The way local government exists and evolves is almost entirely a result of conscious decision. Decision makers down in Whitehall decide what sort of local government we should have, what powers they should be given, what geographic boundaries they should span, and what financial regime they should operate under. If councils are to be merged or split up, the final say usually goes to some powerful person in London. If devo mayors are to be created there will be an official somewhere writing a paper on it and a minister deciding.
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