The unitary authorities of England are those
local authorities
Local government is a generic term for the lowest tiers of public administration within a particular sovereign state. This particular usage of the word government refers specifically to a level of administration that is both geographically-loca ...
which are responsible for the provision of all
local government services within a district. They are constituted under the
Local Government Act 1992
The Local Government Commission for England was the body responsible for reviewing the structure of local government in England from 1992 to 2002. It was established under the Local Government Act 1992, replacing the Local Government Boundary C ...
, which amended the
Local Government Act 1972
The Local Government Act 1972 (c. 70) is an Act of the Parliament of the United Kingdom that reformed local government in England and Wales on 1 April 1974. It was one of the most significant Acts of Parliament to be passed by the Heath Gov ...
to allow the existence of counties that do not have multiple districts. They typically allow large towns to have separate local authorities from the less urbanised parts of their counties and originally provided a single authority for small counties where division into districts would be impractical. However, the UK government has more recently proposed the formation of much larger unitary authorities, including a single authority for
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 ...
, the largest non-metropolitan county in England, at present divided into seven districts.
Unitary authorities do not cover all of England. Most were
established during the 1990s, though further tranches were
created in 2009 and
2019–21. Unitary authorities have the powers and functions that are elsewhere separately administered by councils of
non-metropolitan counties
A non-metropolitan county, or colloquially, shire county, is a county-level entity in England that is not a metropolitan county. The counties typically have populations of 300,000 to 1.8 million. The term ''shire county'' is, however, an unoffi ...
and the
non-metropolitan district
Non-metropolitan districts, or colloquially "shire districts", are a type of local government district in England. As created, they are sub-divisions of non-metropolitan counties (colloquially ''shire counties'') in a two-tier arrangement. Non-m ...
s within them.
History
Background
The term "
unitary authority
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 governmen ...
" was first used in the
Redcliffe-Maud Report
The Redcliffe-Maud Report (Cmnd. 4040) was published in 1969 by the '' Royal Commission on Local Government in England'', under the chairmanship of Lord Redcliffe-Maud. Although the commission's proposals were broadly accepted by the Labour gove ...
in 1969 in its current sense of a local government authority which combines the functions of a county council and a district council. Strictly speaking, the term does not necessarily mean a single level of local government within an area, because in some cases there are also
parish councils in the same area.
Although the term was not applied to them,
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 between 1889 and 1974 were effectively unitary authorities, that is, single-tier administrative units. Before 1889, local government authorities had different powers and functions, but from medieval times some cities and towns had a high degree of autonomy as
counties corporate. Some smaller settlements also enjoyed some degree of autonomy from regular administration as
borough
A borough is an administrative division in various English-speaking countries. In principle, the term ''borough'' designates a self-governing walled town, although in practice, official use of the term varies widely.
History
In the Middle A ...
s or
liberties
Liberty is the ability to do as one pleases, or a right or immunity enjoyed by prescription or by grant (i.e. privilege). It is a synonym for the word freedom.
In modern politics, liberty is understood as the state of being free within society f ...
.
The
Local Government Act 1972
The Local Government Act 1972 (c. 70) is an Act of the Parliament of the United Kingdom that reformed local government in England and Wales on 1 April 1974. It was one of the most significant Acts of Parliament to be passed by the Heath Gov ...
created areas for local government where large towns and their rural hinterlands were administered together. The concept of unitary units was abandoned with a two-tier arrangement of county and district councils in all areas of England, except the
Isles of Scilly
The Isles of Scilly (; kw, Syllan, ', or ) is an archipelago off the southwestern tip of Cornwall, England. One of the islands, St Agnes, is the most southerly point in Britain, being over further south than the most southerly point of the ...
where the small size and distance from the mainland made it impractical. In 1986 a broadly unitary system of local government was introduced in the six
metropolitan counties
The metropolitan counties are a type of county-level administrative division of England. There are six metropolitan counties, which each cover large urban areas, with populations between 1 and 3 million. They were created in 1974 and are each di ...
and
Greater London
Greater may refer to:
*Greatness, the state of being great
*Greater than, in inequality (mathematics), inequality
*Greater (film), ''Greater'' (film), a 2016 American film
*Greater (flamingo), the oldest flamingo on record
*Greater (song), "Greate ...
, where the upper-tier authorities were abolished and their functions were split between central government, the borough councils and joint boards.
1990s reform
A review in the 1990s was initiated to select non-metropolitan areas where new unitary authorities could be created.
The resulting structural changes were implemented between 1995 and 1998. Bristol, Herefordshire, the Isle of Wight and Rutland were established as counties of a single district; the district councils of Berkshire became unitary; the counties of
Avon,
Humberside
Humberside () was a non-metropolitan and ceremonial county in Northern England from 1 April 1974 until 1 April 1996. It was composed of land from either side of the Humber Estuary, created from portions of the East Riding of Yorkshire, West ...
and
Cleveland
Cleveland ( ), officially the City of Cleveland, is a city in the U.S. state of Ohio and the county seat of Cuyahoga County. Located in the northeastern part of the state, it is situated along the southern shore of Lake Erie, across the U.S. ...
were broken up to create several unitary authorities; and a number of districts were split off from their associated counties.
[ The changes caused the ]ceremonial counties
The counties and areas for the purposes of the lieutenancies, also referred to as the lieutenancy areas of England and informally known as ceremonial counties, are areas of England to which lords-lieutenant are appointed. Legally, the areas i ...
to be defined separately, as they had been before 1974. The review caused 46 unitary authorities to be created.[
]
2009 changes
A further review was initiated in 2007 and was enacted in 2009. The review established Cornwall and Northumberland as counties of a single district; established unitary authorities in County Durham, 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 ...
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 ...
covering the part of the county that was not already split off in the 1990s review; and divided the remainder of 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 ...
and 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 ...
into two unitary authorities. The review caused nine unitary authorities to be created.
Further reform
In 2016, Oxfordshire County Council put forward a 'One Oxfordshire' proposal which would see Oxford City Council and the four other district councils in Oxfordshire abolished and replaced with a single unitary county council for Oxfordshire. In 2017, Oxford City Council voiced their opposition to the proposal. A decision on whether the proposal will go ahead was to have been announced in March 2017.
In 2017, it was proposed that two unitary authorities be formed to cover the ceremonial county of Dorset
Dorset ( ; archaically: Dorsetshire , ) is a county in South West England on the English Channel coast. The ceremonial county comprises the unitary authority areas of Bournemouth, Christchurch and Poole and Dorset (unitary authority), Dors ...
. One of the authorities would consist of the existing unitary authorities of Bournemouth, Poole
Poole () is a large coastal town and seaport in Dorset, on the south coast of England. The town is east of Dorchester and adjoins Bournemouth to the east. Since 1 April 2019, the local authority is Bournemouth, Christchurch and Poole Counc ...
and the non-metropolitan district of Christchurch
Christchurch ( ; mi, Ōtautahi) is the largest city in the South Island of New Zealand and the seat of the Canterbury Region. Christchurch lies on the South Island's east coast, just north of Banks Peninsula on Pegasus Bay. The Avon River / ...
, the other would be composed of the remainder of the county. In November 2017, Secretary of State for Communities and Local Government, Sajid Javid
Sajid Javid (; born 5 December 1969) is a British politician who served as Secretary of State for Health and Social Care from June 2021 to July 2022, having previously served as Home Secretary from 2018 to 2019 and Chancellor of the Exchequer ...
stated that he was "minded to approve the proposals" and a final decision to implement the two unitary authority model was confirmed in February 2018. Statutory instruments for the creation of two unitary authorities, to be named Bournemouth, Christchurch and Poole Council and Dorset Council, have been made and shadow authorities for the new council areas were formed ahead of their creation on 1 April 2019.
Buckinghamshire County Council
Buckinghamshire County Council was the upper-tier local authority for the administrative county and later the non-metropolitan county of Buckinghamshire, in England, the United Kingdom established in 1889 following the Local Government Act 1888 ...
and the non-metropolitan districts of Aylesbury Vale
The Aylesbury Vale (or Vale of Aylesbury) is a geographical region in Buckinghamshire, England, which is bounded by the Borough of Milton Keynes and South Northamptonshire to the north, Central Bedfordshire and the Borough of Dacorum (Hertford ...
, Chiltern, South Bucks
South Bucks was one of four local government districts in the non-metropolitan county of Buckinghamshire, in South East England.
The district was formed on 1 April 1974 by the Local Government Act 1972, by the amalgamation of the area of Beac ...
, and Wycombe in Buckinghamshire
Buckinghamshire (), abbreviated Bucks, is a ceremonial county in South East England that borders Greater London to the south-east, Berkshire to the south, Oxfordshire to the west, Northamptonshire to the north, Bedfordshire to the north-ea ...
were replaced by a single unitary authority known as Buckinghamshire Council
Buckinghamshire Council is a unitary local authority in England, the area of which constitutes most of the ceremonial county of Buckinghamshire. It was created in April 2020 from the areas that were previously administered by Buckinghamshire Cou ...
on 1 April 2020. The existing unitary authority of Milton Keynes
Milton Keynes ( ) is a city and the largest settlement in Buckinghamshire, England, about north-west of London. At the 2021 Census, the population of its urban area was over . The River Great Ouse forms its northern boundary; a tributary ...
was not affected; from 1 April 2020, therefore, the ceremonial county of Buckinghamshire
Buckinghamshire (), abbreviated Bucks, is a ceremonial county in South East England that borders Greater London to the south-east, Berkshire to the south, Oxfordshire to the west, Northamptonshire to the north, Bedfordshire to the north-ea ...
has been composed of two unitary authorities.
In March 2018, an independent report commissioned by the Secretary of State for Housing, Communities and Local Government, proposed structural changes to local government in Northamptonshire
Northamptonshire (; abbreviated Northants.) is a county in the East Midlands of England. In 2015, it had a population of 723,000. The county is administered by
two unitary authorities: North Northamptonshire and West Northamptonshire. It is ...
. These changes would see the existing county council and district councils abolished and two new unitary authorities created in their place. One authority, West Northamptonshire
West Northamptonshire is a unitary authority area covering part of the ceremonial county of Northamptonshire, England, created in 2021. By far the largest settlement in West Northamptonshire is the county town of Northampton. Its other signific ...
, would consist of the existing districts of Daventry
Daventry ( , historically ) is a market town and civil parish in the West Northamptonshire unitary authority in Northamptonshire, England, close to the border with Warwickshire. At the 2021 Census Daventry had a population of 28,123, making ...
, Northampton
Northampton () is a market town and civil parish in the East Midlands of England, on the River Nene, north-west of London and south-east of Birmingham. The county town of Northamptonshire, Northampton is one of the largest towns in England; ...
and South Northamptonshire
South Northamptonshire was, from 1974 to 2021, a district in Northamptonshire, England. Its council was based in the town of Towcester, first established as a settlement in Roman Britain. The population of the Local Authority District Council in ...
and the other authority, North Northamptonshire
North Northamptonshire is one of two local authority areas in Northamptonshire, England. It is a Unitary authorities of England, unitary authority area forming about one half of the Ceremonial counties of England, ceremonial county of Northampto ...
would consist of Corby
Corby is a town in North Northamptonshire, England, located north-east of Northampton. From 1974 to 2021, the town served as the administrative headquarters of the Borough of Corby. At the 2011 United Kingdom census, 2011 Census, the built-up ...
, East Northamptonshire
East Northamptonshire was from 1974 to 2021 a local government district in Northamptonshire, England. Its council was based in Thrapston and Rushden. Other towns include Oundle, Raunds, Irthlingborough and Higham Ferrers. The town of Rushde ...
, Kettering
Kettering is a market and industrial town in North Northamptonshire, England. It is located north of London and north-east of Northampton, west of the River Ise, a tributary of the River Nene. The name means "the place (or territory) of ...
and Wellingborough
Wellingborough ( ) is a large market and commuter town in the unitary authority area of North Northamptonshire in the ceremonial county of Northamptonshire, England, 65 miles from London and from Northampton on the north side of the River Nen ...
districts. This was confirmed in May 2019, with the new councils being created in April 2021.
In July 2021 the Ministry of Housing, Communities and Local Government
The Department for Levelling Up, Housing and Communities (DLUHC), formerly the Ministry for Housing, Communities and Local Government (MHCLG), is a department of His Majesty's Government responsible for housing, communities, local government i ...
announced that in April 2023, the non-metropolitan counties of 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. C ...
, 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 ...
and 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_ ...
will be reorganised into unitary authorities. The new authorities, Cumberland, Westmorland and Furness
Westmorland and Furness is a future unitary authority area in north-west England, which will come into being on 1 April 2023 on the abolition of Cumbria County Council, together with Cumberland. The council will cover the areas currently served ...
, North Yorkshire Council
North Yorkshire Council is a future unitary local authority in England covering most of the ceremonial county of North Yorkshire. The new authority was approved by Parliament on 17 March 2022, and elections to the new council took place on 5 M ...
and Somerset Council
Somerset Council is the unitary authority that will replace Somerset County Council and four
district councils (Somerset West and Taunton, South Somerset, Mendip, and Sedgemoor) on 1 April 2023.
History
The Conservative governments of ...
were first elected in May 2022 and will formally assume their powers on 1 April 2023.
Restructuring
The process of changing from a two-tier local government to a structure based on unitary authorities is called 'restructuring'. The Secretary of State responsible for local government invites proposals from local areas to restructure into unitary authorities, and the Secretary decides whether or not the change should be implemented. The restructuring is carried out by an Order. There are no examples in the UK of councils restructuring back into a two-tier system.
Functions
Unitary authorities combine the powers and functions that are normally delivered separately by the councils of non-metropolitan counties and non-metropolitan districts. These functions are housing, waste management, waste collection, council tax collection, education, libraries, social services, transport, planning, consumer protection, licensing, cemeteries and crematoria. The breakdown of these services is as follows:
Criticism
Unitary government has been criticised for damaging local democracy. Opponents to unitary authority criticise the 'bigger is better' assumption and highlight that larger councils breed mistrust of councillors and reduction in public engagement and voter turnout. Outside the UK, multi-level local government is the prevailing system, with major towns normally having a local authority. The average size of a local authority in England is 170,000, three times that of Europe.
Electoral arrangements
Most unitary authorities are divided into a number of multiple member wards from which councillors are elected in the same way as in two-tier district council elections. The exceptions, which are divided into electoral divisions as in county council elections, are Cornwall, County Durham, the Isle of Wight, Northumberland, Shropshire and Wiltshire.
Current unitary authorities
Most unitary authorities are legally defined as being coterminous non-metropolitan counties and non-metropolitan districts run by a single council. While it makes no difference, they can either be run by a county council that additionally has district powers and functions, or a district council that additionally has county powers and functions. If there is a county council, the district has no council, and vice versa. Districts can additionally have the status of borough
A borough is an administrative division in various English-speaking countries. In principle, the term ''borough'' designates a self-governing walled town, although in practice, official use of the term varies widely.
History
In the Middle A ...
or city
A city is a human settlement of notable size.Goodall, B. (1987) ''The Penguin Dictionary of Human Geography''. London: Penguin.Kuper, A. and Kuper, J., eds (1996) ''The Social Science Encyclopedia''. 2nd edition. London: Routledge. It can be def ...
, although this has no effect on their powers or functions.
Notes
Future unitary authorities
Four new unitary authorities will come into operation in 2023:
Former unitary authorities
Similar authorities
The Council of the Isles of Scilly
The Council of the Isles of Scilly is a ''sui generis'' unitary local government authority covering the Isles of Scilly off the west coast of Cornwall. It is currently made up of 16 seats, with all councillors being independents. The council w ...
is a '' sui generis'' single-tier authority, created in 1890 and since 1930 has held the "powers, duties and liabilities" of a county council. It thus is not a unitary authority as those are such authorities created under the Local Government Act 1992
The Local Government Commission for England was the body responsible for reviewing the structure of local government in England from 1992 to 2002. It was established under the Local Government Act 1992, replacing the Local Government Boundary C ...
. The 36 metropolitan borough councils are also the sole elected local government units in their areas (except for parish councils in a few locations), but share strategic functions with joint boards and arrangements. On the other hand, the City of London Corporation
The City of London Corporation, officially and legally the Mayor and Commonalty and Citizens of the City of London, is the municipal governing body of the City of London, the historic centre of London and the location of much of the United King ...
and the 32 London borough
The London boroughs are the 32 local authority districts that together with the City of London make up the administrative area of Greater London; each is governed by a London borough council. The present London boroughs were all created at ...
councils, although they have a high degree of autonomy, share strategic functions with the directly elected Mayor of London
The mayor of London is the chief executive of the Greater London Authority. The role was created in 2000 after the 1998 Greater London Authority referendum, Greater London devolution referendum in 1998, and was the first Directly elected may ...
and London Assembly
The London Assembly is a 25-member elected body, part of the Greater London Authority, that scrutinises the activities of the Mayor of London and has the power, with a two-thirds super-majority, to amend the Mayor's annual budget and to reject ...
.
Combined authorities
Unitary authorities should not be confused with another formation in English local government, the combined authority
A combined authority is a type of local government institution introduced in England outside Greater London by the Local Democracy, Economic Development and Construction Act 2009. Combined authorities are created voluntarily and allow a grou ...
.
See also
* Local government in England
Local government in England broadly consists of three layers: regional authorities, local authorities and parish councils. Legislation concerning English local government is passed by Parliament, as England does not have a devolved parliament.
Th ...
* History of local government in England
The history of local government in England is one of gradual change and evolution since the Middle Ages. England has never possessed a formal written constitution, with the result that modern administration (and the judicial system) is based on ...
* List of unitary authorities of England
This is a list of unitary authorities of England ordered by population.
Figures are mid-year estimates for from the Office for National Statistics.
Areas from UK Standard Area Measurements
The list does not include North Northamptonshire and We ...
by population
* List of county councils in England
There are currently 24 county councils in England, covering areas known as non-metropolitan counties and divided into a number of non-metropolitan districts, which each have a district council. The first county councils were created in 1889. Th ...
* Political make-up of unitary authorities in England
References
{{Subdivisions of England
Local government in England
England geography-related lists