The The Nolan Principles: Why They Still Matter in Local Government

In 1995, the UK government responded to the “cash-for-questions” scandal a moment that shook public confidence in elected officials by establishing the Committee on Standards in Public Life, chaired by Lord Nolan. The committee’s first report laid the foundation for a new ethical framework for public service: the Seven Principles of Public Life, now widely known as the Nolan Principles.

These principles were not designed as bureaucratic box-ticking exercises. They were and remain a moral compass for anyone entrusted with public responsibility. From councillors and chief executives to planning officers and procurement leads, the Nolan Principles offer a shared language of integrity, transparency, and accountability. Now, thirty years on, the question is not whether these principles are still relevant but whether we are doing enough to uphold them in an era of digital scrutiny, rising public expectations, and increasingly complex governance. As local government professionals, we operate at the frontline of public trust. Our decisions shape communities, allocate resources, and influence lives. The ethical standards we uphold or fail to uphold have real-world consequences.

What Are the Nolan Principles?

The Seven Principles of Public Life are:

1. Selflessness – Public office holders should act solely in terms of the public interest. Decisions must be made for the benefit of the community, not personal gain or political favour.

2. Integrity – They must avoid placing themselves under any obligation to people or organisations that might try to influence them improperly. This includes resisting undue pressure from lobbyists, contractors, or political allies.

3. Objectivity – Decisions should be made impartially, fairly, and on merit, using the best evidence available. Whether awarding contracts, allocating housing, or making planning decisions, fairness must be the guiding principle.

4. Accountability – Public office holders are accountable to the public for their decisions and actions and must submit themselves to appropriate scrutiny. This means being open to challenge, audit, and democratic oversight.

5. Openness – They should act and take decisions in an open and transparent manner. Information should not be withheld unless there are clear and lawful reasons for doing so. Transparency builds trust.

6. Honesty – They should be truthful. This principle underpins everything from financial declarations to public statements and internal communications.

7. Leadership – They should exhibit these principles in their own behaviour and actively promote and support them. Ethical leadership is not passive it requires courage, consistency, and a commitment to doing the right thing, even when it’s difficult.

These principles are not statutory rules, nor are they optional. They are high-level ethical standards that guide behaviour across councils, boards, and public bodies. They are embedded in codes of conduct, referenced in recruitment and induction, and increasingly used as benchmarks for organisational culture. But they are only as powerful as the commitment behind them. When upheld, they foster trust, legitimacy, and good governance. When ignored, they open the door to dysfunction, reputational damage, and public disillusionment.

Why They Matter in Local Government

Local government is where public service becomes tangible. It’s the tier of governance closest to people’s everyday lives where decisions about housing, planning, education, social care, transport, and environmental services are made. Councillors and officers are entrusted with significant authority, often making choices that directly affect the wellbeing, safety, and prosperity of communities. In this context, the Nolan Principles serve as a shared moral compass. They are not abstract ideals they are practical, guiding standards that help ensure decisions are made ethically, transparently, and in the public interest. Whether it’s a procurement process, a planning application, or a safeguarding intervention, the principles offer a framework for doing the right thing, even under pressure.

As Professor Mark Philp, Chair of the Committee on Standards in Public Life’s Research Advisory Board, eloquently put it:

“The Nolan Principles express the underlying trust that should govern the relationship between members of the community and those in public office… They map the responsibilities that those in office have to the public who entrust them with these responsibilities.”

This trust is not automatic it must be earned and maintained. And in local government, where scrutiny is high and resources are stretched, the ethical foundation provided by the Nolan Principles is more important than ever.

Public Trust Is Fragile and Vital

Trust in local government is a cornerstone of democratic legitimacy. When residents believe their council is acting fairly, transparently, and in their best interests, they are more likely to engage with services, participate in consultations, and support local initiatives. But when that trust is broken through misconduct, poor governance, or opaque decision-making the consequences can be severe. In a 2025 parliamentary debate marking the 30th anniversary of the Nolan Principles, MP Alberto Costa reflected on their enduring importance:

“Those seven principles embody everything that we, as elected representatives, should strive for on behalf of our constituents. They are the guiding principles for anyone in elected office.”

Yet Costa also highlighted a worrying trend: according to the Society of Local Council Clerks, 15% of parish councils experience serious behavioural issues, and 5% are effectively dysfunctional due to misconduct. These figures are not just statistics they represent communities where governance has broken down, where decisions may be made without proper scrutiny, and where public confidence has been eroded. Such dysfunction can manifest in bullying, conflicts of interest, opaque financial decisions, or failure to follow due process. And while these issues may begin at the margins, they can quickly undermine the credibility of the entire institution.

The fragility of public trust is compounded by the digital age. Social media amplifies missteps, misinformation spreads rapidly, and residents expect instant transparency. In this environment, the Nolan Principles are not just a safeguard they are a strategic asset. They help councils demonstrate integrity, respond to criticism, and build resilient relationships with their communities.

The Current Regime Is Failing

Despite the enduring relevance of the Nolan Principles, the current standards framework in local government is showing signs of strain. In his 2025 parliamentary address, MP Alberto Costa laid bare the systemic weaknesses that undermine ethical governance at the local level.

Among the most pressing concerns:

• No clear definition of bullying or harassment in the Localism Act 2011, leaving councils ill-equipped to deal with toxic behaviour.

• Inconsistent codes of conduct across local authorities, creating a postcode lottery of ethical standards.

• Limited sanctions for misconduct, often amounting to little more than a formal warning or public censure.

• A democratic deficit at parish level: in 2015, only 20% of eligible parishes contested their vacancies, suggesting disengagement and a lack of accountability in the most local tier of government.

These gaps mean that misconduct frequently goes unchecked. Councillors who engage in bullying, conflicts of interest, or opaque decision-making may face no meaningful consequences. This not only damages internal morale it erodes public trust. The Committee on Standards in Public Life has long warned that ethical standards must be supported by robust systems. Without clear definitions, consistent enforcement, and credible sanctions, the Nolan Principles risk becoming symbolic rather than operational.

A Call for Reform

Recognising these failings, Costa and other advocates have called for a comprehensive reform of the local government standards regime. Their proposals include:

• A mandatory national code of conduct, ensuring consistency across all councils.

• Clear statutory definitions of bullying, harassment, and other forms of misconduct.

• The reintroduction of independent standards committees in all principal authorities, with powers to investigate and adjudicate impartially.

• Meaningful sanctions, including the ability to suspend councillors for serious breaches of conduct.

These reforms are not about centralising control they are about restoring credibility to local governance. They would empower councils to uphold the Nolan Principles not just in theory, but in practice. Responding to these calls, former Minister for Local Government Jim McMahon stated:

“We launched a 10-week consultation on strengthening the standards and conduct framework… The public can have trust and confidence that all councils in England can be effective and well governed.”

This consultation represents a critical opportunity for the sector to shape a more resilient, transparent, and accountable future. But it will require bold leadership and cross-party consensus to translate consultation into legislation.

Leadership Is the Linchpin

Of all the Nolan Principles, Leadership may be the most vital and the most difficult to sustain. It is the principle that binds the others together. Without ethical leadership, selflessness becomes performative, integrity becomes negotiable, and accountability becomes diluted. As McMahon noted in his address:

“There are examples in councils right across the country of bad behaviour being far too common. That cannot stand.”

Leadership in local government means more than holding office it means modelling ethical behaviour, challenging poor conduct, and embedding values into organisational culture. It requires courage to speak up, humility to listen, and consistency to act with integrity even when no one is watching. In practice, this means:

• Senior officers and elected members setting the tone from the top.

• HR and governance teams embedding the principles into recruitment, induction, and performance management.

• Councils investing in training, coaching, and reflective practice to build ethical resilience.

Ultimately, the Nolan Principles are not just a checklist they are a leadership philosophy. And in a time of political polarisation, financial pressure, and public scepticism, that philosophy is more important than ever.

Conclusion: Reimagining the Principles for a Digital Age

In today’s digital-first world, the pace of public scrutiny has accelerated. Decisions made in council chambers or committee meetings are no longer confined to minutes and agendas they are dissected in real time on social media, debated in community forums, and judged by a public that expects transparency, fairness, and accountability as standard. In this environment, the Nolan Principles are not just relevant they are essential. But relevance alone is not enough. As Dan Aldridge MP asked in Parliament:

“In a digital-first world… is there a greater necessity for a reimagination of the Nolan principles?”

The answer must be a resounding yes. We must move beyond simply referencing the principles in codes of conduct or induction packs. We must embed them deeply into the systems, structures, and cultures of local government. That means:

• Training that goes beyond compliance, helping officers and councillors explore ethical dilemmas and build moral resilience.

• Transparency that is proactive, not reactive publishing decisions, data, and rationale in accessible formats.

• Accountability that is meaningful, with clear consequences for misconduct and robust mechanisms for public challenge.

• Culture change that starts with leadership and permeates every level of the organisation.

This is not about adding bureaucracy it’s about building trust. Because public trust isn’t given it’s earned. And in an age where reputations can be lost overnight, where misinformation spreads faster than facts, and where communities are increasingly sceptical of institutions, the Nolan Principles offer a timeless foundation for ethical public service.

But they must evolve. That evolution might include:

• Digital ethics: How do we apply principles like openness and integrity to algorithmic decision-making, data use, and AI in public services?

• Community co-design: How do we involve residents in shaping the ethical standards that govern their councils?

• Behavioural insight: How do we use behavioural science to reinforce ethical conduct and prevent misconduct before it occurs?

The Nolan Principles were born out of crisis. They have endured because they speak to something fundamental: the idea that public service is a privilege, and with it comes a duty to act with integrity, fairness, and humility. As we look to the future, the challenge is not just to preserve these principles but to reinvigorate them, to make them fit for a new era, and to ensure they remain the bedrock of local government leadership.