Swindon Borough Council – Progress Review

The council undertook an LGA Corporate Peer Challenge (CPC) during September 2024 and promptly published the full report with an action plan. 

The Progress Review is an integral part of the Corporate Peer Challenge process.Taking place approximately ten months after the CPC, it is designed to provide space for the council’s senior leadership to:

• receive feedback from peers on the early progress made by the council against the CPC recommendations and the council’s RAG rated CPC Action Plan.
• consider peers’ reflections on any new opportunities or challenges that may have arisen since the peer team were ‘on-site’ including any further support needs
• discuss any early impact or learning from the progress made to date.

The LGA would like to thank Swindon Brough Council for their commitment to sector led improvement. This progress review was the next step in an ongoing, open and close relationship that the council has with LGA sector support.

The Progress Review at Swindon Borough Council took place (onsite) between 23 and 24 September 2025. 

The Progress Review focussed on each of the recommendations from the Corporate Peer Challenge, under the following theme headings: 

• Addressing financial challenges
• Delivery of Transformation Programme
• Delivery of the Swindon plan.
• Maintaining momentum on the Children’s Improvement Journey.
• Building Partnership engagement to support the delivery of the Swindon plan.
• Enhance external communications
• Internal governance and assurance
• Senior Officer Leadership and capacity.

For this Progress Review, the following members of the original CPC team were involved: 

• Sir Steve Bullock – Member Peer (Labour)
• Councillor Gareth Barnard – Member Peer (Conservative)
• Matthew Gladstone – Chief Executive Peterborough City Council
• Dawn Calvert - CFO and s151 Officer, Thurrock Council
• Emily McGuinness – LGA Peer Challenge Manager

Out of the CPC’s nine original recommendations, the council’s RAG rated Action plan reports that 100 per cent have been progressed and a narrative of the actions taken follows below, overall the peer team noted that the council has taken positive action in response to all the recommendations made during the CPC, and whilst challenges undoubtedly remain, the commitment to improvement across members and officers is clearly evident.

3.1 Addressing financial challenges

Peers noted that the council’s financial position is precarious and at risk of further deterioration. The in-year financial position is of particular concern, with limited reserves available to mitigate emerging pressures. Significant and growing budgetary pressures within Children’s Services continue to be a feature.

The council is aware of the scale of the challenge and has introduced enhanced financial controls in response. However, peers observed that the magnitude of the financial gap in future years—estimated at around £30 million—is significant and growing, presenting a sustained risk to the council’s overall financial resilience. Without rapid progress in delivering transformation savings, it is highly likely that exceptional financial support (EFS) will be required.

Peers agreed that transformation savings and associated plans must now be fully integrated into the Medium-Term Financial Strategy (MTFS). Underpinning this, the council’s demand assumptions—particularly within Children’s Services—need to be revisited, as they are currently unaffordable given the available resource envelope.

The review highlighted the need for stronger S151 officer involvement within Children’s Services, ensuring closer financial oversight and active participation in addressing demand pressures. A more direct role for the S151 in the Children’s Services Improvement Board was recommended to strengthen financial governance, provide strategic challenge, and ensure alignment between service and financial strategies.

Peers recognised that the financial challenge is well understood across the organisation, and that there is collective ownership of the problem across both members and officers. Encouragingly, there was clear evidence of engagement and commitment at all levels to developing and delivering the transformation plan, with a shared understanding that “nothing is off the table” in identifying savings opportunities. 

The council has taken positive steps to support this work. Asset disposals have generated capital receipts, providing an immediate opportunity to fund transformation and enable key decisions to be taken without delay. This proactive approach was welcomed as a sign of strategic intent and organisational resolve.

However, despite this progress, peers remain concerned that the financial challenges remain acute:

For 2025/26, the council is forecasting an overspend of £5 million, with unfinalised mitigations. The majority of this pressure arises within Children’s Services (£7 million). While the council holds contingency funds, peers cautioned that continued overspending risks widening the MTFS gap in future years and increasing reliance on exceptional financial support.

The transformation plan, though nearing completion, in the view of the peer team lacks quantified detail regarding delivery timelines (what can be delivered when), implementation costs and whether these represent value for money and importantly the expected outcomes and measures of success. Peers emphasised that clarity in these areas is essential to ensure credibility and deliverability.

It remains unclear whether the transformation plan alone will be sufficient to close the MTFS gap in full. Further work is needed to identify additional directorate-led initiatives that could complement the plan and address residual gaps.

The updated MTFS shows significant pressures:

• A £30 million gap in 2026/27, in addition to £10.9 million of savings already built in;
• A further £2 million gap in 2027/28, alongside £8 million of existing savings.
  These figures represent a substantial financial risk, particularly given that they are based on assumptions that may fluctuate. The anticipated benefit from the Fair Funding Review is already factored in but remains uncertain pending the Local Government Financial Settlement (expected mid to late December).

The continuing demand pressures in Children’s Services represent the single greatest threat to the council’s MTFS and overall sustainability. Peers questioned whether there is sufficient visibility and control over pipeline demand, and whether growth forecasts are fully understood and reflected within financial planning.

In conclusion, peers acknowledged the council’s strong engagement, open culture, and commitment to addressing its financial challenges. However, the scale of the financial risk—particularly within Children’s Services—requires both an urgent and  sustained focus. Delivering the transformation plan at pace, embedding robust financial discipline, and ensuring close alignment between finance and service planning will be critical if the council is to avoid exceptional financial intervention and restore long-term stability.

3.2 Transformation 

Peers welcomed the appointment of external consultants to provide additional capacity and expertise in support of the council’s transformation journey. Their involvement has given fresh momentum to the programme, adding rigour, structure, and strategic focus to the council’s ongoing work. While this partnership is still in its early stages, the programme is already beginning to take clear shape around a set of cross-cutting themes—such as spans of control, asset management, and economic growth—that hold significant potential to deliver meaningful organisational improvements and financial benefits.

Peers noted the encouraging progress made so far and the strong sense of purpose within the council’s leadership. To sustain this momentum, it will be important to ensure that ownership of transformation continues to grow across all directorates. Embedding transformation as a shared endeavour—owned collectively by the full senior leadership team—will help to drive alignment, shared accountability, and lasting cultural change.

The data and digital agenda was identified as an area where there is real opportunity to build on the council’s work to date. Peers acknowledged the progress made in shaping a clear digital vision and encouraged the council to maintain this positive trajectory by accelerating delivery, and indeed increasing pace, particularly in areas that can most effectively reduce cost, manage demand, and mitigate operational risk. Strengthening the use of data and analytics to inform decision-making and prioritisation will be central to deepening financial resilience and supporting the transformation’s long-term success.

Peers were also supportive of the proposed investment in Programme Management Office (PMO) capacity and structure, recognising this as an essential next step. Establishing a strong and well-resourced PMO will provide the framework needed to coordinate and assure transformation activity, support delivery at pace, and maintain clear oversight of progress and benefits.

While the transformation programme has not yet fully quantified its financial impact within the Medium-Term Financial Strategy (MTFS), peers recognised the solid foundations now in place to do so. Embedding clear financial assumptions, delivery milestones, and benefit tracking into the MTFS will further strengthen the link between transformation and the council’s financial sustainability.

Finally, peers saw valuable opportunities to align the economic growth strand of transformation more explicitly with the council’s wider financial planning framework. Doing so would help unlock future revenue potential while supporting inclusive growth and delivering broader strategic outcomes.

Overall, peers commended the council for the positive momentum achieved in developing its transformation programme. With a strengthened sense of shared ownership, enhanced PMO capacity, an accelerated digital and data focus, and closer alignment with financial planning, the council is well positioned to translate this early progress into sustained organisational and financial impact.

3.3 Delivery of the Swindon Plan

Peers commended the marked progress in delivering the Swindon plan over the past year, noting clear evidence of growing organisational alignment and a deepening commitment to its mission-led approach. The establishment of Mission Boards—each chaired by senior officers and supported by a Cabinet Ambassador—has created a strong and transparent governance framework for overseeing delivery. The leadership provided by Cabinet members in this space is valued by staff. Now well established and embedding across the organisation, these Boards meet quarterly to review progress, identify interdependencies, and support effective coordination across service areas.

Ahead of the current financial year (year two of the plan), the council undertook a comprehensive review of achievements from year one and refined its plans for years two and three. This proactive exercise invited officers to refresh actions in line with emerging priorities, opportunities, and challenges. Peers welcomed this reflective and forward-looking approach, which has enabled the Plan to remain dynamic, relevant, and responsive to Swindon’s evolving strategic context. The inclusion of broadened and refined deliverables demonstrates a healthy balance between ambition and adaptability.

Peers observed that the Swindon plan is now well embedded in the council’s culture and is supported by consistent internal and external communication. The introduction of the colleague survey—which explores how staff understand and align their roles with the plan—was highlighted as a particularly positive step in deepening engagement and testing organisational ownership. Peers suggest that the insights from this survey could be used to shape the next phase of work, further strengthening alignment and shared purpose across teams.

Peers also highlighted the “Heart of Swindon” delivery area as an especially credible and impactful strand of the plan, well supported by its three Mission Boards. These Boards are playing an increasingly effective role in maintaining focus on priorities and building momentum for delivery as well as clearly demonstrating purposeful political leadership by Cabinet members.

As the governance and delivery arrangements continue to mature, peers would encourage the council to keep these mechanisms under regular review to ensure they remain streamlined, outcome-focused, and proportionate. Maintaining a clear line of sight between the Plan’s missions, delivery plans, and the tangible outcomes for residents and communities will be vital to sustaining momentum and demonstrating visible impact.

Overall, peers found the Swindon plan to be a credible, well-structured, and evolving framework for strategic delivery—one that reflects growing organisational ownership, strong leadership (both political and officer), and a culture of collaboration and improvement. Looking ahead, maintaining disciplined delivery, clear prioritisation, and agile governance will be key to ensuring continued progress and demonstrable results against the council’s core strategic outcomes.

3.4 Maintain momentum on Children’s Services Improvement 

Peers recognised that there is strong corporate ownership and awareness of the challenges facing Children’s Services, with a clear understanding across both members and officers that this area represents both a critical priority and a key risk to overall financial and organisational stability. The commitment of senior leaders, including the Leader and Cabinet Member along with the chief executive and Corporate Management Team (CMT), to supporting improvement is evident, and peers noted the positive and valued leadership being provided within this space.

The council has already taken a number of decisive and responsible actions to address the scale of the challenge. This provides an opportunity to rebuild momentum and re-establish clarity of vision, accountability, and pace.

There is also a clear opportunity for the council to reset its relationship with the Department for Education (DfE) and strengthen the operation of the Swindon Children’s Improvement Board. Peers agreed that this reset should happen swiftly and constructively, ensuring that the council and the DfE are aligned in expectations, priorities, and measures of progress. Strengthening the relationship at this juncture will be critical to maintaining credibility, confidence, and coherence in the improvement journey.

Peers highlighted the importance of seeking to ensure that the council’s section 151 officer plays a more active and embedded role in the Children’s Improvement Board. This would provide essential strategic financial input, enabling stronger links between the improvement activity and the council’s financial strategy. Given that Children’s Services represent the single largest financial risk area, this connection is fundamental to ensuring sustainable progress and informed financial decision-making.

While the appointment of a new DCS marks a positive step, peers noted that the incoming director will require significant support from both the chief executive and CMT. Cross-council collaboration will be vital to ensure that improvement efforts are not siloed but are instead integrated within the wider corporate and transformation programmes. The ongoing support from the Director of Adults’ Servicesis particularly valuable and should continue to be leveraged as part of a coherent whole-system approach to supporting children and families.

Peers did, however, express some concern regarding the current line of sight and reporting arrangements between the DCS, the chief executive, and the wider corporate management team. The peer team noted that the structure is subject to an LGA Test of Assurance which the peer team welcomed - the peer team feel that the arrangements should be kept under review to ensure clarity of accountability and effective communication. Peers also noted concerns around the splitting of the Education function from the broader Children’s portfolio, suggesting this could risk fragmenting strategy and leadership at a time when integration and alignment are crucial.

Overall, while significant risks remain, there is now a genuine opportunity for reset and renewed momentum. The council’s senior political and officer leadership has shown willingness to make difficult decisions and face the scale of the challenge head-on. With strong collective ownership, effective financial oversight, and a coordinated approach to transformation and improvement, the council is well placed to begin rebuilding confidence and delivering the sustainable change needed in Children’s Services.

3.5 Building Partnership engagement to support the delivery of the Swindon Plan

Peers observed a strong and growing sense of engagement across the organisation, with clear evidence of collective commitment and collaboration among senior members and officers. There was a palpable sense of momentum, shared ambition, and unity beginning to take shape within both the senior member and officer community.

The forthcoming launch of the Swindon Leadership Forum and Leadership Board Plans marks an exciting and significant milestone in strengthening cross-organisational leadership. Peers viewed these initiatives as a positive step forward—providing a structured and collaborative forum through which senior members and officers can shape strategic direction, drive delivery, and model the values and behaviours that underpin a one-council approach. Together, these frameworks have strong potential to ensure consistency of message, alignment of priorities, and shared accountability for outcomes.

In parallel, the establishment of a corporate communications group was welcomed as a timely and strategic development. Peers recognised the value of having a dedicated mechanism to coordinate internal and external communications, ensuring that key messages remain clear, consistent, and aligned with the council’s overall vision and priorities. This joined-up approach will be particularly valuable in maintaining organisational coherence and confidence during a period of significant financial and operational challenge.

Peers were encouraged by the enthusiasm and positivity surrounding these initiatives and emphasised the importance of maintaining this momentum. As the Leadership Forum and communications group mature, they present an opportunity not only to share information but also to strengthen trust, celebrate success, and deepen staff connection to the council’s shared purpose.

Looking ahead, peers encouraged the council to continue building on this positive direction of travel. Embedding the Leadership Forum and communications framework as integral parts of the council’s culture will help sustain morale, reinforce collective ownership of priorities, and enhance the leadership capacity needed to deliver the council’s ambitious transformation and improvement agenda.

3.6 Review Cabinet Portfolios building on a successful change of political administration

Peers observed that Cabinet members have continued to strengthen their expertise across their portfolios, demonstrating a clear understanding of key issues and responsibilities. Relationships between Cabinet members and lead officers were described as positive, constructive, and collaborative, supporting effective decision-making and aligned delivery. Earlier this year, portfolio arrangements were reviewed and agreed to remain stable for the current municipal year, with further consideration planned following the May 2026 elections. This continuity provides valuable stability at a critical time for the council.

Overall, peers found the Cabinet to be cohesive and effective, with clear evidence of collegiate working and strong, visible leadership. This approach is widely recognised across the organisation and is helping to foster confidence in governance, providing officers and staff with a clear sense of direction.

Members have also engaged proactively with the recent Housing Regulator C3 Judgement, recognising the importance of an improvement programme and supporting the development of a structured and accountable response. Peers welcomed this active involvement, noting that Cabinet leadership will be central to prioritising actions, guiding delivery, and maintaining oversight throughout the improvement journey.

Given the scale and profile of the challenges facing the council, peers emphasised the importance of maintaining a sharp focus on driving improvement in key areas. The Audit and Scrutiny Committees were highlighted as vital mechanisms for ensuring robust oversight and accountability, and members were encouraged to use these committees actively—rigorously monitoring progress, challenging assumptions, and supporting the delivery of agreed actions.

In summary, peers concluded that the Cabinet demonstrates effective leadership, cohesion, and visible organisational engagement, providing a strong foundation for strategic decision-making. Sustained focus, continued collaborative engagement with officers, and the active use of governance and scrutiny structures will be essential to maintaining momentum, addressing challenges effectively, and driving ongoing improvement across the council’s services.

3.7 Enhance external communications

Peers noted significant progress in promoting Swindon as a borough since September 2024, particularly in business investment and regeneration. The development and launch of the Heart of Swindon proposition—including its high-profile presentation in Parliament—has raised the borough’s external profile and generated interest from potential investors. Strengthened place branding, alongside the publication of an Investment Prospectus, further demonstrates the council’s proactive and strategic approach to attracting inward investment.

The creation of a new Inclusive Growth team, including the head of inward investment and head of strategic placemaking, has provided dedicated capacity and leadership to advance these initiatives. Peers welcomed this coordinated approach, recognising the value of professional expertise in delivering the borough’s economic ambitions. Early results indicate that this investment is already producing tangible benefits, and partners consulted by the team highlighted the council’s track record in economic growth as a notable strength, with plans in place to build on this momentum.

More broadly, the anticipated approval of a council-wide Communications Strategy in December 2025 was welcomed as a key step in aligning communications with organisational priorities. The strategy explicitly links communications activity to the Swindon plan missions, reinforced through media engagement, visuals, and content, ensuring that the council’s achievements are clearly connected to its overarching objectives. Notable successes in place-based communications—including UKRIEF, the House of Lords launch, and the “Make it Here” campaign—have further strengthened Swindon’s national profile. The establishment of a corporate communications group was also highlighted positively as a mechanism to improve coordination and oversight.

Peers encouraged the council to continue developing external communications, particularly in responding proactively to emerging community concerns that reflect broader national trends. While progress in investment and growth messaging has been effective, there is an opportunity to for more effective strategic engagement with local communities to better anticipate issues and maintain public confidence. Ensuring that communications are both outward-facing and community-sensitive will be critical in supporting the council’s wider improvement and growth objectives.

In conclusion, peers welcomed the council’s achievements in promoting Swindon and advancing economic growth, while emphasising the importance of continuing to strengthen external communications. Sustained focus in this area will enhance the borough’s reputation, support strategic priorities, and build trust and confidence among residents, stakeholders, and potential investors.

3.8 Internal Governance and assurance

Peers observed that the council has made notable progress in strengthening local governance arrangements, demonstrating a clear commitment to improving transparency, accountability, and assurance across the organisation. Key developments include the appointment of an independent member to the Audit Committee, which peers welcomed as a positive step in enhancing scrutiny and providing additional assurance. 

The council’s annual governance arrangements and associated self-assessment questionnaire have been improved based on the Local Government Association (LGA) self-assessment guide, with further enhancements planned in the forthcoming year. While the LGA self-assurance assessment and the member development self-assessment have not yet been finalised, peers noted that progress has already been made in some areas, and there is a clear commitment to completing these assessments and developing a formal action plan for improvements. Regular oversight of governance, performance, and risk continues to be maintained through the Directors’ group, reinforcing organisational focus on these critical areas.

Despite these positive developments, peers identified areas requiring further attention to align internal governance arrangements with best practice.

The monitoring officer (MO) is currently not part of the corporate management team (CMT). Peers observed that this limits the strategic impact of the role, which should be fully integrated into organisational leadership. The MO should provide strategic guidance, proactive oversight, and advice to the chief executive and CMT, particularly during a period of significant organisational and financial challenge. Ensuring the MO has a direct line to the chief executive and formal CMT membership is consistent with best practice guidance and will strengthen governance and decision-making, especially given the complexity and profile of the decisions needing to be taken over coming months.

Peers noted that, while progress has been made in strengthening audit and assurance structures, the MO role is not fulfilling its potential in actively driving organisational change and governance improvements. Strengthening this function will be essential, particularly ahead of the forthcoming elections, to ensure continuity of leadership, guidance, and assurance across the council.

There are ongoing concerns regarding the positioning of statutory officer roles, including the DCS, within the organisational structure. Peers noted that careful attention is required to ensure that statutory responsibilities and lines of accountability are clearly defined to maintain effective governance and assurance.

In summary, peers acknowledged significant improvements in governance arrangements, including the introduction of an independent Audit Committee member and strengthened annual governance processes. At the same time, further enhancements are needed to embed best practice, particularly in relation to the strategic role of the monitoring officer, the positioning of statutory officers, and the integration of governance oversight within senior management structures. Addressing these areas will help ensure that the council is well positioned to provide robust assurance, effective oversight, and strategic guidance through a period of significant organisational challenge.

3.9 Senior Officer Leadership Capacity

Peers observed that Swindon Borough Council now benefits from a cohort of permanent, substantive and well regarded directors and corporate directors, providing sustainable leadership expertise. This has strengthened the council’s ability to deliver both immediate priorities and longer-term ambitions with confidence. The new leadership team is coalescing as an effective senior group, working collaboratively within functional areas and across the council to advance corporate objectives and transformation agendas. This is in no small part due to the leadership of the chief executive and her clear commitment to driving – and modelling - positive cultural change.

Key management forums—including the Directors Group, Wider CMT, and the Performance and Governance Board—provide clear structures for coordination and decision-making. Peers welcomed the development of a visual diagram of core governance boards and management groups, which provides clarity and supports cross-council communication.

The council is investing in leadership development, with a collective Director’s Leadership Development Programme scheduled to begin in October. This nine-month programme, incorporating themed residentials and individual coaching, is designed to strengthen strategic capacity, build collaborative leadership skills, and embed consistent approaches to delivery across the senior team.

Peers noted a marked improvement in the stability and quality of the leadership cohort, particularly when compared with previous visits, when interim arrangements limited leadership capacity and hindered the ability to drive change. The near-complete removal of interims from the top two or three layers of management has provided consistency, expertise, and credibility, supporting effective decision-making and delivery. The appointment of a new PA to the chief executive has also allowed more focused allocation of leadership time and energy to strategic priorities.

The chief executive continues to provide strong personal leadership, drive, and commitment, particularly in relation to challenging areas such as the council’s financial position and Children’s Services. Peers recognised that while the Corporate Management Team is supportive and aware of these issues, the scale of the challenges requires continued concerted corporate effort, resource allocation, and sustained leadership focus.

Peers emphasised the importance of ensuring that sufficient capacity and resource are dedicated to the Transformation Programme, including a well-resourced Programme Management Office (PMO). This will be critical to delivering planned savings and organisational change at the required pace. Over the next six months, how the leadership team allocates its time and effort across financial challenges, Children’s Services, and the Transformation Programme will be pivotal to maintaining momentum while ensuring strategic priorities—including the place-making agenda—continue to progress effectively.

In summary, peers concluded that the council now has a credible and proficient director cohort capable of leading both day-to-day delivery and transformational change. With targeted development, focused allocation of leadership capacity, and sustained corporate commitment, the senior team is well-positioned to navigate significant challenges, deliver the council’s priorities, and drive forward ambitious improvement and growth programmes.

Swindon Borough Council are well engaged with the regional LGA team and continue to proactively seek advice and support as they progress many of the areas covered by this report. During this Progress Review, a renewed offer to support the development of a comprehensive Member Induction and Development Programme ahead of the council’s first ‘all out’ elections in May 2026 was made

The LGA would like to thank Swindon Borough Council for undertaking an LGA CPC Progress Review.

We appreciate that senior managerial and political leadership will want to reflect on these findings and suggestions in order to determine how the organisation wishes to take things forward.

Under the umbrella of LGA sector-led improvement, there is an on-going offer of support to councils. The LGA is well placed to provide additional support, advice and guidance on a number of the areas identified for development and improvement and we would be happy to discuss this.

Paul Clarke (Principal Adviser) is the main point of contact between the authority and the Local Government Association (LGA) and their e-mail address is [email protected]