Councillors across Lancashire have mainly welcomed a government plan to create four brand-new authorities in 2028.
But some fear services, council housing, local decision-making and democratic representation could suffer.
The government is to create four new unitary councils for Lancashire, replacing all 15 existing councils. Its aim is to make services and councils more efficient and create a simpler system for residents, businesses and councillors.
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Each new council will have all services under one roof, such as bin collections, planning, social care and highway maintenance. The new authorities, yet to be officially named, will cover:
- North Lancashire: Lancaster, Preston and Ribble Valley
- West Lancashire: Fylde, Wyre and Blackpool
- East Lancashire: Blackburn with Darwen, Hyndburn, Rossendale, Pendle and Burnley.
- South Lancashire: Chorley, South Ribble and West Lancashire
Lancaster City Council has generally welcomed the plan to join Lancaster, Preston and the Ribble Valley. But it is looking at creating new parish councils for Lancaster and Heysham.
Green Cllr Caroline Jackson, the city council leader, said: “This is an outcome we have strongly supported, as it reflects the natural connections between our areas. Lancaster and Preston are both vibrant university cities, while our links with the Ribble Valley reflect the importance of supporting rural communities and economies.
“This model strikes a balance between scale and local identity, giving us the opportunity to develop high-quality services while remaining close to communities. We will continue to prioritise strong local representation.”
Roger Cleet, an independent Heysham councillor, said: “This reform may appear to be a good idea, financially. But I worry that grass-root concerns from council tax payers may not get raised under the new system. Currently, as a city councillor, I have a voice and I can expect an answer from the council. But I have doubts about whether that will happen in future.”
Another city councillor, who did not want to be named, said: “Whilst I support the desire for the model that puts Lancaster with Preston and the Ribble Valley, I do have ongoing concerns around council housing.
“Neither Preston or the Ribble Valley have any council housing. They previously sold off their homes to social landlords. I understand Preston may be pursuing a small council house development in the future – but it will be too small to help Lancaster.
“Instead, a merger with an authority like Blackpool, which has a significant number of council houses, would provide provide a far greater possibility to access housing funds and renew estates like Mainway in Lancaster.”
But Conservative-led Ribble Valley Council said it was ‘delighted’ with the combination with Preston and Lancaster – an idea unanimously supported by Ribble Valley councillors. It said this will provide ‘a strong rural base, with the Forest of Bowland at its heart, ensuring that rural communities’ needs, local economies and tourism are recognised.’
Council leader Simon Hore said: “We felt strongly that four new unitary councils would be best for the Ribble Valley and are delighted that the government agrees. The new authority promises an exciting future for residents and businesses.”
He added: “We are proud to have delivered high-class, cost-effective services to our residents since Ribble Valley Council’s creation in 1974. Over the last 50 years, this has become one of the most successful boroughs and visitor destinations in the country, with high customer satisfaction rates and an outstanding record in financial management. We have one of the lowest council taxes, while being the only Lancashire authority to collect refuse weekly and not charge for green waste.”
Some Ribble Valley councillors wanted to avoid a merger with east Lancashire boroughs, arguing their views on council tax and spending would not be shared by the bigger urban authorities facing greater deprivation.
Ribble Valley Liberal Democrats said in statement: “We broadly welcome this announcement. In an ideal world, we would have preferred to maintain Ribble Valley as a separate entity.
“This is the least-worst option. Our focus over the next two years will be to ensure that the identity of Clitheroe and the wider Ribble Valley are not lost within a much larger authority.
“The new authority will be much-better placed to take a strategic oversight of planning and development, and ensure that investment in transport infrastructure accompanies further increases in housebuilding.
“In historic market towns like Clitheroe, this means investment in more sustainable travel, increasing the frequency and reliability of rail services and lobbying for greater connections into North Yorkshire.
“While we have concerns about a democratic deficit and Ribble Valley playing ‘second fiddle’ to the great cities of Preston and Lancaster, we believe we should see this as a reset.”
In Pendle, there was disappointment about the government recommendations. Councillors had hoped for a different five-unitary model with Pendle joining Burnley and Rossendale – but not Blackburn.
Cllr Asjad Mahmood, Pendle Council’s leader, said: “We are disappointed that the government has not reached the decision we were hoping for. We made a strong case on behalf of Pendle’s residents, businesses and communities but we respect the outcome.
“Our priority now is to work constructively with Blackburn, Hyndburn, Rossendale and Burnley. Together, we will promote growth, inclusion and prosperity while respecting the identities, history and geography of East Lancashire. We will continue to work hard for the Pendle community, so that our area’s interests are fully represented as the new council is created.”
Independent Cllr Mohammed Iqbal, a former leader, said: “It is disappointing that the will of Pendle residents has been ignored by the government. However we must now unite and ensure any deal or funding allocation is fought for with the best outcome for Pendle.”
And Pendle Conservative Sarah Cockburn-Price said: “The decision was always going to be out of our hands. But I’m sorry that the parliamentary constituency will be split between two unitary councils under this plan.”
The Pendle & Clitheroe parliamentary constituency was only created in 2024.
In Rossendale, Alan Neal, a Whitworth independent councillor, said: “It’s good that Lancashire County Council will disappear. That won’t be any great loss. But I fear places like Whitworth will be even-more forgotten when it comes to basic services like grass cutting and maintenance of cemeteries.
“There has been a lack of local investment and a lack of council workers on the ground in Whitworth for years. And I fear this could get worse with bigger councils. Some residents might ask if they’d be better-off with Rochdale?”
He added: “The new east Lancashire authority should probably be based in Accrington – not Blackburn. Accrington is easier to reach from Rossendale, Burnley and Pendle. I don’t think any single area will dominate it but it will be interesting to see how Blackburn and Burnley councillors get on. There’s not a lot of love between them, based on old rivalries. It’s almost like Northern Ireland.”
Rossendale Conservative Scott Smith said: “From the outset, our priority has been securing the best possible deal for Rossendale taxpayers. But it is difficult to see how creating four new councils meets that criteria the government set itself or represents value for money.
“It is equally difficult to avoid the conclusion that this Labour government has chosen the option which suits its own electoral interests, rather than the one which best serves Lancashire’s residents.
“Rossendale Council will cease to exist in April 2028, but decisions taken over the next two years will shape local services for decades. Rossendale’s Conservatives will remain completely focused on ensuring that communities across our valley are heard, protected and properly represented at every stage of that process.”
At West Lancashire Council, Mark Anderson, the Labour opposition group leader, said: “We are pleased that the government’ chosen model matches our preferred option. Having one council for the full range of local services makes sense. We are committed to working with other groups to get the best outcome for residents. And we are determined to see local priorities, especially a new swimming pool in Skelmersdale, delivered before West Lancashire is abolished.”
Conservative Cllr Thomas de Freitas, the assistant leader of West Lancashire Council, said: “The Conservative group welcomes the announcement that we will join with our neighbouring boroughs of South Ribble and Chorley.
“We have been clear throughout this process that if the government is to pursue local government regorganisation, then four new unitary authorities in Lancashire would be the best option for our residents and the services they reply upon. We’re pleased that there has been cross-party unity on this position here in West Lancashire.
“We will continue to work at pace with our officers and colleagues in Chorley and South Ribble to ensure that the best interests of our residents are kept at the fore as we progress this complex re-organisation process.”
Residents and businesses will see no immediate changes to services or local council contacts following the announcement. Services will continue as normal while the planning takes place.
Councillors will continue to represent communities until April 2028. Council chief executives will play a key role in the changes but elected councillors will be involved in briefings and the shadow authority process.
Leadership and decision-making structures for new councils – such as committees and cabinets – will be confirmed ahead of April 2028 by a ‘shadow authority’ for each area. And each shadow authority will be made up of councillors elected in May 2027. Town and parish councils are not affected.
