The government is to unveil radical proposals that would give football fans first option to buy their clubs when they were put up for sale and require clubs to hand over a stake of up to 25% to supporters' groups.

The ideas, due to be included in the Labour manifesto with a promise of action in the first year of a new government, are designed to give fans a far greater say in how their football clubs are run and overhaul the way the game is governed.

It is believed that No 10, which has been working secretly on the plans for weeks, has resolved to deliver concrete proposals to tackle growing public disquiet at the level of debt carried by some clubs, the ownership model of others and the dysfunctional structure of the Football Association.

The plans include:

• Requiring clubs to hand a stake of up to 25% to fans in recognition of their links with their local community.

• Implementing a change-of-control clause that would allow fans a window to put together a takeover of their club if it was up for sale or went into administration.

• Giving the football authorities a deadline to reform the FA and remove "vested interests" from the board, and streamline decision making.

• Introducing a unified system of governance that co-ordinates issues such as club ownership and youth development.

• Allowing professional leagues and the FA additional oversight of club takeovers.

The plans are likely to put Gordon Brown on a collision course with the Premier League, which has vigorously defended its free-market model in recent years, but he will claim that the proposals are for the good of the game.

Two policy ideas have emerged as frontrunners to improve supporter representation around the boardroom table, both of which would see fans taking a meaningful ownership stake in clubs.

Portsmouth's financial collapse, the outpouring of anger in response to the leveraged buyouts at Manchester United and Liverpool that loaded the clubs with combined debts of more than £1bn, and last week's shock resignation of the FA chief executive, Ian Watmore, in protest at the "vested interests" on the board are all understood to have persuaded the prime minister to act.

Reflecting the view that they will succeed in democratising ownership only if there is stronger leadership from the top, it will also set football a deadline of up to a year to overhaul its governance system.

Under the scheme to give fans a stake, supporters' trusts with elected representatives, audited accounts and Financial Services Authority recognition would be responsible for maintaining the link between clubs and their community and ensuring fans are not priced out of the game.

The government could, however, face legal challenges from existing owners over the dilution of their shares. It has echoes of the model proposed by the so-called Red Knights attempting to buy Manchester United. Wealthy fans will contribute 74.9% of the overall purchase price, but supporters will hold a "golden share" of just over 25%, giving them a blocking stake on any change of ownership and an influential boardroom voice.

Legal advice is being sought on the idea of a change of ownership at a club triggering a mandatory window for fans to take the opportunity to shape the ownership structure and buy the club at a price set by an external, independent auditor.

Under the proposals, fans would be free to set up their co-operative style model, shareholding trust or other structure that enabled them to have a say in the club.

While the government will reiterate that it has no desire to regulate football directly, the prime minister believes the democratisation of football club ownership taps into wider themes about the "mutualisation" of public services and the need for regulatory reform.