Fenland District Council has warned the Government its plans for sweeping local government reorganisation across Cambridgeshire and Peterborough are “deeply flawed” and moving at excessive speed – but councillors say a three-authority model is the “least worst option” if reform is forced through. A crucial vote takes place this week/
Fenland District Council has warned that Government plans to reorganise local government across Cambridgeshire and Peterborough are being pushed through at excessive speed and could weaken local democracy if not handled carefully.
Councillors will debate the authority’s formal response to the Local Government Reorganisation (LGR) consultation at a special Full Council meeting on 13 March before Cabinet finalises Fenland’s submission to Government later the same day.
While the council accepts that reform of the current system may be necessary, members say the way the changes are being implemented is deeply flawed.
In its draft response, the council states: “Fenland District Council believes that Local Government Reorganisation (LGR) is necessary and overdue. But we strongly oppose the way that Government is trying to implement LGR.”
Despite these concerns, councillors say that if the Government proceeds with reorganisation regardless, one option stands out as the most workable solution.
The proposal, known as Option D, would replace the current two-tier system with three new unitary authorities across the area: Greater Cambridge, Greater Peterborough, and a predominantly rural authority covering Fenland, East Cambridgeshire and parts of Huntingdonshire.
Fenland’s draft response describes the model as “by far the least worst option if LGR is going to be forced through”.
Council meeting to shape Fenland’s official stance
The meeting on 13 March councillors will review the draft response and provide feedback to Cabinet, which will then submit the council’s final position to Government ahead of the 26 March deadline.
The report prepared for the meeting states that members are being asked: “For members to review and advise Cabinet on the draft consultation response to be submitted to Government as a part of the statutory consultation on Local Government Reorganisation in Cambridgeshire and Peterborough.”
Cabinet will consider councillors’ views later the same evening before agreeing the final submission.
The consultation forms part of a national programme of local government reforms set out in the Government’s English Devolution White Paper, which proposes restructuring councils in many parts of England and expanding the powers of regional strategic authorities.
Under the Government’s guidance, new unitary councils are expected to serve populations of between 500,000 and one million people, although exceptions may be made for areas with populations of around 300,000 to 350,000.
Concerns over speed and democratic representation
Fenland’s response makes clear that the council’s primary concern lies with the speed and structure of the process rather than the principle of reform itself.
Members argue the timetable has been set too tightly to allow meaningful debate or exploration of alternative models.
The response describes the process as “unduly rushed” and raises concerns that it does not give sufficient weight to the democratic value of smaller councils.
Councillors warn that larger authorities covering wider areas could weaken the relationship between residents and their elected representatives.
This concern is particularly acute in rural areas such as Fenland, where communities are spread across a large geographic area and face existing challenges in accessing services.
The council argues that maintaining a reasonable ratio of councillors to electors is vital if residents are to remain effectively represented.
Without that balance, members warn, the proposed reforms risk undermining local accountability.
Why Fenland backs the three-authority model
Although critical of the Government’s approach, Fenland councillors believe the three-unitary structure proposed under Option D offers the most coherent and balanced long-term solution.
The proposal is based on dividing the wider region into three functional economic areas.
Under the plan, Greater Cambridge would combine Cambridge City and South Cambridgeshire, reflecting the area’s existing economic and planning links.
Greater Peterborough would centre on the city and surrounding communities.
A third authority would bring together Fenland, East Cambridgeshire and parts of Huntingdonshire, creating a predominantly rural council focused on the needs of market towns and agricultural communities. Fenland councillors say this model reflects the way residents live, work and travel across the region.
The council’s response points to evidence from the Cambridgeshire and Peterborough Independent Economic Review and the Combined Authority’s Local Growth Plan, both of which identify three distinct economic zones centred on Cambridge, Peterborough and the Fens.
Members argue that aligning council boundaries with these economic geographies would help support more effective planning and service delivery.
They say rural communities in particular would benefit from a council able to focus on issues such as transport links, digital connectivity, agriculture, agri-tech and the regeneration of market towns.
Recognition of Cambridge’s unique position
Fenland’s response also recognises that some parts of Cambridgeshire already function as integrated economic areas.
In particular, councillors acknowledge that Cambridge City and South Cambridgeshire operate as a single economic ecosystem.
The two areas already share services and work together on major planning and infrastructure projects.
Government investment programmes supporting the region’s growth are also aligned with this geography.
As a result, Fenland councillors support the creation of a Greater Cambridge unitary authority reflecting those existing arrangements.
Members note that this view is shared by most other councils across Cambridgeshire and Peterborough.
Deprivation concerns central to Fenland’s case
One of the strongest arguments put forward by Fenland councillors relates to deprivation.
The council highlights that Fenland and Peterborough are currently the two most deprived local authority areas in Cambridgeshire and Peterborough, according to the 2019 and 2025 Indices of Multiple Deprivation.
Members warn that combining the two areas into a single unitary authority, as proposed under some alternative options, could create significant challenges.
The council’s response states: “Putting the two most deprived Cambridgeshire & Peterborough Council areas into one new Unitary authority would create a new Authority with a depth of deprivation so great as to be a millstone around that Authority’s neck.”
Councillors argue that such an authority would face enormous pressures from the outset, particularly given rising demand for services such as adult social care, children’s services and housing support.
Option D is identified as the only proposal that avoids this situation by placing Fenland and Peterborough in separate authorities.
Balanced councils and financial stability
Fenland councillors also emphasise the importance of creating councils of a manageable and balanced size.
The response states that the proposed authorities under Option D would be large enough to deliver services efficiently while remaining close enough to their communities to remain accountable.
Members note that while the transition costs associated with three authorities may be higher than under some alternative models, they believe the long-term benefits outweigh those short-term expenses.
Balanced councils, they argue, would be better placed to withstand financial pressures and deliver sustainable public services.
The proposal would also create authorities of broadly similar population size, helping to prevent one council dominating decision-making within the wider region.
Rural governance and water management
Fenland’s submission also highlights the unique governance challenges associated with managing the low-lying Fenland landscape.
The area has one of the highest concentrations of Internal Drainage Boards in the country.
These bodies play a crucial role in maintaining water levels and managing flood risk across agricultural land.
Fenland District Council currently appoints councillors to 21 separate Internal Drainage Boards. Members say this represents a significant governance responsibility and requires a high level of local knowledge and expertise.
The council argues that any future authority covering the Fens must reflect this complexity when determining councillor numbers and representation levels.
Protecting the identity of the Fens
Community identity is another theme running throughout the council’s response.
Fenland councillors say residents place strong importance on their towns, villages and the distinctive Fenland landscape.
As part of its submission, the council proposes renaming the suggested “Mid Cambridgeshire” authority as the Cambridgeshire Fens Unitary Authority.
Members argue that the new name would better reflect the shared heritage and geography of the area.
Councillors say recognising that identity is important in building public trust in new governance structures.
Alternative proposals rejected
Fenland District Council has also made clear its opposition to other reorganisation options under consideration.
The council says it “strongly disagrees” that proposals involving two large authorities or uneven three-authority structures would create effective governance arrangements.
Members warn that larger councils could reduce representation and increase the distance between residents and decision-makers. Some proposals would reduce the number of councillors by more than 40 per cent.
Fenland councillors say this could make it harder for residents to raise concerns and receive local representation.
Other proposals involving smaller authorities are criticised for lacking the scale and financial resilience needed to deliver statutory services effectively.
Implications for the Combined Authority
The council has also considered how local government reorganisation could affect the Cambridgeshire and Peterborough Combined Authority.
Fenland councillors argue that three balanced unitary authorities would strengthen regional governance.
They say the structure would ensure no single council dominates decision-making at the Combined Authority level.
Aligned boundaries would also support collaboration with other public bodies such as the NHS, police and education providers.
Members believe this could improve coordination in areas such as transport, economic development and skills.
What happens next
The Government’s consultation on Local Government Reorganisation runs until 26 March.
Following the 13 March council meeting, Fenland’s Cabinet will finalise the authority’s response before submitting it to Government.
Ministers will then consider responses from councils and members of the public before deciding which reorganisation proposal to implement.
If a preferred option is chosen, a Structural Change Order would be introduced in Parliament to formally establish the new councils. Under the timetable outlined in council reports, elections to shadow authorities would take place in May 2027.
Those councils would then oversee preparations for the transition to the new structure.
The new unitary authorities would formally take over on 1 April 2028.
Under that timetable, Fenland District Council would cease to exist on 31 March 2028.
A pragmatic approach
In its conclusion, Fenland District Council stresses that its support for the three-authority model should not be interpreted as full endorsement of the Government’s approach.
Instead, councillors say it represents a pragmatic effort to protect the interests of Fenland residents within a process largely outside local control.
Members say careful planning will be needed to ensure representation, community identity and rural governance are preserved.
Without those safeguards, they warn, the reorganisation could risk weakening rather than strengthening local democracy.
Local Government reorganisation options and supporting councils
Following joint work by Leaders and Chief Executives across Cambridgeshire and Peterborough, five options were developed, but only four were formally submitted to Government. Option C was not submitted by any council.
Option A – North‑West / South‑East
Proposed structure
- Unitary 1: Peterborough City, Fenland District, Huntingdonshire District and County Council functions
- Unitary 2: Cambridge City, East Cambridgeshire District, South Cambridgeshire District and County Council functions
Supported by
- Cambridgeshire County Council
Option B – North / South
Proposed structure
- Unitary 1: East Cambridgeshire District, Fenland District, Huntingdonshire District, Peterborough City and County Council functions
- Unitary 2: Cambridge City, South Cambridgeshire District and County Council functions
Supported by
- Cambridge City Council
- South Cambridgeshire District Council
- East Cambridgeshire District Council ]
Option C – East / West
Proposed structure
- Unitary 1: Peterborough City, East Cambridgeshire District, Fenland District and County Council functions
- Unitary 2: Cambridge City, Huntingdonshire District, South Cambridgeshire District and County Council functions
Status
- Not submitted to Government
- The report confirms that only four options were submitted, and Option C was not proposed by any council.
Option D – Greater Peterborough / Mid Cambridgeshire / Greater Cambridge
Proposed structure
- Unitary 1: Peterborough City and part of Huntingdonshire District plus County Council functions
- Unitary 2: East Cambridgeshire District, Fenland District, and part of Huntingdonshire District plus County Council functions
- Unitary 3: Cambridge City, South Cambridgeshire District and County Council functions
Supported by
- Fenland District Council
- Peterborough City Council
Option E – Huntingdonshire Unitary
Proposed structure
- Unitary 1: Huntingdonshire District and County Council functions
- Unitary 2: Peterborough City, East Cambridgeshire District, Fenland District and County Council functions
- Unitary 3: Cambridge City, South Cambridgeshire District and County Council functions
Supported by
- Huntingdonshire District Council
