10 . 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 . but its local government structure , inherited from the days when London was much smaller , in no way reflects that unity . the major services are administered by six county councils and three county borough councils , and three systems of local government exist side by side . they are : 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 . 11 . London has clearly outgrown the system of local government devised to meet the vastly different physical and social conditions of the last century . this great town now faces immense problems of congestion , of traffic , of land shortages , and of major redevelopment . all of its citizens are Londoners , not only those who live within the City and the 28 metropolitan boroughs . greater London is their city and all are involved in what happens to it . 12 . 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 . they thought that that would be disastrous for local government , and they were right . 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 . in the government &apos;s opinion it is the only way to enable greater London to enjoy an adequate measure of responsible self-government . 13 . 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 . 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 . 14 . the government have been impressed by the wide recognition among the local authorities concerned of the need for some change . true , many would adopt a different and less radical solution than that proposed by the commission . but about the same number , while having reservation on some points of detail , accept the commission &apos;s broad plan . 15 . the feature which attracted the greatest support was the conception of the borough as the primary unit of local government . the government are sure that this is the right principle . 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 . the system proposed by the commission would place personal , preventive and environmental health services , welfare and children &apos;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 . 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 . the government regard this as a key feature of the commission &apos;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 . if any re-organisation of local government does not secure this it will fail of its purpose . 16 . 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 . 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 : for laying down the main considerations for dealing with traffic : for planning and co-ordinating refuse disposal : and for planning and co-ordinating programmes for over-spill . 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 . 17 . the government believe that a plan on these lines would not begin to meet the needs of the situation . for a start it ignores - or denies - one of the fundamental assumptions on which the royal commission &apos;s report was based . 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 . but that apart , this plan would surely confuse responsibilities . 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 . a largely advisory body , with powers mainly of co-ordination and supervision , would be likely to achieve very little . 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 . 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 . 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 . 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 &apos;s view , they ought to have . 18 . the government recognise that the abolition of the present county pattern in the London area will present formidable problems of organisation . their concern is to get the best administrative structure for local government . 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 . 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 . these proposals should not affect any existing cultural , social , sporting or other associations or loyalties which may be based on the traditional counties . they are , however , convinced that London needs a form of local government organisation to match its present physical shape and state . 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 . the government believe that , provided these conditions are met , the new structure will provide fuller opportunities for really worthwhile local government service . the boroughs . 19 . 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 ) . 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 . this does not mean , however , that larger units would not be better if they could be set up without loss of convenience . 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 . in addition , larger units would be stronger in resources and so better able to secure the major redevelopments which many boroughs now need . they would be better able to maintain and improve the standard of their services and to undertake their development as circumstances may require . 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 . hitherto , London has suffered in its local administration from too great a proliferation of not very strong authorities . 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 . 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 . they consider that this will make not only for higher standards , but also for greater economy in administration . 20 . the government &apos;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 . some boroughs might be substantially larger than this . they propose shortly to circulate , as a basis for consultation with the local authorities , an illustration of how larger boroughs might work out . 21 . the government agree that the term metropolitan borough should now be abandoned ; they propose the title of London borough . 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 . 22 . 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 . the greater London council . 23 . the government agree that the greater London council should be directly elected . they propose to adopt the commission &apos;s plan that its members should serve for three years and retire together . 24 . the commission proposed that election should be based on parliamentary constituencies . on the present structure this would give a membership of about 110 . many authorities have criticised this proposal , and argue that representation would better be based more directly on the boroughs . 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 . 25 . 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 . 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 . 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 &apos;s claims for county borough status . functions . 26 . the following paragraphs set out the government &apos;s broad proposals with regard to the administration of particular functions ; many matters of detail will naturally require further consideration . personal health and welfare services and children &apos;s services . 27 . there was no doubt in the commission &apos;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 . the government agree with this conclusion . 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 . housing . 28 . the government accept the royal commission &apos;s main conclusion that housing is essentially a borough service . 