Devolution and Local Government Reorganisation

Big changes are on the horizon for councils in Essex through the Devolution and Local Government Reorganisation programmes.

This page is a hub for information about those programmes, explaining what they are and how it might affect you.

Please do check back for information, and use the links on the side of this page for additional details too, such as the Local Government Association topic hub.

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What is Devolution?

What is Local Government Reorganisation?

What does this mean for me as a resident?

What is the expected timeline?

What is the Tendring District Council position?

What is Devolution?

Devolution involves setting up a new “combined authority” (CA) for Greater Essex. The CA would be led by representatives of Essex County Council and the unitary councils of Thurrock and Southend.

One option for new combined authorities is to also include a new directly elected Mayor. The CA (with the Mayor, if there is one) takes on powers and budget ‘devolved’ to it by central government, for example over skills funding.

The Combined Authority may also be referred to as a Strategic Authority.

Devolution Priority Programme

The government held a consultation on the Devolution Priority Programme between February and April 2025, seeking views on the proposal to form a mayoral combined county authority in Greater Essex, and in other areas across the country confirmed to join the priority programme.

This consultation did not cover LGR proposals as this is a separate process.

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What is Local Government Reorganisation (LGR)?

Local Government Reorganisation (LGR) - sometimes referred to as Local Government Reform - or unitarisation, means replacing the current two-tier system (county and district councils) with single-tier authorities.

In Essex, this would mean setting up new unitary councils, which would have the responsibilities of both Essex County Council and district councils (like Tendring) in one authority - except any powers that go up the Mayor or Combined Authority under Devolution. Examples of existing unitary councils are Thurrock and Southend.

Who would Tendring be combined with if this goes ahead?

At this stage nothing is certain. However, due to our only shared border being with Colchester (except across the River Stour) we would expect to be part of a wider authority with Colchester City Council. We have also committed to working with Braintree District Council – these three (us, Colchester and Braintree) have a history of joint working, and meet the benchmark population size for a new unitary. This does not rule out other local councils also joining in, depending upon how Greater Essex as a whole is split up.
Options for what unitary Tendring could be part of will be detailed in the September submission to government and it will ultimately be government’s decision. We’ll continue working with all councils in Greater Essex so we can understand the evidence base for any proposed changes to Council structures, to maximise the benefits and so it delivers the best outcome for our residents and businesses.

Who would make up the Strategic Authority if LGR happens?

Once any new unitaries are in place – whether that be two, three, four or five across Essex – these would be the constituent members of the Strategic Authority (as Essex County Council, Thurrock Council and Southend City Council would no longer exist).

Is Tendring District Council continuing to deliver services at the same time as shaping any new organisation?

The process of LGR is complex and will require careful planning to ensure a smooth transition. We will continue to deliver services while shaping our new organisation. We recognise how vital it is to maintain service continuity to meet the needs of our community.

Are there benefits to LGR?

The government White Paper sets out how LGR can bring opportunities around being a central reference point for public services, improved value for money and efficiency, boost economic growth, provide more efficient council structures around communities and governance, scale in service delivery and having a stronger voice to central government.
It is recognised that there are concerns about a loss of localism from LGR, with a missing link to communities. However, this can be addressed through town and parish councils.

What happens to the debts some councils have?

This is something that is being discussed across Greater Essex councils – so far the government have confirmed there would be no write off of debt from central government and it would be for the new unitaries to deal with.

Who makes the decision on the final shape?

It is central government (the Secretary of State for Housing, Communities and Local Government) who will make the decision on whether we go ahead with Devolution and LGR. The Secretary of State will also decide what option for the number of unitaries and the boundaries of those unitaries is taken.
However, engagement is being carried out with residents, stakeholders, parish and town councils, businesses and so on.

What is a Shadow Authority and Vesting Day?

A Shadow Authority is effectively a Council with very limited powers which exists as the precursor to the new unitary council. Councillors are elected to the Shadow Authority in the same way as they would be elected to a Council, through a free and fair election, however their role is restricted to making decisions that are necessary to ensure that new Council is properly established and able to make decisions from its first day of operation, 'Vesting Day' - when the new authorities go live properly in legal terms. It is when the authority becomes a full legal entity with all the powers that other Councils have. The Shadow Authority is in place for around a year prior to Vesting Day.
The Shadow Authority will work in a similar way to a Council in that there will be meetings of all the Councillors on the Shadow Authority, equivalent to Full Council. The Shadow Authority will also appoint a Shadow Executive, who will be the equivalent of Cabinet. The Shadow Authority will agree the Constitution for the new Council, the budget for its first year of operation and will also appoint Statutory Officers (Head of Paid Service, Section 151 Officer and Monitoring Officer) and other senior officers.
The Shadow Authority will not be able to award contracts or take other decisions, such as Planning, Licensing and so on, this activity will remain with the legacy Councils (such as Tendring District Council) until Vesting Day when the Shadow Authority becomes a fully recognised Council.
However, during the year of operation the Shadow Authority is likely to be required to give its approval to some decisions that Tendring District Council will be making that will impact the new authority. This would include the award of new contracts, any significant spending, and disposal of assets.

What does this mean for me as a resident in Tendring?

We understand that this period of uncertainty could be unsettling.

While we may not have all the answers right now, please be assured that this is a medium-term process, with the White Paper indicating a timeline extending to 2028.

The aim of both Devolution and LGR is that there will be a smooth transition with little or no need for resident and local business action. Once the transition occurs you may see changes in websites, email addresses and possibly bank details - along with a new name at the top of your council tax or business rates bill.

This is also an opportunity with Local Government Reorganisation to improve services and the way they are delivered to local residents.

What will happen to my local councillor?

Your local councillors will continue to represent you until the new authority comes into being; and that will have elections for you to vote for who represents you on the new council.

Will this affect my council tax or NNDR (business rates) bill?

As is the case now, it will be up to each new local authority to determine how much it charges for council tax; if a new unitary comes in, that will set the charge (precept), in place of Essex County Council and Tendring District Council in this area. Council tax bills from this time will have the new council name on it.
If a new mayor comes in to head up a Combined Authority for Greater Essex, it is possible they will have powers to also set a council tax charge. In addition, they will become the Police and Crime Commissioner and be responsible for setting the policing precept.
NNDR (business rates) are set nationally; but the billing, done by local councils (such as Tendring District Council) would be carried out by the new unitary authority.

I have heard of a Community Governance Review (CGR) for Clacton - is this related?

Tendring District Council had already begun conducting a Community Governance Review (CGR) for the unparished areas of the district - Clacton, Holland-on-Sea and Jaywick Sands. This is to establish whether there is support for a new town council for some or all of these areas, which currently do not have one.
It is a separate process to Devolution and LGR; but a key consideration is whether having a town council provides a more local level of representation and services which a new, larger and more geographically diverse unitary council may not provide. (It should be noted the Government has asked councils to outline in final proposals their plans for neighbourhood-based governance, the impact on parish councils, and the role of formal neighbourhood partnerships and neighbourhood Area Committees.
To find out more about CGR, visit the dedicated page on this website.

How will I be kept up to date?

We will continue to update the local community through our usual channels; such as by updating this web page, through our social media platforms and our e-newsletter.

Will this impact upon council staff?

Regardless of the end configurations, there will still be a need for local government staff to provide essential services to our community; and we would expect the vast majority of staff to simply transfer across to any new authority under TUPE (Transfer of Undertakings (Protection of Employment)) regulations.

Why now, and what is the expected timeline?

Local Government Reorganisation timeline

The government published a White Paper – a piece of policy – on English Devolution on 16 December 2024, setting out its proposals. You can read the full White Paper from the quick links on the side of this page.

It set out an ambition for all areas of England to have a Strategic Authority, and an expectation that all two tier areas (such as ours) develop proposals for LGR.

On 10 January 2025 Essex County Council voted to submit an expression of interest for the Devolution Priority Programme, and to support Local Government Reorganisation. Southend-on-Sea and Thurrock Councils did the same.

The government announced on 5 February 2025 that Essex was included within the priority programme; this is for Devolution, LGR, and that Essex County Council elections scheduled for May 2025 would be postponed for a year.

The broad timeline – bearing in mind this is early in the process, and is not confirmed yet – is as follows:

February to April 2025: Consultation about Devolution and Strategic Authority

21 March 2025: Interim Plan for LGR in Greater Essex submitted to Government (see quick links on the side of this page)

2 May 2025: Feedback received from Government on the Interim Plan (see quick links on the side of this page)

26 September 2025: Full plans for LGR to be submitted to Government.

Autumn 2025: Shadow Combined Authority set up to enable transition to begin (Devolution)

1 April 2026: New Strategic Authority officially comes into being for Greater Essex (Devolution)

May 2026: Elections to the office of Mayor of the Strategic Authority; and possibly elections to new shadow Unitary Councils

1 April 2027: Possibly new Unitary Authorities come into being

May 2027: Elections to shadow new Unitary Councils

1 April 2028: New Unitary Authorities come into being - Tendring District Council would no longer exist at this point.

At this stage we do not know if LGR in Greater Essex would be in the 2026-27 or 2027-28 timeline - early indications are the latter - and in any event the timeline is not set in stone.

What is the Tendring District Council position?

The council has broadly welcomed Devolution as bringing powers and funding to a more local level.

On LGR our organisational position is that we want to make sure Tendring – as a district and as a council with all of the staff and services that entails – is in the strongest possible place for whatever may happen. We will prepare for all eventualities.

We have committed to working particularly closely with Colchester City Council – the only council we share a border with, and so we would be paired with for LGR in any configuration – and also Braintree District Council on preparing for such eventualities. North East Essex is a functional economic area and, crucially, we have a strong track record of successful delivery between the three councils and Essex County Council – and it meets the benchmark population size.

In the meantime we will continue to deliver our usual high quality services and projects; recognising that as new potential projects come along we will need to consider if it is the right thing to do considering LGR. We will also need to factor in the time and capacity Devolution and LGR will take up on staff and councillors, and so some things may need to be re-prioritised.

Through the Tendring District Association of Local Councils (TDALC) we are trying to keep Town and Parish Councils in the District aware of the process, this has been supplemented by individual sessions with Brightlingsea, Frinton and Walton, Harwich and Manningtree Town Councils as well as with voluntary and community groups through the Tendring Together events organised by CVS Tendring.