Shaping Place, Shaping Futures: How Local Authorities Can Build and Sustain a Place Narrative Like Torbay

In today’s competitive and fast-evolving local government landscape, the ability to craft and communicate a compelling story about a place is no longer a luxury, it’s a necessity. As councils across the UK face increasing pressure to deliver economic growth, attract inward investment, and foster community resilience, the concept of a place narrative has emerged as a powerful strategic tool. A strong place narrative does more than promote a location, it defines its identity, articulates its ambitions, and builds a shared sense of purpose among stakeholders. It can help unlock government funding, attract private sector interest, and galvanise local communities around a common vision for the future.

One local authority that has embraced this approach with notable success is Torbay Council. Situated on the south coast of Devon, Torbay is often associated with its picturesque coastline and tourism economy. However, in recent years, the council has worked hard to reposition the area as a place of innovation, opportunity, and long-term potential. Through a combination of strategic leadership, collaborative governance, and a deep understanding of place identity, Torbay has transformed its narrative, and in doing so, its prospects. This blog explores how Torbay achieved this transformation and offers practical insights for other local authorities seeking to do the same.

Understanding the Role of Place Narrative

At its core, a place narrative is the story a region tells about itself. It encompasses its history, its present-day realities, and its future aspirations. It reflects the values of the community, the challenges it faces, and the opportunities it seeks to harness. For local authorities, a well-crafted narrative is essential for shaping perceptions, both internally among residents and externally among investors, policymakers, and partners.

In the case of Torbay, the need for a stronger narrative became increasingly clear. While the area was widely recognised for its tourism appeal, this image did not fully capture the complexity or potential of the region. The council recognised that to secure the investment needed for regeneration and renewal, it had to go beyond the traditional seaside town image and present a more ambitious, forward-looking story. This meant articulating not only what Torbay had to offer, but also what it needed. The narrative had to strike a balance between highlighting the area’s strengths, its natural beauty, its entrepreneurial spirit, its community assets, and making a compelling case for why investment was necessary to unlock its full potential.

Crucially, the narrative had to resonate with multiple audiences. It needed to inspire confidence among government departments and funding bodies, attract interest from developers and investors, and instil pride and optimism among local residents. Achieving this required a clear, consistent, and authentic message, one that was rooted in the lived experience of the place but ambitious enough to drive change.

Leadership and Vision: Setting the Foundation

The transformation of Torbay’s narrative did not happen by chance. It was the result of deliberate and sustained leadership from individuals who understood the power of storytelling and the importance of collaboration.

One of the key figures in this journey was Jim Parker, a former journalist who brought a fresh perspective to the challenge of place-making. Recognising the need for a unified voice, Parker launched a campaign titled “Now is the Time”, which aimed to bring together stakeholders from across the public, private, and voluntary sectors. His message was simple but powerful: Torbay had reached a pivotal moment, and it was time to act collectively to shape its future.

This campaign led to the formation of a strategic leadership board, which evolved into the Torbay Together Leadership Board. Under Parker’s chairmanship, the board became a platform for cross-sector collaboration, enabling diverse voices to contribute to the development and delivery of the place narrative.

At the same time, Anne-Marie Bond, Chief Executive of Torbay Council, provided the strategic direction needed to embed the narrative within the council’s broader regeneration agenda. Bond brought a deep understanding of the local context, including the unique identities of Torbay’s three towns, Torquay, Paignton, and Brixham. Rather than attempting to impose a one-size-fits-all identity, she recognised the importance of celebrating local distinctiveness while promoting a shared vision for the future. This dual approach, combining grassroots engagement with strategic oversight, was critical to the success of the narrative. It ensured that the story being told was not only aspirational but also grounded in the realities of the place. It also helped to build trust and buy-in from stakeholders, who could see their own priorities and perspectives reflected in the emerging vision.

By setting a clear foundation based on leadership, inclusivity, and authenticity, Torbay was able to begin reshaping how it was perceived, both by those who lived there and by those looking in from the outside.

Crafting an Authentic and Aspirational Narrative

For a place narrative to be effective, it must strike a delicate balance between aspiration and authenticity. It should inspire belief in a better future while remaining grounded in the lived realities of the community. Torbay Council understood this from the outset. Their goal was not to create a glossy marketing campaign, but to develop a strategic framework that would guide regeneration, attract investment, and build civic pride.

To support this ambition, the council partnered with Thinking Place, a consultancy with expertise in place branding and narrative development. Their guiding principle,

“make the place the hero”,

resonated deeply with Torbay’s leadership. This meant that the story had to emerge from the place itself: its people, its history, its challenges, and its potential.

The resulting narrative was carefully tailored to resonate with multiple audiences. For government departments and funding bodies, it highlighted the area’s readiness for investment and its alignment with national priorities. For investors and developers, it showcased the opportunities available and the council’s commitment to delivery. For local businesses and residents, it offered a renewed sense of identity and purpose.

Importantly, the narrative was not static. It was designed to evolve over time, reflecting progress on the ground and adapting to new challenges and opportunities. This flexibility ensured that the story remained relevant and compelling, even as the context changed.

Building a Collaborative Model for Delivery

One of the most innovative and impactful aspects of Torbay’s approach was the creation of the Place Leadership Board. This board was not just a steering group, it was a dynamic, cross-sector coalition that brought together a wide range of voices and perspectives. Crucially, it was chaired independently, reinforcing its credibility and ensuring that it was not seen as a council-controlled initiative.

The board included representatives from local businesses, community organisations, public sector partners, and civic leaders. It also engaged over 3,500 “Place Champions”, individuals and organisations who actively promoted Torbay’s positive developments and helped spread the narrative throughout the community. The council deliberately positioned itself as a facilitator rather than a controller. This shift in role allowed the board to set its own agenda, identify priorities, and take ownership of the narrative. It also helped to build trust and foster a sense of shared responsibility for the area’s future.

This collaborative model proved to be a powerful mechanism for sustaining momentum. It ensured that the narrative was not just a top-down initiative, but a genuinely collective endeavour. It also created a platform for ongoing dialogue, innovation, and accountability, key ingredients for long-term success.

Operational Readiness: Turning Vision into Action

While a compelling narrative can open doors, it must be backed by the ability to deliver. Torbay Council recognised that storytelling alone would not be enough to secure investment or drive regeneration. The narrative had to be matched by operational readiness and a clear plan for implementation.

To this end, the council focused on de-risking development opportunities and making the area as investment-ready as possible. This included acquiring key sites, securing planning permissions, and undertaking preparatory works such as demolition and infrastructure upgrades. These actions sent a strong signal to investors that Torbay was serious about delivery and capable of turning vision into reality.

The results were impressive. The council secured over £105 million in government grants through programmes such as the Levelling Up Fund, the Long-Term Plan for Towns, and the Town Deal. These funds enabled the council to unlock stalled sites, accelerate regeneration projects, and attract interest from major institutional investors.

By aligning its narrative with tangible progress on the ground, Torbay was able to build credibility and confidence among stakeholders. The message was clear: this was a place that not only had a story to tell, but the capacity to deliver on its promises.

Sustaining the Narrative Over Time

Creating a place narrative is not a one-off exercise, it’s an ongoing process that requires regular reflection, renewal, and reinforcement. Torbay understood this and took deliberate steps to ensure that its narrative remained relevant and impactful over time.

The Place Leadership Board played a central role in this effort. Its priorities and terms of reference were regularly reviewed and updated to reflect changing circumstances and emerging opportunities. This helped to keep the board focused, agile, and aligned with the broader regeneration agenda.

The council also maintained a strong emphasis on delivery. Rather than relying on rhetoric, it focused on achieving visible results, new developments, improved infrastructure, and enhanced public spaces. These tangible outcomes reinforced the narrative and demonstrated that progress was being made. This commitment to action helped to sustain community engagement and stakeholder support. Residents could see the changes happening around them, cranes on the skyline, roads being redeveloped, planning applications being approved. These visible signs of transformation served as powerful reminders that the narrative was not just words, but a roadmap for real change.

Engaging the Community and Building Confidence

Perhaps the most important lesson from Torbay’s experience is the need to connect the narrative to the lived experience of residents. A story that is not understood or embraced by the community will struggle to gain traction, no matter how well-crafted it may be.

Torbay Council worked hard to ensure that residents felt part of the journey. It communicated openly about the challenges and trade-offs involved in regeneration, including the short-term disruptions caused by construction and infrastructure works. It framed these inconveniences as necessary steps towards a better future, not just for today’s residents, but for future generations.

By positioning regeneration as a once-in-a-generation opportunity, the council helped to build a sense of shared purpose and long-term vision. It encouraged residents to look beyond immediate frustrations and see themselves as active participants in shaping the future of their place. This approach helped to foster trust, pride, and optimism. It also created a stronger foundation for future engagement, ensuring that the narrative would continue to evolve in response to community needs and aspirations.

Lessons for Other Local Authorities

Torbay’s journey offers a wealth of practical insights for councils across the UK that are looking to develop and sustain a compelling place narrative. While every locality is unique, the principles that underpinned Torbay’s success are widely applicable and can serve as a blueprint for others embarking on a similar path.

1. Start with Clarity

The foundation of any successful place narrative is a clear understanding of what you want to achieve and why. This means identifying your place’s core identity, recognising its challenges, and articulating its long-term aspirations. Without this clarity, it’s easy for narratives to become vague or disconnected from reality.

As Jim Parker reflected, “Be clear from the onset about what you’re trying to achieve. Make sure you have the right people in the room saying the right things.”

This clarity of purpose helped Torbay align its stakeholders and maintain focus throughout its regeneration journey.

2. Engage the Right People

A place narrative cannot be developed in isolation. It must be shaped and supported by a diverse group of stakeholders who bring different perspectives, resources, and networks to the table. This includes local businesses, community leaders, public sector partners, and residents. Torbay’s Place Leadership Board exemplified this inclusive approach. By bringing together over 3,500 “Place Champions,” the council created a broad coalition of advocates who could amplify the narrative and help embed it across the community.

3. Look for Quick Wins

While long-term transformation takes time, early successes are essential for building momentum and credibility. These quick wins don’t need to be large-scale infrastructure projects, they can be smaller, visible improvements that demonstrate progress and signal intent. Parker noted the importance of this strategy:

“We had a couple of quick wins when we first got the government money. We managed to do a couple of smaller schemes, and that helped show people we were on the right path.”

These early achievements helped counter public scepticism and built trust in the council’s ability to deliver.

4. Involve Young People

Regeneration is ultimately about the future, and young people are its most important stakeholders. Yet they are often underrepresented in strategic planning processes. Torbay recognised this gap and is now working to ensure that youth voices are included from the outset.

“We’re doing this not for me and Anne-Marie, we’re doing this for future generations,” Parker said. “Young people should have a voice from the start.”

Their perspectives not only enrich the narrative but also ensure that it remains relevant and forward-looking.

5. Celebrate Success

Local authorities are often cautious about promoting their achievements, fearing backlash if things go wrong. But Torbay’s experience shows that confidence is key. Being bold in telling your story, and proud of what you’re delivering, can help build civic pride and attract further investment. Anne-Marie Bond encouraged councils to be more vocal:

“Sometimes we’re too shy about our successes. We need to be prouder and bolder in setting out what we’re doing well.”

Celebrating progress helps reinforce the narrative and keeps stakeholders engaged.

Scaling the Narrative Across Regions

Torbay’s success in crafting a local narrative has now laid the groundwork for a broader regional story. As part of the newly formed Devon and Torbay Combined County Authority (CCA), the council is applying the same principles to develop a layered narrative that reflects both local distinctiveness and collective ambition.

This approach recognises that place-making is not static. As governance structures evolve and regional partnerships emerge, narratives must adapt to reflect new realities and opportunities. Torbay is once again working with Thinking Place to ensure that the CCA’s story is cohesive, compelling, and capable of attracting regional investment and support.

Bond explained the importance of this layered approach: “Torbay absolutely has to have its story. But as the Devon and Torbay CCA, we need a narrative about our place and our aspiration.” This dual focus allows for both local pride and regional coherence, strengthening the area’s overall positioning.

Conclusion: Start with Your Story

Torbay’s transformation is a powerful reminder that regeneration begins with storytelling. A well-crafted place narrative can unlock funding, attract investment, and inspire communities, but only if it is authentic, inclusive, and backed by action.

The council’s journey shows that success requires more than a communications strategy. It demands visionary leadership, collaborative governance, and a relentless focus on delivery. It also requires the courage to be bold, to celebrate progress, engage widely, and speak confidently about what your place stands for.

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For local authorities across the UK, the message is clear: if you want to shape your place’s future, start with your story. Make it real. Make it ambitious. And most importantly, make it happen.