Local Government Boundary Commission (1945–1949)


The Local Government Boundary Commission was established in 1945 to review the boundaries of local authority areas in England and Wales outside the Counties of London and Middlesex. The Commission produced its report in 1948 which proposed large changes to county-level areas of local government and changes in the structure and division of powers between tiers of administration. The Commission's proposals were not acted on, and it was disbanded in 1949.

Background

Alterations to local government boundaries had been suspended with the outbreak of the Second World War in 1939. Previously they had been carried out by a number of processes: county boroughs could be constituted or extended by private act of parliament, while county councils were to carry out reviews of county districts on a ten yearly cycle. There was no general procedure for adjusting boundaries between administrative counties, or for amalgamating them. The different procedures were not coordinated.

The wartime coalition government published a white paper in January 1945, entitled Local government in England and Wales during the period of reconstruction. The document proposed the establishment of a Local Government Boundary Commission with executive powers to alter council areas, taking over the powers of the county councils and Minister for Health to change areas. In future all proposed changes by local authorities were to be submitted to the Commission. The Commission was to consider administration in each geographical county and see if there was a prima facie case for a review. If it felt a review was warranted the commission was to notify the Minister and the relevant county council, who could then require the holding of an inquiry into local government in the county.
The problem of local government in the County of London and Middlesex were deemed to be a special case, with the extension of the County of London, the probable disappearance of Middlesex and annexing of parts of the surrounding counties envisaged. The Commission was not to be allowed to consider these issues, which were to be considered by an "authoritative body" at a later stage. It was recognised that Middlesex contained a number of towns "large enough on any standard for county borough status" but the commissioners were not given the power to "entertain applications for county borough status in the county".
The Commission was to have the power to:
The decisions of the commission were to be subject to parliamentary review. The proposals in the white paper were enacted as the Local Government Act 1945 . It received the royal assent on the last day in office of the caretaker government that had taken over from the coalition in May. Outside observers considered that the establishment of the Commission meant that the Government did not intend to make any changes in the basic structure of local government, and noted that the Commission lacked the power to recommend radical changes such as the establishment of regional councils.

Appointment of commissioners

Following the 1945 general election, Aneurin Bevan was appointed the Secretary of State for Health in the new Labour government, and took over responsibility for the appointment of the Commission. The five commissioners were appointed by Royal Warrant on 25 October 1945. The chairman was Sir Malcolm Trustram Eve and the deputy chairman Sir John Evelyn Maude. The three other members were Sir George Hammond Etherton, Sir James Frederick Rees and William Holmes.
The Minister for Health made regulations governing the work of the commission. Any alterations in the status or boundaries of local government areas were to create "individually and collectively effective and convenient units of local government administration." The commission was given nine main factors which were to govern their decisions:
In April 1946 the Commission wrote to county and county borough councils, asking for information on any boundary proposals they were considering. By August they had received replies from 80 of 83 county boroughs and 42 of 61 county councils, stating they were seeking boundary reviews.
Acting on the information they had received, the Commission prioritised the review of areas into two categories, "A" and "B". Reviews of areas in category A were to proceed as soon as possible, while the review of category B areas would be held back until July, 1947.
The first reviews concerned the claims of Dagenham, Ilford, Leyton, Luton, Rochester-Chatham-Gillingham, and Walthamstow for county borough status. Among the category A reviews were the boundaries of Bedfordshire, the areas of Surrey within the Greater London area, and a request by the municipal boroughs of Beckenham and Bromley to form a joint county borough.

First report

On 22 April 1947, the Commission presented its first report to parliament, covering its work in 1946. The following investigations had been begun:
In addition, the report recommended the ending of the distinction between boroughs, rural districts, and urban districts, with all to become known as "county districts". The privileges granted to boroughs under municipal charters were to be preserved, however.
The Commission also sought an amendment of its powers, to extend its power to divide districts to municipal boroughs as well.
It was announced that decisions in the "urgent" category A areas would be given the following month.

First recommendations

Decisions on the category A areas were announced 1 May 1947:
Two weeks later the Commission issued a statement on further proposed changes:
The Commission's second report was issued in April 1948. It contained a notably strong section outlining the deficiencies with the existing system of local government, and therefore the report made comprehensive proposals for local government areas throughout England, and suggestions for Wales. It was later to be argued that in producing this report, the Commission had significantly exceeded its brief.
The commission recommended the creation of:
The proposed one-tier counties were based on twenty large county boroughs, which were to continue to manage all local government services in the area. Two of these counties were to be formed from the amalgamation of a number of existing councils.
  1. Birmingham
  2. Bradford
  3. Bristol
  4. Central Sussex
  5. Coventry
  6. Croydon
  7. Derby
  8. East Ham
  9. Kingston-upon-Hull
  10. Leeds
  11. Leicester
  12. Newcastle upon Tyne
  13. North Staffordshire
  14. Nottingham
  15. Plymouth
  16. Portsmouth
  17. Sheffield
  18. Southampton
  19. Sunderland
  20. West Ham

    Two-tier counties

The two-tier counties were based on the existing administrative counties. The commission felt that in order to provide effective local government a county must have a population of more than 200,000 and less than a million. From this it followed that a number of small counties would need to be merged, and large ones divided.
The small counties requiring union were: Cambridgeshire, Herefordshire, Huntingdonshire, Isle of Ely, Lincolnshire, Lincolnshire, Rutland, East Suffolk, West Suffolk, Soke of Peterborough, Westmorland and Worcestershire. Although the Isle of Wight was below the population limit it was to be preserved because it was an island and cannot conveniently be united with the mainland."
The large counties needing division were Cheshire, Lancashire, Staffordshire and the West Riding of Yorkshire.
The proposed two-tier counties were as follows:
  1. Bedfordshire
  2. Berkshire
  3. Buckinghamshire
  4. Cambridgeshire from the merger of Cambridgeshire, Isle of Ely, Huntingdonshire, Soke of Peterborough and the Newmarket Urban District from West Suffolk
  5. Cheshire Lancaster South East and Cheshire North East and
  6. Cornwall
  7. Cumberland
  8. Derbyshire
  9. Devon
  10. Dorset
  11. Durham
  12. East Sussex
  13. Essex
  14. Gloucestershire
  15. Hampshire
  16. Hereford and Worcester from the merger of Herefordshire, Worcestershire, Worcester county borough plus Amblecote Urban District, Staffordshire.
  17. Hertfordshire
  18. Isle of Wight
  19. Kent
  20. Lancaster Central
  21. Lancaster North and Westmorland from Westmorland and north Lancashire
  22. Lancaster South
  23. Lancaster South East and Cheshire North East
  24. Lancaster South West and Cheshire North West
  25. Leicester from the merger of Leicestershire and Rutland
  26. Lincoln South from the merger of Lincolnshire and Lincolnshire
  27. Lincoln North from the merger of Lincolnshire and Grimsby county borough
  28. Middlesex
  29. Monmouthshire
  30. Norfolk
  31. Northamptonshire
  32. Northumberland
  33. Nottinghamshire
  34. Oxfordshire
  35. Salop
  36. Somerset
  37. Stafford Central
  38. Stafford South
  39. Suffolk formed from the merger of East Suffolk and West Suffolk less Newmarket, and Ipswich county borough
  40. Surrey
  41. Warwickshire
  42. West Sussex
  43. Wiltshire
  44. York East
  45. York North formed from Yorkshire North Riding, Middlesbrough county borough, and Stockton-on-Tees and Billingham from County Durham
  46. York South from part of West Riding of Yorkshire
  47. York West from most of West Riding of Yorkshire

    Most-purpose county boroughs

The county boroughs proposed by the Commission were to be responsible for most local government in their area, only looking to the county councils for large area services. They were a mixture of existing county boroughs and larger non-county boroughs.
  1. Barnsley
  2. Barrow-in-Furness
  3. Bath
  4. Birkenhead
  5. Blackburn
  6. Blackpool
  7. Bolton
  8. Bootle
  9. Bournemouth
  10. Burnley
  11. Cambridge
  12. Carlisle
  13. Chatham-Gillingham-Rochester
  14. Cheltenham
  15. Chesterfield
  16. Darlington
  17. Doncaster
  18. Dudley
  19. Exeter
  20. Gateshead
  21. Gloucester
  22. Grimsby
  23. Halifax
  24. Hastings
  25. Huddersfield
  26. Ipswich
  27. Lincoln
  28. Liverpool †
  29. Luton
  30. Manchester ‡
  31. Middlesbrough
  32. Newport
  33. Northampton
  34. Norwich
  35. Oldham
  36. Oxford
  37. Poole
  38. Preston
  39. Reading
  40. Rochdale
  41. Rotherham
  42. St Helens
  43. Salford
  44. Smethwick
  45. Slough
  46. Southend
  47. Southport
  48. South Shields
  49. Stockport
  50. Stockton-on-Tees
  51. Stretford
  52. Swindon
  53. Tynemouth
  54. Wallasey
  55. Walsall
  56. Warrington
  57. West Bromwich
  58. West Hartlepool
  59. Wigan
  60. Wolverhampton
  61. Worcester
  62. Worthing
  63. York
†large enough to be a one-tier county, but to be centre of gravity for new county of South West Lancashire and North West Cheshire
‡large enough to be a one-tier county, but to be centre of gravity for new county of South East Lancashire and North East Cheshire

Wales

The Commission did not have detailed proposals for Wales. Glamorgan was to remain two-tier, with Merthyr Tydfil as a county borough within it, while Cardiff was to be a one-tier county. No decision had been made on Swansea. The remaining eleven administrative counties were to be grouped as either two, three, four, or five new counties.

Third report and abolition

On 25 March 1949, the Minister of Health Aneurin Bevan replied to a written question in the House of Commons stating that "it will not be practicable to introduce comprehensive legislation on local government reconstruction in the near future". This meant that the proposals in their previous report would not be carried out, and the Commission's annual report for 1948 which followed in April 1949 was therefore reduced to recommending orders under existing legislation. The report also noted that the four proposals for combinations of Welsh counties had been unanimously rejected by the county councils.
On 27 June 1949 a decision to abolish the commission was announced in parliament. The Minister praised the work done by the Commission, but noted that it did not have the power under the 1945 Act to alter the structure or vary the functions of local government. The Government recognised that it was difficult for the Commission to continue with its work without considering these factors. It was therefore repealing the Act creating the body, restoring the situation for local boundary reviews to that pertaining in 1945. The Government was to carry out a review of the structures and functions of local administration, including London, although the Minister was unable to give a date for its commencement. Local government academic Bruce Wood, reviewing the history of the Commission nearly 30 years later, remarked that its refusal to be constrained in its 1947 report meant the Commission had "committed suicide".
The winding-up of the Commission was enacted by the Local Government Boundary Commission Act 1949 . The planned review never took place. Following the 1950 general election, the Labour government was returned with a small majority. In a debate on local government in the Commons on 17 July 1951, George Lindgren, Parliamentary Secretary for Local Government and Planning stated that the Government was waiting for the results of negotiations between the local authority associations. In the absence of such agreement, no legislation could be introduced due to the state of the parties in the House. The Minister for Housing and Local Government Hugh Dalton, added that "the reform of local government was the type of question regarding which, in a parliament like the present, with the Government having a narrow majority, comprehensive legislation was not realistic."
The statement effectively delayed reform until the next parliament, a fact not lost on the commission's former chairman who wrote to The Times bemoaning the fact that "The Government's review of local government structure, which was stated in 1949 to be already in being, appears to have led nowhere. This lack of decision is bad enough for local government, but surely the reconstitution of district authorities, without previous consideration of any of the functions or boundaries of the existing counties and county boroughs, or even any power to consider them simultaneously, would be a farce."
The Labour party lost power to the Conservatives in the general election of 25 October 1951, and no further review of local government was put forward until the publication of the white papers leading to the Local Government Act 1958.