Devolution’s different paces in different places

What will be the impact on local empowerment and support for growth, fromdevolution’s different paces in different places.

Specifically, in my role as Director at People & Places, I wanted to understand the implications for influencing place-based policy and support for delivering growth through local government reorganisation and devolution via a new layer of strategic authorities. So, I took a closer look, area by area.

I focused on the differing timetables for creating Unitary Authorities as an indicator of how to shape the local governance and community empowerment promised by government legislation. I also looked at the varying timetable for the creation and establishment of Combined/Strategic Authorities as the holders of devolved responsibilities and budgets.

Understanding Unitary and Strategic Authorities

Unitary Authorities are a layer of government that unifies the previous two-tier layer of local government typified by County and District Councils. The intent in the Devolution White Paper was for new unitaries of upwards of 500,000 residents to cluster with maybe two neighbouring councils to be part of Combined or Strategic Authorities. The term “Strategic Authority” is simply the Government’s new collective noun for Combined Authorities or other permutations such as Mayoral Authorities, that it is devolving some responsibilities to.

These are the seven, largely place-based, areas of competence which Strategic Authorities will have:

• Transport and local infrastructure
• Skills and employment support
• Housing and strategic planning
• Economic development and regeneration
• Environment and net zero
• Health, wellbeing and public service reform
• Public safety

Timeline for creation of new authorities

Here we provide detail about the timelines for the creation of new Unitary and Strategic Authorities as a way of better understanding the opportunities for influence. There are several required stages that need to be worked through during the reorganisation of local authorities into new unitary authorities.  Below is the expected timetable for those authorities that submitted proposals to government at the end of November 2025.

Unitary Authority Creation

1. Submission of formal unitary proposals (November 2025)
2. Statutory consultation period (Winter-Spring 2026)
3. Decision to implement a proposal (Spring 2026)
4. Making secondary legislation  -the Structural Changes Order (Spring 2026)
5. Transitional authority (2026-27)
6. Election (May 2027)
7. New unitary authority goes live with Vesting Day (April 2028)

Combined Authority Creation

There are only three stages to the seemingly simper process for the creation of a combined or strategic authority:

• Stage 1 Review: a group of councils proposing to establish a Combined Authority must carry out a governance review, including consultation, in order to decide whether or not to proceed.
• Stage 2 Scheme preparation: having decided to proceed, the councils must prepare and publish a scheme for the Combined Authority.
• Stage 3 Order making process: the Secretary of State introduces in Parliament a statutory instrument establishing the Combined Authority.

The government recently made the unexpected announcement that the election of four new regional mayors planned for 2026 would be delayed until 2028. Its justification is that local government reorganisation (LGR) in those regions needs to be fully implemented before mayors take office, and that the extra time for preparation and capacity-building will enable mayors to hit the ground running in 2028.

There are then three stages in the development of strategic authorities:

1. Foundation Strategic Authority: Newly established combined authorities will be known as ‘foundation strategic authorities’. Areas with combined authorities prior to the election of mayors and some areas that are engaged with the Government to form combined authorities already are likely to be the first ‘foundation’ authorities.
2. Mayoral Strategic Authority: By electing a mayor, foundation strategic authorities can become ‘mayoral strategic authorities’. Recently formed combined authorities with mayors will have this status.
3. Established Mayoral Authority: After 18 months from electing a mayor and meeting governance/accountability tests, mayoral authorities can apply for ‘established’ status and receive an ‘integrated funding settlement’.

Different paces in places

As my graphic shows, I identified six different rates of progress for devolution and counted how many areas of the country fell into each. Here’s a summary of my findings grouped into three development stages:

1. DEVOLVED & REORGANISED

A. Established Strategic Authority; 7 areas; no local government reorganisation; extended responsibilities and integrated funding settlement; currently fully operational; e.g. Greater Manchester Combined Authority.

B. Mayoral Strategic Authority; 3 areas; no local government reorganisation; comprehensive responsibilities and funding; operational and eligible for established status within 18 months of formation subject to procedures being in place; e.g. Tees Valley Combined Authority

2. PARTIALLY DEVOLVED OR REORGANISED

C. Mayoral Strategic Authority; 4 areas; proposed local government reorganisation; comprehensive responsibilities and funding; operational though relationships to local authorities in transition until spring 2028; e.g. Cambridgeshire and Peterborough Combined Authority.

D. Foundation Strategic Authority; 3 areas; no further local government reorganisation necessary; partial responsibilities; mayoral elections due in May 2027; e.g. Cheshire and Warrington Combined Authority.

3. INITIATING DEVOLUTION & REORGANISATION

E. Forthcoming Foundation Strategic Authority; 6 areas; proposed local government reorganisation; partial responsibilities and funding; limited operation with local authorities in transition until spring 2028 and mayoral elections now delayed until then in at least 4 areas; e.g. Devon and Torbay Combined County Authority.

F. Proposed Strategic Authority; 11 areas; proposed local government reorganisation; limited responsibilities and funding; early stages of transition with no new responsibilities or funding; new unitary authorities expected to be in place by spring 2028; e.g. Leicestershire Combined Authority.

Implications for local governance and devolved funding

This summary shows that half of areas in England are only at the initial stage of delivering devolution through the creation of Unitary and Strategic Authorities. These areas are unlikely to be fully operational under new devolution arrangements until 2028 at the earliest. A further seven areas only have partial devolution arrangements in place currently as either the new Unitary Authorities or Strategic Authorities have not been created.

Considering the implications of differing timetables for creating Unitary Authorities as an indicator of how to shape the local governance and community empowerment, a positive interpretation is that there is a window of influence in 21 areas through to the elections of new Unitary Authorities in 2027. As for the varying timetable for the creation and establishment of Strategic Authorities, the indication is that responsibilities and delegated budgets will be limited in 20 areas until elections for these bodies in 2027 at the earliest.

Opportunities to shape local goverance and delivery

As we explored in our blog titled, “how local is local“, when the Devolution White Paper was published a year ago, the challenge for local communities is how to shape decisions that have a local impact when devolution to Strategic Authorities is accompanied the creation of more remote Unitary Authorities. We set-out options for improving place-based goverance in an accompanying blog and article in the Journal of Place Management and Development.  Reviewing the timetable for the formation of Unitary Authorities, it seems that aside from relying on national partners to influence legislation, the window of opportunity also varies across England.  Many of the existing Unitary Authorities already have a variation of Local Area Committees in place.

The first opportunity to influence the adoption of more empowered local governance models in prospective new Unitary Authorities has closed with the submission of proposals in November 2025 though there is great value in being familar with what they set-out.  The next opportunity for these areas will be the Government’s Statutory Consultation period in Spring 2026, followed by the formation of a transitional authority running through to elections in May 2026 when you will get to know what the ethos of a new administration might be.

Opportunities to shape local growth priorities

As set-out in our place policy puzzle updates, a  new Local Growth Fund will be established across England from 2026-27 to complete the transition from the U.K. Shared Prosperity Fund (UKSPF). The 2025 Budget confirmed that a £902 million fund over four years will be launched for eleven established in the Midlands and North of England.

All Strategic Authorities are required to prepare Local Growth Plans that provide a long-term 10-year strategic framework for growth in their region. The drafting of these plans and engagement with existing and prospective mayors seems the most unlikely though still uncertain route to influencing policy, probably via Unitary Authorities. They set out ‘agreed priorities’ with Government for where the authority will seek focus its devolved powers and funding to drive productivity and growth. Consultation with stakeholders appears rudimentary and is not required to go down to the community level.  Agreed shared local growth priorities cover areas like transport, innovation and skills, as well as placemaking or community-based priorities.

The Local Government Association is amongst those calling for those places not currently in a strategic authority area or at the ‘foundation’ stage, to receive greater clarity about how and when they can access the Local Growth Fund.

Frontiers of progress for 2026

We’ve taken a closer look at what can be learnt from those devolved English areas that might be considered the ‘frontier of place progress’ for the year ahead. Clustered in a zone stretching from Barnsley to Berwick-on-Tweed, key common themes emerging from our detailed analysis are a focus beyond the expected roles of ‘high streets’ and ways of working that bring together know-how and support from different layers of governance. Our analysis below covers the approaches of Combined, Unitary and Local Authorities in North Yorkshire, South Yorkshire and the North East.

North Yorkshire Town Investment Plans

The York and North Yorkshire Combined Authority and North Yorkshire Council, are perhaps the most systematic and advanced in approach to supporting the evolution of their communities. Together they are currently developing a series of Town Investment Plans as part of a £1.3million programme aimed at helping guide future investment decisions, strengthen communities and support the economic growth of 32 of the county’s towns and service centres.

It’s great to see Selby amongst the first towns to be progressing a plan, including for its station gateway, following the People & Places Partnership’s work to undertake a baseline review of the town centres performance and stakeholders’ perceptions and priorities.  Similarly, I know from serving as vice chair of the regional small towns network in the days of Yorkshire Forward, that there is an established tradition of partnership working in North Yorkshire towns.

The depth and scope of the plans will vary to reflect the specific characteristics of each town and service centre, but they will be built around a framework of key themes, including:  enabling enterprise; sustainable settlements; protecting heritage and promoting growth; resilient and improving social and personal well-being.

The plan development process aims to involve significant engagement with key stakeholders, business networks and community organisations to ensure a collaborative approach to identifying the investment needs of each town or key service.

The Towns Investment Plan approach comes on the back of the Vibrant and Sustainable High Streets Fundmanaged by the Combined Authority and which has had at its heart a focus on local partnerships comprising of groups of businesses and community organisations working collectively towards a shared vision for their town centre.

North Yorkshire benefits from the stability and government support that comes from the formation of the Unitary Authority in 2023 and the Combined Authority a year later.

Connected, vibrant places across South Yorkshire

South Yorkshire’s growth plans have a strong, place-based focus that connects opportunities created in Sheffield with wider place-making in towns and communities. South Yorkshire’s Growth Plan for 2025-2035 includes a focus on connected, vibrant places as one of its four key missions.  It recognises that the region’s economic ambitions cannot be achieved without strengthening the fabric its places through revitalisation that creates “neighbourhoods that are attractive, affordable and well-used, and centres that are hubs of culture, commerce and community”.

Strategic objectives for connected, vibrant places

A. Our urban areas are well connected, attracting private investment, as a result of:

• a reliable, integrated and sustainable transport system
• a well-connected region
• housing growth in our urban centres
• commercial development and institutional investment
• a strong core city and urban centres working together in a single economy.

B. Our residents are proud to call our towns and cities home and people want to visit through:

• a strong cultural, leisure and visitor economy offer
• vibrant high streets, town and city centres.
• quality, sustainable and affordable housing
• safe and vibrant neighbourhoods, with strong community bonds

Priority projects include replicating and expanding successful approaches like Barnsley’s innovative ‘Health on the High Street’ project that boosts community wellbeing and town centre regeneration.  The first phase created an NHS Community Diagnostic Centre and the next phase will turn the first floor of the town’s shopping centre into a health and wellbeing hub.

South Yorkshire benefits from the additional responsibilities and resources available to an ‘established’ Mayoral Combined Authority.

North East High Streets Commission

The North East Combined Authority has recently created a High Streets Commission comprising regional and national experts, businesses and local community representatives. Their 12 month mission is to determine what incentives, initiatives and housing can be built around high streets and how a reliable public transport network can help them to thrive. In addition to a £150,000 budget to operate the Commission, the constituent local authorities have each been invited to submit pilot proposals for locations that they have identified as a priority for intervention, using criteria that included:

• A focus on the foundational economy.
• Prioritisation of community-led solutions
• Ensuring that strong community engagement is embedded in plans
• Coordinating with residential opportunities
• Recognising the importance of heritage / culture
• Supporting redevelopment and reuse of empty properties
• Improving active travel options
• Integration of coherent public transport services
• Considering biodiversity and climate change

This includes South Shields town centre, for example, where it is hoped the relocation of South Tyneside Colleage will acts as a catalyst for wider revitalisation.

From four years serving on a similar task force in the West Midlands, People & Places’ Director, Chris Wade, is aware of the challenges and benefits of bringing different disciplines together around ‘live’ case studies, including local authorities together to co-creating transferable models.  The key is that this is not just seen as a funding programme though that there is genuine learning facilitated by testing new approaches, measuring impacts and good engagement between the layers of combined authority, council and local governance. From our baseline recovery plans across five North Tyneside communities, we are aware of the different challenges and adaptive responses necessary.

The North East benefits from the support available to an established Combined Authority and stability amongst its participant Local Authorities.

Learning points between regions

Looking beyond expected ‘high street’ roles: Joining-up issues in ways that draws-on a range of skills and creates multi-purpose neighbourhood, town and city centres at the heart of wider communities. In the examples shared here, travel to town, health and education feature as part of a wider approach to how we use and improve town centres.

Bringing together know-how and layers of governance: Combining strategic aims, specialist guidance and stakeholder participation across the layers of Strategic, Unitary or existing Local Authorities in ways that coordinate delivery. Examples here show different approaches to connecting Combined Authority strategy to engagement, delivery and learning at the town level.

Further reading

We suggest that this blog is read in conjunction with our parallel post on options for improving place-based goverance and accompanying article in the Journal of Place Management and Development.

You may also find it informative to read our recent posts on boosting pride in place and ‘creating a partnership behind a plan‘.