Few people seemed to have noticed the passing last Friday of the deadline for our 22 local authorities to submit their Expression of Interest (EoI) on agreed council mergers to the ‘Welsh’ Government. Only 3 EoIs were received, covering just 6 local authorities. It seems that Blaenau Gwent and Torfaen would be happy to tie the knot, as would the Vale of Glamorgan and Bridgend, while in the north, the only two to have taken the first, hesitant steps to the altar are Conwy and Denbighshire.
To help you with what follows, and to give the current lie of the land, the map on the right shows the distribution of our population (this can be enlarged by clicking). It tells us that, in the north, the population is concentrated in Wrecsam, Deeside and the coastal strip; while in the south it’s Swansea Bay, Cardiff, Newport and the Valleys. The area in between the two, and further west, is more sparsely populated or, in some areas, almost uninhabited. You will notice a rough corellation between population distribution and the size and configuration of the existing councils.
It’s also worth remembering that certain constraints were put on the exercise by the Williams Commission. Which, as the BBC reported ” . . . recommends the new councils should be within current health board and police force areas and also not cross the geographical areas governing eligibility for EU aid.” So let us look at a few more maps showing. top to bottom, the EU aid map, which also shows the current council boundaries, the health board areas, and the police force areas. (Again, all can be enlarged by clicking on them.)
Looking at the maps we see that the highest level of EU aid does not cross local authority boundaries. The health boards also keep to local authority boundaries. However the police forces, while also observing local authority boundaries group them differently to the health boards. (Though other than pandering to the ‘Monmouthshire is English’ lobby I have no idea what the justification is for retaining the Gwent Police.) Finally, just for fun, and to show how silly it is to stick rigidly to the existing boundaries of other organisations I have thrown in (below right) the fire and rescue service map. While also respecting local authority boundaries this shows yet another way of dividing up the country.
Also bear in mind that these divisions have not been handed down to us from our ancestors on tablets of stone. Take the seven health boards, which came into effect in 2009. These replaced the seven Local Health Trusts and the twenty-two Local Health Boards that went all the way back to 2003. (So are we due another reorganisation in 2015?) The point to be taken from these various maps is that for different purposes Wales is divided up in different ways, but each and every organisation dealt with here follows local authority boundaries, thereby establishing their primacy. So rather than screw up local government reorganisation, again, by being too restrictive with the ground rules, let’s be more flexible – get the new local authority boundaries right then – if necessary – let other bodies reconfigure their boundaries to fit the local government map, not the other way round.
A final consideration may be that some of these other boundaries may not exist for much longer. For example, many people believe it’s only a matter of time before Wales has a single police force (like Scotland). Perhaps we’ll also have a national fire and rescue service. And as for EU Structural Funds, well, if the ‘Welsh’ Government uses this funding wisely, rather than squandering it on its sponging cronies in the Third Sector, then this will be another internal division that disappears. And even if ‘Welsh’ Labour does make the same mistake for a third time the 2014 – 2020 round is the last tranche of Structural Funds we’ll see. So it would be foolish to use boundaries that may be gone in three or four years time to determine the map of a local government structure we hope will last at least a couple of generations.
Even though the ‘Welsh’ Government only received three Expressions of Interest that doesn’t mean that other local authorities haven’t been discussing mergers and suggesting options. The most interesting proposal I know of is the paper put out by Swansea council, which stated as its preferred option a merger with Neath Port Talbot and, more surprisingly, linking with Llanelli, and also taking in part of Powys, presumably the area around Ystradgynlais at the top of the Swansea Valley. This would create a council with a population of some half a million and would obviously be the core for the proposed Swansea city region.
Clearly, Swansea, Neath, Llanelli and Port Talbot is a ‘natural’ unit, already a contiguous urban-industrial complex. That Swansea should have made this proposal its number one option suggests to me that preliminary talks have already taken place with Labour councillors in Llanelli, who are known to be unhappy with their party’s leadership on Carmarthenshire county council and the coalition with the Independent Party. (Yes, it is a party.) For Neath Port Talbot the Williams Commission mooted a merger with Bridgend, yet Bridgend, as we know, has already agreed a merger with the Vale of Glamorgan, for which the Commission had Cardiff lined up as a suitable match. The full Williams Commission recommendations can be seen in the table below (click to enlarge).
Looking north, we see that the Commission suggests mergers giving us three authorities instead of the current six, yet others are calling for just two, or even a single authority for the whole north. If we went for two, then presumably Conwy would join with Gwynedd and Ynys Môn while Denbighshire would link up with Wrecsam and Flintshire (maybe the latter authority can be called West Cheshire). Though perhaps the biggest problem is what to do with Powys, currently our largest authority in terms of area but with a population less than that of Wrecsam or Bridgend. Though with the relentless policy of colonisation now being implemented its population is guaranteed to rise faster than almost any other part of the country. Looking again at some of the other recommendations you have to wonder at the reasoning behind them. Why link Pembrokeshire with Ceredigion but leave Carmarthenshire as a stand-alone authority?
Another problematic authority is obviously Monmouthshire. For many of those living in Monmouthshire being part of Wales is bad enough, but having to link up with burger-eating oiks in Newport or the Heads of the Valleys is just too too much. For such people the preferred option would probably be to join Herefordshire or Gloucestershire, which is why I suggest linking Monmouthshire with Blaenau Gwent, Newport, Torfaen (and perhaps part of Caerffili) in a new authority with ‘Gwent’ as the sole official name.
The Williams Commission and the silly restrictions it imposed on the exercise – no crossing existing council, police or health bouundaries – made it impossible to come up with the best solution for Welsh local government. Another concern I have is that in asking for ‘voluntary’ mergers, who exactly is being asked? The answer seems to be whoever runs the council, be that councillors or officers, which means that we shall end up with political stitch-ups. For while I support the plan for the new Swansea Bay authority I am not blind to its attractions for the Labour Party. And where is the public consultation – or will the public be invited to give its views on done deals? Has there been input from business and other sectors of Welsh life? And isn’t the exercise somewhat undermined by Cardiff planning to leave Wales and join up with Bristol?
My view remains that the Local Government (Wales) Act 1994 threw out the baby with the bathwater. Admittedly, the two-tier system of 8 counties and 37 districts introduced in 1974 was a confusing and expensive mistake. But another mistake was made in 1994 when we should have kept the 8 county councils as the new unitary authorities instead of ditching them in favour of 22 new unitary councils, including that unworkable sop to Labour sentimentality, Merthyr. Had it been done properly in 1994 we wouldn’t be discussing local government reorganisation again today.
That’s two huge and very expensive mistakes in the space of just forty years, and surely all the more reason to get it right this time rather than trying to do it on the cheap by sticking with existing boundaries we know will be changed, or even cease to exist, in the near future. So, my advice would be – with a few modifications, such as Swansea Bay – revert to the eight pre-1994 councils and have done with it.