Understanding local government

How the system works now - and why it needs to change

Devon is home to strong communities, stunning landscapes and a diverse economy. But the structure of local government responsible for serving Devon’s residents has not changed for more than half a century. The current system is complex, expensive to run, and increasingly difficult for residents to navigate. Understanding why change is needed begins with understanding how the existing system works - and where it falls short.

The current two-tier system: 11 councils doing different things

Devon currently has 11 separate local authorities:

1 county council
8 district councils
2 unitary councils (Plymouth and Torbay)

This structure creates a “two-tier” system for most of the county, where responsibilities are divided between a county council (Devon County Council) and eight smaller district councils. The result is a system that is often confusing for residents, businesses and partner organisations.

What district councils do

District councils are responsible for:

housing and homelessness services
waste and recycling collection
planning applications
council tax and business rates collection
environmental health
licensing
leisure centres
local parks and green spaces
public toilets
markets and some community facilities

What the county council does

Devon County Council provides:

adult social care
children’s services and safeguarding
education and schools
special educational needs and disabilities (SEND)
roads and highways
transport and public bus routes
strategic planning
waste disposal
public health
libraries and heritage services
trading standards
major flood management

Because these responsibilities are split, the system requires continual coordination between tiers - and too often, gaps appear where responsibilities collide or overlap.

Why the current system causes problems

1. It duplicates work and wastes resources

Eleven councils maintain separate:

management teams
IT systems
procurement processes
customer service teams
strategies for climate, transport, housing and the economy

This duplication increases costs and makes it harder to deliver consistent services across the county.

2. It fragments decision-making

Many of the challenges Devon faces - such as housing shortages, climate change, biodiversity loss, and transport links - require a coordinated approach across large geographies. But under the current system, decisions are made separately by district and county councils, each with different budgets, priorities, and timelines.

This fragmentation is one of the reasons why:

the Greater Exeter Strategic Plan collapsed
major transport corridors are difficult to coordinate
housing growth around Exeter, Plymouth and Torbay doesn’t link seamlessly to jobs, infrastructure and transport
key regeneration projects get delayed due to multi-council signoff

3. It’s hard for residents to know who does what

Residents frequently tell councils that they don’t know which authority deals with which service. People often experience:

being redirected between councils
conflicting information
slow responses where responsibilities overlap

This confusion can be particularly frustrating for issues like:

potholes
planning enforcement
waste services
housing
public realm maintenance
anti-social behaviour

A simpler system reduces this confusion dramatically.

4. It creates inequality between places

Because district councils vary widely in population size, tax base and economic strength, the current system leads to uneven:

service quality
financial resilience
investment
long-term planning capacity

Some districts struggle to sustain services because they lack the scale needed to cope with rising demand, particularly for social care and infrastructure.

5. It no longer reflects how people live their lives

Devon’s boundaries were drawn over 50 years ago - long before:

Cranbrook existed
Exeter grew into a nationally significant knowledge economy
Plymouth expanded as a marine and defence hub
Torbay’s travel-to-work area widened
commuting patterns changed
digital connectivity reshaped work and education

The result is a map that no longer matches modern life.

How a single-tier unitary system improves things

A unitary council is a single organisation responsible for all local government services in its area. Under the proposal for Devon, there would be four unitary councils, each delivering every local service for their residents - just as Plymouth and Torbay already do today.

1. Simpler services

With one authority per area, residents get:

one website
one customer service team
one decision-making body
one set of policies and processes
faster, more consistent responses

2. Clear accountability

There is no confusion over responsibilities. When an issue arises, people know exactly which authority is responsible.

3. Better planning for homes, transport and jobs

Because a single authority controls all related services, it can:

plan housing growth and infrastructure together
coordinate road improvements with new developments
align transport, cycling routes and bus services with growth areas
manage climate and nature priorities at the right scale

This is particularly important for places like Exeter, Plymouth and Torbay, where growth areas spill far beyond existing boundaries.

4. Stronger financial foundations

Unitary councils benefit from:

economies of scale
reduced duplication
shared technology and procurement
streamlined management structures
a more balanced tax base

Financial modelling shows that each of the four proposed councils would be sustainable, resilient and able to fund service transformation.

5. More joined-up public services

Services such as social care, housing, transport, skills and community safety can be planned together instead of being split between different organisations.

This leads to:

earlier intervention for families
stronger links between health and social care
better outcomes for vulnerable people
more coherent community safety strategies

6. Services shaped by real communities

Drawing new boundaries along parish lines keeps communities intact. Each unitary is built around natural local ties - not arbitrary administrative divisions.

Why change now?

The Government has made clear that it intends to phase out two-tier council structures across England. Devon has been formally invited to propose a new system that:

provides a single tier of local government
improves service quality
is financially sustainable
reflects local identity
addresses modern challenges
supports the Combined County Authority (DTCCA)
gives communities a greater voice

The current structure cannot deliver these ambitions. The four-unitary model can.