Turning Plans into Progress – Practical Steps for LGR Implementation Planning

2nd December 2025

by Craig Willis

With high-level plans submitted and the commitment to local government reorganisation (LGR) underway, English councils now face the critical challenge of turning vision into reality – and beginning their implementation planning journey. The transition from multiple authorities into a single, streamlined entity requires strategic foresight – and a practical, methodical approach to service integration and transformation.

To support councils in this journey, we recommend starting with a structured reference model. Based on a comprehensive list of services and functions which gives those leading LGR a practical foundation for planning, prioritisation and execution.

This five-step guide shows how councils can go from LGR planning to action. It gives a clear structure for effective LGR implementation planning – using structured models and digital tools to build alignment, prioritise effort and communicate progress.

Step 1: Establish reference model for implementation planning

The first step is to build a reference model – or adopt one like our Local Government Process Reference Model. Think of this model as a blueprint – listing all services currently offered across the councils involved in the reorganisation. By using a standardised framework, councils can:

1. Catalogue existing services across all participating authorities
2. Identify overlaps, gaps and inconsistencies in service provision
3. Create a shared language and understanding of functions and processes.

But this reference model isn’t just a list. It’s a strategic tool that enables councils to visualise the full scope of their operations and begin aligning them. Establishing this foundation is essential for any successful LGR implementation plan (and wider implementation planning activity), helping to inform the sequencing of transformation and the technology that underpins it.

Step 2: Map services and identify gaps

Once the high-level reference model has been established, councils should begin assessing their services against it. Our Local Government Reference Model makes that easier and includes a comprehensive list of all local authority services. The next step involves reviewing the full list of services, removing any that aren’t relevant and adding any that are missing.

Next, perform a high-level review of the services including:

1. Tagging each service with relevant metadata, including:

1. the systems currently in use
2. he roles and teams responsible and a
3. any known dependencies or integrations.

1. Highlighting gaps where services are missing or duplicated.
2. Documenting variations in how similar services are delivered across councils.

This exercise provides clarity on the current state and sets the stage for informed decision-making. It also helps identify areas where harmonisation is straightforward, versus those requiring more complex transformation. It also gives early insight needed for effective service integration planning during LGR.

“This council service mapping activity gives leaders visibility into dependencies and pain points, creating a clear picture for the next phase of integration.”

Craig Willis

Head of Client Solutions Process mapping, Netcall

This early visibility helps councils prioritise with confidence and build a shared understanding across teams. At this stage, many councils also start exploring enabling technologies such as process mapping, automation and case management tools – setting the groundwork for future integration using platforms like Liberty.

Step 3: Prioritise services to build your LGR implementation plan

Armed with the initial overview of the services, the team can now start to prioritise the work – which becomes a critical stage in structured LGR implementation planning. Not all services need to be merged immediately, so councils should prioritise based on:

1. Criticality to residents and businesses
2. Operational complexity and risk
3. Dependencies on other services or systems
4. Potential for quick wins or early success stories.

Using the reference model, councils can visualise dependencies between services and functions, helping to sequence the work logically. For example, merging customer contact services may depend on aligning CRM, case management and contact centre systems first.

This early focus on high-impact service integration laid the groundwork for further automation and process improvement through case management in Citizen Hub and low-code development in Liberty Create. The result was faster service delivery, measurable savings and a sustainable foundation for ongoing reform.

Step 4: Use generic reference processes to accelerate change

To avoid reinventing the wheel, councils can leverage the high-level processes already embedded in the reference model. These processes represent the key workflows that are common in local government functions, such as:

1. Waste collection and management
2. Council tax administration
3. Dependencies on other services or systems
4. Potential for quick wins or early success stories.

Starting with these generic processes accelerates process mapping by adapting what’s there. Rather than starting from scratch, it allows cross-functional teams to collaborate effectively and early in the transformation. And it helps to identify commonalities and differences between existing service delivery models.

This approach reduces the burden on teams and ensures consistency in how services are reviewed and redesigned.

Step 5: Track and communicate progress

The reference model isn’t just a planning tool. It’s also a communication and tracking mechanism. Councils can use it to:

1. Monitor progress as each service is reviewed and a plan is created
2. Share updates with stakeholders, including elected members, staff and residents
3. Visualise dependencies to inform sequencing and resource allocation.

By maintaining a live view of the reorganisation journey, local authorities can build confidence and maintain momentum. That clear visibility keeps LGR programmes on track and helps build a consistent reform narrative across departments. It also strengthen the overall implementation planning process across the combined authority.

How do I access the process reference model

The reference model will be made available to all councils and Netcall customers, enabling:

1. Peer learning and benchmarking
2. Sharing of templates, process maps and insights
3. Collaboration on common challenges, such as data migration or system integration.

Councils that take this structured, transparent approach will deliver local government reorganisation success – and lay the foundation for agile, citizen-centred local government by setting an example for others to follow.

Leading the way in LGR

Local government reorganisation is a complex but transformative opportunity. By starting with a robust reference model, councils can move from high-level ambition to practical action. This structured approach enables:

1. Faster decision-making
2. Reduced duplication of effort
3. Greater clarity and confidence across teams.

Councils that embrace this methodology will not only deliver successful reorganisations but also lay the foundation for more agile, responsive, and citizen-focused local government.

FAQ

About the author

Craig Willis

Head of Process Improvement Solutions

Craig has spent over 20 years liberating organisations from the pain of poor business processes. In his role at Netcall, Craig advises customers on how to empower the workforce to find and implement process improvements at scale. This includes how to rapidly identify opportunities, assess them and design and implement solutions using the Liberty platform.