Building One Council: Cultural Insights from West Northamptonshire

In a time of rapid transformation across the local government sector through reorganisation, devolution, and the pursuit of more agile, resident-focused services Alison Golding has gifted us a masterclass in how to lead cultural change with integrity, insight and impact. Her recently completed master’s dissertation,

"A research study into the organisational cultures of West Northamptonshire Council (WNC) and how the leadership team can positively influence, adjust and change those cultures”,

is not just an academic achievement. It’s a blueprint for how councils can navigate the complexities of post-merger identity, workforce engagement, and leadership visibility.

Context: A Council Born from Crisis and Opportunity

West Northamptonshire Council was formed in April 2021 following the collapse of Northamptonshire County Council due to financial mismanagement. It merged eight predecessor organisations into two new unitary authorities West and North Northamptonshire. WNC inherited over 2,700 staff, multiple legacy systems, and divergent organisational cultures.

Cultural Complexity and the THRIVE Values

Golding’s research highlights the challenge of integrating four sovereign councils each with distinct subcultures and countercultures into a single, coherent organisational identity. Her work builds on the council’s THRIVE values: Trust, Honesty, Respect, Innovation, Value, and Empowerment. These were not just aspirational slogans but became the scaffolding for cultural alignment.

“Culture reflects the shared assumptions about what is important, how things are done and crucially how people behave. These assumptions are rarely spoken of directly and can be difficult to identify.” Alison Golding, WNC Employee Survey Report, 2021

Leadership Visibility and Empathy

Golding’s leadership approach, as Assistant Director of Workforce and Transformation, has been rooted in empathy, transparency, and shared vision. She emphasised that cultural change must be human-centred, especially during Local Government Reorganisation (LGR). Her insights were shared at sector events and featured in podcasts and interviews, including the Truth About Local Government podcast hosted by Matthew Masters.

“You can’t build a culture from spreadsheets. You build it from stories, from listening, and from showing up.” Alison Golding, Truth About Local Government Podcast

Data-Driven Transformation

Golding commissioned a psychologically designed employee survey to benchmark WNC against other employers. The survey revealed early cultural fault lines and strengths, informing the council’s first People Strategy. This strategy was co-created through staff and manager focus groups and aimed to unify the workforce under a shared purpose. Key stats from the transformation journey:

• 2700+ staff integrated from legacy councils

• 402,000 residents served by WNC

• £45m regeneration grants leveraged into £350m private investment in Northampton

• First employee survey conducted in 2021 with benchmarking against national employers

Lessons for the Sector

Golding’s dissertation and practical leadership offer a replicable model for other councils undergoing LGR or cultural transformation. Her work underscores the importance of:

• Visible leadership during uncertainty

• Strategic workforce planning aligned with values

• Empirical data to guide cultural interventions

• Narrative-building to foster identity and belonging

“For anyone going through LGR, this one is for you.” 

Alison Golding, LinkedIn Post on Integration and Identity

Why This Matters Now

Local government is undergoing seismic shifts. Councils are merging, restructuring, and redefining their purpose in response to financial pressures, devolution agendas, and the demand for more responsive public services. But as Alison Golding’s research at West Northamptonshire Council (WNC) demonstrates, structural reform alone is not enough. The real engine of transformation is organisational culture the shared values, behaviours, and assumptions that shape how things get done.

Culture: The Invisible Infrastructure

Golding’s dissertation, grounded in the lived experience of WNC, formed from four legacy councils following the Northamptonshire reorganisation, explores how inherited cultures can clash or coalesce. She draws on Edgar Schein’s Three Levels of Culture artifacts, espoused values, and underlying assumptions to show that cultural change must go beyond surface-level branding or policy shifts.

“Culture is not what we say it’s what we do without thinking.” Edgar Schein

This insight is particularly relevant in local government, where subcultures (e.g., planning, social care, finance) often operate with different norms and expectations. Golding’s work highlights the need for leadership visibility, empathy, and strategic communication to unify these disparate groups.

The Post-Merger Challenge

WNC’s formation in 2021 brought together 2,700 staff from district and county councils. Golding’s research identifies the risk of cultural fragmentation, where legacy loyalties and operational habits persist, undermining efforts to build a cohesive new organisation.

“You can’t assume cultures will align organically. That’s a risky strategy.” Alison Golding, Opus People Solutions Interview

Her findings echo broader research in the public and private sectors: up to 83% of mergers fail to deliver expected value due to cultural clashes. In local government, this can manifest as:

• Resistance to new ways of working

• Conflicting leadership styles

• Misaligned service delivery priorities

• Low staff morale and engagement

Leadership as Cultural Architect

Golding argues that leadership must step up not just to manage operations, but to shape culture intentionally. This includes:

• Modelling THRIVE values (Trust, Honesty, Respect, Innovation, Value, Empowerment)

• Listening to staff through surveys and focus groups

• Communicating a shared vision that transcends legacy boundaries

“Culture change is not a destination it’s a journey towards a shifting endpoint.” GovNet Public Sector Culture Report

Why It Matters Sector-Wide

As more councils face reorganisation whether through devolution deals, combined authorities, or financial recovery plans the lessons from WNC are timely. Golding’s work provides a practical framework for:

• Diagnosing cultural dynamics

• Designing inclusive people strategies

• Aligning leadership behaviours with organisational values

In short, her research reminds us that culture eats strategy for breakfast and in local government, it’s the difference between transformation that sticks and change that stalls.

Key Lessons for the Sector

1. Culture Eats Strategy for Breakfast

   Alison Golding’s work reinforces Peter Drucker’s famous assertion: “Culture eats strategy for breakfast.” This isn’t just a catchy phrase it’s a warning. Councils can have the most sophisticated transformation plans, but without a strong, unified culture, those plans will falter. Golding’s dissertation echoes this throughout, showing that cultural misalignment is often the root cause of failed change initiatives.

2. 
   

   Leadership Visibility is Critical

   In WNC’s Best Companies survey, only 46% of staff reported a pleasant experience at work far below the 74% benchmark for three-star organisations. Staff repeatedly cited a lack of leadership visibility and engagement. Golding’s analysis suggests that leaders must be physically and emotionally present, especially during periods of uncertainty. Visibility builds trust, and trust builds culture.

“I rarely see senior leaders. It feels like decisions are made far away from the frontline.” WNC staff survey respondent

3. Communication Must Be Consistent and Inclusive

   The survey revealed that 36% of staff described their experience as unpleasant, and 17% were neutral a clear signal of disengagement. Comments such as “I did not feel prepared for the change to unitary” and “The excitement around a new organisation did not filter all the way down” highlight the importance of inclusive communication. Golding argues that communication must be two-way, emotionally intelligent, and tailored to different staff groups.

   
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5. Post-Merger Identity Takes Time

   Radar charts comparing legacy councils to WNC showed that consistency scored lower post-merger, suggesting that WNC still feels like multiple organisations under one roof. Golding’s research cautions against rushing identity formation. Instead, councils should acknowledge legacy cultures, celebrate shared values, and co-create a new narrative.

“We are still working as if we’re separate councils. The merger happened on paper, not in practice.” Manager feedback, WNC focus group

5. Frameworks Matter

   Golding applied the Denison Model and Johnson & Scholes’ Cultural Web to diagnose cultural traits and barriers. These frameworks helped identify gaps in:

   • Mission clarity

   • Adaptability

   • Consistency

   • Involvement

By using structured models, WNC was able to move beyond anecdotal feedback and develop a data-informed People Strategy.

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   Employee Voice is Powerful

   The THRIVE Big Conversation generated over 5,500 contributions, with themes like flexible working, wellbeing, and reward & recognition dominating. This initiative demonstrated that staff want to be heard and have valuable insights to offer. One participant wrote:

“We should be more sustainable in order to lead the community and be ahead of the curve.”

Golding’s work shows that employee voice isn’t just a nice-to-have it’s a strategic asset. Councils that listen, respond, and act on staff feedback are more likely to build resilient, high-performing cultures.

A Call to Action

Alison Golding’s recommendations are not just operational tweaks they are strategic imperatives for councils seeking to build high-performing, inclusive, and resilient organisations. Her dissertation distils the lived experience of post-merger transformation into a clear roadmap for cultural renewal.

1. Refresh and Re-communicate the Corporate Vision and Priorities

In times of change, clarity of purpose is essential. Golding urges councils to restate their vision in a way that resonates across legacy boundaries and aligns with current challenges. This means:

• Reframing the narrative to reflect the council’s new identity

• Ensuring every employee understands how their role contributes to the bigger picture

• Using storytelling and visual tools to embed the vision in daily practice

2. Create THRIVE Ambassadors to Reinforce Values and Behaviours

The THRIVE values Trust, Honesty, Respect, Innovation, Value, Empowerment must be more than posters on a wall. Golding recommends appointing THRIVE ambassadors across departments to:

• Model desired behaviours

• Facilitate peer-to-peer engagement

• Act as cultural connectors between leadership and frontline staff

3. Develop a Unified Employer Brand and Induction Experience

A fragmented induction experience can reinforce legacy silos. Golding advocates for a cohesive onboarding journey that:

• Introduces new starters to the council’s shared values and goals

• Celebrates diversity while promoting unity

• Builds early engagement and trust

4. Standardise Processes and Systems to Improve Cohesion

Operational inconsistency undermines cultural alignment. Golding highlights the need to:

• Harmonise HR, finance, and service delivery systems

• Reduce duplication and confusion

• Create a seamless employee experience across departments

5. Invest in Leadership and Management Development

Culture change starts at the top. Golding calls for targeted investment in:

• Leadership coaching and emotional intelligence training

• Inclusive management practices

• Cross-functional leadership forums to break down silos

“Leadership is not just about decision-making it’s about meaning-making.” Alison Golding

6. Launch a Reward and Recognition Strategy to Address Fairness

Perceptions of fairness are central to employee engagement. Golding recommends a transparent, values-based recognition strategy that:

• Celebrates contributions aligned with THRIVE values

• Addresses historical disparities in pay and progression

• Builds a culture of appreciation and equity

These actions are not just organisational housekeeping they are the building blocks of a thriving council. Golding’s work reminds us that culture is the strategy, and that transformation must be led with intention, compassion, and clarity.

Conclusion: Culture as the Cornerstone of Transformation

Alison Golding’s research is more than a case study it’s a call to reimagine how local government approaches change. In a sector facing unprecedented structural reform, financial pressure, and public scrutiny, her work reminds us that culture is not a soft issue it’s a strategic one.

West Northamptonshire Council’s journey illustrates the complexity of post-merger integration, the emotional toll of transformation, and the power of leadership to shape outcomes. Golding’s recommendations offer a practical roadmap for councils seeking to unify diverse teams, embed shared values, and build resilient organisations that can thrive in uncertainty. The message is clear: culture must be led, not left to chance. Councils that invest in cultural alignment, leadership development, and employee voice will not only survive the current wave of change they will lead it.