URL: https://meetings.westoxon.gov.uk/ieDecisionDetails.aspx?ID=465

Decision Maker: Council, Executive

Outcome:

Is Key Decision?: Yes

Is Callable In?: Yes

Purpose:

Content: Councillor Andy Graham, Leader of the Council, introduced the item, the purpose of which was to provide the three full proposals for local government reorganisation in Oxfordshire, in response to the Government’s formal invitation on the 5 February 2025.   Prior to considering the recommendations to the Executive, Councillor Graham thanked the Overview and Scrutiny Committee for their recommendations on proposals for Local Government Reorganisation (LGR) which were included as a supplement to the agenda for this meeting. Councillor Graham then invited comments on the recommendations from the Overview and Scrutiny Committee from the Executive which raised the following points:   Recommendation 1 from the Committee was welcomed, in particular its reference to the need to strengthen the focus in the two unitary proposal on agriculture. It was noted that, as the two unitary proposal included Oxford City, there was a need to ensure the challenges faced by the rural and farming communities were recognised. It was also suggested that it was important to support transport for the rural food sector, including farmers. Part of the work of a new authority could include improvements in the use of fertilisers and nutrients in the farming sector. A Member commented that it would be beneficial to build on the work of the Community Safety Partnership with Thames Valley Police which was particularly important in rural areas.   Councillor Graham concluded that the rural impacts of LGR were rightly highlighted by the Overview and Scrutiny Committee, including impacts on farming, rural crime and food security. Councillor Graham proposed that the Executive accepted the recommendations made by the Overview and Scrutiny Committee. The proposal was unanimously agreed by the Executive.   Councillor Graham informed the meeting that the Executive had invited Members of the Council, at their meeting on 12 November 2025, to consider and present views on the submission of a full proposal for a two unitary model based on one new unitary council covering the entire existing boundaries of West Oxfordshire and Cherwell District Councils and Oxford City Council and a second new unitary covering the entire existing boundaries of South Oxfordshire and Vale of White Horse District Councils and West Berkshire Council. Councillor Graham read the comments made by the Council, which were included in a supplement to the agenda.   A Member noted that an observation that had been raised by Council but had been omitted from the supplement, was the need for a stronger emphasis on a bottom-up approach in a new authority in order to ensure groups that were disengaged with local politics were considered. This was noted by Councillor Graham and could be addressed by Officers.   Councillor Graham thanked the Council for their observations which had been very useful and reminded those present that not all councils considering such proposals had provided an opportunity for Members to comment. Councillor Graham proposed that the comments made by Council were noted and that Officers would use them as appropriate in the finalisation of the submission. The proposal was unanimously agreed by the Executive.   Councillor Graham then invited the Executive Members to comment on the proposals, which raised the following points:   Members thanked Officers of the Council for their work on the proposal. The work on the proposals had been collaborative with other councils and this should be noted. All Members of the Executive favoured the two unitary option. However, some Members concluded that all proposals had valuable aspects in addition to potential issues along with areas that required work. It was suggested that it was difficult to compare aspects of the single unitary proposal with its counterparts because it did not include West-Berkshire. It was noted that the two and three unitary proposals had included West-Berkshire. A potential flaw in a single unitary option was that the diversity across the County made it difficult to argue that there was a continuous related geography. The creation of a boundary across the centre of the Oxfordshire Economic Area was suggested to be a potential issue with the two unitary proposal. The merits of the three proposals in terms of a potential future Mayoral Strategic Authority (MSA) were discussed. With regard to economic development, it was suggested that a single unitary proposal may undervalue the contributions of the West and North of the County, while the two and three unitary models were more ambitious for these regions. The importance of local voices being heard within a new authority were highlighted. A number of Members commented that they considered the proposals as an opportunity to re-imagine, redesign and re-evaluate how councils provide services in order to make these better and more responsive. It was felt that the single unitary proposal did not achieve this and instead focussed on the absorption of the district councils into Oxfordshire County Council’s existing structures. Financially the proposals delivered similar benefits. It could have been suggested that the two unitary proposal had a higher initial costs but this was a one-off. Members commented further on the lack of satisfaction with some current service delivery. Examples of feedback that had been received from their parishes and constituents were provided. Such experiences were suggested to be an illustration of how improvements were needed, and re-evaluation was required as part of a new structure. The two unitary proposal was suggested to create a structure that was large enough, in terms of both government criteria and economies of scale, gave financial resilience but still retained the engagement with the community that the Council currently provided. The two unitary proposal was suggested to be balanced as it included the city, rural communities and market towns. The inclusion of two rural districts would provide balance with the City of Oxford and ensured that these regions were represented in the new structure. The affinity many residents of the districts had felt with Oxford, many whom worked, travelled or studied there, was regarded as a positive aspect of the two unitary proposal.   The Shared Waste an Environment Services Programme was provided as an example of successful collaborative working. This had involved many councils across the County. This collaboration could be used in the proposal as an example for other areas of work in a new authority, such as flood management and nature recovery. The two unitary proposal was considered to be the best vehicle to build on the existing good practices in Leisure. These included improved access, carbon reduction and increased investment. There was existing collaborative work with other Oxfordshire councils in climate and nature recovery, and it was hoped that this would be enhanced by a new authority. The two unitary proposal recognised the importance of the rural hinterland to Oxford, particularly regarding food supply chains. A Member noted that there was an interconnection of rivers and water flow between the districts involved in the two unitary proposal and Oxford City. All headwaters of the River Thames were in these districts. Therefore, the city relied on actions of those districts for flood protection and fresh-water provision. The proposals were considered in terms of the number of electors per Councillor that they contained. The single unitary proposal appeared to be the least accessible in these terms. The three unitary proposal, whilst having more Councillors, was considered to have too strong of a focus on Oxford City. The two unitary model was considered to provide the best balance on number of electors per Councillor. The merits of the proposals in terms of planning were raised. The single unitary proposal had suggested it would have one planning committee which would mean the loss of local knowledge and input into decisions. The three-unitary model had an unrealistic housing target.   A Member present gave an example of the confusion that could arise with a two-tier authority and could be solved by a single authority.   The Chief Executive gave an update on the work on the proposal to date. The work had included collaboration across councils and the creative approach adopted for the two unitary proposal was evident in the work.   Councillor Graham proposed accepting the recommendations of the report and summarised by stating that all the proposals would deliver services, but the consideration of the proposals should include how well those services could be delivered by each. The two unitary proposal gave the opportunity to reshape and correct mistakes and not simply reconfigure the existing systems. It was important that the new larger structure did not suit only one of its constituent parts. The two unitary proposal made its case on the basis of evidence and met the Government criteria. Other proposals lacked the ambition of the two unitary proposal which maintained its community connection. Councillor Graham considered that the work undertaken on the proposal to date was the end of the beginning and reiterated that he hoped the Government would listen to the evidence when making its decision. Councillor Graham considered that the decision on a new authority was not just about money but also about quality of life for residents.   Councillor Duncan Enright, Deputy Leader of the Council, seconded the proposal.   This was voted on and approved unanimously.   RESOLVED: That the Executive: Noted that since the statutory invitation to all councils in two tier areas, significant work has been undertaken by all Oxfordshire Councils and that West Oxfordshire and Cherwell District Councils’ officers have engaged with officers across Oxfordshire and West Berkshire. Noted that two other proposals will be submitted, one proposed by Oxfordshire County Council covering the Oxfordshire area and one from Oxford City Council covering the Oxfordshire and West Berkshire area. Considered the views of Council at their meeting on the 12 November 2025 regarding the three unitary models. Considered approving the submission of a full proposal for a two unitary model based on one new unitary council covering the entire existing boundaries of West Oxfordshire and Cherwell District Councils and Oxford City Council, with a working title of ‘Oxford & Shires’ and a second new unitary covering the entire existing boundaries of South Oxfordshire and Vale of White Horse District Councils and West Berkshire Council, with the working title of ‘Ridgeway’ Subject to approval, noted that Cherwell District Council, South Oxfordshire District Council, Vale of White Horse District Council and West Oxfordshire District Council will jointly submit the full proposal directly to Government in line with the Oxfordshire invitation letter. Delegated authority to the Chief Executive in consultation with the Leader of the Council, to make any final amendments to the full proposal and associated documents for the 2 unitary model prior to submission to Government.

Date of Decision: November 13, 2025