A special meeting of Breckland District Council was scheduled to take place on 18 September 2025 to discuss and endorse a final proposal for local government reorganisation in Norfolk. The report pack included a recommendation to endorse a three-unitary model and delegate authority to the Chief Executive Officer to submit the proposal to the Secretary of State for Housing, Communities and Local Government, with any non-material changes. The meeting was also scheduled to address any urgent items at the discretion of Councillor Samantha Taylor, Chairman of the Council.

Local Government Reorganisation in Norfolk

The main item for discussion was the final proposal for local government reorganisation (LGR) in Norfolk. Councillor Sam Chapman-Allen, Leader of the Council, and Councillor Bill Borrett, Executive Member for Devolution & Local Government Reorganisation, submitted a report recommending that the council endorse the final proposal for a three-unitary model.

The report pack stated that on 20 March 2025, Breckland Council agreed to support the submission of an interim plan to the government for unitarised local government in Norfolk, with the expectation that a three-unitary model would be the optimal solution for residents, communities, and businesses. The three new unitary councils would be appropriately sized and close enough to their communities to understand and reflect local needs, priorities, and opportunities, ensuring high-quality and sustainable services in the long term.

The report pack noted that the Minister of State for Local Government and English Devolution had written to the Chief Executives of Norfolk County Council and the seven district, borough, and city councils on 7 May 2025, inviting final proposals for LGR by 26 September 2025.

The report pack stated that Breckland District Council, Broadland District Council, The Borough Council of King's Lynn and West Norfolk, Great Yarmouth Borough Council, North Norfolk District Council and Norwich City Council had been collaborating on the best approach, with the support of Inner Circle Consulting as a Strategic Partner.

The report pack stated that the final proposal integrates data from all Norfolk councils, operational and organisational commentary from subject matter experts within the six districts, insights from communities and strategic stakeholders, and best practice from unitarisation processes elsewhere.

The report pack stated that the views of residents, businesses and visitors had been integral to the development of the full submission, gathered from the Future Norfolk survey (with over 5,400 responses) and in-person engagement sessions.

The report pack stated that the proposal sets out:

A model which creates long-term, financially sustainable authorities, with an estimated £29m of savings made by Year 1, rising to £61m by Year 4, at which point the cumulative savings will outweigh any upfront investment.

The report pack stated that the proposal allows for residents to continue to have an active interaction with their council based locally, and with strong member representation.

The report pack stated that each council could only make one final proposal for unitary local government across the whole of Norfolk, and that it was anticipated that submissions would be made for a two-unitary Norfolk (on behalf of South Norfolk District Council) and a one-unitary Norfolk (on behalf of Norfolk County Council).

The report pack stated that the invitation from the Minister invited Councils to submit proposals for single tier local Government in line powers conferred through the Local Government and Public Involvement in Health Act 2007¹.

The report pack stated that the subsequent stages in the LGR process were: statutory consultation on final proposals; decision to implement a proposal; making secondary legislation; transition period; and new unitary authorities go live.

The report pack presented two options:

• To accept and endorse the Final Proposal for a three-unitary model for LGR Norfolk, and delegates to the Chief Executive Officer in consultation with the Leader, the authority to make any necessary non-material amendments to the Final Proposal and submit the Final Proposal to the Secretary of State for Housing, Communities and Local Government in accordance with the Government's prescribed process.
• Do nothing. Not endorsing the proposals.

The report pack recommended the first option, stating that endorsing the Final Proposal for a three-unitary model would ensure that Breckland Council would accept and submit the full proposal to the Minister alongside the five other partner district, borough and city councils in Norfolk, voicing Breckland's support for the positive vision for the future of Norfolk.

The report pack included as appendices: an unmodified submission; and a modified submission made up of the following attached documents: Norfolk LGR: A Proposal for a Three Unitary Model for Norfolk; The Proposal for West Norfolk; The Proposal for East Norfolk; The Proposal for Greater Norwich; and supporting appendices.

The report pack stated that the partnership of six Norfolk district councils (Breckland, Broadland, Great Yarmouth, Kings Lynn and West Norfolk, North Norfolk and Norwich City) jointly and severally submit proposals under the Local Government and Public Involvement in Health Act 2007¹.

The report pack stated that the specific modification being sought was that:

The boundaries of the 'Norwich' unitary set out above are extended to encompass the true economic geography of Greater Norwich, Civil Parishes of: Colney, Cringleford, Keswick and Intwood, Easton, Great Melton,Marlingford and Colton, Bawburgh, Hethersett, Little Melton, Costessey, Caistor St Edmunds & Bixley, Framingham Earl, Framingham Pigot, Poringland, Trowse with Newton, Kirby Bedon, Blofield, Hemblington, Brundall, Postwick with Witton, Drayton North, Drayton South, Honingham, Ringland, Hellesdon, Horsford, Old Catton, Sprowston West, Great & Little Plumbstead, Beeston St Andrew, Horsham & Newton St Faiths, Spixworth, Sprowston Central, Sprowston East, Taverham North, Taverham South, Thorpe St Andrew, Rackheath, and Salhouse.

The boundaries of the 'West' unitary set out above are extended to encompass the Civil Parishes of: Deopham & Hackford, Hingham, Barford, Barnham Broom, Brandon Parva, Kimberly & Carleton Forehoe, Morley, Wicklewood, and Wramplingham.

The report pack stated that the submission was built from the fundamental belief and understanding that:

Norfolk is not a single homogeneous area. With a population and geographic size vastly greater than almost every other unitary authority in the country, it does not lend itself to being supported through a large and remote single Council.

The City of Norwich is an economic driving force and powerhouse for the wider region, and unitary status focused on Norwich could unlock its significant further potential.

There are distinct geographies across the County, based on historic urban centres, coastal and rural identities, and economies. These distinctions help form the basis of natural areas of local government and governance.

The cornerstone of effective local government is its locality, and the ability for residents to access local services and democracy locally.

Status quo is unsustainable in public service delivery. Effective public service reform is most effectively delivered at a local level, with services tailored to neighbourhood need and focused on partnership and prevention.

Devolution, and the success of the future Mayor of Norfolk and Suffolk, is best supported by multiple strong unitary Councils aligned to distinct local economic geographies, and working in partnership with the Mayor to provide on the ground delivery for housing and economic growth – as exemplified in successful established Strategic Authorities across the Country.

The report pack stated that the three new Norfolk Unitary Councils would be: West (Area 1), Norwich (Area 2), and East (Area 3).

The report pack stated that the three-unitary model creates a single tier of local government across the whole of Norfolk, based around real geographies that map closely to existing economic areas: in particular the City of Norwich, Kings Lynn and Great Yarmouth, incorporating rural and urban areas and the coast.

The report pack stated that the three proposed authorities are within comparable bounds to other authorities nationally.

The report pack stated that the design and delivery of public services around specific local needs and demands is central to the three-unitary proposal.

The report pack stated that under the three-unitary model, unitaries will better reflect and extend residents lived experiences and their understanding and sense of 'place' and identity.

The report pack stated that the three-unitary model can realise and combine the benefits and impact of the Strategic Authority operating in areas such as planning and transport across Norfolk and Suffolk with responsive, locally focused authorities delivering tailored public services, creating a balanced and democratically accountable power dynamic and ensuring a voice for community interests and local voices.

The report pack stated that the three unitary approach maintains locally accessible democratic accountability and decision-making, close to those who benefit and reflective of local needs and opportunities.

The report pack stated that the preceding proposals are submitted following the invitation and the terms of section 2 of the Act. They follow a considerable amount of work completed within our partnership and with our partners. Pursuant to the Act, in particular section 7, the Secretary of State can, by order, implement proposals with modifications.

The report pack stated that the most effective way to deliver a new Greater Norwich Unitary, which addresses the historic under-bounding, is to form it of the key areas adjacent to the City where much new housing and economic growth is proposed, thereby supporting its long-term and sustainable growth and eliminating the democratic deficit which sees residents in the suburbs excluded from decisions within the city's current boundaries.

The report pack stated that the significant downside of a Principal Area Boundary Review (PABR) approach would be the substantially increased transition and service disruption time, alongside the significantly – and unnecessary – increased costs to implement.

The report pack included a document titled Local Government Reorganisation: A Proposal for a Three Unitary Model for Norfolk. This document stated that the government's Local Government Reorganisation (LGR) agenda represents the biggest opportunity to optimise local service delivery in over 50 years. It stated that the proposal sets out a collective vision for the future of local government in Norfolk: The Strength of Three, built around creating three new unitary councils.

The report pack included a document titled The Proposal for West Norfolk. This document stated that the reorganisation of local government in West Norfolk presents a unique and transformative opportunity to deliver reform, renewal, and innovation in how services are provided to the community. This document stated that the new structure aims to enhance local governance, improve service delivery, and drive economic growth.

The report pack included a document titled The Proposal for East Norfolk. This document stated that the proposal for the reorganisation of local government in East Norfolk presents a once-in-a-generation opportunity to deliver reform, renewal, and innovation in how services are provided to the communities. This document stated that the proposal is to create a single unitary authority that will enhance service delivery, improve financial resilience, and support sustainable growth across the area.