Plymouth to vote on plan to reshape Devon into four unitary authorities

Plymouth City Council will vote later this month on a major proposal to reorganise local government across Devon, a proposal that would see the county divided into four new unitary authorities and expand the city’s boundary into 13 South Hams parishes.

The proposal forms part of Labour’s national plan to simplify local government by abolishing the two-tier system of county and district councils. Under the new model, larger unitary authorities would take on responsibility for all services, including education, waste, transport, housing, and children’s and adult social care.

As part of its submission, Plymouth is seeking to extend its boundaries to include Bickleigh, Shaugh Prior, Sparkwell, Brixton, Wembury, Cornwood, Harford, Ugborough, Ivybridge, Ermington, Yealmpton, Holbeton and Newton and Noss. The move would increase the population served by Plymouth City Council to around 300,000, a scale considered more likely to gain government approval.

Over the summer, the council held 13 ‘Big Community Conversation’ sessions in the areas affected and says these have “informed” its proposal.

Under the model, Devon would be reorganised into:

• an expanded Plymouth unitary authority,

• an expanded Exeter and Torbay authority, and

• a new Devon Coast and Countryside authority covering the remaining rural and coastal areas.

The full Plymouth City Council will be asked to back the plan at its meeting on 24 November, ahead of the government deadline of 28 November, when all local authorities in Devon must submit their preferred options.

Although ministers have called for consensus, Devon is far from united. Devon County Council and seven of the county’s eight district councils are expected to submit an alternative model known as the 1-4-5 plan, which retains Plymouth within its current boundaries.

That proposal would create:

• a combined South Hams–Teignbridge–West Devon–Torbay unitary authority, and

• a second unitary authority covering East Devon, Mid Devon, North Devon, Torridge and Exeter.

Exeter and Torbay councils, however, are supporting Plymouth’s four-unitary model.

Plymouth City Council leader Tudor Evans (Lab, Ham) said the four-unitary option was “a smarter, more sustainable approach – one that recognises the vital role our cities play in driving growth and delivering services, while also ensuring that rural and coastal communities have the representation and support they need”.

He added: “This is also a chance to reshape Plymouth in a way that reflects the reality of how people connect across our region. Our boundaries haven’t changed in over 50 years, yet every day we’re delivering services beyond them – from schools and hospitals to transport and housing.
“By welcoming 13 neighbouring parishes into an expanded Plymouth, we’re not just redrawing lines – we’re removing barriers. This proposal unlocks new opportunities for both the city and the surrounding rural areas, creating a single, joined-up authority that works better for everyone.”

Evans also argued that “Plymouth was the powerhouse of the South West”, saying: “It’s home to nationally significant defence assets, a thriving marine sector, and a track record of award-winning regeneration but to keep delivering, we need the scale and flexibility to grow.
“This proposal secures our long-term financial sustainability and strengthens our ability to support communities, attract investment, and deliver high-quality services.”

But the proposal has faced sharp criticism, particularly from South West Devon Conservative MP Rebecca Smith, who represents areas in Plymouth, West Devon and the South Hams.

She said many residents in Plympton and Plymstock already felt “overtaxed and overlooked” by the city council and argued that “this land grab will make it worse still”.

Smith, who recently presented a petition of 1,800 signatures to Parliament opposing the expansion, rejected suggestions that the proposal represented “a modest expansion”.

She highlighted the district councils’ 1-4-5 proposal, saying it “takes account of local residents' wishes” and had gained “clear local support”.

Plymouth City Council said hundreds of residents and stakeholders participated in consultations, with many recognising potential benefits for service delivery and regional collaboration. Feedback indicated shared priorities across urban and rural communities, including better transport links, improved housing options, stronger healthcare provision and more responsive local decision-making.

The city council’s final proposal will go before the scrutiny management board on 12 November, before returning to the full council and cabinet for approval on 24 November. If approved, it will be submitted to ministers on 28 November.

The government will ultimately decide which reorganisation model, if any, goes ahead for Devon.