Four-council shake up to re-shape Devon’s future
There will be four unitary authorities from 2028
Last updated 9 hours ago
The government has today confirmed it will adopt the four unitary model, put forward by Plymouth and Exeter, as the basis for Local Government Reorganisation in Devon.
Currently, services in Devon are split between different types of councils. Most of the county operates under a two-tier system, with Devon County Council responsible for major services such as education, transport, libraries and social care, while district councils deliver local services including environmental health, licensing, housing, planning, sports centres, parks, waste collection and recycling. Plymouth and Torbay operate separately as unitary authorities, each providing the full range of local government services within their own boundaries.
As part of its wider plan to replace all two-tier structures with unitary councils, the government asked existing authorities in Devon to develop proposals for how future services could be organised. Council leaders and officers across the county worked together to prepare options, supported by extensive engagement with communities. Five proposals were submitted for consideration.
After a statutory public consultation, the government announced on 16 July 2026 that four unitary councils will be taken forward for Devon. Plymouth will expand to serve communities across the city and surrounding areas that already rely on Plymouth for employment, education and healthcare, with a population of approximately 300,000 and a new council for Exeter would be established, serving its natural catchment, with a population of around 260,000.
They will operate alongside an expanded Torbay and a new Devon coast and countryside council. Each council will reflect distinct local identities and functional economic areas, but together will collaborate on strategic issues such as transport, skills, housing and economic development, while respecting local accountabilities and democratic representation.
Plymouth City Council says the government has recognised that the four-unitary solution is the one best placed to deliver the ambitions of devolution across our area. It means the change ahead is a positive one, not only for Plymouth but for the wider Devon as well, and it sets the whole region up to make more of the opportunities that devolution brings.
This decision reflects months of collaborative work, detailed evidence and significant public input, demonstrating that a more coherent, city focused structure offers the best route to delivering high quality, sustainable services across the region.
Leader of Plymouth City Council, Councillor Tudor Evans, said: “This is a positive decision for all of us in Devon, and we are pleased the Government has recognised the strength of our proposal developed with Exeter City Council and supported by two of our local MPs. Creating four unitaries will end 25 years of confusion for most Council Tax payers in Devon about who provides the services they receive. It will bring clearer democratic accountability, with decisions made closer to the communities they affect and services shaped around the distinctive needs and opportunities of each area.
“As we move into the next phase, we look forward to working closely with the 13 parishes to ensure their voices, priorities and local identities are fully reflected in the future arrangements. Our joint proposal put forward a modern, coherent model that is large enough to operate efficiently but local enough to remain responsive to the people we serve. As the Government moves to the next phase, we are already working with neighbouring authorities to ensure any transition is smooth, coordinated and focused on improving outcomes for our residents.”
Leader of Exeter City Council, Councillor Phil Bialyk, said: “I very much welcome this decision. Local government reorganisation is a unique opportunity to build a brighter future with stronger services and local accountability.
“It simplifies things for residents and communities by just having one tier of local government running services.
“Exeter and Plymouth’s joint submission recognised the importance of Devon’s growth areas while ensuring all four new councils have the scale to deliver high-quality services. I am delighted the Government has recognised this.
“Residents and communities will receive more information in the coming weeks and months on what this decision means for them, but for now there is no change, and it remains business as usual.”
This was not the favoured option of East Devon District Council which, along with seven other district authorities, had proposed a three unitary “Reimagining Devon” model.
The accepted proposal will see the current East Devon geography split between two new unitary authorities covering a new Greater Exeter area and a large rural and coastal council footprint. The existing district council will now focus on working on ensuring that East Devon’s communities, services and staff are fully represented as the new authorities are designed and implemented.
Deputy Leader for East Devon, Councillor John Loudoun, said: “I am disappointed in this decision. This was not the preferred outcome for the majority of district councils in Devon, including this one. For East Devon, a split of our services will come with significant challenge and cost.
"However, our priority now is clear – ensuring that we protect local services, staff and democratic representation for East Devon residents as we transition from an existing East Devon across into the new unitary authorities. It is vital that we support the transition to the new authorities to ensure a smooth transfer and to minimise disruption for our residents and businesses”.
Leader of North Devon Council, Councillor David Clayton, said: “The government has today announced its decision on the future structure of local government in Devon.
“We recognise that unitary authorities have the potential to deliver more efficient and effective services for Devon and eliminate confusion for residents.
“While the government has chosen a different option to the one we supported, we respect the decision and are beginning work on the next phase of this process. Our priority is ensuring North Devon, its residents, businesses and communities are well represented and will continue to receive the high-quality services they deserve for generations to come.
“Work with our partnering councils, staff and stakeholders is well under way as we focus on protecting services and supporting our communities. Throughout this process, we will continue to speak up for North Devon's needs and help shape arrangements that deliver the best possible outcomes for our residents.
“In the meantime, North Devon Council will continue to provide excellent local services for our residents while we work towards a smooth and well-managed transition to the new structure on 1 April 2028.”
Conservative MP for South West Devon, Rebecca Smith, said: "I am deeply disappointed that the Labour Government has chosen to back Plymouth City Council’s 'Greater Plymouth' plans.
"The decision to allow Plymouth to expand into 13 parishes in the South Hams is a slap in the face for the thousands of residents, parish councils and community groups across the South Hams and West Devon who spoke up to defend the identity of their communities. Time and again, local people made their views clear. Time and again, the Labour Government ignored them.
"Instead of listening to residents, Ministers have chosen to prop up Tudor Evans and deliver the expansion he has campaigned for. It is also perhaps no surprise that Labour MPs will be welcoming this decision. After all, it is not their constituents who will see their communities absorbed into a ‘Greater Plymouth’ authority or face the consequences of this reorganisation. The people paying the price are those in the South Hams and West Devon, whose voices have been ignored throughout this process.
"Communities such as Wembury, Brixton, Ivybridge, Newton and Noss, Holbeton, Yealmpton and the other affected villages are proud communities with their own history, identity and local character. They are not simply green fields to build homes for the city of Plymouth. Throughout this process, residents have made it clear that they value that identity and wanted it respected. Today's decision ignores those concerns.
"To add insult to injury, residents in the South Hams parishes are likely to continue paying both Plymouth City Council tax and their parish precept, unlike the existing city of Plymouth area. They may be joining Plymouth, but they will still be treated differently.
"That means from day one there will be a postcode lottery within the new authority. Rural communities will be paying for an additional layer of local government that many Plymouth residents do not. If these towns and villages are supposedly becoming part of the same council area, residents deserve to know why they are being treated differently.
"I am equally concerned for communities in West Devon, who now face the prospect of being in the same local authority as regions as far away as Barnstaple and Axminster. This was sold as bringing decision-making closer to local people. Instead, Labour has chosen larger councils, more distant decision-makers and less local accountability.
"This decision also raises a host of unanswered questions. Where will the new authority be based? Where will key services be delivered from? How will decisions be made across such a vast geographical area?
"The government's own announcement also makes its intentions abundantly clear. It explicitly identifies Plymouth as a priority for housing growth, reinforcing what many residents have believed from the very beginning: that this has always been a land grab. For months, Labour dismissed those concerns. Today's announcement will leave many wondering whether they were right all along.
"Throughout this process, I have fought alongside residents, parish councils and local campaigners because I believe local government should reflect communities, not erase them.
"I will now be writing to both Tudor Evans and the Secretary of State to seek answers on a number of important issues, including:
• Why are residents in the transferred parishes being treated differently and expected to pay more?
• How will town and village identity be protected?
• How will rural communities have their voices heard?
• How will rural areas receive fair funding and representation?
"Labour may have made its decision, but I will continue to stand up for residents across the South Hams and West Devon, hold the new authority to account, and fight to protect the identity and interests of all the communities I was elected to serve."
"The government has also announced that as a result of this decision, the planned local election for Plymouth in 2027 will be replaced by an election for the shadow Greater Plymouth Council, which will assume responsibility from May 2028."