LGA Corporate Peer Challenge – Progress Review: Boston Borough Council

The council undertook an LGA Corporate Peer Challenge (CPC) during 14 -16 May 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 Boston Borough Council (Boston) 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 Boston took place (onsite) on 21 January 2026. The Progress Review focussed on each of the recommendations from the Corporate Peer Challenge, under the following theme headings: 

• Place leadership
• Customer and communications 
• Succeeding as a joint team
• Risk, capacity and transformation

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

• Dan Gascoyne, Chief Executive, Braintree District Council 
• Cllr Sarah Rouse, Independent Member, Malvern Hills District Council
• Cllr Linda Robinson, Conservative Member, Wychavon District Council
• Richard Block, Chief Operating Officer, Colchester City Council
• Hollie Walmsley, Head of Human Resources, Chorley Council and South Ribble Borough Council
• Frances Marshall, Peer Challenge Manager, Local Government Association

This report provides a summary of the peer team’s reflections on progress made by Boston against each of the CPC’s nine recommendations since May 2024. It is a high-level summary of the peer team’s reflections based on prereading, pre-engagement meetings, fieldwork meetings and a reflections roundtable. The following summary reflects the peer team’s views as fellow local government councillors and officers and is focused solely on the CPC original recommendations. 

Boston has undertaken a broad programme of activity and delivered tangible, positive improvements across the organisation in response to its Corporate Peer Challenge (CPC). Out of the CPC’s nine recommendations, the council translated these into twenty‑nine specific actions. Of these, ninety‑seven percent (twenty‑eight actions) are RAG‑rated as completed or in progress, and three percent (one action) has not been taken forward due to a considered decision to pursue an alternative approach. The council’s role within the wider South and East Lincolnshire Councils Partnership (SELCP) has been integral to supporting the delivery of this progress.

The progress achieved has been made whilst Boston has also been responding to changes in its operating context, including the transition to a new cross‑party administration, changes within the corporate management team (CMT), the Pride in Place Programme and legislative changes including the publication of the English Devolution White Paper, among other developments. These shifts inevitably bring new and emerging priorities that Boston has responded to, and which it will need to continue to consider as it delivers on its plans and looks ahead to future local government reorganisation (LGR).

The peer team were impressed by the progress made against the recommendations and recognised strong forward momentum, whilst also highlighting areas where there is still further to go. In particular, the peer team recognised and commended progress in relation to:

• Activity to further its strategic place leadership ambitions, with progress on flagship regeneration schemes, alongside high‑profile cultural and events programmes. 
• Widespread recognition of a more positive organisational culture, supported by the leader and evidenced in improved officer–councillor relationships.
• Improved joint working between Public Sector Partnership Services Ltd. (PSPS) and Boston, with higher levels of customer satisfaction and strengthened PSPS governance.

There were areas where Boston’s actions in response to the CPC were not as advanced, or where the impact was less clear. To sustain and accelerate progress, the peer team encouraged further focus on:

• The role of senior officers in supporting councillors on organisational culture, and in translating the new cabinet’s priorities into a short‑term plan underpinning the Boston 2040 vision, and supporting a positive and financially sustainable platform ahead of unitary transition.
• Developing a clearer and more robust plan for addressing Boston’s financial gap of £6.5m across the medium-term financial plan (MTFP), shaped by the new section 151 officer’s drive for stronger financial rigour and realistic budget management.

3.1.  Theme 1: Place leadership

Overview: Boston has undertaken a significant amount of activity to further its strategic place leadership ambitions, with the appointment of a new director of economic growth providing additional capacity to advance this.  A major focus has been the development and adoption of the Boston borough plan 2040, which articulates a long‑term vision and direction for the borough. This has been underpinned by partner briefings to embed the vision, and broad community engagement through Boston’s pride in place programme to inform a ten‑year regeneration investment focus.  There has also been significant progress on flagship regeneration schemes such as Rosegarth square and the Boston leisure project, alongside high‑profile cultural and events programmes, including the expanded ‘Christmas in Boston’ activities.

Peers’ reflections: The peer team commended the substantial cultural and regeneration activity undertaken since the CPC.  The events programme was described to peers as highly regarded, and strengthening civic pride and participation across the town.  Peers reflected positively on Boston’s success in securing further external funding to support its ambitions, such as through additional levelling up and pride in place investment, and on the council’s convening role in fostering place‑based conversations with partners such as the arts council, historic England, MHCLG and Lincolnshire County Council.

The peer team heard there is energy and momentum behind the Boston pride in place regeneration plan and vision for Boston developed with the towns board. Peers highlighted the ambition of the programme, and its challenging timeline, whilst also recognising that Boston is alert to these pressures and is actively managing the risks and wider enablers required to support its growth plans. This includes workforce risks, such as the recruitment and retention of planners and the potential impact on local plan preparation, for example. Peers were told that there is now a stronger platform for delivery following the ‘place’ services review across the SELCP, which has led to better‑aligned capacity, resources and capability.

The development of the Boston 2040 vision has provided a helpful framework for structuring delivery and monitoring progress. However, peers highlighted the need to complement this with a clearer short and medium‑term plan that articulates the Cabinet’s priorities and how these underpin the wider vision. The cabinet already has several clear priorities, including 2028 town of culture bid and preparations for the Boston 2030 anniversary, marking 400 years since the founding of Boston, Massachusetts. Ensuring these priorities are captured in a shorter‑term plan, underpinning the wider vision, would create a strong platform to drive the administration’s ambitions, support LGR planning, and leave a positive legacy for the future unitary landscape.

Finally, the creation of the greater Lincolnshire County Combined Authority (GLCCA) represents a significant development in the wider strategic landscape. As the new arrangements are established, it will be important for Boston - and the SELCP - to ensure that their local place priorities are clearly reflected within the emerging programme for the combined authority.

3.2.   Theme 2: Customer and communications 

Overview: Boston has taken steps to strengthen its approach to customer insight and communications since the CPC, embedding customer engagement and communication more fully across major initiatives. Training opportunities have been created through the SELCP corporate training programme to build skills and capacity across the organisation. Establishment of a residents’ survey was considered but not progressed due to LGR, with engagement instead maintained through initiatives such as the community governance review and joint community safety surveys with the police. Boston has also launched its intelligence hub, bringing together shared datasets to provide an evidence base for officers across the SELCP, and continues to develop this as business‑as‑usual to better inform decision making.

Peers’ Reflections: The peer team heard that the council’s communications have improved, with resources more closely integrated into key projects and a stronger relationship between the communications function and the leader and cabinet.  However, there were also mixed messages about the extent of this progress, with early engagement of communications expertise not always consistent, and councillors wanting stronger storytelling about the positive work being delivered by the council and the SELCP. Peers felt there is now an opportunity to consolidate this progress by further strengthening the council’s strategic approach to communications, drawing on good practice such as the recent LGR video with the leader, and potentially extending early communications involvement from major projects to service‑level activity.

The peer team commended the effective use of customer insight to shape priorities and delivery, evidenced through the creative engagement with residents and partners that has underpinned development of the pride in place vision. The chief executive’s visible leadership in this work reinforced the importance the organisation places on this approach.

Peers also noted that this emphasis on insight is increasingly reflected in the council’s use of data. This is illustrated by improvements in customer services performance, demonstrated by the service achieving second place nationally for overall customer satisfaction at the national contact centre awards. The development of the intelligence hub represents another positive step; however, peers highlighted that it remains an early foundation and that more needs to be done to embed data‑driven decision‑making more widely. The council recognises this and has plans to further develop the hub to maximise partnership‑wide benefits.

Peers also heard that these ambitions will be supported by greater service integration following recent service reviews, which have already begun to reduce siloed working and promote a more joined‑up approach across the organisation.

3.3.   Theme 3: Succeeding as a joint team

Overview: Boston has taken forward a range of actions to support more effective joint working between the political and officer leadership teams, and to strengthen wider councillor development. During this period, the council has also transitioned to a new cross‑party administration and seen some changes within the CMT. Activity undertaken has included: reviewing the councillor triage function; developing the councillor intranet; re‑establishing the councillor development group; and a development session on the code of conduct and on councillor and officer roles, responsibilities and behaviours. Boston has also used periodic cabinet and SLT away-days to support relationship‑building, updated its managers’ development programme, and delivered training for scrutiny committee members across the SELCP.

Peers’ reflections:  The peer team heard consistently that the organisational culture has improved markedly, with officers and councillors describing better working relationships between the senior political and officer leadership team, and across the wider council. The leader’s role in championing and modelling a positive organisational culture, and empowering the cabinet, was widely recognised and welcomed by those the peer team spoke with. These improvements have also extended to joint working across the SELCP, with peers hearing that relationships have strengthened in recent months, as evidenced by recommencement of joint working on the PSPS transformation plan and LGR.

Whilst these positive developments are significant, there remains more to do, with the peer team hearing that it had been a difficult period culturally for the organisation, which had impacted several individuals, and that isolated examples of councillor behaviour continue to affect both councillors and officers. Further support from senior officers is required to assist councillors, particularly around wellbeing and access to professional advice, informed by learning from other authorities. As part of this, Boston may find it useful to reflect on whether its constitutional arrangements continue to best support a sustained focus on core business.

Alongside this, the peer team heard that the new cross‑party administration has bedded-in well, with the cabinet operating with a collaborative, supportive approach, actively embracing and contributing to a positive organisational culture. The council’s smooth transition to cross‑party working has been impressive. At the same time, it remains important to acknowledge that the cabinet is a new administration, and to allow time to reflect on its priorities and identify opportunities to further support them as they develop in their roles over their term. Peers encouraged Boston to bring cabinet and the SLT together to consider the priorities of the new administration, ensuring these are clearly articulated and prioritised within a shorter‑term plan.

Peers received feedback that the recent programme of training for councillors has been welcomed and well attended, with sessions delivered covering topics including media, code of conduct, audit, governance, and overview and scrutiny.

3.4.   Theme 4: Risk, capacity and transformation

Overview: Boston has taken forward a range of actions to strengthen its approach to governance, strategic risk, and transformation. These have included: implementing changes to PSPS’s Board governance following legal advice; addressing issues previously raised by external audit; progressing activity on terms and conditions and the pay spine; strengthening operational working between PSPS and Boston; and introducing training and tools to support delivery of the council’s climate priorities.  In addition, on transformation, steps have been taken to move towards a more structured multi‑year programme, with closer alignment to the MTFS, acceleration of the service‑review programme, and an assessment of organisational capacity to support delivery.

Peers’ reflections:  The peer team found a shared understanding across cabinet and senior officers of the significant budget challenge, with a requirement to secure a total of £6.5m of efficiencies over the period of the MTFP from 2026/27 - 2030/2031.  They highlighted the completion of service reviews across the functions of regulation, communities, assets and governance, alongside a strengthened approach to benefits realisation, as constructive steps in supporting the council’s response to these pressures.  The recent decision for Boston to participate in the Partnership’s PSPS transformation programme represents an important development, with steps already underway to identify the specific Boston priorities to be taken forward.  Peers also welcomed steps to bring a ‘single view’ across all transformation activity through the refresh of the council’s transformation board. This ‘single view’ will be critical to ensuring a coherent transformation programme that delivers the required financial and organisational benefits.

Notwithstanding this positive progress, peers noted that establishing a robust multi‑year transformation programme, aligned to the MTFP and savings plans, remains a work in progress, with Boston’s plan for addressing the structural deficit over the lifetime of the MTFP not clear to the peer team. Peers welcomed the new section 151 officer’s commitment to embedding stronger financial rigour and more realistic budget management, particularly the focus on addressing recurring year‑end underspends. Measures to support this - such as star chambers - are already underway and will be important in strengthening in‑year financial grip and helping to narrow future budget gaps.

The peer team acknowledged the range of activity undertaken to strengthen Boston’s approach to governance, risk mitigation and capacity. They welcomed that advice on PSPS governance had been acted upon, and that working relationships between PSPS and Boston have reportedly been strengthened. This is reflected in an 80 per cent customer satisfaction rate for services provided by PSPS. The peer team particularly underscored the pace of progress on pay and terms and conditions, with a shared pay structure now in place and most other conditions scheduled for harmonisation next financial year.

With the English Devolution White Paper having been published since the CPC, LGR is now a central consideration for future planning, with implications for capacity, risk and organisational focus. The peer team heard that consideration is already being given to LGR requirements, with the annual delivery plan structured to retain sufficient flexibility to respond to evolving priorities. This flexibility will be critical as activity intensifies in the next phase, particularly as future unitary geographies are confirmed. Peers also encouraged continued dialogue between SLT and cabinet to establish realistic priorities and align organisational capacity as Boston prepares for LGR. Such discussions will be important in ensuring the council plays its part in supporting a positive legacy and a financially sustainable platform for future authorities, while keeping expectations about deliverability proportionate, informed and achievable.

The LGA would like to thank Boston 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. 

Mark Edgell (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].