsibilities, creating robust policies, and implementing best practices in governance. NALC produces definitive model Standing Orders and Financial Regulations for local councils, which are the bedrock of their governance. An experienced manager will need to interpret these to the circumstances of the incoming council, to provide an operating environment from its first meeting. NALC and SLCC also provide template policies and procedures which are matched to the needs of local councils.
3. Financial management: Managing the council’s finances is a critical task that requires expertise in budgeting, accounting, and financial planning. An interim chief officer can provide the necessary skills to ensure sound financial management and transparency. There are a range of financial packages which are geared to the reporting requirements on local councils. The incoming council needs expert guidance to be equipped with suitable software and processes for banking, book-keeping, accounting and reporting.
4. Community engagement: Engaging with the community and understanding their needs is vital for the success of the council. Expert guidance can help in developing effective communication strategies and fostering strong relationships with residents.
The importance of immediate appointment
Appointing an interim chief officer immediately is crucial for several reasons:
1. Driving progress: An interim chief officer can drive progress by providing clear direction and leadership. They can help the council set priorities, develop action plans, and ensure that tasks are completed efficiently.
2. Preventing delays: Delays in establishing the council can hinder its ability to serve the community effectively. An interim chief officer can identify potential obstacles and implement solutions to prevent delays.
3. Building capacity: An interim chief officer can help build the capacity of the council by providing training and support to councillors and staff. This ensures that the council has the skills and knowledge needed to operate effectively.
4. Ensuring continuity: The appointment of an interim chief officer ensures continuity in leadership during the initial stages of the council’s establishment. This is essential for maintaining momentum and achieving long-term goals.
Conclusion
Appointing an interim chief officer is essential for ensuring legal compliance, effective governance, financial management, and community engagement. By securing the right leadership from day one, councils can build a strong foundation for success and effectively serve their communities.
References
County Associations – NALC
Creating a Parish or Town Council Case Studies
STEP 7
Leadership matters
The role of the clerk is multifaceted, requiring a blend of management, communication, and strategic skills. Effective leadership is paramount in this position, as the clerk is responsible for guiding the council through its formative stages and beyond. A clerk with proven management skills can ensure that the council’s operations run smoothly, from organising meetings and maintaining records to overseeing the implementation of council decisions.
Competitive pay is essential
To attract and retain top talent, it is essential to offer a competitive salary. The role of the chief officer demands a high level of expertise and commitment, and the compensation should reflect this. Currently, the average salary for clerks in larger councils is around £78,200, with some in the largest town councils receiving salaries comparable to district council chief executives.
Attracting the best candidates: Offering a competitive salary is crucial for attracting highly qualified candidates. Talented professionals are likely to have multiple job offers, and a competitive salary can make the difference in their decision to join a new local council. By offering an attractive compensation package, the council can ensure that it attracts individuals with the necessary skills and experience to excel in the role.
Retaining talent: Competitive pay is also important for retaining talent. Once a skilled clerk is appointed, it is in the council’s best interest to retain them for the long term. A competitive salary, coupled with opportunities for professional development, can help ensure that the clerk remains motivated and committed to the council’s success.
Professional development: Investing in the professional development of the clerk is essential for their continued growth and success. Membership to organisations such as SLCC and NALC provide access to training, resources, and networking opportunities. These memberships can help the clerk stay up-to-date with best practices, legislative changes, and emerging trends in local government.
Core essential criteria for a town clerk
When appointing a clerk, it is important to consider the core essential criteria that should form part of the job description. These criteria ensure that the appointed individual has the necessary qualifications and skills to perform the role effectively. The following are some of the key criteria:
1. Educational qualifications: A relevant degree or professional qualification in public administration, management, or a related field. The clerk would be expected to hold or obtain the Certificate in Local Council Administration (CiLCA) or one of the community governance qualifications, which are defined in the Localism Act 2011 to enable the council to use the General Power of Competence.
2. Experience: Proven experience in a similar role within local government or public administration, with a track record of effective management and leadership.
3. Knowledge of local government: A thorough understanding of local council procedures, regulations, and statutory requirements.
4. Organisational skills: Strong organisational abilities, including the capacity to manage multiple tasks and priorities effectively.
5. Communication skills: Excellent written and verbal communication skills, with the ability to engage with a wide range of stakeholders.
6. Strategic thinking: The ability to think strategically, develop long-term plans, and anticipate future challenges.
7. Adaptability: The capacity to adapt to changing circumstances and respond effectively to unexpected issues.
8. Interpersonal skills: Strong interpersonal skills, with the ability to build positive relationships with councillors, staff, and the public.
9. Financial acumen: Knowledge of financial management, including budgeting, financial reporting, and compliance with financial regulations.
10. Commitment to professional development: A commitment to ongoing professional development and staying informed about best practices in local government.
Websites for town clerk job advertisements
To find suitable candidates for the role of a clerk, it is important to advertise the position on relevant websites.
The following are the key websites where clerk positions are routinely advertised:
1. NALC: The NALC website is a valuable resource for advertising clerk positions and connecting with
professionals in the local government sector.
NALC Job Advertising Service
2. SLCC: The SLCC website offers a platform for advertising job vacancies and accessing a network of qualified
clerks and council staff.
SLCC Job Advertising Service
In conclusion, appointing a suitably experienced and qualified professional as the clerk of a newly created town council is essential for the council’s success. The right chief officer must bring proven management, communication, and strategic skills, and competitive pay is crucial for attracting and retaining top talent. By considering the core essential criteria and advertising the position on relevant websites, the council can ensure that it appoints a clerk who is capable of leading the council effectively and serving the community with dedication and expertise.
STEP 8
The establishment of a new parish or town council in England involves a structured process to ensure community support and proper governance. A principal council plays a pivotal role in this process, particularly in the year leading up to the vesting day of the new council. This chapter outlines the steps a principal council might take to establish a shadow council, drawing on practical examples from councils created in the last twenty years.
Step-by-step process
1. Formation of a shadow council Appointment of members: A shadow council is formed to oversee the transition. Members of the shadow council are typically appointed from existing councillors within the principal council representing wards (or divisions) forming the new parish, ensuring experienced governance and local knowledge during the setup phase.
2. Roles and responsibilities: The shadow council is responsible for preparing the new council’s budget, setting up administrative structures, and ensuring that all necessary arrangements are in place for the new council to function effectively from its vesting day.
3. Budget and precept setting
Financial planning: The shadow council prepares a budget for the new council, including setting the precept (local tax) that will fund its activities. This involves detailed financial planning to ensure the new council is financially viable from the outset. The shadow council should be advised about the realistic scale of services that the incoming council will provide to set a realistic and reasonable budget.
4. Approval: The budget and precept are approved by the shadow council and submitted to the principal council for final approval.
5. Administrative preparations
Office setup: The shadow council arranges for office space, equipment, and other administrative necessities. This includes setting up IT systems, hiring staff, and establishing communication channels.
6. Policies and procedures: The shadow council develops key policies and procedures that the new council will need, such as standing orders, financial regulations, and codes of conduct.
7. Community engagement
Raising awareness: The shadow council engages with the community to raise awareness about the new council, its role, and its benefits. This may involve public meetings, information sessions, and communication through local media.
8. Encouraging participation: Efforts are made to encourage residents to stand for election to the new council and to participate in its activities. This helps to ensure that the new council is representative of the community it serves.
9. First elections
Election arrangements:The shadow council works with the principal council to arrange the first elections for the new council. This includes setting the date, publicising the elections, and ensuring that all electoral arrangements are in place.
10. Transition of power: Once the elections are held and the new councillors are elected, the shadow council ceases and its responsibilities become those of the newly elected council. The new council then takes over all functions and powers from its vesting day.
Practical examples
Weymouth Town Council (2019): Weymouth Town Council was established following the reorganisation of local government in Dorset. The shadow council played a crucial role in the transition, ensuring that all administrative and financial arrangements were in place before the new council’s vesting day. This included setting up office space, hiring staff, and preparing the budget.
Brixham Town Council (2007): Brixham Town Council in Devon was created after a successful CGR and community consultation. The shadow council ensured a smooth transition by engaging with the community, setting up administrative structures, and preparing for the first elections. The new council was able to start its operations effectively from day one.
Central Swindon North Parish Council (2017): Central Swindon North Parish Council was established to provide more localised governance in Swindon. The shadow council focused on community engagement, raising awareness about the new council, and encouraging residents to participate in the first elections. This proactive approach helped to ensure a strong start for the new council.
Committee details – SWT Taunton Shadow Town Council
Shadow Christchurch Town Council
Conclusion
The establishment of a new parish or town council in England is a comprehensive process that requires careful planning and community engagement. The principal council, through the formation of a shadow council, plays a critical role in ensuring that the new council is well-prepared to serve its community from its vesting day. The shadow council may choose to appoint an executive committee to manage the set-up of the incoming parish (see Step 9).
Successful transitions are characterised by thorough preparation, effective communication, and strong community involvement.
References
A Guide to Creating a Parish or Town Council
The current process for setting up a new parish council
Reference
Making it Easier to Set Up New Town and Parish Councils Discussion Paper
STEP 9
The Local Council Governance checklist was updated in 2021 by a taskforce made up of representatives from SLCC, the Association of Democratic Services Officers (ADSO) and Lawyers in Local Government (LLG). The Toolkit provides information on a range of issues including governance, roles and responsibilities, public engagement, managing information and elections, along with template policies, protocols and forms. Members of those organisations can access the full toolkit.
In the shadow period, it is the principal council that will oversee the development of operational management for the incoming parish council. Creating an executive committee to oversee this as a defined project, will provide focus and enable co-option of residents and community leaders.
Local Council Governance Toolkit
ADSO Governance Toolkit
Lawyers in Local Government (LLG)
STEP 10
Steps to establish a parish council as a town council
Although it is not specifically referenced in relation to section 245(6) of the 1972 Act, Section 12(A) of the Act requires a parish council adopting an alternative ‘style’, which would include neighbourhood or community council to, as soon as practicable after passing a resolution under this section, give notice of the change of style to all of the following:
a) The Secretary of State
b) The Local Government Boundary Commission for England
c) The Office of National Statistics
d) The Director General of the Ordnance Survey
e) Any district council, county council or London borough council within whose area the parish lies
For detailed guidance, NALC provide comprehensive resources on establishing a town council.
Consequences for the role of the chair
The transition from a parish council to a town council has significant implications for the role of the chair:
Charter trustees and regalia
When a district council is reorganised into a larger unitary authority, the following considerations apply:
1. Charter trustees:Charter trustees are established to preserve the historic rights and privileges of a town that loses its borough status due to reorganisation. They are responsible for maintaining the town’s ceremonial traditions, including the mayoralty and regalia.
2. Regalia and ceremonial functions: The regalia associated with borough status, such as the mayor’s chain and civic robes, are managed by the charter trustees. These items are used in ceremonial functions to maintain the town’s historical identity.
3. Transition to parish council representation: If the town is now represented by a parish council, the charter trustees ensure continuity of ceremonial functions until the parish council is fully established and capable of taking over these responsibilities.
Act today
SLCC is here to help
The time to act is now. SLCC provides expert guidance, training, and resources to ensure your local council is set up for success.
Contact SLCC today to take the first step in securing local democracy for your community.
For further information or to discuss the report, please email [email protected].
Disclaimer
Please note that whilst SLCC have taken steps to ensure the content of this guide is accurate at the time of compilation, readers should exercise their own due diligence and independent
decision making.
Information contained within the guide is for general information purposes only and is not intended to constitute legal or professional advice.
SLCC make no warranties, representations, undertakings or guarantees, whether express or implied about the content of the guide.