A new path may be opening for Gloucestershire’s local government future, as senior figures across the county — including Cheltenham’s own mayor — back a proposed “combined authority” model that would preserve local councils while providing county-wide strategic clout.
What Happened
On 7 September, the government unexpectedly paused its plans to merge Gloucestershire’s seven councils — the county council and six district authorities — into a single “super council” unitary authority. The county was one of 14 areas nationally put on hold while ministers carry out a review, following updated legal advice provided to Communities Secretary Angela Rayner.
The pause came just weeks after July’s decision to create a single Gloucestershire-wide authority, abolishing councils including Cheltenham Borough Council and the remaining district bodies from April 2028. Local elections scheduled for May 2027 will now proceed on existing boundaries while the review runs.
The Alternative Being Proposed
Tim Gwilliam, former leader of Forest of Dean District Council, has put forward the idea of a combined authority for Gloucestershire — a model in which each of the county’s six district and borough councils retains its own identity, but all work together strategically at county level. The arrangement could include an elected mayor with devolved powers and direct access to central government funding.
Mr Gwilliam said the government pause had created a “crucial moment to rethink the county’s future”. Speaking publicly this week, he said: “We never really explored whether there could be another route: a combined or strategic authority that retains our existing district, borough and city councils, but provides Gloucestershire with a robust strategic voice, devolved powers, funding, and potentially an elected mayor.”
He acknowledged the idea was not yet proven: “We don’t yet know if a combined authority is the right answer, but it’s certainly worth exploring — I would rather we examine this thoroughly than accept the largest possible unitary authority just because it’s the current plan.”
Cheltenham Mayor Backs the Idea
The proposal has drawn support from Martin Horwood, former Cheltenham MP and now the town’s Liberal Democrat mayor, who has raised concerns about losing local democratic accountability under the original super-council plan.
“I have concerns about the erosion of local identity and accountability, and the risks to cherished local institutions,” Mr Horwood said. “If a new option emerges during this pause, all seven councils should consider it seriously. A combined authority preserving countywide services like adult social care and education, while accessing devolved government powers, could be an attractive alternative.”
Cheltenham Borough Council voted 30-2 in November 2025 in favour of a two-unitary model for the county — dividing it along East/West lines — rather than a single authority. The government’s subsequent decision to opt for the super-council approach was described by local leaders as a shock.
Background
Gloucestershire’s council shake-up was part of a wider government-driven programme to simplify local government across England by replacing two-tier systems — county plus districts — with single unitary authorities. The county’s seven councils were presented with three models and asked to submit proposals. A majority supported the single unitary option, which the government confirmed in July.
Forest of Dean District Council was the sole authority to reject all three models outright, arguing none suited the distinct character of its communities. That resistance, combined with legal challenges and new advice under Prime Minister Andy Burnham, triggered the September pause. Gloucestershire is one of 14 areas under review nationally, while similar plans for Essex, Hampshire, Norfolk and Suffolk have been withdrawn entirely.
What Happens Next
Ministers have signalled a “rapid review” but have not confirmed a timetable. Local elections across Gloucestershire are confirmed for May 2027 on existing boundaries, meaning Cheltenham residents will continue to vote for Cheltenham Borough councillors at least once more before any restructuring could take effect.
Whether a combined authority model could attract sufficient cross-council backing — and whether the government would accept it as an alternative — remains to be seen. Former county council chairman Alan Preest backed putting the idea forward: “We need to debate it and represent our constituents’ voices.”
This is a developing story. The government is expected to set out further details of the review timetable in coming weeks.
