Since many Councils are already working with each other, through formal and informal arrangements, all of those arrangements have to be reviewed if the local government structure changes. So, as well as existing Council administrations having to be force-fitted together, there is a substantial cost of making the regional structures fit with the new Council boundaries.
Added to which, while it is prudent to anticipate change, all this is still hypothetical - the cost will be incurred in pursuit of an as-yet unknown set of changes that will quite likely not eventuate.
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