Devolution and local government reorganisation: What you need to know
On 16 December 2024, the government published a white paper on a national programme of devolution and reform to local government. This would be the biggest change to local government since the creation of district and county councils in 1974.
It involves two key changes to the current system: Devolution (Mayoral Strategic Authorities) and Local Government Reorganisation.
Devolution involves the creation of new Mayoral Strategic Authorities. The new authorities would cover regional areas and give those areas new powers, devolved from government. In many cases, an elected mayor would run them. Some places, such as London, Manchester and the West Midlands, already have strategic authorities and an elected mayor. The government’s ambition is for the whole country to be covered by strategic authorities.
Local Government Reorganisation (LGR) involves replacing the current two-tier arrangements where they still exist, such as in Oxfordshire. This would mean all council services are provided by a unitary council rather than being split across two councils (district and county). Unitary councils already serve many areas of the country.
Government has asked councils in Oxfordshire to submit proposals for local government reorganisation by 28 November 2025. Government will decide which unitary council structure is put in place in Oxfordshire, and the new council or councils are due to be formed in 2028 based on the proposed Government timeline.
The councils in Oxfordshire submitted an interim proposal to government in March, setting out the three options that would be developed into full proposals:
- A single unitary council covering the current county council boundary.
- Two unitaries. One includes all of the current districts of Vale of White Horse, South Oxfordshire and West Berkshire. The second unitary consists of all of the current districts of West Oxfordshire and Cherwell, along with Oxford City.
- Three unitaries. One covering Oxford City, but with expanded boundaries from the current city council. A second includes most of the current districts of Vale of White Horse, South Oxfordshire and West Berkshire. A third council would include most of the current districts of West Oxfordshire and Cherwell.
Cherwell has committed to developing the two-unitary option for consideration by government in partnership with West Oxfordshire, Vale of White Horse, South Oxfordshire and West Berkshire councils.
Councils across Oxfordshire and Berkshire are discussing options for a new strategic authority that would cover the two counties and potentially other areas, such as Swindon and Buckinghamshire. Below, you can find out more about the two-unitary option, devolution and local government reorganisation.
Two unitary councils for Oxfordshire and West Berkshire
We are committed to working with other councils to develop a unitary council option for Oxfordshire and West Berkshire. As part of this, we will engage residents, businesses and local organisations to help shape the proposal that will be put forward to government.
The proposed two-unitary model would see all of the existing Cherwell, West Oxfordshire, and Oxford City areas come together to form one unitary council in the north of the county. We are using the current working title of “Oxford and Shires Council” to refer to this. Oxford and Shires Council would complement the proposed model in the south of Oxfordshire, where the existing Vale of White Horse and South Oxfordshire district councils would combine with the current West Berkshire unitary council to form a new “Ridgeway Council”.
You can find out some of the key elements of the two unitary proposals below:
- Read the letter we sent to government supporting the two-unitary proposal
- Read the interim plan for the two-unitary option
- Read the letter from government setting out their interim plan feedback
A Two Councils website has been set up to explain the two-unitary proposal. Click on the link below:
Please share your views with us so we can help shape the final proposals:
Community Engagement
We are currently running a public engagement exercise to help ensure the final proposals reflect the needs and aspirations of residents. People are invited to attend the following events to find out more and to have their say:
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Monday 23 June from 3pm to 7pm at Exeter Hall, Oxford Road, Kidlington, OX5 1AB
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Tuesday 24 June from 3pm to 7pm at John Paul II Centre, The Causeway, Bicester, OX26 6AW
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Monday 7 July from 3pm to 7pm at Banbury Town Hall, Bridge Street, Banbury, OX16 5QB
People can also find out more and share their thoughts by taking part in the online survey by visiting oxfordandshires.org
Why is local government reform and devolution being proposed?
Government has set out their vision and reasoning for the changes in the white paper on its website.
The general theme is that government has a long-term vision for simpler structures, more local control over services and more opportunity for growth.
They would like elected Mayors to drive growth and provide more accountability at a regional level through the new strategic authorities.
The government believes that devolution over a large strategic geography and local government reorganisation can drive economic growth while delivering efficient and resilient council services when local government finances are struggling.
What are the current tiers of local government, and what do they do?
In Oxfordshire, democratic representation and responsibilities for delivering services are split across a range of councils. These are sometimes referred to as tiers of local government.
1. Parish and town councils
The first tier is that of parish and town councils. These councils may maintain local amenities such as recreational areas, footpaths and cemeteries, organise events or operate public conveniences. Parts of Oxfordshire, but not all, are covered by this tier.
2. District (or borough) councils
The second tier is that of district councils. These organisations deliver services such as housing, environmental health, planning, waste collection, licensing and elections. Oxfordshire has five district councils, which collectively cover the whole county. They are Cherwell, Oxford City, South Oxfordshire, Vale of White Horse and West Oxfordshire.
3. County councils
The third tier is that of county councils. These organisations deliver services such as adult and children’s services, highways and transport, waste disposal, libraries, public health, fire and rescue and trading standards. Oxfordshire County Council covers all of Oxfordshire.
4. Combined or strategic authorities
The fourth tier is that of combined authorities. A combined – or strategic – authority is a legal body that enables a group of two or more councils to collaborate and take collective decisions across council boundaries.
They cover issues that require strategic oversight of the entire region and have responsibilities and funding to deliver economic development, strategic planning and transport, adult education, local growth plans and other functions.
In mayoral strategic authorities, mayors will have significant powers over housing and planning, including the ability to develop and propose the spatial development strategy for their areas, working alongside other members of the strategic authority.
Oxfordshire is not yet part of a combined/ strategic authority. Strategic authorities already operate in areas such as Greater Manchester, the West Midlands and the East Midlands.
What is devolution, and how would it affect Oxfordshire?
Devolution is the transfer of powers and funding from national to local government. It helps ensure that more decisions are made locally and closer to the communities and businesses they affect.
Devolution would see the creation of a new strategic authority, made up of Oxfordshire and other neighbouring areas, led by a directly elected mayor.
Creating a strategic authority would mean that councils across a wider region could work together on key issues, such as transport, skills, planning, and economic development.
What is local government reorganisation, and what does it mean for Cherwell?
In the white paper, government has said it wants to reorganise local government across England by replacing county and district councils with unitary authorities.
If this goes ahead in Oxfordshire, residents would still receive the same council services. However, they would all be delivered by a newly formed unitary authority rather than Cherwell District Council and Oxfordshire County Council.
The new unitary authorities will likely cover larger areas than the current district council, and could be as big as the current county council boundary. They may also include neighbouring authorities in Berkshire under some proposals. You can read more about proposals at the top of this page.
The new councils would make decisions on local services through newly elected councillors. We could not say how much will change at this stage for the district, although we committed to protecting locally important services through this process. The councils should begin in 2028, when the current district and county councils are expected to cease to exist.
The shape of local government for Cherwell is yet to be determined. The decision on how local government will be structured in Oxfordshire will lie with central government after proposals are put forward by 28 November 2025.
Are parish and town councils affected?
Parish and town councils will not be affected structurally by the changes. They will not be abolished.
The government’s white paper states that local government plays an essential role in convening local partners around neighbourhoods to ensure that community voices are represented and people have influence over their place and their valued community assets. Government is committed to working with the sector to ensure that existing structures and mechanisms for community partnership enable them to fulfil this role. It said it would work with the town and parish council sectors to improve their engagement with local authorities. This includes “rewiring” the relationship between town and parish councils and principal local authorities, strengthening expectations on engagement and community voice.
What is the process for agreeing the new council structure for Oxfordshire, and when will the change happen?
Government has asked Oxfordshire councils to submit proposals for new unitary council structures by 28 November 2025. The proposals must meet the criteria set out by government and include engagement with residents to help develop the proposals.
Before 28 November, each Oxfordshire council will decide which option they prefer. However, government will make the final decision on the new council structure.
Government will consider all the submitted proposals and decide on which structure to put in place. Under current legislation, government would consult with key stakeholders on its proposal, but not with residents.
Under the current timetable set out by government, elections to a ‘shadow authority’ would take place in May 2027. This shadow authority would set up the new council or councils to go live from May 2028. At that point, all the current Oxfordshire councils would cease to exist and be replaced.
Government has started a Devolution Priority Programme in some areas of the country, which means local government reorganisation and setting up new strategic authorities will work on a faster timetable. Oxfordshire is not on the Devolution Priority Programme, so we have no specific timetable from government for setting up a new strategic authority. However, all the councils in Oxfordshire and Berkshire have committed to working quickly to get a new strategic authority agreed.