The government has published the provisional Local Government Finance Settlement for 2025–26, setting out funding allocations for English councils next year. This confirms an important shift in grant funding to councils serving more deprived areas first highlighted in a policy statement at the end of November, but we can now understand the implications for specific councils.
Overall funding levels
The settlement confirmed a substantial cash-terms increase in councils’ core funding (or ‘core spending power’) next year: of £3.8 billion, or 6.3%, if all councils make full use of council tax increases. This is equivalent to 3.8% in real-terms, after forecast economy-wide inflation. The most significant year-on-year changes in funding are:
Increased revenues from council tax, with all councils again being allowed to increase bills by 3%, and those with social care responsibilities by a further 2%, without a local referendum. If all councils put bills up by the maximum allowed, revenues are expected to increase by around £2.0 billion next year.
Increased business rate revenues, as a result of inflation. The government has confirmed that retained rates revenues and the Revenue Support Grant will increase in line with CPI, which will add £0.4 billion to revenues next year.
An increase in the Social Care Grants worth £0.9 billion. The share of this allocated to offset differences in the amount councils can raise via the council tax ‘adult social care precept’ has been increased from previous years, meaning this grant is more targeted at councils with low council tax bases.
A new Children’s Social Care Prevention Grant worth £0.25 billion. This is being allocated via a new formula to assess spending needs for children’s social care services that was originally commissioned by the May administration but not used until now. Areas with more children, higher levels of deprivation, ill health and overcrowding, high labour and property costs, and low council tax bases will receive relatively higher amounts of this new grant.
A new, so-called ‘Recovery Grant’ that councils will be free to choose how to spend worth £0.6 billion. This is to be allocated based on deprivation (as measured by the average Index of Multiple Deprivation score of the small neighbourhoods in each council area), and councils’ council tax bases. Only approximately half of councils will receive it, which includes almost all metropolitan districts (33 of 36), around half of London boroughs, unitary authorities and shire districts, but just 1 of 21 shire counties. Among those that receive it, the amounts set to be received varies from less than 40 pence per resident in North-West Leicestershire, Sevenoaks and High Peak, to just over £40 per resident in Blackpool and Knowsley.
To help fund these increased and new grants, the Services Grant and the Rural Services Delivery Grant are to be abolished. These are relatively small grants overall (totalling £0.2 billion this year), but the latter is highly targeted at councils in rural areas, meaning some will lose significant amounts of funding. For example, the £600,000 received by Torridge and by West Devon (both shire districts) amounts to 7% of their core spending power this year, while the £7 million received by Herefordshire (a unitary authority) amounts to 3.2% of its core spending power.
Finally, a funding guarantee ensures that all councils will at least see their core spending power maintained in cash-terms, if they increase council tax by the maximum. This is much less generous than the guarantees offered in 2024–25 (a 4% increase before any increase in council tax bills) and represents a real-terms reduction in core spending power of 2.4% for councils in receipt of the guarantee.
In addition, the government has confirmed £1.1 billion of additional funding in England from ‘extended producer responsibilities’ for packaging: a levy scheme for producers’ use of packaging for goods used by households. This revenue is being guaranteed for 2025–26 but the amount councils will receive in subsequent years will fall if the levy leads to a reduction in the amount of packaging used. For this reason, the government has not included this revenue in core spending power, but arguably it should be: it represents an increase in councils’ funding this year, which they can use to support service provision; and if it falls back in future years, that could necessitate cutbacks in expenditure and service provision. Including it would take the increase in funding next year to 8.0% in cash-terms, on average, or 5.5% in real-terms.
Funding allocations for specific councils aim to reflect the costs of waste collection and disposal, with higher existing waste volumes, deprivation and rurality leading to higher payments. In areas with two-tier local government, provisional allocations show 53%, on average, is being allocated to the lower-tier shire districts (which collect waste), with the remainder being allocated to upper-tier shire counties (which dispose of waste). Final allocations will be confirmed following consultation with councils.
Councils will also receive other funding outside the local government finance settlement, including a range of specific grants for specific services. They will also receive additional grant funding to cover the cost of higher employer National Insurance bills for directly employed staff – but not for outsourced services, as discussed further below.
Funding increases are highly targeted at more deprived areas
The design of the adults’ and children’s social care grants and the new ‘Recovery Grant’, together with the abolition of the Rural Services Delivery Grant, means increases in grant funding are highly targeted at councils serving deprived areas. For example, increases in grant funding amount to an average 5.8% of core spending power in the most deprived tenth of council areas, but just 0.3% in the least deprived, as shown by the grey, red and yellow bars in Figure 1.
Increases in business rates revenues are also relatively larger for more deprived (and more urban) areas, reflecting the redistributive tariffs and top-ups operating as part of the business rates retention scheme (BRRS). Partially offsetting this pattern though is the fact that councils in less deprived (and more rural) areas can raise relatively more from council tax, reflecting their larger, more valuable homes, and therefore their higher council tax bases. For example, increases in council tax are projected to raise the equivalent of 2.4% of core spending power for the most deprived tenth of councils, but 4.4% (nearly twice as much, relatively speaking), for the least deprived, if councils make full use of increases in council tax bills up to the referendum limits.
Taken together, these different components mean that core spending power is projected to increase by an average of 9.0% in cash-terms and 6.4% in real-terms for the most deprived tenth of councils, compared to 5.1% and 2.6%, respectively, for the least deprived, if all councils make full use of increases in council tax bills. For the most rural tenth of council areas, based on population density, the cash and real-terms increases would average 4.4% and 2.0%, respectively, while for the most urban council areas the equivalent figures are 6.1% and 3.6%.
Increases in council funding will therefore be highly targeted at more deprived and more urban parts of England. Core spending power is set to increase by 2.4 times as much in real-terms for the most deprived as compared to the least deprived areas, and 1.8 times as much for the most urban as compared to the most rural areas.
Some councils are projected to see particularly large increases in funding. For example, Manchester and Liverpool are set to see an increase in core spending power of 9.5% in cash-terms, or 7% in real-terms after accounting for whole-economy inflation. At the other end of the scale, 132 councils are projected to see their core spending power flat in cash-terms and hence falling 2.4% in real-terms after forecast economy-wide inflation. These are all shire district councils, seeing some combination of falls in New Homes Bonus and Rural Services Delivery Grant offsetting increases in council tax revenues.
Accounting for revenue from ‘extended producer responsibilities’ changes the picture in some important ways. It is still the case that more deprived areas see bigger increases in funding than less deprived areas, but the gap is notably smaller. For example, the most deprived tenth are set to see an increase in funding including revenue from ‘extended producer responsibilities’ of 7.9% in real-terms, roughly 1.8 times the increase of 4.4% among the least deprived. Per-person income from this new source of revenue will be roughly the same in more and less-deprived areas, and so amounts to a higher share of existing funding in the latter.
The targeting of income from ‘extended producer responsibilities’ on the basis of rurality and at authorities with waste collection responsibilities means shire districts, and particularly those losing most from the abolition of the Rural Services Delivery Grant, will gain a particularly important new source of revenue. This new income stream will amount to the equivalent of 7.8% of core spending power across all shire districts, and even more for the shire districts serving the most rural areas. This is a large and important funding boost, meaning many districts will actually see a bigger overall increase in funding than the counties they are part of. But it would not be sustained if use of packaging reduces in future years.
Councils’ cost pressures are likely to outpace economy-wide inflation
Even before accounting for this income from ‘extended producer responsibilities’, most councils and virtually all upper- and single-tier councils providing social care services, core spending is set to outpace forecast economy-wide inflation by a fair clip. 91% of upper- and single-tier areas will see an increase in their core spending power of at least 4.5% in cash-terms, or 2% in real-terms after forecast economy-wide inflation.
However, several costs facing councils are likely to increase by substantially more than forecast economy-wide inflation. For example:
The National Living Wage is set to increase by a further 6.7% in April 2025, with the minimum wage rates for younger employees and apprentices set to increase by between 16 – 18%. This is likely to have cost implications for adult social care services, in particular, where many employees of private or third sector care providers are paid at or close to the existing National Living Wage rate. The current lowest pay point for staff directly employed by councils (£12.26 an hour) already slightly exceeds the new National Living Wage rate planned for April next year (£12.21 an hour). However, councils are likely to want to retain some margin above this, meaning further upwards pressure at the bottom end of the local government pay scale too.
Employers’ National Insurance is also set to increase from April 2025, with the design of the increase meaning bigger proportionate increases for low earners. The government has said it will compensate public sector employers, including councils, for the additional costs for their direct employees. However, they will not receive compensation for any costs passed on from the providers of outsourced services. Again, the largest of these is adult social care services, where the Nuffield Trust has estimated employer NICs increases could amount to £0.9 billion a year, of which approximately 70% may relate to council-funded services.
More generally, the Local Government Association has estimated that a combination of increases in demand and above-inflation in costs for key services (including children’s social care, temporary accommodation for the homeless, and home-to-school transport for children with special educational needs) have resulted in spending pressures averaging around 4.5% in real-terms in recent years. At some stage, we would expect these pressures to abate, but when and by how much is unclear – and the aforementioned factors pushing up labour costs suggests the coming year may not be the time.
This suggests that the additional revenue from extended producer responsibilities, which as discussed above, would take the average increase in funding next year to 5.5% in real-terms, may be vital to address spending pressures in many parts of England. This will limit the extent to which it can fund improvements in refuse, environmental or other services.
How has funding changed over time?
The projected 3.8% average real-terms increase in core spending power in 2025–26 follows five years (between 2019–20 and 2024–25) during which funding for councils has increased by an average of 2.5% a year in real-terms. However, as shown in Figure 2, much larger cuts in funding during the 2010s mean that total funding in the current year is still 10% lower, in real-terms than in 2010–11, with funding per resident 19% lower in real-terms. Plans for next year would still leave funding per resident approximately 17% lower in real-terms than in 2010–11, and 15% lower even accounting for income from ‘extended producer responsibilities’ levies.
Cuts in the 2010s were much larger for councils serving more deprived areas: an average of £587 (35%) per resident in real-terms for the most deprived tenth, compared to £174 (15%) for the least deprived tenth, as shown in Figure 3. The period between 2019–20 and the current financial year, 2024–25, started to see this process reversed, with bigger funding increases in the most deprived tenth of areas (£135 or 12% per resident) than in the least deprived tenth of areas (£37 or 4% per resident). However, falls in funding since 2010–11 remain much larger in the most deprived than least deprived areas. That will remain the case next year, even as funding is set to increase more quickly in more deprived areas. Funding per resident will remain 23% lower in real-terms in the most deprived areas next year than in 2010–11, compared to 11% lower in the least deprived areas.
Thus, the changes made in the coming year (and over the last 5 years) have only partially undone the previous pattern of cuts in the 2010s, which were substantially larger for councils in more deprived (and urban) areas than those in less deprived (and rural) areas.
Turning to the future, the government has been clear that it sees the changes made to how grant funding is allocated in 2025–26 as a first step towards more fundamental reform of the local government finance system in 2026–27. Alongside the provisional financial settlement for 2025–26, it has also published a consultation on the principles for those reforms, seeking views from councils and other stakeholders on a number of key questions.
That reform is needed should not be doubted. As highlighted in multiple reports published by the IFS (such as here and here) , the current system is no longer fit for purpose. Differences in assessments of how much different councils need to spend and how much they can raise themselves via council tax were last systematically accounted for in 2013–14, since when councils have seen a series of ad-hoc changes in their funding. Moreover, the data used in those historic assessments often came from the 2001 census or even earlier. Funding allocations are therefore out of date and essentially arbitrary with respect to current local circumstances.
But as highlighted in a recent IFS report, there is no single right way forward with reform. Updated assessments of spending needs and revenue-raising capacity are vital, but depending on how one trades off different objectives (such as redistribution according to need, or incentives to tackle needs and boost revenue), one may wish to account for them to a greater or lesser extent when allocating funding. In setting out its proposals for a new system, we therefore concluded that the government should be clear about the objectives it is pursuing and align reforms with these – or spell out how different options would be consistent with different objectives if it is inviting views from stakeholders on what direction to take with its reforms. We also highlighted how seemingly ‘techy’ considerations could have a major bearing on bearing on whether a reformed system will deliver what is expected of it. How do the proposals and questions set out in the consultation stack up in this regard?
Broadly speaking, they are sensible. There will be updated assessments of spending needs and revenue-raising capacity of councils and new funding allocations that reflect these, which will be phased in over a number of years. In this, the government proposes to build on work undertaken but not implemented by the previous government, which should help speed up the design and implementation of reforms. However, there are lessons to be learned and pitfalls to be avoided – as discussed in responses from IFS researchers to consultations from the previous government (see here and here).
Proposals to simplify funding streams and reporting requirements and move to a smaller number of clearer priorities and expectations for service delivery are also welcome. Indeed, without clear expectations for service provision, it is not truly possible to assess the relative spending needs of different councils: needs will be distributed differently depending on the nature and coverage of services expected. It is important the government follows through on this, and aligns not only the funding system but funding levels with its stated expectations of councils.
This consultation has little in the way of technical detail of the various elements of a new funding system – that will come in future consultations. Where some detail is provided (for example, on assessing children’s social care needs, accounting for variation in the cost of delivering services, and assessing revenue-raising capacity), it usually appears well-considered. Not always though: proposals for ‘periodic resets’ of the business rates retention scheme after an initial full reset should be replaced with so-called ‘rolling resets’ as discussed in previous IFS analysis.
At a higher-level, the consultation recognizes a tension between the responsiveness of the system to changes in local areas circumstances (increasing or reducing their assessed needs, for example), and the importance of stability and predictability for councils. It is less clear about the related tension between redistributing funding according to need and revenue-raising capacity, and the provision of financial incentives for councils to tackle needs and boost revenues. The continuation of the business rates retention scheme following an initial reset implies incentives will remain part of the system, and in future consultations the government should be clearer about how it plans to balance ‘redistribution’ and ‘incentives’ going forwards. This consultation is an opportunity for councils and other stakeholders to offer their views on this important trade-off and other key design features. IFS researchers will provide their views on the consultation questions in due course.
As with the 2025–26 settlement, there will likely be some significant losers as well as winners from whatever reforms are implemented. With the coming year’s plans described as a step towards these long-term plans we might expect many (although not all) of the winners and losers to be similar to this year. The status quo isn’t without losers though, and it is becoming more and more absurd to base funding allocations on data from a quarter of a century ago or more.
But changes will need careful implementation, including via transitional protections for those losing funding. How generous these can be – for example, whether they can be funded by central government, or instead by phasing in gains for ‘winners’ from the reforms – will depend on the funding available from 2026–27, which will not be known until after the multi-year Spending Review expected in June next year.
Current indicative spending envelopes suggest funding will be tight though, and the Chancellor has said she does not plan further tax rises following those announced in her October Budget. Councils are likely going to have to rely on council tax for even more of the increase in their funding going forwards, and updated funding allocations could see significant real-terms cuts to some councils’ grant funding, even after transitional protection. In a world with limited funding, ensuring funding is allocated fairly and efficiently is even more vital. But it is also more difficult and politically contentious.