1. Purpose
1.1 This protocol sets out the process and criteria to be applied when Leeds City Council considers whether to confer the civic honour of freedom of Leeds or freedom of entry.
1.2 The purpose of the protocol is to ensure that any proposal is considered consistently, transparently and in accordance with the statutory requirements in section 249 of the Local Government Act 1972.
1.3 The protocol is intended to preserve the exceptional status of these honours. They should be conferred sparingly and only where the council is satisfied that the statutory and local criteria are met.
2. Scope
2.1 This protocol applies to:
- freedom of Leeds: the honorary title of honorary freeman or honorary freewoman of the city
- freedom of entry: a ceremonial honour traditionally granted to military units with a close and significant association with the city
2.2 The protocol applies whether a proposal is made by an individual, a civic office holder, an elected member, a military unit or another organisation.
2.3 This protocol does not create any right to receive a civic honour. The final decision rests with full council, acting in accordance with the statutory requirements.
3. Legislative framework
3.1 Section 249(5) of the Local Government Act 1972 enables Leeds City Council to admit as honorary freemen or honorary freewomen of the place or area for which it is the authority:
- persons of distinction
- persons who have, in the opinion of the authority, rendered eminent services to that place or area
3.2 The power must be exercised by resolution of the council by not less than two-thirds of the members voting on the resolution.
3.3 Freedom of entry is a civic and ceremonial honour traditionally used to recognise military units. Local authorities have generally treated freedom of entry as falling within the same statutory and procedural framework for conferring honorary freedom, with the ceremonial form adapted to suit a military unit.
4. Status and nature of the honours
4.1 Freedom of Leeds is the highest civic honour the council may confer. It recognises exceptional distinction or eminent service to Leeds.
4.2 Freedom of entry is a ceremonial honour recognising the relationship between the city and a military unit. It is traditionally associated with the privilege of marching through the city with bayonets fixed, drums beating and colours flying.
4.3 The city shall maintain continuous recognition of the 3 principal Armed Forces Units: Royal Navy, British Army, Royal Air Force. In the event of a potential vacancy or gap in representation among these units, a review shall be undertaken to consider appropriate action.
4.4 Neither honour should be treated as a general community award, long service award, retirement award or routine mark of appreciation.
5. Core principles
- Exceptional nature: the honour should be reserved for cases that are clearly exceptional.
- Merit: the decision to confer the honour, shall be based on evidence of distinction, eminent service or a significant and sustained civic association.
- Connection with Leeds: the contribution or association should relate clearly to Leeds, its communities, reputation, heritage or civic life.
- Non-political character: the honour should not be used for party-political purposes or to recognise routine political, professional or organisational activity.
- Consistency: proposals shall be assessed against the same statutory and local criteria.
- Proportionality: practical arrangements, costs and officer capacity shall be considered before a recommendation is made.
6. Eligibility and assessment criteria
6.1 Statutory assessment
A proposal will not proceed unless the council can reasonably conclude that the nominee falls within at least one of the following statutory categories:
- the nominee is a person of distinction
- the nominee has, in the opinion of the council, rendered eminent services to Leeds
For freedom of entry, the assessment will focus on whether the military unit has rendered conspicuous service and has a close, sustained and significant association with Leeds, applying the statutory gateway by analogy to the unit and the ceremonial nature of the honour.
6.2 Freedom of Leeds: local assessment criteria
In assessing whether the statutory criteria are met, relevant factors may include whether the nominee has:
- made an exceptional contribution to Leeds, its residents or communities
- brought distinction to the city or significantly enhanced its reputation
- demonstrated exceptional achievement in a field that has clear civic, cultural, charitable, sporting, educational, economic or community benefit for Leeds
- provided eminent voluntary, charitable or community service to Leeds or any part of it
- made a contribution that has significantly improved the lives of people experiencing disadvantage or limited opportunity
- promoted community cohesion, civic pride or the city’s identity
- shown a sustained and demonstrable connection with Leeds
- carried the respect of peers, communities or relevant civic institutions
The above list is not exhaustive. The essential question is whether the evidence demonstrates distinction or eminent service of a level sufficient to justify the council’s highest civic honour.
6.3 Freedom of entry: local assessment criteria
Freedom of entry is traditionally granted to military units with a significant and sustained connection to the city. While all affiliated units are valued, the honour is typically reserved for those demonstrating a notable scale of operation, national importance, or active service.
A military unit is expected to demonstrate:
- nationally significant military operations at a global level
- commitment preservation of military history relevant to the city’s identity
- a relationship with the city that is understood and capable of public recognition
Where a military unit from either of the Armed Forces Units: Royal Navy, British Army, Royal Air Force has already been granted freedom of entry not further requests from the same branch of the Armed Forces will be considered unless there is a material change in the identity or status of the unit that requires separate consideration.
7. Evidence required
7.1 A proposal should be supported by sufficient evidence to allow the council to assess whether the statutory and local criteria are met.
7.2 Evidence may include:
- a clear statement of the honour sought and the reasons for the proposal
- details of the nominee’s or unit’s connection with Leeds
- evidence of distinction, eminent service, conspicuous service or exceptional impact
- supporting statements from relevant civic, community, charitable, military or professional bodies
- details of any previous civic honours or comparable recognition
- any proposed timing, anniversary, commemorative event or ceremony
- information about likely cost, capacity, public safety, operational requirements and delivery implications
7.3 A proposal may be declined or deferred where there is insufficient evidence to support assessment against this protocol.
8. Process
8.1 Submission
A proposal should be submitted in writing using the standard form provided.
8.2 Initial review
The proposal will be reviewed by the Head of the Chief Executive’s Office to confirm whether it is within scope, whether the evidence is sufficient and whether any further information is required before member consideration.
8.3 Cross-party consideration
Where a proposal is to proceed for member consideration, it will be considered by the Leeds Group Leaders Forum, to consider the evidence against the statutory and local criteria and may request further information where necessary.
8.4 Full council decision
If the proposal proceeds, the matter must be considered at a meeting of full council specially convened for the purpose, with notice of the object of the meeting given. The resolution will only pass if supported by not less than two-thirds of the members voting on it.
9. Frequency of awards
To preserve the status of the honours, Freedom of Leeds will not normally be conferred more than once in any 5 year period unless there are exceptional circumstances. Freedom of entry should also be treated as an exceptional civic honour and will not be granted routinely.
10. Record keeping and publication
A record will be maintained of all recipients of Freedom of Leeds and all military units granted freedom of entry. The record shall include the date of the council resolution, the basis of the honour and any relevant ceremonial arrangements.
11. Review
This protocol will be reviewed every 5 years, or sooner if there is a material legislative, constitutional or procedural change, or following the conferment of a civic honour where lessons learned indicate that amendments are required.
Contact information
For more information and an application form email LordMayorsOffice@leeds.gov.uk.
