Map of the 2009 structural changes to local government in England

Structural changes to local government in England were effected on 1 April 2009, whereby a number of new

unitary authorities A unitary authority is a local authority responsible for all local government functions within its area or performing additional functions that elsewhere are usually performed by a higher level of sub-national government or the national governme ...

were created in parts of the country which previously operated a "two-tier" system of

counties A county is a geographic region of a country used for administrative or other purposesChambers Dictionary, L. Brookes (ed.), 2005, Chambers Harrap Publishers Ltd, Edinburgh in certain modern nations. The term is derived from the Old French ...

and districts. In five shire counties the functions of the county and district councils were combined into a single authority; and in two counties the powers of the county council were absorbed into a significantly reduced number of districts. Elections to the new authorities took place on 1 May 2008 for some of the new authorities, which took up their powers on 1 April 2009. The other new authorities retained the existing county council as the "continuing authority" as of 1 April 2009 with elections taking place two months later on 4 June 2009.

Background

Following the passing of the Local Government Act 1992, the Local Government Commission for England recommended a number of unitary authorities to be created in England during the 1990s. The changes that were implemented meant that much of the country continued to have a two-tier arrangement of local government. Further proposals for unitary authorities in northern England, tied to the option of regional devolution, were put to a referendum in 2004 and were rejected. In 2006, the white paper ''Strong and Prosperous Communities'' invited local authorities in England to submit their own consensus-based proposals for unitary authority arrangements, to be submitted before 25 January 2007. Selected submissions went to a public consultation from March until June, with successful proposals announced in July. Legislative requirements for implementation were in place following the enactment of the

Local Government and Public Involvement in Health Act 2007 The Local Government and Public Involvement in Health Act 2007 (c 28) is an Act of the Parliament of the United Kingdom. The Act allows for the implementation of many provisions outlined in the Government white paper ''Strong and Prosperous Com ...

Proposed changes

Early responses

Various local councils indicated their wish to seek unitary authority status. Four medium-sized towns and historic

county borough County borough is a term introduced in 1889 in the United Kingdom of Great Britain and Ireland, to refer to a borough or a city independent of county council control, similar to the unitary authorities created since the 1990s. An equivalent ter ...

s, overlooked by the 1990s review:

Ipswich Ipswich () is a port town and borough in Suffolk, England, of which it is the county town. The town is located in East Anglia about away from the mouth of the River Orwell and the North Sea. Ipswich is both on the Great Eastern Main Line r ...

Oxford Oxford () is a city in England. It is the county town and only city of Oxfordshire. In 2020, its population was estimated at 151,584. It is north-west of London, south-east of Birmingham and north-east of Bristol. The city is home to the ...

Norwich Norwich () is a cathedral city and district of Norfolk, England, of which it is the county town. Norwich is by the River Wensum, about north-east of London, north of Ipswich and east of Peterborough. As the seat of the See of Norwich, with ...

and

Exeter Exeter () is a city in Devon, South West England. It is situated on the River Exe, approximately northeast of Plymouth and southwest of Bristol. In Roman Britain, Exeter was established as the base of Legio II Augusta under the personal comm ...

proposed unitary status on their present boundaries, and commissioned a report jointly to press their case. Norwich announced its intention to respond to the invitation, as did Ipswich and Exeter. In

Lancashire Lancashire ( , ; abbreviated Lancs) is the name of a historic county, ceremonial county, and non-metropolitan county in North West England. The boundaries of these three areas differ significantly. The non-metropolitan county of Lancashi ...

, Preston and

South Ribble South Ribble is a borough in the county of Lancashire, England. Its council is based in Leyland. The population, at the 2011 Census, was 109,057. Notable towns and villages include Walton le Dale, Bamber Bridge, Leyland and Penwortham. It ...

desired to form a single unitary authority although Preston bid for it alone. The

City of Lancaster The City of Lancaster () is a local government district of Lancashire, England, with the status of a city and non-metropolitan district. It is named after its largest settlement, Lancaster, but covers a far larger area, which includes the tow ...

considered seeking unitary status on its present boundaries (having supported a merger with South Lakeland and

Barrow-in-Furness Barrow-in-Furness is a port town in Cumbria, England. Historically in Lancashire, it was incorporated as a municipal borough in 1867 and merged with Dalton-in-Furness Urban District in 1974 to form the Borough of Barrow-in-Furness. In 2023 the ...

to form a

Morecambe Bay Morecambe Bay is a large estuary in northwest England, just to the south of the Lake District National Park. It is the largest expanse of intertidal mudflats and sand in the United Kingdom, covering a total area of . In 1974, the second larges ...

unitary authority during the referendums review). Blackpool advocated a merger with the Fylde and Wyre districts, which they did not support.

Pendle Pendle may refer to: * Borough of Pendle in Lancashire, England ** Pendle (UK Parliament constituency) * Pendle Hill in Lancashire, England ** Forest of Pendle, hilly landscape surrounding the hill * Pendle College of the University of Lancaster * ...

and

Burnley Burnley () is a town and the administrative centre of the wider Borough of Burnley in Lancashire, England, with a 2001 population of 73,021. It is north of Manchester and east of Preston, Lancashire, Preston, at the confluence of the River C ...

also tried to form a unitary authority with Rossendale; however Rossendale rejected this. The

Local Government Chronicle The ''Local Government Chronicle'' (''LGC'') is a British weekly magazine for local government officers, and is published by Metropolis. The magazine was launched in 1855 by bookseller and publisher Charles Knight . It was then published by E ...

suggested that the non-metropolitan counties of

Cornwall Cornwall (; kw, Kernow ) is a historic county and ceremonial county in South West England. It is recognised as one of the Celtic nations, and is the homeland of the Cornish people. Cornwall is bordered to the north and west by the Atlantic ...

Shropshire Shropshire (; alternatively Salop; abbreviated in print only as Shrops; demonym Salopian ) is a landlocked historic county in the West Midlands region of England. It is bordered by Wales to the west and the English counties of Cheshire to ...

Durham Durham most commonly refers to: *Durham, England, a cathedral city and the county town of County Durham *County Durham, an English county * Durham County, North Carolina, a county in North Carolina, United States *Durham, North Carolina, a city in N ...

Cumbria Cumbria ( ) is a ceremonial and non-metropolitan county in North West England, bordering Scotland. The county and Cumbria County Council, its local government, came into existence in 1974 after the passage of the Local Government Act 1972. Cumb ...

and

Northumberland Northumberland () is a county in Northern England, one of two counties in England which border with Scotland. Notable landmarks in the county include Alnwick Castle, Bamburgh Castle, Hadrian's Wall and Hexham Abbey. It is bordered by land on ...

would fit the government's criteria, and that the government would be unlikely to favour carving out unitary authorities from existing two-tier counties. Shropshire County Council, as well as two of the five districts of Shropshire, stated their wish for a move to unitary status. The issue was considered in Durham and Cumbria and the idea of a North Cumbria authority covering the Eden, Copeland, Carlisle and Allerdale districts had some support. The issue was also considered in Northumberland, with the county council in favour of one Northumberland unitary authority. Alan Beith, the MP for Berwick at the far north of Northumberland, suggested instead a three unitary solution, with authorities for the largely rural north and south-west, and an authority for the urban south-east ( Wansbeck and

Blyth Valley Blyth Valley was a local government district and borough in south-east Northumberland, England, bordering the North Sea and Tyne and Wear. The two principal towns were Blyth and Cramlington. Other population centres include Seaton Delaval, and ...

Consultation period

On 26 January 2007, the government confirmed that 26 proposals for unitary authorities had been received. Various county councils proposed they should become unitary authorities:

Bedfordshire Bedfordshire (; abbreviated Beds) is a ceremonial county in the East of England. The county has been administered by three unitary authorities, Borough of Bedford, Central Bedfordshire and Borough of Luton, since Bedfordshire County Council ...

Cheshire Cheshire ( ) is a ceremonial and historic county in North West England, bordered by Wales to the west, Merseyside and Greater Manchester to the north, Derbyshire to the east, and Staffordshire and Shropshire to the south. Cheshire's county t ...

North Yorkshire North Yorkshire is the largest ceremonial counties of England, ceremonial county (lieutenancy area) in England, covering an area of . Around 40% of the county is covered by National parks of the United Kingdom, national parks, including most of ...

Somerset ( en, All The People of Somerset) , locator_map = , coordinates = , region = South West England , established_date = Ancient , established_by = , preceded_by = , origin = , lord_lieutenant_office =Lord Lieutenant of Somerset , lord_ ...

and

Wiltshire Wiltshire (; abbreviated Wilts) is a historic and ceremonial county in South West England with an area of . It is landlocked and borders the counties of Dorset to the southwest, Somerset to the west, Hampshire to the southeast, Gloucestershire ...

. Districts seeking to become unitary authorities on their own were

Bedford Bedford is a market town in Bedfordshire, England. At the 2011 Census, the population of the Bedford built-up area (including Biddenham and Kempston) was 106,940, making it the second-largest settlement in Bedfordshire, behind Luton, whilst ...

, Lancaster,

, Preston.

and

proposed merging as a unitary authority. On 27 March 2007, the government announced that the proposals by Bedfordshire, Bedford, Cornwall, Cheshire, Cumbria, Durham, Exeter, Ipswich, North Yorkshire, Norwich, Shropshire, Somerset and Wiltshire to become unitary authorities would go into the next phase, as would the proposal of Chester for a two-unitary authority Cheshire and by the districts of Northumberland for a two-unitary Northumberland. On 25 July 2007 it was announced that the unitary proposals by

and

had been rejected. On 5 December 2007 it was explained that the unitary proposals by

, and

, like those of

(which were referred for review on 25 July 2007) did not meet the requirements to proceed; but may be reconsidered after the Boundary Committee has conducted a review of local government structures across the whole of the two-tier counties they are currently a part of. A legal challenge was made by

Shrewsbury and Atcham Borough Council Shrewsbury ( , also ) is a market town, civil parish, and the county town of Shropshire, England, on the River Severn, north-west of London; at the 2021 census, it had a population of 76,782. The town's name can be pronounced as either 'Shr ...

and by

Congleton Borough Council Congleton is a town and civil parish in the unitary authority of Cheshire East in Cheshire, England. The town is by the River Dane, south of Manchester and north of Stoke on Trent. At the 2011 Census, it had a population of 26,482. Top ...

to the government's decisions, on the basis (amongst other things) that the reviews were made without statutory authority. The High Court and then on 4 March 2008 the Court of Appeal rejected the challenge, finding that the review had been legalized retrospectively. † - in the context of examining options for unitary arrangements in the wider county area. ‡ - the Boundary Committee is asked to advise whether an alternative unitary proposal for Norwich based on revised council boundaries could deliver the required improvements.

Successful proposals

On 27 March 2007 Local Government Minister

Phil Woolas Philip James Woolas (born 11 December 1959) is a British environmental consultant, political lobbyist and former television producer and politician who served as Minister of State for Borders and Immigration from 2008 to 2010. A member of the ...

announced that 16 councils bidding for unitary status had been shortlisted to go forward for public consultation. On 25 July 2007 Woolas' successor John Healey announced that nine proposals would proceed, subject to the approval of

Parliament In modern politics, and history, a parliament is a legislative body of government. Generally, a modern parliament has three functions: representing the electorate, making laws, and overseeing the government via hearings and inquiries. Th ...

in the

. A further announcement on 5 December indicated that only the five county level proposals (

, and

) would proceed, while further consideration was to be given to the various proposals submitted for two more county areas (

and

). On 18 December it was confirmed that the two-authority plan for

would proceed. On 6 March 2008 it was confirmed that proposals for

Borough Council to become a unitary authority on its existing boundaries, and for Mid Bedfordshire District Council and South Bedfordshire District Council to merge to create a new

Central Bedfordshire Central Bedfordshire is a unitary authority area in the ceremonial county of Bedfordshire, England. It was created in 2009. Formation Central Bedfordshire was created on 1 April 2009 as part of a structural reform of local government in Bedfor ...

authority would be implemented.

Single authorities

In the following areas, the existing non-metropolitan county has now also become a non-metropolitan district (i.e. a "unitary county") and the existing non-metropolitan districts have been abolished. † ''sui generis'' unitary authority since 1890

Multiple authorities

In the following areas, the existing non-metropolitan counties have been abolished. Each of the two new non-metropolitan districts in Cheshire (resulting from amalgamations of the existing districts) is now also a non-metropolitan county. In Bedfordshire, the new Central Bedfordshire non-metropolitan district (resulting from the amalgamation of two existing districts) is now also a non-metropolitan county, and the previous Bedford non-metropolitan district is now a unitary council. ‡ existing district

Further changes

The

Boundary Committee for England The Boundary Committee for England was a statutory committee of the Electoral Commission, an independent body set up by the UK Parliament. The committee's aim was to conduct thorough, consultative and robust reviews of local government areas in Engl ...

has completed its structural reviews for

Norfolk Norfolk () is a ceremonial and non-metropolitan county in East Anglia in England. It borders Lincolnshire to the north-west, Cambridgeshire to the west and south-west, and Suffolk to the south. Its northern and eastern boundaries are the No ...

, Suffolk and

Devon Devon ( , historically known as Devonshire , ) is a ceremonial and non-metropolitan county in South West England. The most populous settlement in Devon is the city of Plymouth, followed by Devon's county town, the city of Exeter. Devon is ...

. Initial draft proposals were published in July 2008. The committee was expected to make final recommendations by 31 December 2008, but these were delayed, due to legal challenges; and because they didn't assess the potential new authorities in proposals which would have split up the counties between two or more unitaries in aggregate. As a result, a further set of draft proposals were published in March 2009:

Draft proposals for Devon

The further draft recommendations propose two unitary options: *A Devon unitary authority comprising the existing county of Devon, with no changes to

Plymouth Plymouth () is a port city and unitary authority in South West England. It is located on the south coast of Devon, approximately south-west of Exeter and south-west of London. It is bordered by Cornwall to the west and south-west. Plymouth ...

and

Torbay Torbay is a borough and unitary authority in Devon, south west England. It is governed by Torbay Council and consists of of land, including the resort towns of Torquay, Paignton and Brixham, located on east-facing Tor Bay, part of Lyme ...

. *An

and

Exmouth Exmouth is a port town, civil parish and seaside resort, sited on the east bank of the mouth of the River Exe and southeast of Exeter. In 2011 it had a population of 34,432, making Exmouth the 5th most populous settlement in Devon. Histo ...

unitary authority, and a unitary authority covering the remainder of Devon, with no changes to Plymouth and Torbay.

Draft proposals for Norfolk

The further draft recommendations propose two unitary options: *A single Norfolk unitary authority comprising the existing county of Norfolk. *A two authority structure with greater

unitary authority and a rural Norfolk unitary authority for the rest of the county.

Draft proposals for Suffolk

The further draft recommendations propose two unitary options: *A single Suffolk unitary authority comprising the existing county of Suffolk. *A two authority structure with a North Haven unitary authority consisting of

and

Felixstowe Felixstowe ( ) is a port town in Suffolk, England. The estimated population in 2017 was 24,521. The Port of Felixstowe is the largest Containerization, container port in the United Kingdom. Felixstowe is approximately 116km (72 miles) northea ...

, and a rural Suffolk unitary authority for the rest of the county.

Final recommendations

Final recommendations were then due in July 2009.; but a successful legal challenge from three District Councils in Suffolk wanting a three unitary model for Suffolk to be considered by the committee resulted in a further delay. The Boundary Committee appealed this decision in favour of Forest Heath, St Edmundsbury & Waveney Councils in October 2009; in December (2009) they found out their appeal had been successful. The Boundary Committee has now submitted its final recommendations to the Secretary of State. In all three counties the committee has stated that its preferred option is for a countywide unitary covering the whole of the existing two-tier area to be implemented. In addition in relation to Suffolk they have stated they have no major reservations about the two unitary pattern of North Haven & Rural Suffolk being adopted. Interested parties had until 19 January 2010 to make their representations to the Secretary of State.

Decision on reform

On 10 February 2010, Rosie Winterton, Minister of State for Local Government, announced the proposed final decisions on the unitary proposals: *Norwich to become a unitary authority, the remainder of Norfolk to retain two-tier structure due to lack of support for change. *Exeter to become a unitary authority, the remainder of Devon to retain two-tier structure, again due to lack of support locally. The boundaries of Exeter are to remain unchanged. *Suffolk to be divided into unitary authority areas, the boundaries of which will be decided by a countywide convention. The changes in Devon/Exeter and Norfolk/Norwich were to come into effect in April 2011, subject to judicial review. Draft structural changes orders were approved by the House of Lords on 22 March 2010, though the Lords took the unusual step of formally noting its regret. The amendments did not alter the draft orders or affect the legal validity of the Lords approval. The House of Commons approved the draft orders on 23 March. The final Exeter and Norwich orders were made on 24 March following a Government statement responding to the Lords vote. However, the orders were quashed in a judicial review causing elections to be held in Exeter and Norwich in September 2010.

Cancellation of further structural changes

The Queen's Speech at the May 2010 State Opening of Parliament included a Local Government Bill to revoke structural change orders that would have established Exeter and Norwich as unitary authorities and prevent the implementation of the Suffolk unitary proposals. The bill was introduced in the House of Lords on 27 May 2010.

References

External links

Office of Public Sector Information:
Bedfordshire (Structural Changes) Order 2008

Cheshire (Structural Changes) Order 2008

Cornwall (Structural Change) Order 2008

County Durham (Structural Change) Order 2008

Northumberland (Structural Change) Order 2008

Shropshire (Structural Change) Order 2008

Wiltshire (Structural Change) Order 2008

Exeter and Devon (Structural Changes) Order 2010

Norwich and Norfolk (Structural Changes) Order 2010
{{DEFAULTSORT:2009 Structural Changes To Local Government In England History of local government in England Structural changes to local government 2009 in British politics Public policy in England