Issue - decisions

The Leader of the Council moved and read out the recommendations set out in the report as follows:-

 

That Council agrees:

 

1) To support the submission of a Letter of Intent to government by 10 January 2025 which indicates this council’s opposition to any future proposal for one unitary council for Devon and expresses Exeter’s intention to submit interim plans for unitary status for Exeter once we receive the Invitation from Government.

2) To support work with other neighbouring authorities to bring forward a Mayoral Strategic Authority which may cover the areas of Devon and Cornwall with a unitary Exeter as a constituent member.

 

That Council notes:

 

3) That the geography of the proposed unitary council for Exeter will be set out in the interim plan to be submitted to government in March 2025, after due consideration and agreement by Council.

4) That the Leader of the Council will work collaboratively with the Leaders of the other political groups on the Council as plans develop, ahead of proposals being brought formally to members. This Council will also work collaboratively, as much as is possible, with other local councils on the development of proposals going forward in the interest of Exeter and Devon as whole.

 

Councillor Wright seconded the recommendations.

 

The Chief Executive introduced the report, highlighting:-

·         the English Devolution White Paper published by the Government on 16 December 2024;

·         the four areas addressed in the document; and

·         how, for the purpose of the present meeting, Members would be focusing on Devolution and Local Government Reorganisation (LGR).

 

She explained the three different types of Strategic Authorities introduced within the new framework, namely:-

1.    Foundation Strategic Authorities;

2.    Mayoral Strategic Authorities; and

3.    Established Mayoral Strategic Authorities.

 

She then provided further detail into the White Paper and next steps:-

·         the White Paper restated Government’s ambition that all areas of the country would ultimately have a Mayoral Strategic Authority;

·         in two-tier areas, the Government would only establish County Combined Authorities (CCAs) for an interim period;

·         the Secretary of State would be given the power to create a Strategic Authority by ministerial directive where local consensus could not be achieved;

·         all councils in the 21 two-tier areas would be expected to reorganise over the current Parliament and into the next;

·         the Government intended for reorganisation to happen in a phased approach, with the first new unitary councils expected before the end of the current Parliament;

·         the Government had set an expectation that new unitary councils should be based on a population size of at least 500,000 but had indicated it would consider smaller unitary councils on an exceptional basis;

·         the Government had indicated that it would prioritise areas for reorganisation where this reorganisation could unlock devolution or deepen the existing devolution arrangements;

·         the Minister was expected to formally invite unitary proposals later in January 2025, asking for interim plans to be submitted in March 2025;

·         the timescale for the submission for final bids was expected to be set out in the invitation as well as final confirmation of the timescale for new unitary councils to come into being;

·         in recognising, for some areas, the timing of elections would affect their planning for devolution, the Government was minded to lay secondary legislation to postpone local council elections from May 2025 to May 2026. This would only happen where it is demonstrated that it would help an area to deliver both reorganisation and devolution within the most ambitious timeframe;

·         the Minister had asked upper tier councils to submit their request to postpone elections on or before Friday 10 January 2025;

·         until the announcement of the White Paper, Exeter City Council had been working with Devon County Council and the other Devon District Councils to support work to create a Devon and Torbay Combined County Authority;

·         following the publication of the White Paper, Devon County Council had decided that they intended to apply to the government to postpone their elections due in May or order to develop plans for Devolution and Local Government Reorganisation;

·         the proposal before Members was to agree that Exeter was committed to ensuring that any proposals to reorganise local government and devolve powers to local areas were done to service the interests of the people and the city of Exeter and the wider Devon area. Exeter City Council would also work collaboratively with its communities and key stakeholders in the city as well as with the other local Devon councils to develop proposals that reflect a positive outcome for the city and the county as whole;

·         local discussions about the creation of a unitary Devon authority had taken place; however, it was recommended that the Council indicate that Members did not believe that a single unitary council covering the current Devon County Council administrative boundary would provide the best outcomes for the people and the city of Exeter or the wider region, believing that, as much as possible, local decisions should be made locally;

·         it was proposed that, when the Government invites unitary proposals later in January, Exeter City Council submits plans for a unitary Exeter Council, arguing that unitary status would enable Exeter to better co-ordinate public service delivery, drive regeneration and economic growth and strengthen community leadership and identity;

·         although the criteria from government against which bids for unitary status would be assessed was yet to be announced, Members recalled that proposals for a unitary council for Exeter were agreed by the Government of the time, in 2010, with a Statutory Instrument laid in Parliament for the creation of the unitary council for Exeter, only to be subsequently repealed by the new Coalition Government of 2010;

·         subject to the agreement of Members, the Council would send a letter of intent to the Government expressing its intention to submit plans for a Unitary Exeter within a potential Devon and Cornwall Mayoral Strategic Authority;

·         as part of this process, there would be opportunities for the Council to proactively engage with neighbouring authorities and the County Council, to demonstrate a joined-up strategy to articulate the clear benefits of working together as a cohesive area to address strategic opportunities and challenges; and

·         the letter of intent would set out the Council’s significant achievements to date and the opportunities provided by unitary status for enhancing the city’s status as a regional economic driver that would drive the Industrial Strategy in Devon to both generate growth and more effectively connect with citizens and communities.

 

In proposing the recommendations, Councillor Bialyk made the following statement:-

“Our achievements as a district council have been substantial; as a unitary council, we could further enhance the city's status as a regional economic driver, adopting new governance arrangements which reflect the vitality and ambition of the city and its partners.

As one of the fastest growing cities in the UK, we have seen an 8% growth in new businesses with 5,147 registered for business rates; a 3% growth in jobs: 10% growth in population. In terms of economic productivity, despite its challenges, the Exeter Gross Value Add (GVA) is £5.2bn.

Exeter has an estimated population of 130,800 and is at the heart of a travel to work area of over 499,800 residents with around 35,000 people commuting into Exeter on a daily basis.

Exeter has an international airport, two railway routes into London (Paddington and Waterloo), major routes by road (M5 to Bristol), three park and ride schemes and joined up cycle routes within the city.

Exeter and Cranbrook are one of only 12 places in England to be awarded Pilot status by Sport England to tackle inactivity in communities and to trail blaze new ways of getting people active for life. Following the original Sport England award of £4.721m in June 2019 a further £1.883m was awarded to continue delivery of the programme in line with the Sport England strategy ‘Uniting the Movement’ to March 2025. Due to the success of the programme and the clear evidence to demonstrate the positive impact that this work has had on communities, Sport England has confirmed that they will continue to support the work for a further three years from 2025.

As a council, we have a track record as a willing and supportive partner in the city, the county and the wider South West. Prior to Covid-19 Exeter was performing well, relative to many other cities in the UK, against several indicators such as employment rates, job vacancies, GDP per worker, and patent applications. There is also emerging evidence that the city has so far proved to be one of the most resilient parts of the country in responding to the economic shock that has followed the pandemic. Among UK cities only York has a lower unemployment claimant count.

The city is also an important retail location, serving a catchment area that extends well beyond the City’s boundaries. These factors, and relatively good transport links, mean that Exeter attracts large numbers of daily commuters, who contribute to the City’s particularly high employment density. Exeter is vital to the South West peninsula: it has economic assets and strengths which can be built on and which can have higher, multiplier effects.

 

In addition, many places in the county have fallen further behind, with geographical inequalities within the region and in relation to other parts of the UK. Exeter’s economic growth must, therefore, play an important role, if any genuine prospect of success is to be achieved. There is strong evidence that improved connectivity between different places rather than the absolute size of individual entities, is the critical factor in providing the conditions for productivity and ‘polycentric’ growth and this will require a different subregional approach to achieve economic integration.

We think the importance of Exeter presents the basis for a strong case for a new Unitary Authority for Exeter, within the context of devolution to a new Strategic Authority for Devon and Cornwall & Isles of Scilly. Working with communities, businesses, the education sector, regional partners and Government, a Unitary Authority for Exeter will co-create and co-shape a new economic landscape: one that can drive industrial strategy in Devon and the wider South West to both generate growth and more effectively connect with citizens and communities, mobilising social and behavioural change.

Inclusive growth, to eradicate large inequality gaps in the City and across the County, will be the priority. By expanding employment prospects, raising incomes and improving housing Exeter can address the wider determinants of health to enable more residents to live longer in good health. This will be vital to reducing levels of dependency on public expenditure, allowing the County to be self-sustaining. A Unitary Authority Exeter’s goals will be to create:

·       A thriving new economy at the heart of the South West peninsula that can grow and sustain financially secure employment and offer opportunities to all.

·       A vibrant city-region extending opportunities to surrounding towns and villages, with a range of good quality housing and amenities, where people and families want to live, learn and work.

·       A place where businesses would choose to locate.

·       A place where people and communities are supported to enjoy more productive, healthier and happier lives.

·       A place where people want to live, work, visit, shop, and study.

·       A place that delivers productive, digitally enabled, customer centric public services.

Taking into consideration our strong track record and our ambitions for the future, we firmly believe that we have a strong evidence base to support a bid for unitary status.

This letter of intent has the support of all members of the council, signifying the commitment of all political groups and councillors to the development of a unitary council for Exeter, to enable us to further unlock economic growth for the city and wider area and deliver better outcomes for our residents, businesses, communities and partners, both in Devon and Exeter.”

 

 

During the debate, Opposition Group Leaders made the following comments:-

 

Councillor Moore:-

·         called for a thoughtful case to be made for a unitary Exeter;

·         remarked that the two-tier system “would not be mourned”;

·         welcomed the opportunity for Exeter to host all services under one roof;

·         expressed the view that services and democracy ought to be redesigned and rooted in meeting the needs of Exeter’s local communities and the environment;

·         highlighted the need for Parish Councils;

·         warned of the danger of chasing GDP at all costs;

·         felt that funding must improve, remarking that cuts would be considered at the next meeting of Full Council; and

·         reminded Members of the Council’s core mission to deliver services.

 

She asked the following questions to the Leader:-

 

1.    how did he intend to involve Councillors and also properly engage Exeter’s communities in this process?

2.    did he agree that the democratic process we had was important - and May’s elections should not be cancelled? and

3.    would an interim report be presented to Full Council in February before any proposals were finalised or submitted to Government?

 

She made the following closing comments:-

 

·         the new regional bodies proposed by the Government offered an opportunity to introduce proportional voting;

·         while the city was wealthy, the future was bleak for its communities; and

·         communities and the environment must be at the heart of the Exeter City Council’s next steps.

 

Councillor M Mitchell:-

·         remarked that the White Paper, which had not been mentioned in the Labour party’s election manifesto, was a clear indication for the direction and speed at which the Government wished to proceed;

·         favoured unitary authorities as they provided a one-stop shop for residents regarding most local services;

·         expressed severe reservations about directly elected Mayors, especially for mixed urban and rural areas where a potential Devon and Cornwall Strategic Mayoral Authority, if measured from its eastern border, would almost stretch to outer London;

·         felt that the White Paper was about upward centralisation;

·         thanked the Chief Executive for working on this urgent matter during the Christmas recess and the Leader for involving other party leaders;

·         felt that this meeting would enable Exeter to put a marker down stating that Exeter should be the focal point for a new unitary authority;

·         voiced concern that this was a highly disturbing time for Exeter City Council’s employees;

·         stressed the importance of consulting as widely as possible;

·         reminded Members that Devon Districts were unanimous in their opposition to a unitary council for Devon;

·         noted that Devon County Council, appeared to suggest that they knew better than the District Councils, had cancelled the Team Devon meeting scheduled for earlier in the week;

·         made reference to the Radcliffe-Maud report of 1968 and the introduction of the two-tier system by the Heath government in 1970;

·         remarked that, unless local authorities in Devon worked together, the Government would impose a solution on the county;

·         expressed concern about the size of a unitary authority for  Exeter being either too large or too small;

·         reminisced about his journey as a Councillor in Devon; and

·         repeated calls for talks and discussions with neighbouring authorities.

 

Councillor Jobson:-

·         reminded Members that the Conservative Group had supported Exeter City Council’s (ECC) bid for unitary status in 2010;

·         considered it unfortunate that the current Government seemed to be dictating terms to local authorities;

·         stressed how local government must remain responsive to the needs of local taxpayers and retain control of local planning decisions;

·         felt that it was difficult to see how Neighbourhood Plans would survive with any meaning or at all against such an upheaval of power;

·         expressed bemusement that, for such a huge change, an incredibly short timescale was being put forward by Government and warned of the risk of ECC being bullied into a forced local government restructure;

·         felt that any changes should not only take into account the historic role that Exeter had played in Devon and the wider region, but the future of the City which would involve greater joint working and stronger local accountability; and

·         was clear that local government should be ‘local’ to residents and respect proud local identities.

 

 

Members made the following further comments:-

 

Councillor Vizard:-

·         highlighted the impact of reorganisation on Council staff;

·         supported the Government’s ambition on devolution;

·         saw unitary status as an opportunity for Exeter to take control of its own destiny;

·         made reference to frustrations of the two-tier structure; and

·         welcomed the opportunity to see highways, public transport and net zero brought together under one roof alongside ECC’s existing remit.

 

Councillor M Williams:-

·         remarked that Exeter had come a long way since the nineties;

·         welcomed the ambition of the Government’s scheme;

·         felt that unitary status would enable ECC to directly help people;

·         made reference to Greater Manchester’s Bee Network public transport system;

·         felt that both strategic planning and better scrutiny would be facilitated by unitary status; and

·         agreed with Plymouth City Council that a having Strategic Mayoral Authority would drive economic growth in the South West.

 

Councillor Knott:-

·         informed Members that he received daily emails from members of the public who did not understand the two-tier system;

·         warned that there would be financial implications to any local government reorganisation; and

·         reminded Members that prospective geographical boundaries were not a matter for discussion at the present meeting.

 

 

Councillor Rees:-

·         supported a joined-up approach;

·         remarked on the vast number of issues that local authorities in Devon would not be able to address unless they worked together; and

·         called for a holistic approach to the process, stressing that nothing ECC undertook must come at the expense of other areas.

 

Councillor Wood:-

·         remarked that, he had been informed at various national conferences that, people assumed that Exeter was already a unitary authority;

·         made reference to new developments in and around Pinhoe and to emails he received from residents living in an area outside his remit;

·         noted that the city limits were established a long time ago; and

·         felt that there was great value in bringing in communities who were currently outside Exeter yet looking to the city.

 

Councillor Palmer:-

·         spoke from the point of view of a relative newcomer to the city;

·         felt that this was a political issue, adding that devolution was key to Liberal Democrat principles;

·         criticised the timing of the white paper and the fact that it was being forced on local authorities;

·         warned of the complaints that a unitary council’s additional responsibilities would bring;

·         felt that the Government gave the impression that it did not listen and was effectively committing a power grab;

·         strongly opposed the Strategic Mayoral authority model; and

·         warned Members not to underestimate the costs involved.

 

Councillor Parkhouse:-

·         saw the opportunity to strengthen governance in the proposals;

·         felt that the urgency of this matter could not be overstated, adding that, while the process felt rushed, it would be managed over two parliaments; and

·         thanked everyone who worked on this over the Christmas period.

 

Councillor Holland:-

·         spoke of Exeter as the “jewel in the crown” of Devon and the gateway to the South West of England;

·         made reference to the Exeter Guildhall being the oldest civic building in England still being used for its initial purpose;

·         saw the Lord Mayor as a great ambassador for the city and wanted the Mayoralty to stay; and

·        felt that ECC staff needed security.

 

Councillor Wright:-

·         expressed satisfaction at Members’ clear passion about Exeter;

·         refuted the earlier claim that this was a power grab from the Government; and

·         was confident that a way forward would be found thanks to collaborative working.

 

Councillor Miller-Boam:-

·         referred to Exeter as the powerhouse of the region; and

·         remarked that change was coming and that this Council would cease to exist in its current form.

 

Councillor Fullam:-

·         stressed the need for Members to work together across party lines;

·         made the point that the Minister needed to be aware that there were alternative options in Devon;

·         warned of the danger of unitary authorities being overruled by another structure;

·         remarked that ECC Councillors connected with residents at a “human” level;

·         highlighted the importance of localised decision-making;

·         called on the Leader to make use of all his connections;

·         voiced concerns that the detail of the present debate would be lost when relayed to the Minister;

·         made the case for thinking of Exeter as a “city-state”; and

·         voiced support at this stage.

 

Councillor Read:-

·         expressed the view that the two-tier system did not work; and

·         called for engagement with stakeholders as part of the consultation process.

 

Councillor Harding:-

·         voiced concern that investment would be more difficult under a unitary Devon Council; and

·         felt that a more compact unitary authority would enable people with day jobs to attend Council meetings.

 

Councillor Wardle:-

·         remarked that the status quo was not an option and expressed his support.

 

Councillor Pole:-

·         spoke as a recently elected Member;

·         stressed the importance of collegiate working; and

·         urged Members to support the recommendations.

 

Councillor Asvachin:-

·         advised that she was the only Member in attendance who was also a Devon County Councillor; and

·         spoke of the frustration experienced by members of the public who did not know the difference in remit between Exeter City Council and Devon County Council, resulting in a lack of trust in local politicians.

 

The Leader of the Council addressed Members’ comments and questions as follows:-

 

·         he would welcome Councillor Fullam’s counsel with regard to next steps;

·         Members who had recently moved to Exeter were genuine Exonians;

·         he reminisced about when Topsham, Pinhoe and Alphington were outside the city;

·         he felt that he had demonstrated his willingness to work collaboratively;

·         he reassured Members that Exeter City Council would not be bullied by anyone and that local planning decisions would remain the remit of Exeter Councillors;

·         he urged Members not to get political over this issue;

·         he advised supporters of proportional representation to speak to MPs from their respective political parties;

·         Strategic Mayoral Authorities would not deal with day-to-day issues;

·         he confirmed that that there would be statutory engagement but that he wanted to go even further;

·         the Minister would have to take a view and make a decision about postponing the forthcoming County elections;

·         he would trust everyone elected to a future unitary Exeter authority to represent the city within the Strategic Mayoral Authority;

·         he wanted it recorded that he would work with Opposition Group Leaders;

·         any formal submission of plans for a Unitary Exeter would go to Executive then to Full Council;

·         while it was his preferred option to reach an agreement with other Districts, there was a possibility that this would not be possible;

·         he agreed that the foundation of the Combined County Authority was flawed;

·         in fairness to Torbay Council and Devon County Council, they were approaching the issue in a collegiate manner; and

·         he called on all Members to support the recommendations.

 

The recommendations were moved by Councillor Bialyk, seconded by Councillor Wright and, on a RECORDED vote, UNANIMOUSLY CARRIED.

 

RESOLVED to agree:-

 

1) To support the submission of a Letter of Intent to government by 10 January 2025 which indicates this council’s opposition to any future proposal for one unitary council for Devon and expresses Exeter’s intention to submit interim plans for unitary status for Exeter once we receive the Invitation from Government.

2) To support work with other neighbouring authorities to bring forward a Mayoral Strategic Authority which may cover the areas of Devon and Cornwall with a unitary Exeter as a constituent member.

 

RESOLVED to note:-

 

3) That the geography of the proposed unitary council for Exeter will be set out in the interim plan to be submitted to government in March 2025, after due consideration and agreement by Council.

4) That the Leader of the Council will work collaboratively with the Leaders of the other political groups on the Council as plans develop, ahead of proposals being brought formally to members. This Council will also work collaboratively, as much as is possible, with other local councils on the development of proposals going forward in the interest of Exeter and Devon as whole.

 

 

 

The Leader of the Council moved and read out the recommendations set out in the report as follows:

 

1) That Council approves the interim submission for local government reorganisation at Appendix A.

 

2) That Council supports the proposal to engage with a range of stakeholders, including Exeter’s residents, residents in surrounding areas, businesses, key partners, other councils in Devon, in the development of a final business case for local government reorganisation due to be submitted in November 2025.

 

 

Councillor Wright seconded the recommendations.

 

The Chief Executive introduced the report making the following statement:

 

“Lord Mayor, in his letter of the fifth of February, the Minister of State for Local Government and English Devolution invited Leaders of councils in two-tier areas to submit proposals for a single tier of local government. The letter asked for interim submissions to be sent to the government by the 21^st of March, with a full business case submitted by the 28^th of November. On the ninth of February, this Council agreed the indicate to the minister that we intend to make a submission seeking unitary status and we are therefore here this evening to ask members to approve this Council’s submission ahead of tomorrow’s deadline.

 

Officers believe that there is a compelling case for establishing a unitary authority for the historic city of Exeter and the surrounding area and that our submission will give assurance to members this evening as well as the government that we have a clear approach and methodology on which to build this case by the end of November.

 

In our submission Lord Mayor, we have considered the criteria set out by government along with key principles on which we will build our case, these include:

 

•         Growth, Transport and Connectivity

•         Ensuring an appropriate focus on both urban and rural issues in order to address inequality and local needs

•         Accessibility to public services 

•         A sense of place and community

•         A balanced population size and demographic, and finally, and of vital importance of course,

•         Financial viability and value for money for taxpayers.

 

The principles have been developed through an evidence-led approach and have been used to assess initial options for local government reorganisation.

 

Because of our commitment to be led by evidence, Lord Mayor, our interim submission does not include an arbitrary map which identifies the boundaries for the proposed new council. This would not have been done with any robustness in the five weeks that we have had to develop our submission. We also have not been able to put forward a structure for the rest of the county as we have not been included in the plans developed by the remaining seven Devon district councils and therefore we do not feel that it is appropriate for us to suggest a structure that covers their area without their input.

 

We will work, using the criteria set for us and the principles set out to develop proposals for the geographic area once we have consulted appropriately and done the relevant financial modelling to ensure that proposed new councils across the Devon area deliver positive outcomes for the whole county. 

 

We believe that to be financially viable but still retain local identity and a clear focus on the urban issues for the area, the proposed new council will serve, after planned growth, a population of between 300,000 and 350,000 expanding the current city council boundary into some wards and parishes surrounding the city.

 

The next stage in the development of our Business Case will be to collate and analyse additional data and evidence, collaborate with councils in our area and engage stakeholders and communities to develop a rational and cohesive solution that works for Exeter and Devon.

 

Our submission identifies that the proposed new council will streamline governance, reduce duplication, and ensure a place-based approach to policy making and service delivery. It also highlights how growth will lead to more jobs for local people and opportunities for businesses.

 

I wanted to return Lord Mayor to the issue of local engagement.  We have already discussed key issues that will inform our Business Case with our valued partners in the Exeter Partnership but the five-week timescale to develop our submission has not allowed us to engage with our residents or other stakeholders across the various sectors.

 

Members are being asked to support a comprehensive programme of engagement with a range of stakeholders including Exeter’s residents, residents in surrounding areas, businesses, key public sector and other partners and other councils in Devon.

 

This will include workshops, public surveys, and engagement with local authorities and town and parish councils - and regular updates and consultations with businesses, communities and residents. On the relationship with towns and parish councils Lord Mayor, in the spirit of this council’s renewed approach to community engagement as demonstrated in our recent work on our budget priorities and draft corporate plan, we intend that the proposed new council will develop a partnership approach to working with those town and parish councils that are at the heart of their communities.

 

Turning to next steps Lord Mayor, MHCLG have confirmed that they will provide feedback on interim submissions, to support our work on developing the final Business Case but they will not rule out any options at this stage recognising that there is further, more detailed work that councils need to continue to develop. 

 

We will therefore work to bring before members a full business case for approval for submission by 28 November. 

 

There will then be a Government-led public consultation between January and April next year with a decision on the proposals to reorganise local government being made between May and August next year.  Elections to shadow unitary councils are expected to take place between May to December 2027 with new councils coming into being in April 2028.

 

Finally, Lord Mayor, I’d like to thank Members for their support and contribution to the council’s work on local government reorganisation to date. Indeed, the unanimous support of all members at the last Extraordinary Council meeting on 9 January which agreed our expression of interest to government, was a huge source of motivation for officers who have worked at pace but with great care over the last five weeks to develop the submission, for which I sincerely thank them.”

 

 

In proposing the recommendations, Councillor Bialyk made the following statement:

 

“In moving this Lord Mayor, I can say that Local government reorganisation means change for everyone and new councils representing new geographical boundaries will need to emerge.

 

A unitary authority for Exeter and the surrounding area would strengthen local democracy by ensuring that local decision-making aligns with the distinct needs of urban and rural communities. This has been a long-held ambition of this council and as members will recall, we have previously developed a successful bid for unitary status, in 2010, before that was taken away from us.

 

Exeter is one of the UK’s fastest-growing cities, playing a pivotal role in driving economic and housing growth across the wider region. As a key member of the Key Cities Network, Exeter actively contributes to national infrastructure strategies. We play a crucial role in local and regional governance, and its economic importance extends well beyond its administrative boundaries.

 

Exeter is a young city with a rapidly growing population and strong businesses and industry sectors. We are ideally positioned to lead investment, innovation, and connectivity across Devon. The city is an economic powerhouse, outperforming the UK average in economic output per capita. It has a strong economy, driven by the University of Exeter, Exeter Science Park, the Met Office, and more than 4,000 businesses – a growth of eight per cent since 2019.

 

Exeter is a key strategic transport hub, connecting the South West to London and beyond via road, rail and air.

 

Our submission highlights the cost-efficiency of a unitary model, reducing overhead costs associated with multiple councils covering the same area. Exeter has a rapidly-growing population of 130,800 – and a travel-to-work area of almost 500,000.

 

A new council covering Exeter will expand beyond the city council boundary into wards and parishes surrounding the city. These are Exeter travel-to-work areas with a strong sense of identity to the city, fostered by its major institutions.

 

As the Chief Executive explained, we are not including a map of the proposed boundaries at the stage until the planned period of public engagement has been completed.

 

The government has stated its clear intention for reorganisation and devolution, so what are the alternatives to a unitary for the Exeter area?

 

There is broad agreement locally that a single, Devon-wide unitary authority is not the right approach. We also cannot support the proposed 1-5-4 model Devon district councils are putting forward. It is disappointing that this proposal has been developed without input from Exeter. If so I might have explained to them that excluding residents from the other side of the Devon Hotel is actually a mistake as they feel they live in Exeter. This 1-5-4 model has no logic – it recognises one of Devon’s two cities, Plymouth, is deserving of its unitary status, but Exeter, which is one of the fastest-growing cities in the UK, doesn’t. It implies that Exeter has more in common with rural and coastal communities in North Devon than it does with many of the towns and communities right on our own doorstep. That just doesn’t make any sense. In my opinion this is simply a political plan that does not address the economic issues or the needs of the people of Devon, and it must be rejected.

 

Lord Mayor, Exeter is very distinct from Devon’s rural and coastal communities – everybody knows that. It is vital we retain our sense of place and prioritise economic growth, using the strength of our city as the catalyst for growth in the rest of Devon.

As councillors representing the residents and communities of this great city, we must all embrace the opportunity to deliver improved outcomes for those we serve. We’re ready to work with neighbouring councils and all the residents and communities they represent. Their input will be vital in ensuring reorganisation delivers on the ambition to empower local communities.

 

So, I hope members can unanimously back our submission to government. It’s the start, Lord Mayor of a long road and history tells us that the long march started with the first step and this is indeed the first step. Our city needs to be part of a unitary authority for the area covering just beyond the current city boundary, which would be a truly transformational opportunity for Devon. We now have a once in a generation opportunity to achieve that. If we do, we will continue to drive the economy for the city, for the rest of Devon and the region as a whole and deliver for the residents and communities of Exeter and beyond. The structure we outline aligns with the government’s devolution objectives, strengthens economic growth and enhances local democracy.

 

Our submission builds on the case for delivering improved public services whilst ensuring Exeter and the wider region remain competitive, sustainable and resilient for the future.”

 

 

During the debate, Opposition Group Leaders made the following comments:

 

Councillor Mitchell:

 

• in representing our local communities this was a once in a lifetime chance to have our voices heard;
• suggested that all group leaders were invited to meetings rather than just Council Leaders;
• he challenged the questions set by government, would they provide the best solution for semi-rural Devon;
• building blocks of complete district council areas used artificial boundaries from 1972 and based on Victorian boundaries and questioned whether these made sense in 2025;
• collaboration could already be seen with Strata as an example;
• there were concerns regarding Devon County Council (DCC) services and the need for larger authorities for economies of scale;
• a federation system would allow economies of scale and everyone would receive the same standard of service regardless of where they were;
• town and parish councils could work in collaboration with a unitary authority and consider asset transfer;
• local government finance had not been mentioned and required reform before anything else; and
• the best for Exeter and Devon would be best achieved by listening and working together.

 

 

Councillor Jobson:

 

It was important that residents in Exeter and surrounding areas learned more about the council and all matters in the report in order to reassure them that we were not looking to take over their local parish councils as they had a lot to contribute.

 

Councillor Moore:

 

• the global happiness index was published today and the UK had dropped one place to 20^th
• Government was a driver for growth and good quality of life in Exeter had been highlighted;
• a positive economy was not the only measure of wellbeing;
• the current model was unsustainable and local economic strategies led by local people were needed;
• the creation of good jobs was needed in order to create local wealth and public authorities played a key role;
• Government required an arbitrary 500,000 population but it was essential that local rural economies thought about their focus and look to strengthen;
• She would support a larger number of smaller unitaries across Devon and inviting our communities in would be essential;
• the financial pressure of austerity and rising demand for services required that the council ask for help with the costs of reorganisation;
• the council should focus on what we can control and negotiate cooperatively;
• expressed gratitude for the Leader’s cooperative approach;
• Exeter is a generous and friendly city and she hoped that this approach encouraged our neighbours to join us.

 

Members made the following further comments:

 

Councillor Hughes

 

• Exeter was a city and deserved to stand on its own;
• rising incidences of hate speech and being treated with disrespect and expanding boundaries would bring the LGBT+, especially trans and non-binary community into the protection experienced in the city; and
• they were keen to learn more about the relationship with the Police and Crime Commissioner’s Office.

 

Councillor Harding

 

Supported the recommendations given that the residents on the border of his ward identified with Alphington rather than Teignbridge or Newton Abbot and as a unitary authority there could be achievements with the bus service.

 

Councillor Atkinson

 

• spoke in support of the unitary option and was disappointed as a County Councillor for Alphington that DCC did not include this option
• there were only 2 metres separating developments which were marketed as Alphington and named South West Exeter not North West Teignbridge; and
• Pinhoe ward had the same situation.

 

Councillor Rolstone

 

• spoke in support and cited a resident who asked for support with a list of county issues;
• unitary was needed to support residents as councillors;
• there would also be an opportunity for the education system; and
• there were amazing educational establishments in the city and surrounding area and an opportunity to be revolutionary.

 

Councillor Palmer  

 

• spoke in support and expressed frustration with national Government posing several questions, on timing, and that 5 weeks was insufficient for a complex submission;
• thanked all political leaders at the Council and the Chief Executive and Leader for the work done in such a short space of time;
• it was disappointing that other councils had not engaged;
• there would only be a positive outcome for Devon residents if political colours were put aside on this issue; and
• expressed hope that Exeter would be the council who role modelled good collaboration, extensive public consultation and that we were willing to extend our hand.

 

Councillor Rees

 

• welcomed the cross-party approach and commitment to genuine consultation and engagement with communities;
• communities were valued; and
• it would be good to see one consultation process across the county with a consistent framework which would provide an outcome which give meaningful information.

 

Councillor Wardle

 

Spoke in support and suggested that there might be an opportunity to put right mistakes makes on the railway as the population growth seen had not been expected. Long loops cold be reinstated to allow trains to cross therefore increasing capacity rather than new roads.

 

Councillor Fullam

 

• was attracted by the scale of this recommendation;
• he felt that an area which was too large would not support local concerns; ;
• consensus about the way forward was needed;
• there were no boundaries in the report and these could be tricky;
• collaboration was a good way forward;
• with many options on the table, the government may make decisions on the Council’s behalf and asked what the Leaders vision was;
• language was important and merging could already been seen in Devon Home Choice; and
• devolving to local areas but driven from Exeter would be a positive approach and generosity of language would diminish resistance.

 

Councillor Read

 

• welcomed the report being accessible and residents would be able to pick up read and understand;
• agreed with bring back rail tracks, more trains and longer trains;
• recognised that there would be fears in communities and perhaps loss of local connection in the 154 model;
• joined up local government was a very exciting prospect with greater strategic actions to protect nature;
• there was 50% biodiversity left intact which was considered poor;
• a larger decision-making area could have protection of nature as a key priority including addressing water pollution;
• asked that when boundaries were considered, that the Council look at a bio-regional approach supported by doughnut economics and that rights of nature be integrated into corporate strategy; and
• local resilience in the face of climate change shocks faced meant more than warmer weather, greater risk of flooding and wildfires and storms and must ensure the right balance was struck.

 

Councillor Read left the meeting at this point of the meeting.

 

Councillor Vizard

 

• spoke in support as putting residents and the city first was a priority for decision making;
• it was clear that the joint passion for the city shone through;
• welcomed future collaboration with other councils, stakeholders, businesses and residents across the coming months; and
• biodiversity and nature recovery should be front and centre of our plans. 

 

Councillor Bennett

 

• November was not far away and priority must be on speaking to residents and stakeholders not just about this but also about the cost;
• offering certainty to council staff especially with huge pressures on them already would be important;
• with the £100,000 set aside how will we ensure it won’t all go to a few consultants; and
• would the Leader share costs with other councils to ensure best value?

 

Councillor Darling

 

• spoke in support and was hopeful about plan for unitary; and
• residents of St Thomas often made contact regarding parking and other issues over which the Council had no control, how might a unitary help us to reform some of the parking legislation we currently have?

 

Councillor Parkhouse

 

Spoke in support and commented that Local government reorganisation meant change for everyone and there would be a move towards clarity and accountability for Exeter and surrounding areas.

 

Councillor Banyard

 

• England was overly centralised and there was a danger that this could shift power to large unitaries;
• decisions should be made at the most local level possible only referring on where necessary; and
• would the leader commit to town/parish councils across the whole area?

 

Councillor Wood

 

• Exeter had inspiring buildings and was the historic county capital with connections to its close neighbours;
• current city boundaries were dated and no longer fit for purpose, for example West Clyst and half of Monkerton were marketed as next to Exeter not Honiton
• Exeter was not a city in isolation but with a network of neighbouring communities; and
• he commended the report.

 

Councillor Haigh

 

• spoke in support with some trepidation regarding financial cost;
• given pressures on the budget it would be unreasonable to expect taxpayers to shoulder this cost;
• when the Council wrote formally it could request financial support for councils; and
• if the Government was serious about reorganisation it must be serious about funding it and ensuring the resources needed to carry out reorganisation were in place.

 

As seconder Councillor Wright made the following points in support of the recommendations:

 

• it was encouraging for Member and officers that there was support in the room but also encouraging to Exeter and surrounding area residents;
• Councillor took their roles seriously regardless of party; and
• the Council had tried to make the two-tier work but must change to help residents know who to approach and not have two political control centres.

 

The Chief Executive addressed questions from Members in the following terms:

• the City Council had a positive relationship with the Police and Crime Commissioner and it was assumed that this would continue;
• support for the cost of local government reorganisation from government was not available but civil servants had advised that the government may provide costs to support the implementation of any decisions made about which unitaries would be created;
• from December 2024 all districts had been meeting weekly or fortnightly with one meeting facilitated by the LGA with all leaders and Chief Executives. The meeting of the Devon Districts Forum, which usually met once a month, had voted for the remaining 7 districts with commonality to form a working group to take forward proposals and assumed that Exeter would be working alone. Joint work had been and remained the intention of this Council, however, following the decision of the other districts Exeter City Council commissioned our own support;
• some experts would be needed in areas such as social care and procurement processes would be followed; and
• the Council had hoped to share costs with other districts and would attempt to do so going forward.

 

The Leader of the Council addressed comments and questions from Members as follows:

 

• subsidiarity was very important;
• local organisations ran the swimming pool in Topsham;
• ward sizes may be approximately 4600 per councillor whereas two tier wards were currently 2200 and there maybe a loss of councillors carrying out some of the work;
• the meeting with other districts had become complex ;
• contact had continued with many of the other Devon leaders and intend to continue;
• he would put forward Councillor Mitchell’s idea to have other party leaders involved in discussions;
• he would work to allay fears from Group Leaders and the public;
• there would be approximately 700 parish councils and the council would want to talk to them but given the number it would be unlikely to be all at once;
• the council were learning from the surveys undertaken and making improvements;
• the aim would be to ask communities and parishes how they saw themselves going forward and what they could do if they the powers proposed;
• a unitary authority would be strategic with some services devolved;
• there would be an aim to grow commitment in all parishes as not all performed to the same standard;
• there would be a portfolio holder for parishes and towns;
• he wanted a shared vision for Exeter;
• biodiversity was very important the 2030 aspiration remained;
• it was important that Exeter had a voice around the table with the Strategic Mayor;
• thanked other political leaders for putting Exeter and surrounding area before party politics; and
• must reach out to change culture and attitudes and people need to be heard, their not being heard would build internal fear, education was key and he assured Councillor Hughes of support in Exeter and that there was a will to reach out to other parts of the county.

 

The Leader of the Council called for a RECORDED/NAMED vote which received sufficient support.

 

The recommendations were moved by Councillor Bialyk, seconded by Councillor Wright and, on a RECORDED vote, were CARRIED UNANIMOUSLY by those in attendance.

 

RESOLVED that Council:-

 

1) approves the interim submission for local government reorganisation at Appendix A; and

 

2) supports the proposal to engage with a range of stakeholders, including Exeter’s residents, residents in surrounding areas, businesses, key partners, other councils in Devon, in the development of a final business case for local government reorganisation due to be submitted in November 2025.