In December 2024, the UK government unveiled plans to overhaul local government structures across England, which could have a profound impact on Oxfordshire.

These proposals, outlined in the devolution white paper, seek to streamline local governance by creating larger, more powerful unitary authorities and transferring powers to mayoral combined authorities.

As the government moves forward with these plans, Oxfordshire residents and local leaders must understand what’s at stake and how these changes might reshape the way services are delivered and decisions are made.

What is Local Government Devolution?

Devolution refers to the process by which the central government transfers decision-making powers and responsibilities to local authorities.

Under the new proposals, areas that still operate under a two-tier system of local government – where county and district councils have distinct roles – will transition to unitary councils. These single-tier local government structure would combine the functions of both county and district councils into a single, larger body.

The white paper mentions a population of around 500,000 as an appropriate size for unitaries in most areas but also highlights there may be exceptions to ensure new structures make sense for an area, including for devolution and that decisions will be on a case-by-case basis.

Additionally, the government aims to establish Strategic Authorities – a powerful new local governance model that would combine multiple councils within a region, with a directly elected mayor overseeing key decisions, from infrastructure development to economic strategy.

These will be categorised as Foundation Strategic Authorities (non-mayoral or designated local authorities) or Mayoral Strategic Authorities, with potential for further devolution through an Integrated Settlement for eligible Established Mayoral Strategic Authorities.

Preferred geographies will prioritise scale (1.5m+ population), economic alignment, contiguity, avoidance of ‘devolution islands,’ delivery efficiency, boundary alignment, and local identity. The goal is for all England to eventually have Mayoral Strategic Authorities.

Why is Oxfordshire Affected?

Oxfordshire, currently a two-tier authority, is made up of the Oxfordshire County Council and five district councils, namely Oxford City Council, Cherwell District Council, West Oxfordshire District Council, Vale of White Horse District Council and South Oxfordshire District Council.

Each council is responsible for specific services. The county council oversees services like education, highways, and social care, while district councils manage housing, waste collection, leisure, and parks.

Under the devolution proposals, the government is pushing for Oxfordshire to adopt a unitary council model, effectively merging the county and district councils into a single governing body. This would simplify local governance and could provide the county with greater influence. With a recommended population of around 500,000, this is much bigger than Oxford but smaller than Oxfordshire.

Additionally, this unitary council will be required to work collaboratively with others as part of a Strategic Authority – preferrably led by a mayor. A report by the Institute for Government published last year suggests the creation of a Thames Valley Mayoral Strategic Authority by combining unitary county authorities across Oxfordshire, Buckinghamshire and Berkshire.

Unitary Councils versus Strategic Authorities

Unitary Councils and Strategic Authorities represent two discrete layers of local government reform, with distinct roles that complement each other in delivering services and devolved powers.

Unitary Councils

• A single-tier local government structure that consolidates responsibilities currently split between county and district councils in two-tier systems.
• Directly provide local services such as housing, waste collection, social care, education, and transport.
• Streamline governance, reduce duplication, and improve efficiency by combining functions of multiple councils into one body for a defined area.
• Typically covers smaller geographic areas compared with a population of around 500,000 people.

Strategic Authorities

• Higher-level regional governance bodies established under the government’s devolution plans, often led by a mayor.
• Oversee broader, strategic issues like regional transport, economic growth, spatial planning, and large-scale infrastructure projects.
• Address challenges that span beyond individual Unitary Councils’, providing a cohesive approach to regional development and investment.
• Operates over larger geographies, often encompassing multiple Unitary Councils, with a combined population of over 1.5 million people

What’s at Stake for Oxfordshire?

Impact on Elections

One of the first significant impacts of the proposed reforms is the potential delay of local elections. Currently, Oxfordshire is due to hold county elections in May 2025. However, under the proposed model, some local leaders are considering asking the government to postpone these elections until 2026, when a new unitary council might be in place. While this could allow for smoother implementation of the new system, many worry it could undermine democracy by denying residents a say in their local governance.

Changes to Local Services

A shift to a unitary authority would consolidate various local services, which may result in both benefits and challenges. On one hand, merging services could lead to greater efficiency, cost savings, and more coordinated planning across the region. However, concerns have been raised that a larger authority may be less responsive to local needs and lead to a loss of community-level decision-making.

A Greater Role for Mayors

Another key aspect of the proposals is the creation of mayoral combined authorities. These authorities would oversee broader regions, with an elected mayor holding significant powers over areas like transport, housing, and economic development.

In Oxfordshire’s case, a proposed Thames Valley mayoral authority could unite the county with surrounding areas, like Berkshire and Buckinghamshire, to create a more powerful regional body. Supporters argue that this could lead to better investment and stronger regional coordination. However, critics warn that such a large-scale authority might become too remote from local communities.

Economic Opportunities

Proponents of the devolution proposals argue that Oxfordshire stands to benefit from a stronger local government that can negotiate with the central government on issues like funding, infrastructure, and housing. A unitary authority could streamline decision-making processes and improve local services, creating new opportunities for economic growth.

Community Representation

One of the biggest concerns about the devolution proposals is the potential loss of local representation. District councils have historically provided a closer connection to communities, and merging them into larger authorities may make it harder for residents to engage with their government.

Local leaders such as Susan Brown, leader of Oxford City Council, have expressed concern that the devolution process could create a “democratic deficit,” where communities feel disconnected from their decision-makers.

Three options on the table

The Government is considering three proposals for the future structure of local government in Oxfordshire.

The county council has backed a single unitary authority covering the whole of Oxfordshire, arguing that one council would provide a simpler structure and allow services to be delivered more efficiently.

Oxford City Council has proposed a three-unitary model, including a new “Greater Oxford” authority combining the city with surrounding areas.

The proposal has attracted criticism from opponents who have described it as a potential “land-grab”, while the city council has argued that a larger authority would help deliver housing targets and support strategic planning.

The district councils have put forward a two-authority model, creating an Oxford and Shires Council covering Cherwell, Oxford City and West Oxfordshire, alongside a Ridgeway Council covering South Oxfordshire, Vale of White Horse and West Berkshire.

What Do Local Leaders Think?

While some leaders are excited about the prospects of a stronger, more unified local authority, others, like Oxford City Council leader Susan Brown, have voiced concerns. Brown has stressed the need for a thoughtful and transparent process that prioritises the interests of local communities.

Meanwhile, leaders of the district councils, such as David Hingley of Cherwell District Council, have advocated for ongoing dialogue between councils and residents to ensure the changes are implemented in a way that preserves local connections.

A decision made

The Government announced its decision on 16 July 2026, confirming that Oxfordshire’s existing local government structure will be replaced by three new unitary authorities.

Oxfordshire County Council, Oxford City Council and the county’s district councils will be abolished, with their responsibilities transferred to the new authorities from April 2028.

The approved model will create:

• Greater Oxford Council – covering Oxford and areas currently within parts of Cherwell, South Oxfordshire and Vale of White Horse.
• North Oxfordshire Council – covering the remainder of Cherwell and West Oxfordshire.
• Ridgeway Council – covering parts of South Oxfordshire, Vale of White Horse and West Berkshire.

The Government selected the proposal submitted by Oxford City Council, rejecting alternative plans for either a single Oxfordshire-wide council or a two-authority model.

Supporters of the decision argue that the new structure will create stronger strategic planning, improve coordination and help deliver housing targets, including affordable homes.

However, the decision has faced criticism from some local leaders and residents, with concerns raised about the size of the new authorities, the potential loss of local representation and the inclusion of parts of West Berkshire.

The move will also end Oxfordshire’s current two-tier system, where responsibilities are divided between the county council and district councils. Under the new model, all local government functions will sit with the three unitary authorities.

What happens next?

The existing councils will continue to operate until April 2028, when the three new unitary authorities will formally take over.

The next major step will be elections for temporary shadow authorities in 2027. These bodies will oversee the transition process and prepare the new councils before they assume full responsibility.

During this period, work will begin on transferring services, staff, assets and responsibilities from Oxfordshire’s existing councils to the new authorities. This will include agreeing new governance arrangements, operational structures and how residents will access local services in the future.

A dedicated reorganisation programme team will manage the transition, including a director role expected to be funded through Oxfordshire County Council, with a salary range of £125,350 to £135,928.

The new authorities will also receive Government support to help cover transition costs, with each council expected to receive at least £900,000 from a £63 million national funding pot.

The coming two years will determine how the new councils operate, how services are organised and how communities will be represented under Oxfordshire’s new local government structure.

The changes will come into force in April 2028, marking the end of the county, city and district council system that has governed Oxfordshire for decades.