Why Devon councils will never be the same again as Whitehall plans major overhaul

The future shape of Devon will be decided behind closed doors in Whitehall in the New Year.

A decision taken at the Ministry of Housing, Communities and Local Government will affect the lives of everyone in the county, more than a million people.

READ NEXT: Storm Bram sparks emergency rescue in Teigngrace as car submerged in floodwater

It will determine the future of social care for vulnerable children and adults, as well as shaping housing and public transport strategies for decades to come.

In short, the way decisions are made about bin collections, grass-cutting, and pothole repairs is about to change.

Almost unnoticed by most of the public, every service and council function in Devon is on the brink of being reorganised.

Councils that are strong in adult social care could be pushed into mergers with those that are not. 

Councils with stable finances may find themselves joined with councils whose budgets are under pressure.

Few local councillors believe this is a good idea. One councillor said shortly after the shake-up was announced:

“None of us bought a ticket for this ride. Our residents certainly didn’t.”

When Torbay Council launched a public consultation, supported by public meetings and information events, only around 1,400 people responded. 

That is roughly one per cent of the local population, one completed form for every hundred people in the Bay.

A year ago, the government announced its intention to overhaul council structures across the country. 

READ NEXT: Dartmoor car park fees to rise as National Park approves new charges for 2026

The plan is to replace the existing mix of county, district and unitary authorities with a network of unitary councils responsible for all services.

This would replace the current complex system in which Devon County Council manages highways and education, while district councils such as those in North Devon, West Devon and Teignbridge handle planning, housing and other functions.

Exeter City Council also operates at district level, while Plymouth and Torbay already have unitary status and manage all functions themselves.

The system is complicated, and the new arrangements would simplify it significantly. 

Under the plan, Devon’s councils would be reduced to just three or four unitaries, all with the same status as Plymouth and Torbay.

Town and parish councils would remain unchanged as the most community-focused tier of local government. 

There have also been discussions about establishing hyper-local councils or boards beneath the new unitaries in areas such as Exeter.

Above all of this would sit a new “strategic authority”, likely led by an elected mayor, acting as the link between central government and the new unitaries.

READ NEXT: Devon County Council agrees action plan to tackle pavement overgrowth concerns

Until recently, many assumed Devon and Cornwall would be paired as a strategic authority for the far South West. 

But Cornwall firmly rejected this, and the government appears to have listened. Cornwall will not be merged with anyone.

This leaves Devon potentially looking eastwards, with Somerset and/or Dorset considered the most likely partners. 

However, there are reports that if Cornwall is allowed to stand alone, Devon believes it should be offered the same option.

Councils had until 28 November to submit their proposals for the future. Here is what they suggested:

Devon County Council

Proposes a “9-1-1” model called New Devon. Plymouth and Torbay remain unchanged, while the remaining nine councils (Devon, Exeter and the districts) merge into a single unitary with its headquarters in Exeter.

Plymouth City Council and Exeter City Council

These two authorities submitted a joint proposal for four unitary councils.

• Plymouth would expand east to absorb 13 South Hams parishes.
• Exeter would take in 49 parishes from East Devon, Mid Devon and Teignbridge.
• Torbay would expand into 21 Teignbridge and South Hams parishes.

A new “Devon Coast and Countryside” authority would cover the remaining areas.

Torbay Council

Also supports a four-unitary system but wants to keep its boundaries exactly as they are, arguing that its services are performing well.

It proposes enlarged Exeter and Plymouth authorities and a rural Devon unitary for the rest.

District Councils (West Devon, South Hams, Teignbridge, East Devon, Mid Devon, North Devon and Torridge)

These councils back a “4-5-1” model. Plymouth would stand alone. West Devon, South Hams, Torbay and Teignbridge would merge to form the “four”. 

Exeter, East Devon, Mid Devon, North Devon and Torridge would form the “five”.

READ NEXT: Newton Abbot Lantern Parade set to light up town centre with fairy tale creations

The government will assess all the proposals and is expected to announce its decision on Devon’s future structure in late spring or early summer next year. 

Elections for the new “shadow” authorities will take place in May 2027, with the new bodies taking full control in May 2028.

Experts have remained divided on the likely outcome. 

However, with a Labour government and Labour-controlled councils in Plymouth and Exeter, many believe ministers will favour the cities’ joint proposal.

The greatest uncertainty concerns the future of Torbay. 

Under its own model and Devon County Council’s model, its boundaries would remain unchanged. 

Other proposals, however, would see Torbay expand into surrounding areas or merge with neighbouring districts.