The recruitment freeze would contain immediate staffing costs and give the council time to reassess its workforce in the longer term, the budget report said.
Managers would need to deliver services with a lower budget “encouraging creative solutions and potential realignment of roles where appropriate”.
The council said its budget had been reduced over a number of years with continued pressures in adult social care, children’s services and homelessness, driven by rising demand and ongoing cost increases.
In adult social care, there would be a “radical review” of non-essential and discretionary spending to reduce costs.
With special educational needs and disabilities, senior managers were having daily meetings “to drive down” the number of students transported by taxis from home to school, which currently stands at more than 1,200.
There would be a “rigorous review” of who is eligible for transport, routes and post-16 travel policy, the authority said.
Parents of disabled children can get direct payments so they have more control and flexibility over services, but there would be “detailed analysis to identify cost-saving opportunities”.
The report said: “Measures include scrutinising high-cost care packages and assessing the feasibility of in-house residential facilities to ensure value for money.”