Avoiding the grey zone

Adele Gritten says clarifying roles in England’s evolving governance landscape is crucial to avoiding replication and unlocking strategic potential.

As England embarks on its most ambitious phase of local government reorganisation (LGR) and devolution in decades, the potential for duplication between nascent, emerging Strategic Authorities and existing Unitary councils is becoming increasingly apparent. The English Devolution and Community Empowerment Bill, introduced in July 2025, sets out a bold vision for a streamlined, empowered local governance model. Yet without clear delineation of roles and responsibilities, we risk undermining the very efficiencies and outcomes this reform seeks to deliver.

The risk of duplication in a complex landscape

The Bill introduces Strategic Authorities, a new tier of local authority. These will encompass Combined Authorities, Combined County Authorities, and in some cases, single councils or the GLA. These bodies are tasked with regional oversight in areas such as transport, housing, skills and economic development. Concurrently, the sector is transitioning to unitary structures, consolidating two-tier systems into single councils responsible for all local services.

While this dual reform agenda aims to simplify governance, it also creates a grey zone. Strategic Authorities are not replacements for local councils, yet they are empowered to lead on functions that overlap with those of Unitaries. Without a robust framework for coordination, we risk duplicated efforts, conflicting strategies and inefficient use of public resources.

Why clarity matters now more than ever

The urgency to clarify roles is heightened by the simultaneous rollout of major national strategies and initiatives:

• The Planning and Infrastructure Bills grant new powers to mayors and Strategic Authorities. For example, in terms of strategic planning powers, Mayors can call in or refuse planning applications of strategic importance.
• The Industrial Strategy refresh calls for place-based growth plans, requiring alignment between local and regional economic priorities.
• The Local Government Reorganisation Programme is actively reshaping council boundaries and responsibilities, with 21 areas submitting proposals for unitary status. 

These overlapping initiatives demand a coherent governance model that avoids duplication and fosters collaboration.

To navigate this evolving landscape, several key considerations must be addressed:

1. Functional Clarity: Define which functions are best delivered at regional versus local levels. For example, strategic transport planning may sit with Strategic Authorities, while local road maintenance remains with Unitaries.
2. Statutory Guidance: The Devolution Bill should include statutory duties for Strategic Authorities to collaborate with constituent councils, avoiding siloed delivery.
3. Shared Evidence Bases: Government feedback on LGR proposals has emphasised the need for shared data and joint planning. This must be embedded as standard practice.
4. Governance Protocols: Clear governance arrangements – such as joint committees, shared service agreements, and integrated audit mechanisms – can help delineate responsibilities and ensure accountability.
5. Community Engagement: Local identity and democratic accountability must not be lost in the shift to larger structures. Councils must retain meaningful roles in shaping services that reflect community needs.

Solutions: building a collaborative framework

Local Partnerships has long advocated for place-based collaboration as the cornerstone of effective public service delivery. Drawing on our work with councils and combined authorities, we see merit in several approaches.

Devolution compacts formalise agreements between Strategic Authorities and constituent councils, setting out roles, funding arrangements, and delivery responsibilities. Integrated Delivery Boards are cross-tier boards that oversee joint programmes, ensuring alignment across transport, housing, skills, and climate action. Shared Outcomes Frameworks use co-developed metrics that track progress across local and regional priorities, helping to build transparency and mutual accountability.

Looking ahead: a call to action

As the Devolution Bill progresses through Parliament, and LGR proposals move toward implementation, now is the time to act. We must clarify roles and responsibilities between Strategic Authorities and Unitaries. Collaboration must be embedded as a statutory requirement, not a discretionary choice. Finally, we need to invest in joint planning and delivery mechanisms that reflect the complexity of modern governance.

The prize is significant: a governance model that is efficient, accountable and responsive to the needs of communities. But without clarity and coordination, we risk fragmentation and missed opportunities and reinvention of wheels. 

I like to think getting the handover right between Strategic Authorities and unitary councils is akin to a relay race. If we drop the baton, we lose momentum; get the changeover right, and the sky’s the limit. For example, if a Strategic Authority leads on regional transport strategy, but the Unitary council is not aligned on local infrastructure delivery, the disconnect can stall progress and create duplicative or superfluous activity. Seamless coordination is not optional. It is the difference between fragmented efforts and transformative outcomes.

You can also read this article in The MJ.