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Council received and considered the report from the Chief Executive Officer.
The report outlined that the Minister of State for Local Government and English Devolution hds invited Norfolk’s councils to submit a Final Proposal for local government reorganisation (LGR) in Norfolk by 26 September 2025. Broadland District Council, Breckland District Council, The Borough Council of King’s Lynn and West Norfolk, Great Yarmouth Borough Council, North Norfolk District Council and Norwich City Council have prepared a Final Proposal (appended to the agenda report as Annexes 1 and 2) for a three unitary model for LGR in Norfolk.
This report summarises the key milestones and development work to date, the current position and next steps. The Final Proposal has been developed collaboratively, under the oversight of the respective Leaders and Chief Executives and in line with the Government’s guidance.
The decision as to submission of a Final Proposal on behalf of Great Yarmouth Borough Council is a decision of the Executive. The Leader has chosen to make the decision himself having regard to all the information available to him. Council’s role is as a consultee making a non-binding recommendation to the Leader.
The Leader of the Council dialled into the meeting and addressed Council as follows:-
This is a significant evening for our council and our borough and I wish I could be there in person with you.
Tonight, I want to introduce a paper from six councils in Norfolk on the “Strength of Three”. In truth, this is about the strength of this council; Great Yarmouth Borough Council. None of us ever wished to be here debating the future of our council in this way. We are proud to represent the Council and to work for our residents each and every day. But we are here, and our duty is clear tonight: to focus on what is best for the people of the borough of Great Yarmouth.
There has been much debate and disagreement as all Norfolk councils search for what they believe is the right answer. Change is never easy, but we must seek to build on the strengths of our council and our community. What is before us tonight is the result of months of partnership and dialogue not just within this council, but across all six councils working under the Future Norfolk banner.
Tonight, we must show unity. We must show the strength of this council by facing the facts, being honest about the challenges and opportunities ahead and working together for the good of our residents.
These proposals, I believe, offer the best way forward for our borough and our residents. This is about the future of Great Yarmouth and the future of local government in Norfolk. It is about Future Norfolk.
As you know, the Government has set out its intention to reorganise local government across the UK, including Norfolk. This is not a process any of us have taken lightly.
Throughout it all, the other council leaders and I wanted to listen. You all wanted to listen too. That is why we undertook to collaborate on the Future Norfolk work and why all councillors knew what it was about and what it meant so they could engage with their ward residents as well.
Across Norfolk, nearly 5,000 people shared their views and their feedback has been invaluable. They reminded us of what matters most: strong local services, value for money and decisions made with clarity and respect for Norfolk’s unique character. They clearly wanted those decisions to be made by people who know and understand their area, people like every one of you. That is why local leadership and accountability remain at the heart of these proposals.
We have also listened carefully to the people who work here, our staff. Sheila and I have consistently updated and met with them, as you know they care deeply about the services we provide to the people who call Great Yarmouth home. I am grateful to them for their understanding, their professionalism and their commitment during this period of uncertainty. I believe they have been an example to us all.
During this time, we have had a members’ working group, whose passion and deep understanding of the borough has been invaluable. Their message to me was clear -challenge ideas, refine options until they work and always keep what is best for Great Yarmouth in view. I thank them for their contributions and time.
Throughout this process, the aim was not to redraw maps for the sake of it, but to meet the Government’s criteria and, above all, to put residents first wherever they live. To do this, our guiding principles were People. Place. Progress.
People, because decisions made closer to communities, with clear accountability and genuine dialogue, deliver services that work and achieve real results for residents.
Place, because Norfolk’s coast, rural areas and urban centres have distinct needs, and a one-size-fits-all approach risks levelling down what matters locally.
Progress, because joined-up services do not just adapt to changing needs; they provide quicker solutions, simpler routes and better value for public money.
Tonight, we are the last of Norfolk’s councils to meet and debate these proposals. The plan is that tomorrow, if all councils agree, all six will submit them to Government, because we believe they are in the best interests of the people of Norfolk and, I hope you agree tonight, the people of Great Yarmouth.
When we debate, I believe our focus should be on outcomes people will notice over time: clearer accountability, more joined-up services and value for money that stands the test of time.
For me, none of this process is about rhetoric or council politics. It is about practical, ambitious change; change that is rooted in evidence and shaped by what our residents have told us they want.
The submissions made, as I said, will be followed by a Government-led public consultation, maybe in November, that will give everyone the opportunity to have their say before any final decisions are made. When that moment comes, it is our duty to maintain our focus and keep any debate centred on what is best for Norfolk and our residents.
Norfolk is at its best when we work together, and that spirit is even stronger in Great Yarmouth. Let’s move forward together, showing our strength by supporting these proposals and putting our residents first.
Councillor Flaxman-Taylor proposed the following motion:-
When you look at the question of whether to have a single council or three, it may seem that a single authority could be simpler. But simplicity on paper is not the same as effectiveness in practice. Our communities are varied, each with its own needs, priorities and identities. A one-size fits all model risks being too remote, too centralised and unable to reflect the unique character of each area.
The three council model means strong local votes. Each council can focus on the issues that matter most to its residents. Decisions need to be made closer to the people that they affect and councillors can remain accountable to the communities they serve. In a large single authority, local issues can easily get lost in bureaucracy. Three councils ensure that local priorities remain at the forefront and they respond more quickly to local concerns.
Finally, people are proud of where they come from. Each of our three areas has its own history, culture and sense of belonging.By maintaining three councils, we respect and preserve those identities, rather than diluting them under a single, overarching authority.
In short, three councils means stronger representation, fairer outcomes and a system that reflects who we are as a community. This is why I believe this model is the right choice, not just for today, but for the future we should be building together as three.
Councillor Wainwright seconded the motion as follows:-
I am so happy to second the two recommendations on page one of the agenda report and acknowledge the work done by the Leader, the CEO, Section 151 Officer, Simon Best, James Dunne, Sammy Wintle and all officers and departments of the Council and Inner Circle, who helped us to get to this point this evening.
The cross party working group has worked well and Members have been kept informed through regular briefings and updates from the Leader.
At our Council meeting of the 20 March 2025, LGR was well debated, so I do not think that it is necessary to repeat this debate this evening.The document before us tonight cannot be changed and Members are being asked to review and endorse the model set out in annexes 1 & 2 and make a non-binding recommendation to the Leader.
The Leader will make the ultimate decision on the final proposal and in conjunction with the CEO, will direct the finalisation and submission of the final proposal to the Minister of State for Local Government and English Devolution, who will make the final decision in January 2026, after a period of consultation.
Of all the five councils who have already met and voted on the three unitary model proposals, all have voted in favour:-
Breckland - Conservative run
West Norfolk - Coalition
Broadland - Coalition
Norwich - Labour run
North Norfolk - Lib Dem run
I hope Great Yarmouth will do the same this evening.
I am pleased to see that protecting Ceremonial Status is covered on pages 109 & 110 of the report which I know is a concern to Members.
The three unitary model will hopefully see Great Yarmouth at the heart of an East Norfolk Unitary Council. This will create councils of the right size and an East Norfolk Unitary putting Great Yarmouth residents first and a council best served to represent their local communities.
Councillor P Carpenter addressed Council and reported that she was concerned for the children of this borough and the county of Norfolk.The disruption of care for children via Children's Social Services could result in a delay in service delivery which could affect the safeguarding of vulnerable children. This could result from cross-boundary case transfers.
The service delivery is not easy to maintain due to the economy of scale. A strong workforce is required when dealing with difficult scenario's in regard to the fostering and adoption of children and Councillor P Carpenter did not want the current system which worked extremely well to change so she could not support this proposal.
Councillor Candon addressed Council as follows:-
This has been one of the most difficult decisions I have had to make as a councillor, and many know of the causes for concern I have expressed before on this topic and the ramifications it could have on people in Great Yarmouth.
Over the past months, I have worked with colleagues across the chamber, officers, and partners to shape a proposal that would protect our residents and our borough as best as possible. What we have before us tonight is, I believe, the best out of a bad bunch of options.
So let me be clear, I will be voting against this proposal.
Local Government reorganisation, as it stands, does not deliver for Great Yarmouth. It does not deliver for our residents. Instead of empowering our communities, it risks creating more bigger, distant bureaucracies that just cost more money. Instead of strengthening local democracy, it risks weakening the voice of towns like ours.
I take my duty seriously, as do many here. We have worked hard to make sure that, if the council is forced down this path by the Labour government, we have the strongest, most workable option on the table. But the truth is this; the best outcome for residents is that local government reorganisation does not happen at all.
What our council really need is not another round of expensive structural change. We need true devolution with powers and responsibilities that mean something and the proper funding to go with them. Our residents deserve local services that are funded fairly, not more uncertainty and disruption.
So tonight, with a heavy heart but a clear conscious, I will vote against this proposal because sometimes my duty is not just to manage change it is to stand up for what is right for the people of Great Yarmouth.
Councillor Wells reported that he did not fear the concerns for the safeguarding of children as alluded to by Councillor P Carpenter as all ward councillors represented the needs of children who lived in their wards. Councillor Wells did not believe that the Council should have taken the 3 unitary model forward in the first place and should have refused from the get-go. Councillor Wells reported that the proposed 3 unitary model with a Mayor covering Norfolk & Suffolk was the best of a bad bunch but that he could not support the proposal and would vote against the proposal.
Councillor A Wright reported that the report before Council this evening was a fait accompl. He thanked officers, members and the consultants for the enormous amount of work which had been undertaken in a very tight time frame to produce the documentation to be submitted to government. Councillors had been talking about the introduction of unitary authorities for the last 30 to 40 years and although he was aware that people did not like change, the last change to local government structures had taken place in 1974.
Local government funding had been squeezed and squeezed and the option for a 3 unitary system was the best option available to the Council to ensure that its local residents remained central to the decision making process. He urged all members to vote unanimously in favour of the proposal, there would always be concerns but it would not be right to not support the proposal at the last minute which had had cross party working and support from the outset.
Councillor Newcombe reiterated that the proposal had received member cross party support and that the 3 unitary model would not take away our voices as it had the welfare of all of its residents at its centre.
Councillor Plant thanked all those concerned in the production of the proposal. Government had not indicated that they would give extra funding to local authorities and Norfolk County Council needed to find £30m pounds to plug its funding gap. The unitary council would start with a deficit of some £60m+ but as a result of Devolution, the Mayor of Norfolk & Suffolk would come with funding of £650m over a 30 year period.
Residents were not worried about which model their local council was as long as it delivered services such as emptying bins and repairing roads and if the Council did not vote to approve the 3 unitary model this evening, Members must ask themselves where is future funding for LA's going to come from to maintain essential services and Members should remember that we are not just voting for ourselves but for the residents of Norfolk.
Councillor Jeal reported that he must be the longest serving councillor on Council and that he had joined the Fire Service in 1974. The Fire Service had undergone 6 structure changes in the last 30 years which must have cost the taxpayers a fortune and the proposal before Council this evening was the first change proposed in 50 years. he had absolute faith that the proposal before Council which had cross party support and would have ironed out any problems and it would sadden him if all Councillors did not support the motion this evening.
Proposer: Councillor Flaxman-Taylor
Seconder: Councillor Wainwright
That Council:-
(1) Notes the content of this report and its annexes; and
(2) Endorses and recommends to the Leader the Final Proposal for a three-unitary model for local government reorganisation in Norfolk as set out in Annexes 1 and 2.
CARRIED.