Disarray as regions all want different things for Devon council restructure

Plymouth, Exeter and Torbay councils are backing a new model for local government reorganisation that is at odds with proposals by Devon County Council and district authorities.

Under new shake-up plans councils are expected to reach a consensus of how Devon can be divided up but that is far from the case.

North Devon and Torridge councils are backing the ‘1-4-5 system’ with Plymouth the one, West Devon, South Hams, Teignbridge and Torbay the four and Exeter, Mid Devon, North Devon, Torridge and East Devon the five. Exeter does not agree.

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But Plymouth, Exeter and Torbay Councils have announced their united support for being separate unitary authorities once district and county councils are abolished, with a fourth council consisting of Devon coast and countryside.

They say these proposals respond directly to the Government’s call for reform and reflects the shared ambition of Devon’s urban centres to lead the region into a more resilient, responsive and sustainable future.

Devon County Council, which unveiled its plan in September, wants a new local authority covering roughly the same area as is now covered by the county council and the eight district councils while retaining Plymouth and Torbay councils.

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In the future all the councils providing local services will be unitary to simplify the local government structure.

All proposals must be submitted by November 28 and the government will decide which one to take forward.

In a statement Plymouth and Exeter council leaders said today that large urban areas like theirs and Torbay are ‘the engines of growth for both urban and rural communities’.

It added: “They drive investment, create jobs, and deliver services that reach far beyond their boundaries into surrounding towns and villages.” 

The fourth unitary council they are supporting would be one based on coast and countryside and focused on dealing with rural issues.

“This will centre on a town-hub model, with market towns acting as vital centres, serving their local communities and surrounding areas,” they said.

Writing in the North Devon Gazette this week, Cllr Ken James, leader of Torridge District Council reiterated support for the 1-4-5 option, saying it would be: “more effective and financially sustainable local government for Devon by aligning council boundaries with real communities and local economies.”

While the final decision has not been formally made, North Devon Council has also essentially committed to the same plan.

Meanwhile, Councillor Tudor Evans, leader of Plymouth City Council, said: “The two-tier system has failed Devonians. This is a once-in-a-generation opportunity to reshape how local government works – not just for Plymouth, but for every corner of Devon. Our proposal puts people first, with a model that reflects how communities live, connect, and thrive across the region.

“This isn’t just about redrawing boundaries, it’s about building a smarter, fairer future. It brings together the ambition of our cities, the strength of our towns, and the character of our rural and coastal communities.

“With four focused councils working together, we can deliver better public services, unlock investment, and give every part of Devon a stronger voice. We’re asking the government to back a vision that works for everyone – from Barnstaple to Brixham, Exeter to Ivybridge.

“Smaller unitary councils like Plymouth and Torbay have shown they can deliver and Exeter continues to punch above its weight. But size isn’t everything – economies of scale can hide serious structural issues and weaknesses, as we’ve seen in Devon. This model gives us the best of both worlds: councils that are big enough to be sustainable, but close enough to stay accountable.”

Exeter City Council says it has long championed co-ordinated growth across its wider housing and economic area and sees the four-council model as a natural evolution.

Councillor Phil Bialyk, leader of Exeter City Council, said: “A lot of work has gone into developing these proposals for local government reorganisation, and during that work it has become obvious that the interests of Exeter and the rest of Devon will be best served by four councils. 

“Devon’s urban areas are the engines of growth for the whole of the county, and this model recognises the unique characteristics of Devon’s urban and rural landscape and communities. 

“In Exeter we have cross-party support for our proposals, and we will continue to work closely with town and parish councils and local communities in the surrounding areas to ensure that they are fully empowered by reorganisation. 

“I very much welcome the support of our colleagues in Plymouth and Torbay in developing proposals that will ensure that the whole of Devon can thrive in the future.”

Plymouth’s final proposal will be published next week and discussed at a scrutiny committee on November 12 followed by full council on November 24 and cabinet on the same day.

Subject to approval, the proposal will be submitted to the government on November 28 for its consideration.