LGA Corporate Peer Challenge: Nottinghamshire County Council

A team of local government peers, led by the Local Government Association (LGA) delivered a Corporate Peer Challenge (CPC) of Nottinghamshire County Council (Nottinghamshire) from 18 – 21 November 2025. This was the council’s third CPC. The previous report can be found here: 2019 Corporate Peer Challenge Report.

CPC is a well-established and respected improvement and assurance tool that provides robust, strategic and credible challenge and support to councils. Further details about the CPC process can be found in Appendix A.

Our peer team consisted of highly experienced and knowledgeable senior local government councillor and officer peers (see section four). We considered the five core areas covered by all CPCs: local priorities and outcomes, organisational and place leadership, governance and culture, financial planning and management and capacity for improvement. We also agreed with the council that the peer team would include a particular focus on the extent to which Nottinghamshire has created the conditions - culture, capability and capacity - to maximise the opportunity represented by public service reform (PSR), including delivery of local government reorganisation and harnessing data and digital developments. 

This report provides Nottinghamshire with feedback on the peer team’s findings. It provides the council with a set of a high-level recommendations alongside further recommendations under each of the CPC’s core areas. There is an expectation the council will publish this report and a clear action plan to respond to all the recommendations highlighted.

Serving over 844,000 people, Nottinghamshire County Council (Nottinghamshire) defines itself as a county of contrast and character, shaped by its diverse geography, strong heritage, and ambitious plans for the future. It continues to deliver services for residents while pivoting to major changes, including a new political administration and councillor cohort, a refreshed corporate leadership team (CLT), and sector-wide reforms with significant implications including local government reorganisation (LGR).

Nottinghamshire has stewarded this political transition effectively, with the new administration and councillor cohort bedding-in well. The visible role of the Leader, and commitment of the new cabinet, are recognised by a range of staff and stakeholders who engaged with the peer team. Senior political and officer leaders are working together effectively, reflected in the strong partnership between the leader and chief executive and generally positive councillor-officer relationships across the council. Building on these foundations, Nottinghamshire should now focus on strengthening leadership development for cabinet members and frontline councillors, to enhance capability and confidence throughout their term.

The officer leadership is well respected and we heard consistently, from a range of stakeholders, how the chief executive is widely regarded as collegiate and outward-looking, and that recent CLT changes are having a positive impact. However, senior strategic capacity remains lean; strengthening this will be essential to enhance internal oversight and senior-level ownership of major LGR, devolution and public service reform (PSR) activity.

Nottinghamshire takes pride in its reputation as a well-run organisation, committed to improving outcomes for residents and delivering results. It aims to be ambitious and adaptive to meet future challenges and uphold high standards. To fully realise these ambitions, it must embed a culture of continuous improvement, rigour, accountability and delivery at pace, as these principles are not consistently evident across all its activities.

This means strengthening finance, performance, and risk management to drive resilience, delivery, and build capacity to adapt and invest in future priorities. With a new council plan setting a clear vision and priorities, Nottinghamshire should now develop a more rigorous performance framework with clear tracking and accountability, as well as strengthen its strategic risk register and governance of council-owned companies. Together, these measures will ensure its strategic intent translates into measurable delivery.

Nottinghamshire has historically maintained a relatively strong financial position comparative to many councils, but it faces growing financial pressures. With a £3.1m overspend at period five predominantly driven by an adult social care (ASC) overspend, coupled with significant increases in the Dedicated Schools Grant High Needs Block deficit, it must strengthen financial management, with greater pace and grip on savings delivery. To achieve this, it should establish a comprehensive, rolling efficiency and savings programme aligned to the medium-term financial strategy (MTFS), and underpinned by collective ownership and understanding of the budget and savings delivery. 

Nottinghamshire describes its people as one of its greatest strengths, with a supportive workforce culture and successful record of talent retention and development. However, there is a need to strengthen its approach to communications and change management to ensure staff are well supported and fully prepared for LGR and future reforms. This should include a strong focus on workforce engagement and development of a communications strategy, supported by requisite skills and resources.

The council is committed to working effectively with partners across local and regional systems, and places strong emphasis on collaboration. It is widely regarded as a collegiate, positive partner, particularly at a senior level, although not consistently so, with partnership working sometimes less strong operationally, and LGR inevitably impacting on relationships. 

To ensure a smooth transition to unitary governance and maximise opportunities from PSR and devolution, strengthened collaboration with district, borough and city council partners will be needed. The convening of a collaborative cross-council working group would be a timely next step. Nottinghamshire’s internal readiness planning must also be accelerated. Steps to do so should include seeking external challenge on its LGR planning, clarifying its priorities against LGR milestones, and reviewing its activities to free-up capacity.

Digital and data are central to Nottinghamshire’s transformation ambitions, and it is committed to building the capability required. Whilst at an early stage on this journey, Nottinghamshire’s strategic and enabling functions review provides a strong foundation. It should build on this by creating a clear digital roadmap and strategy to accelerate adoption and drive innovation. This will strengthen delivery now, support LGR readiness, and position it to capitalise on PSR opportunities. 

Nottinghamshire can take pride in its achievements and strengths, while recognising the necessity to strengthen its practices and accelerate transformation. It can be bold and ambitious in continuing to deliver for local communities now, while working towards creating future councils that are safe, legal and effective from day one, irrespective of the geography. 

The following are the peer team’s key recommendations which have been prioritised on the grounds of urgency and importance. 

3.1 Embed a council-wide culture of continuous improvement, rigour, accountability, and delivery at pace by:

1. Finance: Continuing to develop a more robust comprehensive rolling efficiency and savings programme aligned to the MTFS, supported by strengthened financial management that builds organisational-wide understanding and collective ownership. Ensure the programme includes robust risk and equality impact assessments and consider how this is owned, named and communicated to the workforce and wider community.
2. Performance and delivery: Implementing a rigorous performance management approach to deliver the new council plan, underpinned by effective use of data, insight, and scrutiny. Ensure timely action, accountability, and clear delivery tracking.
3. Corporate capacity: Strengthening senior officer corporate capacity to drive organisational delivery and ensure sufficient resource for both business-as-usual and future-focused priorities, including LGR and PSR. This should allow the chief executive, supported by CLT, to dedicate more time to the strategic oversight of internal activity and the senior ownership of significant LGR and devolution activity.
4. Council owned company governance: Implementing the required changes from the governance review, including establishing a shareholder committee to ensure consistent oversight, risk management, and operational alignment.

3.2 Councillor support: Expand leadership and development support for cabinet members and frontline councillors. This will continue to strengthen capability and build confidence throughout their term of office.

3.3 Support effective LGR planning and maximise opportunities around PSR by:

5. Collaboration: Working collaboratively to convene a ‘no regrets’ cross-council working group including the districts/borough, city and county to collaborate based on mutually agreed principles of working.
6. Critical friend challenge: Engage external ‘critical friend’ challenge to Nottinghamshire’s LGR planning and preparation to support this activity.
7. Prioritisation: Clarify Nottinghamshire’s priorities by distinguishing business-as-usual and LGR-specific activities and identifying business-critical activities aligned to LGR milestones.
8. Capacity: Review Nottinghamshire’s activity to determine what should be stepped down or stopped to free-up capacity and resources for LGR.

3.4 Communications: Develop the strategy and plan for internal and external communications, and the necessary skills and resources to deliver it. This will enhance the effectiveness and impact of communications, strengthen engagement with staff, and foster a more connected organisation.

3.5 Digital: Develop a roadmap to accelerate development and uptake of digital services. This will define what digital means to Nottinghamshire, accelerate innovation and support LGR delivery and PSR opportunities.

3.6 Workforce: Strengthen Nottinghamshire’s approach to organisational change and LGR readiness including workforce engagement, communications and learning and development. This will strengthen workforce support, improve delivery, and prepare for LGR, supporting future authorities to be safe, legal, and good from day one.

In addition to the key recommendations, section five of this report captures our detailed feedback and additional recommendations within each of the CPC’s core areas of focus.

Peer challenges are conducted by experienced LGA peers, including elected councillors and senior officers. The composition of the peer team was shaped by the specific focus of the challenge, with the LGA selecting peers based on their relevant expertise. The peers for this CPC were:

• Tom McCabe, Chief Executive, Norfolk County Council
• Cllr Martin Griffiths, Leader, Reform UK, North Northamptonshire Council
• Cllr Jim McKenna, Independent, Portfolio Holder for Adult Social Care and Health Partnerships, Cornwall Council
• Nina Philippidis, Deputy Chief Executive and Executive Director of Corporate Resources (Section 151 Officer), Gloucestershire County Council
• Sarah Murphy-Brookman, Corporate Director of Resources, Buckinghamshire Council
• Debbie Knopp, Director of Transformation, Essex County Council
• Joseph Duffy, Impact Graduate, Local Government Association
• Frances Marshall, Challenge Manager and Senior Adviser, Local Government Association.

Are the council’s priorities clear and informed by the local context?

Serving a population of over 844,000 people Nottinghamshire defines itself as a county of contrast and character, shaped by its diverse geography, strong heritage, and ambitious plans for the future. It has recently agreed a new council plan setting out a clear vision reflecting the priorities of the refreshed council. The plan is underpinned by broad stakeholder insight from residents, councillors and staff through consultations and workshops. This provides a solid platform from which to communicate, embed and drive delivery of this vision. To realise this, Nottinghamshire must now rapidly align the council plan with the MTFS process, ensuring that systems and governance consistently translate priorities into delivery. 

The council holds substantial data resources to inform its understanding of its communities, their needs, and emerging demand. While some services demonstrate a strong understanding of future demands and needs, we also heard that its rich data resources are not always fully translated into meaningful insight across all services. Bringing together data and analytical capabilities and skills of the across the organisation could strengthen insight and analysis, enabling better decisions that deliver improved outcomes for residents.

With significant disparities in outcomes across the county’s communities, Nottinghamshire is committed to addressing health inequalities. This commitment is evident with public health at the heart of the organisation and recognised as a powerful driver of community wellbeing. To maximise impact, it must have strong corporate visibility so that public health priorities can influence decision-making across all services and strategies. It was also not evident to peers that equality impact assessments (EQIAs) are being consistently applied across the council’s operational activity. Applying and systematically monitoring EQIAs across services is considered best practice for councils to demonstrate compliance with the legal obligations under the Public Sector Equality Duty (PSED).

Nottinghamshire’s most recent resident satisfaction survey was in 2019. It engages local people in decision-making through mechanisms such as its Citizens’ Panel, Big Conversation, consultations and co-production groups. We were impressed by examples of strong co-design and lived experience shaping practice, including the Our Voice group and Children in Care Council. Both groups are valuable assets that make a real difference to people’s lives and have expressed a desire for Nottinghamshire to go further in bringing communities closer to decision-making. The council should now build on learning from its successful practice to embed this approach more widely across its activities.

Councillors are recognised for bringing passion and a strong community focus. A notable example of this is the planned on-going involvement of the relevant portfolio holder and the scrutiny select committee chair with the Our Voice group, which has been welcomed by the group.

Delivery against priorities and comparative performance

To understand Nottinghamshire’s performance, the peer team considered the council’s latest key performance reports, the outcomes of external regulatory activity into statutory services, and LG Inform Report which benchmarks Nottinghamshire’s performance against the Chartered Institute of Public Finance and Accountancy’s (CIFPA) nearest neighbours statistical grouping.

The council delivers strong services across several areas, with a notably low rate of upheld Ombudsman complaints. In 2024/25, just 1.6 complaints per 100,000 residents were upheld in Nottinghamshire, compared to 5.2 in similar councils. We heard that public health services stand-out as a particular strength, praised by both internal colleagues and external stakeholders. Children’s services also performed well in its most recent inspection (2024), with Ofsted rating it as ‘good’ in all areas, with leadership and management judged ‘outstanding.’

Conversely, there are areas where Nottinghamshire’s performance is less strong, or with notable differences compared to similar authorities when benchmarked against the CIPFA nearest neighbours statistical grouping. For example, Nottinghamshire spends a higher proportion of its core spending power on social care compared to similar authorities. Specifically, social care represented 78.9 per cent of core spending power in 2024/25, exceeding the median of 73.2 per cent among similar councils. From a performance perspective, Ofsted’s 2023 SEND Local Area Review identified ‘widespread and/or systematic failings’. Since then however, we heard that the council’s determination to drive improvement in response to this has been commendable, with Ofsted recognising positive progress. 

At the time of the peer team’s visit, the council was awaiting its Care Quality Commission’s inspection into adult social care (ASC). 

Is there an organisation-wide approach to continuous improvement? 

Performance management is valued as a mechanism for improvement, with Nottinghamshire’s performance and quality management framework regularly refreshed and performance scrutinised by CLT, cabinet, and overview and scrutiny committees. The ‘golden thread’ from the annual delivery plan, service plans and employee performance reviews is well understood by heads of service, and service managers use benchmarked data, audits and staff insight to improve impact. 

However, performance management could be strengthened if the framework were consistently used as a corporate tool, and the vital signs dashboard used systematically to drive improved outcomes. With the introduction of a new council plan, Nottinghamshire should take the opportunity to embed a more rigorous, organisation-wide approach to performance management, underpinned by robust data, actionable insight, and effective scrutiny. To ensure strategic intent translates into real impact, clear accountability, timely action, and transparent tracking of delivery will be essential.

In addition to the key recommendations in section 3, we also recommend the council progress the following actions as detailed above:

• Build on its impactful examples of co-production and co-design to embed this approach more widely across its activities.
• Bring together data and analytics capabilities and skills across the organisation.
• Refresh the Vital Signs dashboard by improving data quality, aligning it with the council plan and embedding it within the council’s performance management framework.

Does the council provide effective local leadership?

The council has continued delivering for residents and the local area while pivoting to respond to a new political administration and councillor cohort elected in May 2025. Strong political and officer leadership is evident, with the new leader and chief executive recognised across the council and beyond for their leadership and in shaping the council’s direction.

Senior political and officer leaders are working collaboratively and share a clear ambition for Nottinghamshire. The leader and chief executive have built a strong, constructive relationship, supported by close partnership working between cabinet members and senior officers. Although relatively new in post, we heard consistently how cabinet members have quickly embraced their roles with energy, commitment, and a clear focus on delivering priorities. There is a willingness from the administration to work cross-party for the benefit of residents on key issues such as LGR. It may take time for this to evolve, as mutual trust will need to be established.

The chief executive is supported by a small, recently refreshed CLT. These changes have brought a strengthened internal focus, and its positive impact is being felt across the organisation. CLT works closely with service directors, including regular leadership forums to share information and ensure alignment on council priorities.

The council has a strong track record of adapting to new priorities and responding effectively in emergency situations. However, the pace of implementing change can sometimes be slow. For example, it took considerable time to respond to the internal audit review of overspending in ASC, and to implement recommendations from the council-owned companies review. Similarly, we heard this reflected in partners’ desire for Nottinghamshire to be more dynamic in translating strategic intent into delivery. Examples included partners’ feedback highlighting a desire for faster decision-making and deeper collaboration, such as by sharing risk and supporting initiatives led by partners, as well as those led by the county.

There is a shared view within the council that it needs to strengthen its approach to internal and external communication. For example, there is no internal communications plan, and while chief executive blogs are welcomed, they are not designed as a consistent communications tool. To clearly articulate the council’s priorities and impact, as well as improve staff engagement Nottinghamshire should prioritise developing a comprehensive strategy and plan for internal and external communications, alongside building the necessary skills and resources to deliver it effectively. It can use its positive internal LGR communications approach as a model to regularise and build on to improve internal communications, keeping staff informed and encouraging two-way conversations.

Are there good relationships with partners and local communities?

Nottinghamshire prides itself on being a trusted, collaborative partner, and is seen by many as collegiate and forward thinking, particularly at a senior level. This is reflected in its relationships across the health system, within East Midlands Combined County Authority (EMCCA), and with delivery partners. At an operational level, the multi-agency support hub (MASH) exemplifies strong collaboration, with partners trialling new initiatives to improve outcomes for vulnerable adults and children. This widely positive perception was not shared by all partners, and feedback indicated that relationships can be more transactional in day-to-day operations than in strategic engagement.

The collective regional endeavour to secure a devolution agreement and establish EMCCA is testament to the way partners across the region collaborated in a shared interest, unlocking exciting opportunities for regional growth. With EMCCA still in its formative phase, these dynamics are continuing to evolve. The next phase of devolution will be resource-intensive, requiring both capacity and capability to deliver LGR while capitalising on EMCCA opportunities to maximise outcomes for Nottinghamshire and the wider region. It is encouraging that early thinking is already underway as to how this can be achieved.

In addition to the key recommendations in section 3, we also recommend the council progresses the following action as detailed above:

• Ensure key organisational priorities are owned and driven by CLT, driving implementation with clear accountability, grip, and pace.

Are there clear and robust governance arrangements?

Nottinghamshire stewarded the political transition in May 2025 effectively, which is recognised both internally and externally. The organisation, new political administration and councillor cohort are continuing to adapt, learn, and embed ways of working. Continuing to do so will be important for robust governance and effective delivery.

Following the elections, a strong focus on induction and councillor development has created solid foundations. There is both a desire from councillors, and an ongoing need, to go further. Nottinghamshire should implement a structured development programme to strengthen councillors’ capability and confidence throughout their term. 

The programme should offer tailored training and mentoring for cabinet members, alongside ongoing learning for all councillors. Key priorities include local government finance, digital skills, and other areas identified through councillors’ development needs. This will strengthen skills and help grow their confidence, enabling councillors to deliver the best outcomes for residents.

We heard that relationships between councillors and officers across the council are generally positive, spanning all levels of governance, from localities and committees through to the cabinet and the leader. However, some councillors outside the ruling administration expressed concerns about limited access to officers. A refresh of Nottinghamshire’s councillor and officer protocol will help ensure fair and balanced access, and reinforce respect for professional officer advice. Introducing a clear process - such as a member enquiries system or similar approach - would complement this by providing consistency and enabling councillors to access support quickly and efficiently.

The council has robust governance and assurance processes, demonstrated by constructive relationships with its external auditors, and its most recent audit identifying no significant weaknesses. An unqualified opinion is expected in the next audit. The ‘golden triangle’ of statutory officers - chief executive, section 151 officer and monitoring officer - meet regularly, with the statutory scrutiny officer joining quarterly, demonstrating a commitment to good governance. We also heard examples of the ‘golden triangle’ working effectively to identify and address challenging governance issues.

Some aspects of governance could however be enhanced to ensure greater consistency and clarity. For example, it would be beneficial to review the scheme of delegation and conduct regular sample testing to ensure it remains fit for purpose and is clearly understood by officers and councillors, as this was not consistently evident. Furthermore, the Governance and Ethics Committee’s remit is broad, containing responsibility for both audit and standards. This approach of integrating both responsibilities, as opposed to having them as standalone committees, does not align with sector practice and risks weakening audit assurance. Aligning the committee’s scope with recommended good practice and ensuring capacity to focus on core audit functions will be important for strong oversight and accountability.

Nottinghamshire has strengthened its risk management in recent years through an external review, resulting in improved organisational assurance. While the ASC risk register appears high quality, further work is required to enhance corporate risk management. This includes ensuring the strategic risk register is up-to-date, with clear timeframes and owners for actions and mitigations. It should also reflect emerging risks, such as the £33.7m dedicated schools grant (DSG) deficit as highlighted by the council’s external auditors. 

Financial risk management for Nottinghamshire’s council-owned companies and outsourced arrangements should also be strengthened. To do so, regular meetings must be documented and consistently reported which is not currently the case, and independent reviews carried out periodically to satisfy that outcomes - both financial and non-financial - are continuing to be met and risks are being managed.

Is there a culture of challenge and scrutiny?

There are good examples of the council taking a proactive approach to inviting external challenge and support. This can be seen in its voluntarily commissioning of external reviews across areas such as highways, risk management and health and wellbeing. Public meetings are also webcast, allowing residents can follow decisions in real time. 

In recent years, Nottinghamshire has taken steps to enhance decision-making and improve the effectiveness and ownership of scrutiny within its governance framework. The current Overview and Scrutiny (O&S) Select Committee chair has a clear focus for the committee, and it is positive that opposition group leaders were consulted on the current O&S work programme.

Plans are underway to further strengthen decision-making through a review of the council’s constitution. This review is essential and should include measures to tighten formal meeting protocols, particularly for Full Council meetings which currently often extend across a full working day. It is important that the length of meetings enable effective management of business whilst also supporting meaningful debate, scrutiny and accountability without creating barriers to participation. Equally important is delivering the outstanding changes identified in the council-owned company governance review, including the establishment of a shareholder committee. These changes have not yet been implemented and are critical to ensuring consistent oversight and robust risk management.

In addition to the key recommendations in section 3, we also recommend the council progress the following actions as mentioned above:

• Review Nottinghamshire’s councillor and officer protocol, constitution and scheme of delegation to strengthen decision-making.
• Align the Governance and Ethics Committee’s terms of reference with sector practice to ensure capacity to focus on core audit functions.
• Review the strategic risk register, including clear timeframes for actions and mitigations.

Does the council have a clear understanding of its financial position? 

Nottinghamshire has historically maintained a relatively strong financial position compared to many councils, and has a track record of achieving unqualified statements of accounts. It has successfully managed budgets in recent years with careful financial management and strategies such as outsourcing to reduce risk. This position is illustrated by core indicators, including a general fund reserve at 5.4 per cent of net revenue, consistent with sector good practice, low debt servicing costs compared to similar councils, and a below threshold council tax increase in 2025/26 of 2.84 per cent. 

The financial outlook is however entering new territory for Nottinghamshire, becoming increasingly challenging, with national trends of inflationary and service pressures, alongside uncertainty over the impact of future funding reforms. Nottinghamshire’s MTFS forecasts a £18.5m funding gap for 2025/26 to 2028/29, with the council currently reporting a £3.1m overspend at period five. This includes a £5m overspend in ASC, potentially rising to £10m by year-end. Mitigations are being put in place to reduce the forecast, but controlling growth remains critical for long-term sustainability. The DSG deficit is also projected to rise sharply, reaching £33.7m by March 2026, which presents a significant risk.

Against this backdrop, strong financial leadership and shared ownership across the council are increasingly important. The council benefits from an experienced Section 151 Officer and finance team. They maintain constructive relationships and regular reporting with cabinet and CLT, alongside close collaboration with the cabinet Member for Finance and Resources. However, a council-wide understanding of the budget and savings delivery, and disciplined approach to identifying, monitoring, and delivering savings, are not consistently evident in practices, or through conversations the peer team had across the council. To address the challenges that lie ahead, Nottinghamshire must strengthen its financial management by improving reporting, enforcing delivery discipline, and accelerating the pace and grip of savings delivery.

Does the council have a strategy and plan to address its financial challenges?

Nottinghamshire recognises that long-term financial sustainability requires a focus on prevention and early help, with reserves providing short-term support for transformation and savings delivery. It has developed a £45.3m change portfolio which, if delivered, will address budget pressures and generate in-year savings. There is a savings target of £5.5m for delivery in 2025/26, rising to £11.1m for the period 2027/28, with officer and councillor oversight through an Organisational Change Board (OBC) and Efficiency Review Cabinet working group. 

The council’s delivery of the £5.5m of savings for 2025/26 was not readily apparent to the peer team due to absence of a single overarching savings plan. Whilst the council has an organisational change portfolio with identified benefits, as outlined above, there is more to do to ensure that all savings and change activity, including that the resulting benefits are represented, tracked and monitored through this overarching mechanism. It is positive that the new Director of Adult Social Care and Health is introducing stronger financial discipline to address the ASC overspend. This includes reviewing the ASC Sustainability Plan to address underlying cost pressures and to ensure it supports both immediate recovery and long-term resilience.

To strengthen council-wide identification and delivery of savings, Nottinghamshire should continue to develop and publish a more comprehensive savings plan covering all departments, with planned savings fully reflected in the MTFS. The plan should include risk analysis, equality impact assessments, and milestones with clear accountability and escalation routes to ensure ownership from the start. Taking steps to strengthen OCB as the main forum for savings and transformation oversight would also improve accountability and enable timely intervention to maintain progress. Additionally, clearer more consistent budget reporting would strengthen organisational understanding and ownership of the financial position, helping to drive delivery.

Nottinghamshire faces competing pressures with rising demand, the need to create headroom for investment, and planning for the financial implications of LGR. Meeting these challenges will require a comprehensive funding strategy within the 2026/27 budget that addresses both reorganisation costs and priorities of the new political administration. To do so, Nottinghamshire would benefit from reviewing its budget-setting and savings development processes to ensure they deliver a balanced mix of immediate ‘quick win’ efficiencies and sustainable, medium-term proposals.

With high needs and SEND pressures only emerging from 2024/25, Nottinghamshire is in a relatively strong position compared to many councils regarding its DSG deficit. Managing this risk remains essential. To do so, Nottinghamshire should implement a multi-year DSG recovery plan underpinned by robust data, clear metrics, and strong governance to control pressures, avoid further growth, and draw on lessons from safety valve and better value councils. This will put the council in the strongest possible position when the full details of Government’s recent announcement on SEND cumulative deficits are clear. The council’s strong Schools Forum relationships also provide a solid platform for these actions.

In addition to the key recommendations at section 3, we also recommend the council progress the following action actions as detailed above:

• Review budget and savings processes to balance quick wins and medium-term proposals, supported by a clear funding strategy for LGR.
• Reposition the OCB as a key governance forum with oversight and accountability for delivery of planned savings.
• Develop a multi-year DSG recovery strategy using robust data, strong governance, and sector best practice. 

Does the council have the capacity to improve?

Nottinghamshire has strong relationships with its trade unions and regards its workforce as one of its greatest strengths. Senior leaders take pride in the positive staff survey results, reflecting the council’s reputation as a good place to work. A positive, dedicated workforce culture was evident in staff’s awareness of the ‘Nottinghamshire Way’ values, and their pride in working for the council and making a difference for communities. They described being well-supported, having regular one-to-one meetings, and viewing the council as a caring employer.

There is, however, more to do to fully engage the workforce. This can be seen from the survey response rate of 19 per cent, and with the ‘one team approach’ less embedded beyond the senior officer leadership. Staff also highlighted occasions where they would have valued greater focus on their needs, such as in a timelier agreement of a workforce respect statement, consideration of additional needs and reasonable adjustments in implementation of new systems, and in supporting staff during times of community unrest. Providing clearer guidance to promote consistent application of the hybrid working policy would also be welcomed by staff to ensure fairness and consistency.

Accordingly, Nottinghamshire should strengthen two-way communication with staff and collaborate on shared issues to deepen understanding, improve support, and embed a ‘one team’ culture. Existing activities - such as the chief executive’s blogs, LGR briefings and ASC staff awards - have been well received, providing a platform to build from. Staff networks are an asset; assigning a CLT sponsor to each could empower them and boost collaboration for the benefit of Nottinghamshire and its residents.

Nottinghamshire has a proactive approach to recruitment and retention to build skills and capacity to deliver now and adapt to future needs. Recruitment and onboarding practices are strong, as seen by high retention rates, reduced reliance on agency staff, and targeted action around hard-to-recruit roles. The organisation has introduced coaching and mentoring, including reverse mentoring, and demonstrates a clear commitment to developing talent internally. This is reflected in its successful use of apprenticeships, graduate programmes, and internship schemes to future-proof and succession plan. 

Nottinghamshire has a mixed delivery model with services such as libraries, catering and facilities management delivered through alternative service delivery models (ASDMs) (for example, Inspire and Vertas). This has involved strong cross-council collaboration, and the libraries community benefit model is particularly well thought of. There is scope to strengthen Nottinghamshire’s approach to supplier management for its ASDMs, through more systematic, transparent monitoring and assurance of delivery. (See governance and culture paragraph).

Nottinghamshire’s transformation ambitions are delivered through a mixed model of central team and departmental resources, overseen by the chief executive-chaired OCB. Its approach could be strengthened through a clearer corporate transformation resourcing and prioritisation model, and the introduction of a more consistent use of best practice programme and project management methodologies. Similarly, there is an opportunity to improve consistency in benefits realisation, particularly in tracking mitigations and how productivity gains - including cost avoidance - are released or reinvested. These changes would help drive delivery, efficiency, and consistency of outcomes.

Culture, capability and capacity to maximise PSR opportunities, including through delivery of LGR

Nottinghamshire is future-focused, recognising the imperative to transform to secure long-term financial sustainability and adapt to a rapidly changing landscape. This can be seen through its operating model redesign, and in it inviting peers’ views on its approach to PSR, data, and digital. The council is seen as a strong, visible regional partner, with the chief executive recognised for PSR leadership and commitment to maximising benefits, which provides a positive platform to realise these opportunities.

Delivering on these ambitions will require strengthened strategic capacity at the corporate level, as Nottinghamshire currently operates with a lean corporate centre. Additional senior officer capacity will be critical to support business-as-usual (BAU) and future priorities, including LGR and PSR. This will allow the chief executive and CLT to focus on strategic oversight and take ownership of major transformation and devolution activity.

Some services and teams have begun considering partnership working in preparation for LGR, with positive examples in public health and information technology (IT). However, there is a clear need to accelerate strategic planning and strengthen capacity to develop readiness plans that ensure the future authorities are safe, legal and good from day one. Internally, a first step should be to clarify Nottinghamshire’s priorities by separating BAU from LGR-specific activities, and identifying business-critical tasks aligned to key milestones. Reviewing Nottinghamshire’s activity to determine what should be scaled back or stopped to release capacity and resources for LGR will be essential. In doing so, the council would benefit from engaging a ‘critical friend’ to provide further constructive external challenge and support on its planning and preparations.

As Nottinghamshire prepares for the scale of change ahead, ensuring workforce resilience, capability, and engagement will be critical. To position itself for this transition, Nottinghamshire should prioritise organisational change and LGR readiness. This should include a clear focus on workforce engagement and communication, learning and development, and embedding public sector equality duty requirements within its activities.

Deepening collaboration across local authority partners in the sub-region will also be essential for a smooth transition to unitary local government. With preferred model submissions now complete, it is important to take practical steps toward joint working, irrespective of the ultimate future geographies. Working alongside partners to convene a ‘no regrets’ cross-council group - bringing together districts, boroughs, the city, and the county - would create a shared space for problem-solving, guided by agreed principles of partnership and mutual respect.

This will strengthen collaborative working and create clarity and alignment across partners, enabling early planning and maximising opportunities for PSR. Crucially, the work must place strong emphasis on addressing the complexities of disaggregating and aggregating services across upper and lower tiers, ensuring continuity, efficiency, and minimal disruption for residents and staff.

Harnessing the opportunity represented by data and digital developments

Digital and data are widely recognised as critical enablers of Nottinghamshire’s improvement and transformation and are a key council priority. There is a clear organisational recognition of the need to be digitally capable, however there is not yet a clear roadmap in place for how to get there. 

Nottinghamshire is at an early stage in this journey, with significant data volumes not yet matched by insight, nor a shared understanding of what digital means for the council. The continued default printing of committee papers, for example, does not align with its digital ambitions. Staff are confident around the foundational systems, platforms and infrastructure, but less so on how services and processes are redesigned to better meet user needs by harnessing digital ways of working. To achieve its ambitions, Nottinghamshire needs to develop a roadmap to accelerate development and adoption of digital services. 

The recent strategic and enabling functions review provides a strong foundation to build upon, setting out clear recommendations. Implementing these promptly, as well as prioritising the planned digital strategy, will be important. This should include a unified definition on what ‘digital’ means for Nottinghamshire and be accompanied by a training programme for staff and councillors, that is matched to business needs. This will create a clear operating model for corporate and enabling services, drive innovation, and support delivery now and through LGR while maximising opportunities for PSR. 

Nottinghamshire is moving its SAP and Mosaic administrative software systems onto a new technology platform to enhance data quality and analysis across the council. This is a significant organisational undertaking that is resource intensive, carries risk, and requires cultural change. Implementing these programmes, alongside LGR preparations and the recommendations from the review of strategic and enabling services will require strong corporate grip. Whilst sound programme management supports the re-platforming initiatives, plans could be further strengthened by involving critical-friend assurance to help Nottinghamshire deliver the intended benefits on time, within budget, and to the required quality.

In addition to the key recommendations in section 3 of the report, we also recommend the council progress the following actions:

• Introduce CLT sponsors for staff networks to empower staff and work together for the benefit of the council and its residents.
• Embed consistent application of the hybrid working policy.
• Undertake critical friend assurance support to SAP and Mosaic programme re-platforming.
• Strengthen transformation and benefits realisation through clearer prioritisation, consistent programme management, and robust tracking of productivity gains.

The senior political and managerial leadership of the council should review and reflect on the findings and recommendations from this CPC.

To promote the principle of transparency, it is a requirement of the CPC process that the final report of the peer team is published in-full within three months of the review being completed. In this instance, this requires the report to be published no later than 21 February 2026.

There is a requirement for Nottinghamshire County Council to develop and publish an action plan within five-months of the peer team being onsite, no later than 21 April 2026. This action plan should provide clarity on the activity, milestones, and timelines that the council will work to in responding to the team’s findings. 

The action plan will also be central to the peer team’s re-engagement with Nottinghamshire County Council through a progress review which is due to be completed by 21 November 2026.

The Ministry for Housing, Communities and Local Government (MHCLG) have published the Best Value Standards for Local Authorities. These standards expect every council to engage in a Corporate or Finance Peer Challenge at least every five-years. It is expected that Nottinghamshire County Council would commission their next Corporate Peer Challenge no later than the summer of 2030.

In the meantime, Mark Edgell, Principal Adviser for the East Midlands, is the main contact between your council and the Local Government Association. As outlined above, Mark is available to discuss any further support you require and can be contacted on 

Mark Edgell, LGA Principal Adviser for the East Midlands, Yorkshire and Humber and North East.

Email – [email protected] Tel – 07747 636 910
 

CPC is a valued improvement and assurance tool that is delivered by the sector for the sector. It involves a team of senior local government councillors and officer peers undertaking a comprehensive review of key information and spending three days at the council to provide robust, strategic, and credible challenge and support.

CPC forms a key part of the improvement and assurance framework for local government. It is underpinned by the principles of Sector-led Improvement (SLI) put in place by councils and the LGA to support continuous improvement and assurance across the sector. These principles state that councils are responsible for their own performance; accountable locally, not nationally; share a collective responsibility for the performance of the sector; and rely on the LGA to provide the tools to support them. CPC is also key to councils in meeting their Best Value duty. UK Government expect all councils to have a CPC at least every five years. 

Scope and focus

The peer team considered the following five areas which form the core components of all CPCs. These are critical to councils’ performance and improvement.

1. Local priorities and outcomes - are the council’s priorities clear and informed by the local context? Is the council delivering effectively on its priorities? Is there an organisational-wide approach to continuous improvement, with frequent monitoring, reporting on and updating of performance and improvement plans?
2. Organisational and place leadership - does the council provide effective local leadership? Are there good relationships with partner organisations and local communities?
3. Governance and culture - Are there clear and robust governance arrangements? Is there a culture of challenge and scrutiny?
4. Financial planning and management - Does the council have a grip on its current financial position? Does the council have a strategy and a plan to address its financial challenges? What is the relative financial resilience of the council?
5. Capacity for improvement - Is the organisation able to bring about the improvements it needs, including delivering on locally identified priorities? Does the council have the capacity to improve?

As part of the five core areas outlined above, every CPC has a strong focus on financial sustainability, performance, governance, and assurance. The council also asked for an additional area of focus developing the culture, capability and capacity to maximise PSR opportunities, including through delivery of LGR and by harnessing use of digital and data. 

The peer challenge process

Peer challenges are improvement focused; it is important to stress that this was not an inspection. The process is not designed to provide an in-depth or technical assessment of plans and proposals. The peer team used their experience and knowledge of local government to reflect on the information presented to them by people they met, things they saw and material that they read. 

The peer team prepared by reviewing a range of documents and information to ensure they were familiar with the council and the challenges it is facing. This included a position statement prepared by the council in advance of the peer team’s time on site. This provided information on the local context at the council and what the peer team should focus on. It also included a comprehensive LGA Finance briefing (prepared using public reports from the council’s website) and a LGA performance report outlining benchmarking data for the council across a range of metrics. The latter was produced using the LGA’s local area benchmarking tool called LG Inform. 

The peer team spent four days onsite at the Nottinghamshire County Council during which they gathered evidence, information, and views from more than 50 meetings, in addition to further research and reading and spoke to over 120 council staff together with councillors and external stakeholders.