10 .sx Coming back to the broad design , the Government entirely agree with the Commission that Greater London has a recognisable civic unity and shape , largely because it has grown outwards from a single centre .sx But its local government structure , inherited from the days when London was much smaller , in no way reflects that unity .sx The major services are administered by six county councils and three county borough councils , and three systems of local government exist side by side .sx They are :sx single-tier government in the county boroughs , two-tier government of the normal pattern outside the present administrative county of London , and a unique two-tier system within the administrative county , in which most of the important local government functions vest in the county council .sx 1 .sx London has clearly outgrown the system of local government devised to meet the vastly different physical and social conditions of the last century .sx This great town now faces immense problems of congestion , of traffic , of land shortages , and of major redevelopment .sx All of its citizens are " Londoners" , not only those who live within the City and the 28 metropolitan boroughs .sx Greater London is their city and all are involved in what happens to it .sx 2 .sx The Royal Commission were convinced that , unless some method could be found within the framework of local government to tackle the pressing problems of Greater London , the central Government would increasingly supersede the local authorities .sx They thought that that would be disastrous for local government , and they were right .sx That is the answer to those who say that a system of local government which recognises Greater London as a unit for some purposes is not local government at all .sx In the Government's opinion it is the only way to enable Greater London to enjoy an adequate measure of responsible self-government .sx 3 .sx There is now an opportunity to carry out effective reorganisation which will bring London government into harmony with the physical features of the metropolis , and will fit it to face the new problems presented by changing social conditions and the ubiquitous motor vehicle .sx The Government are convinced that if this opportunity is not now grasped , local government will wither in the capital city where , in the past , it has been strongest .sx 4 .sx The Government have been impressed by the wide recognition among the local authorities concerned of the need for some change .sx True , many would adopt a different and less radical solution than that proposed by the Commission .sx But about the same number , while having reservation on some points of detail , accept the Commission's broad plan .sx 5 .sx The feature which attracted the greatest support was the conception of the borough as the primary unit of local government .sx The Government are sure that this is the right principle .sx It is a serious defect in the present organisation that many of the boroughs , and especially the metropolitan boroughs , have no real responsibility for the running of the local and personal services .sx The system proposed by the Commission would place personal , preventive and environmental health services , welfare and children's services , and housing , in the hands of one authority , local enough in character to enable local knowledge of the area and of its living and working conditions to be brought to bear .sx This would not only greatly enlarge the scope of the borough councillor , but would also make for more effective administration of these closely linked social services .sx The Government regard this as a key feature of the Commission's plan , and one well designed to attract into local government more men and women of real ability , by making sure that there are worthwhile jobs for them to do .sx If any re-organisation of local government does not secure this it will fail of its purpose .sx 6 .sx The principal alternative plan is one , sponsored chiefly by the county councils of Essex , Kent , London , Middlesex and Surrey , for an indirectly elected joint board for an area a good deal wider than that reviewed by the Commission , and the retention of the existing county and county borough councils .sx The board would have responsibilities in town planning for drawing up a master plan to which the local planning authorities would be required to conform , covering such regional questions as the main road framework , target populations , the level and main disposition of employment :sx for laying down the main considerations for dealing with traffic :sx for planning and co-ordinating refuse disposal :sx and for planning and co-ordinating programmes for over-spill .sx The powers of this joint board would be mainly advisory in character , and meanwhile somewhat greater powers would be conferred on or delegated to the boroughs .sx 7 .sx The Government believe that a plan on these lines would not begin to meet the needs of the situation .sx For a start it ignores- or denies- one of the fundamental assumptions on which the Royal Commission's Report was based .sx This is that the built-up areas outside the County of London are , now , more properly a part of Greater London than of the Home Counties to which historically they belong .sx But that apart , this plan would surely confuse responsibilities .sx The authority which has to deal with the planning , traffic and road problems of Greater London must exercise a real responsibility , and must be able to secure that its plans are effectively carried out .sx A largely advisory body , with powers mainly of co-ordination and supervision , would be likely to achieve very little .sx The overall authority must be an executive body if it is to be effective , although no doubt it would be right that it should in some matters act through the agency of the borough councils .sx The Government also believe that this authority , for full effectiveness and bearing in mind the powers and responsibilities which it will carry , ought to be directly elected .sx A joint board as envisaged would entail a third tier of responsibility , and this would only further confuse the already confused local government pattern in the area .sx County councils would be sandwiched between the joint board and their boroughs and districts , while the latter could not be given the responsibilities which , in the Government's view , they ought to have .sx 8 .sx The Government recognise that the abolition of the present county pattern in the London area will present formidable problems of organisation .sx Their concern is to get the best administrative structure for local government .sx When that is settled they will give consideration to such related matters as the arrangements for the administration of justice , for the lieutenancies and for sheriffs .sx In general they wish to emphasise that they propose to make only changes which are needed to achieve their main purpose and matters consequential to it .sx These proposals should not affect any existing cultural , social , sporting or other associations or loyalties which may be based on the traditional counties .sx They are , however , convinced that London needs a form of local government organisation to match its present physical shape and state .sx They are convinced , too , that this organisation must be one which recognises the unity and cohesion of the area , and which would combine ability to handle those issues that demand a comprehensive view of the whole area with the capacity to grapple effectively with the many and complex local problems .sx The Government believe that , provided these conditions are met , the new structure will provide fuller opportunities for really worthwhile local government service .sx The Boroughs .sx 19 .sx The Royal Commission suggested that the boroughs should fall within the population range 100,000 to 250,000 , and provisionally proposed a pattern comprising 52 new boroughs ( including the City) .sx The Local Government Act , 1958 , provides that , in so far as the constitution of a new county borough outside the metropolitan area is affected by considerations of population , the Minister should presume that a population of 100,000 is sufficient to support the discharge of the function of a county borough council .sx This does not mean , however , that larger units would not be better if they could be set up without loss of convenience .sx Larger units would mean more work for each authority in all the personal services , and so make specialisation in staff and institutions more efficient and economical .sx In addition , larger units would be stronger in resources and so better able to secure the major redevelopments which many boroughs now need .sx They would be better able to maintain and improve the standard of their services and to undertake their development as circumstances may require .sx Moreover the very nature of London- continuously built-up at high densities , with a comprehensive system of transport and a population which in many of its daily activities pays little regard to local boundaries- distinguishes it from the typical county borough .sx Hitherto , London has suffered in its local administration from too great a proliferation of not very strong authorities .sx The aim now should be to create units which , while retaining their local character , are well equipped to provide a fully adequate standard of local services .sx In a closely-knit area such as London , the Government believe that this object can best be assured by aiming at a larger minimum population and rather fewer boroughs than suggested by the Commission .sx They consider that this will make not only for higher standards , but also for greater economy in administration .sx 0 .sx The Government's general conclusion about the size of the boroughs is that it would be desirable to aim at a minimum population of around 200,000 wherever possible .sx Some boroughs might be substantially larger than this .sx They propose shortly to circulate , as a basis for consultation with the local authorities , an illustration of how larger boroughs might work out .sx 1 .sx The Government agree that the term " metropolitan borough " should now be abandoned ; they propose the title of " London " .sx The Commission suggested that the constitution of the borough councils should follow that of municipal boroughs outside London , and the Government agree with this view .sx 2 .sx The Government agree with the Royal Commission in thinking that the boundaries and status of the City of London should remain unchanged , and that it should receive the additional powers given to boroughs in the London area .sx The Greater London Council .sx 23 .sx The Government agree that the Greater London Council should be directly elected .sx They propose to adopt the Commission's plan that its members should serve for three years and retire together .sx 4 .sx The Commission proposed that election should be based on Parliamentary constituencies .sx On the present structure this would give a membership of about 110 .sx Many authorities have criticised this proposal , and argue that representation would better be based more directly on the boroughs .sx This is a matter which will require further examination in the light of the pattern of boroughs which emerges , and the Government reserve their decision on it .sx 5 .sx The Government agree generally with the principles applied by the Commission in deciding which areas they should recommend for inclusion in the Greater London administrative area .sx When consultation takes place with the local authorities about the borough pattern , there will be opportunity for any peripheral authority to make known its views about its inclusion in or exclusion from the London area .sx The districts left out of the London area will be brought within the ambit of the Local Government Commission , who will then of course be able to consider , among other things , Watford's claims for county borough status .sx Functions .sx 26 .sx The following paragraphs set out the Government's broad proposals with regard to the administration of particular functions ; many matters of detail will naturally require further consideration .sx Personal Health and Welfare Services and Children's Services .sx 27 .sx There was no doubt in the Commission's mind that these services , with the exception of the ambulance service , should all be organised on as local a basis as possible ; they recommend that they should become a borough responsibility .sx The Government agree with this conclusion .sx They concur also in the belief that positive advantages will follow from the concentration of responsibility for these services , and other associated ones such as housing and environmental health , in the hands of the same authorities .sx Housing .sx 28 .sx The Government accept the Royal Commission's main conclusion that housing is essentially a borough service .sx