REVIEW OF PART OF THE BOUNDARY BETWEEN THE COUNTIES OF CARMARTHENSHIRE AND PEMBROKESHIRE IN THE AREA OF THE COMMUNITIES OF CLYNDERWEN AND LLANDISSILIO WEST

REPORT AND PROPOSALS

INTRODUCTION
EXECUTIVE SUMMARY
SCOPE AND OBJECT OF THE REVIEW
DRAFT PROPOSALS
SUMMARY OF REPRESENTATIONS RECEIVED IN RESPONSE TO THE DRAFT PROPOSALS
CLYNDERWEN COMMUNITY BOUNDARY
ASSESSMENT
PROPOSALS
CHANGE OF NAME
CONSEQUENTIAL ARRANGEMENTS
ACKNOWLEDGEMENTS
RESPONSES TO THIS REPORT

Edwina Hart AM MBE

Minister for Finance, Local Government and Communities

The National Assembly for Wales

1. INTRODUCTION

1.1 We, the Local Government Boundary Commission for Wales (the Commission), have completed the review of part of the boundary between the Counties of Carmarthenshire and Pembrokeshire in the area of the Communities of Clynderwen and Llandissilio West and present our proposals for a new boundary. A map showing the area under review can be found at Appendix 1.

2. EXECUTIVE SUMMARY

We propose that the boundary between the Counties of Carmarthenshire and Pembrokeshire in the area of the Communities of Clynderwen and Llandissilio West should be realigned in the area under review substantially to follow the existing eastern boundary of the Community of Clynderwen. We propose a change to the boundary between the Communities of Clynderwen and Cilymaenllwyd in the area of Efailwen and a change to the boundary between the Communities of Clynderwen and Henllanfallteg in the area of College Farm. This proposal will mean that, subject to minor adjustments of the boundary, the Community of Clynderwen will be transferred from Carmarthenshire to Pembrokeshire.

3. SCOPE AND OBJECT OF THE REVIEW

3.1 Section 54(1) of the Local Government Act 1972 (the Act) provides that the Commission may in consequence of a review conducted by them make proposals to the National Assembly for Wales for effecting changes appearing to the Commission desirable in the interests of effective and convenient local government.

Procedure

3.2 Section 60 of the Act lays down procedural guidelines which are to be followed in carrying out a review. In line with that guidance, we wrote on 29 November 1999 to Carmarthenshire County Council, Pembrokeshire County Council, Clunderwen Community Council, Henllanfallteg Community Council, Lampeter Velfrey Community Council, Llanddewi Velfrey Community Council, Llandissilio West Community Council, Llawhaden Community Council, Maenclochog Community Council, New Moat Community Council, Whitland Community Council, the Members of Parliament for the local constituencies, the Assembly Members for the area, the local authority associations, the police authority for the area and political parties to inform them of our intention to conduct the review and to request their preliminary views. We invited Carmarthenshire and Pembrokeshire County Councils to submit suggestions for changes to the boundary. We also publicised our intention to conduct the review in local newspapers circulating in the area and asked the councils to display public notices.

4. DRAFT PROPOSALS

4.1 We received representations from Carmarthenshire County Council; Pembrokeshire County Council; Clunderwen, Henllanfallteg, Llandissilio West and New Moat Community Councils; and 5 other interested bodies and residents. These representations were taken into consideration and summarised in our Draft Proposals published on 28 February 2001

4.2 Our Draft Proposals recommended that the boundary between the Counties of Carmarthenshire and Pembrokeshire in the area of the Communities of Clynderwen and Llandissilio West should be realigned in the area under review to follow the present eastward boundary of the Community of Clynderwen. We were concerned that the proposed boundary divided the settlement of Efailwen and welcomed suggestions for an alternative boundary in this area.

4.3 Copies of the Draft Proposals were sent to all the councils, bodies and individuals referred to in paragraph 2.2 seeking their views. A copy was also sent to anyone who had submitted preliminary comments. By public notice we also invited any other organisation or person with an interest in the review to submit their views. Copies of the Draft Proposals were made available for inspection at the offices of Carmarthenshire County Council, Pembrokeshire County Council and the Commission and were also deposited at the offices of the Dyfed-Powys Police Authority.

4.4 Following the publication of our Draft Proposals report we were contacted by Ceredigion County Council who were concerned that a copy of the report had not been sent to Cilymaenllwyd Community Council. It was discovered that Cilymaenllwyd Community Council had unfortunately been omitted from the distribution list of this review and as a result they were not sent a copy of the Draft Proposals report. We immediately sent a copy of the report to Cilymaenllwyd Community Council and agreed to extend the deadline for the submission of their representation to 1 June 2001.

5. SUMMARY OF REPRESENTATIONS RECEIVED IN RESPONSE TO THE DRAFT PROPOSALS

5.1 We received representations from Carmarthenshire County Council Pembrokeshire County Council three community councils; and five other interested bodies and residents. All of these representations were considered carefully before formulating our proposals.

5.2 Carmarthenshire County Council welcomed the inclusion of Cilymaenllwyd Community Council in this round of consultation. The Council noted that the Commission’s report had concluded that Clynderwen and Llandissilio West should be in the same principal area and that both County Councils were equally able to provide the range and quality of services required by both communities. The Council’s case is built on the solid foundation of a definable natural boundary which is easily recognised and they reiterate the point they made at the initial stage of the Review that the natural boundary provided by the Eastern Cleddau River is a far better proposal than the artificial nature of the boundary proposed by the Commission. The Council takes the view that public opinion does not necessarily dictate what is in the interests of effective and convenient local government.

5.3 Pembrokeshire County Council supported the Commission’s proposal that the Community of Clynderwen be transferred from Carmarthenshire to Pembrokeshire. The Council also resolved to support the views of Cilymaenllwyd Community Council concerning any alternative boundary within their area.

5.4 Cilymaenllwyd Community Council considered that the existing boundary should be realigned to follow the line of the river Taf north of Llanfallteg to the Pembrokeshire boundary at Hebron. This would result in the transfer of the Community of Clynderwen and most of the area of Cilymaenllwyd to Pembrokeshire.

5.5 Clunderwen Community Council noted the Commission’s observations in the draft proposals concerning the village of Efailwen. They were concerned that the outlying regions were not represented at the meeting with the Commission that was held in the Community Hall. They raised the question of a ballot which they consider may identify ‘pockets’ of districts with different views.

5.6 Llandissilio West Community Council supported the Commission’s proposal that the Community of Clynderwen be transferred from Carmarthenshire to Pembrokeshire. They also wished to be consulted on the naming of the consequential electoral division as they felt that the name Maenclochog did not fully describe the area within the division.

5.7 Ordnance Survey suggested that the eastward boundary of Clynderwen (and therefore the alternative principal authority boundary suggested in the draft proposals) could be improved in two small areas to follow easily identifiable ground features. They included a map of the suggested realignments in these areas.

5.8 Welsh Liberal Party supported the Commission’s proposal to transfer the Community of Clynderwen from Carmarthenshire to Pembrokeshire. They also felt however that their initial suggestion for part of the Community of Cilymaenllwyd to be included in the transfer from Carmarthenshire to Pembrokeshire should also be given further consideration. They had pointed out that the village of Efailwen was currently divided by the boundary between the Communities of Clynderwen and Cilymaenllwyd and that should Clynderwen be transferred from Carmarthenshire into Pembrokeshire as proposed then the village would become divided by the boundary between Carmarthenshire and Pembrokeshire. The Party therefore proposed an alternative boundary which would transfer the village of Efailwen and its surrounding area into Pembrokeshire together with the Community of Clynderwen. They felt that such a realignment of the boundary would be desirable because the village of Efailwen and its neighbouring hamlets have more in common with other settlements along the A478 than with the remainder of the Community of Cilymaenllwyd to the east in the Taf Valley. They also pointed out that this would result in the entire length of the A478 lying within the same County Highways Authority. They felt that should their proposal concerning Efailwen be adopted then a new community should be formed within Pembrokeshire comprising the area transferred from Cilymaenllwyd Community plus that part of Clynderwen Community lying to the north of Portis Farm on the A478. They felt that this northern part of Clynderwen Community should be included as it had few links with the village of Clynderwen. They also asked the Commission to consider the boundary between Clynderwen and Henllanfallteg Communities which contains a long-standing anomaly in the form of a salient in the direction of Llandissilio along the minor road leading north-west from Llanfallteg West.

5.9 A resident of Clynderwen supported the transfer of the Community of Clynderwen from Carmarthenshire to Pembrokeshire. She pointed out that Pembrokeshire County Council had recently placed a notice on her land regarding the foot and mouth crisis, something which she felt was indicative of Clynderwen’s isolation from Carmarthenshire.

5.10 A resident of Clynderwen supported the transfer of Clynderwen from Carmarthenshire to Pembrokeshire as she felt that Clynderwen was being overlooked by Carmarthenshire County Council. She said that her children went to school in Pembrokeshire and the only service provided to her by Carmarthenshire County Council was refuse collection.

5.11 A resident of Clynderwen supported the transfer of Clynderwen from Carmarthenshire to Pembrokeshire. She said that Clynderwen was historically associated with Pembrokeshire and that all the services and amenities she used were located in that County. She pointed out that settlements close to Clynderwen are in Pembrokeshire and felt that Clynderwen had become an isolated part of Carmarthenshire.

6. CLYNDERWEN COMMUNITY BOUNDARY

6.1 In our Draft Proposals Report, having considered the evidence available to us at that stage of our review, we proposed that the boundary between the Counties of Carmarthenshire and Pembrokeshire in the area of the Communities of Clynderwen and Llandissilio West should be realigned in the area under review to follow the present eastward boundary of the Community of Clynderwen. We were concerned however that the proposed boundary would divide the settlement of Efailwen and we welcomed detailed suggestions for an alternative boundary in this area.

6.2 We received suggestions for amendments to the Clynderwen boundary from Carmarthenshire County Council, Pembrokeshire County Council, Cilymaenllwyd Community Council, and the Welsh Liberal Party. A site visit was made to the area to inspect the proposed boundaries.

6.3 It was noted that the proposal put forward by Cilymaenllwyd Community Council and one of the proposals suggested by Pembrokeshire County Council closely resembled that put forward by Llandissilio West Community Council at the initial stage of the review which we had rejected as we felt that it extended the scope of the review and that there was no evidence that it would be of benefit in terms of effective and convenient local government. We considered that the suggestion for realignment of the boundary put forward by the Welsh Liberal Party to align the boundary to the east of the village of Efailwen was similarly outside the scope of the review.

6.4 We considered the suggested changes to the boundary to the west and south of Efailwen, one from Carmarthenshire County Council and two from Pembrokeshire County Council. Carmarthenshire County Council suggested that the boundary be drawn from the existing boundary at Roseberry, a mile south of Efailwen, to the Eastern Cleddau at Llwyndwfr Farm. During our site visit we found that it is clearly defined from the county boundary at Llwyn-dwfr bridge to the A478 as it follows a minor road. To the east of the A478 the boundary follows a track to Rhyd-y-môch farm and then follows field boundaries to the existing community boundary. This suggested change to the boundary would move a larger area of land and a greater number of dwellings from Clynderwen into Cilymaenllwyd than either of the Pembrokeshire suggestions. It was noted that there are properties on either side of the minor road that forms this boundary to the west of the A478 and that the property to the south of the boundary at Llwyn-dwfr bridge would be somewhat isolated from the rest of Clynderwen.

6.5 Pembrokeshire County Council’s first suggestion for a boundary change to the West of Efailwen involved a small area of land and few properties whilst achieving the aim of including the village of Efailwen within one community area. In the main, the suggested boundary followed clearly identifiable field boundaries or tracks. We found one field boundary to be inappropriate however as it is not continuous and it appears that the two fields it divides are used as one unit. We have therefore amended this suggestion to follow a more appropriate field boundary.

6.6 Pembrokeshire’s second suggestion (extending their first suggestion) involved a further area of land and several properties that appeared to have links with the village of Efailwen. In general this line follows field boundaries that are clearly identifiable. It was noted that the road sign for the village of Efailwen was situated at the point where this boundary crosses the A478. Having accepted that the interests of effective and convenient local government required that the settlement of Efailwen be united within one authority, we came to the conclusion that the second scheme put forward by Pembrokeshire, as slightly amended by the Commission, best achieved this aim.

6.7 We also considered the Welsh Liberal Party’s further suggestion regarding the perceived boundary anomaly between the Communities of Henllanfallteg and Clynderwen. We found the suggested change to the boundary followed field boundaries that were made up of hedgerows that were substantial and appeared to be long-standing. The only property affected by the change would be Mountain Farm Cottage. Carmarthenshire County Council objected to this proposal on the grounds that they would not wish to see any further transfer of land or property to Clynderwen. They considered that a proposal made on the basis of one representation alone is not in the interests of effective and convenient local government. Clunderwen Community Council however had no objections to this proposal and as the suggested boundary is clearly defined and is easier to identify than the existing boundary we consider it would be of benefit in terms of effective and convenient local government to propose the change.

7.ASSESSMENT

7.1 We considered the representations received in response to the Draft Proposals report. The majority of representations received supported the Commission’s proposal for the transfer of Clynderwen from Carmarthenshire to Pembrokeshire. The one exception was the important one of Carmarthenshire County Council who objected to the Draft Proposals on the grounds that the boundary they had proposed in their initial representation (which followed the Eastern Cleddau River) was more clearly defined than the Commission’s proposed boundary.

7.2 In our Draft Proposals report we considered that including both Clynderwen and Llandissilio West within one authority would allow that authority to provide local government services more effectively and efficiently than the present arrangements. In that report we stated that in geographic terms the county boundary is anomalous and that in social and practical terms the representations received had highlighted a number of anomalies that led to confusion in the provision of local service as follows:-

Highway services

Refuse collection

Hedge trimming

Education

Planning policy

School transport

The information that we have received following the publication of our Draft Proposals report has confirmed our view that it would be in the interests of effective and convenient local government for the Communities of Clynderwen and Llandissilio West to be within the same unitary authority area.

7.3 In our Draft Proposals report, we noted from the representations we received that the electors of Llandissilio West did not wish to become part of Carmarthenshire. We received no indication from the residents that the range and quality of local government services provided by Pembrokeshire County Council is detrimentally affected due to the geographical position of Llandissilio West in relation to the remainder of the county. Following the publication of our Draft Proposals we have received no representations that contradict this view.

7.4 We confirm our view that, for the reasons given above, the interests of effective and convenient local government would be served by the Communities of Clynderwen and Llandissilio West being within the same unitary authority area, and we stated in our draft proposals report that in our view both Carmarthenshire County Council and Pembrokeshire County Council were equally able to provide the range and quality of local government services required by both communities. The representations received both before and following the publication of our draft proposals report indicate that so far as the provision of services is concerned, the interests of convenient and efficient local government would be served best by the transfer of Clynderwen to Pembrokeshire, though the matter is finely balanced. Moreover, from the representations received, that appears to be the preference of the residents of Clynderwen. Carmarthenshire County Council argue that public opinion should not dictate what is in the interest of effective and convenient local government. They are quite correct, and the Commission does not regard this as in any way decisive. However the Commission has always taken the view that there is a strong relationship between local identity and effective local government, in that if people feel remote from, or in other ways do not identify with, their local authority, then effectiveness could be adversely affected. The Commission regards this as no more than a relevant factor. It is true that the Eastern Cleddau River provides a “definable natural boundary”, but the Commission is satisfied that the boundary to the east of Clynderwen is entirely satisfactory, and the superiority of the River in this regard equally should not dictate the interest of effective and convenient local government, and is in no way sufficient to outweigh the other factors which we have mentioned above.

7.5 We also noted in our Draft Proposals report that a number of the residents of Clynderwen do consider that their community is remote from the rest of Carmarthenshire and consequently they do not consider the provision of services is as efficient or effective as could be. It was apparent from the initial representations that many of the residents of Clynderwen would favour the suggested change to the boundary that would result in Clynderwen becoming part of Pembrokeshire. The further representations we have received from residents of Clynderwen support this view.

7.6 We propose that the boundary between the Communities of Clynderwen and Cilymaenllwyd be amended to include the whole of the village of Efailwen within Cilymaenllwyd and consequently within Carmarthenshire. We noted that most of the village of Efailwen is currently within the Community of Cilymaenllwyd and we considered that a change to the boundary to the west of the village would be of greater benefit, in terms of effective and convenient local government, than creating a new boundary to the east of the village to include the village within the Community of Clynderwen. Our proposal follows the line of Pembrokeshire County Council’s second suggestion (with a small amendment) as considered at 6.6 above. A map showing this amendment is at Appendix 2.

7.7 We propose that the boundary between the Communities of Clynderwen and Henllanfallteg be amended to follow the line suggested by the Welsh Liberal Party as considered at 6.7 above. We consider that this proposal has the effective of removing an obvious anomaly. We also consider that the new boundary is more clearly defined. A map showing this amendment is at Appendix 3.

7.8 We noted that the issue was raised of whether a further consultation period would be required or a poll should be conducted by the Commission in the Community of Clynderwen to ascertain the views of the electorate in regard to our proposals. We are satisfied that the representations we have received adequately reflect the views of the electorate and their representative bodies and therefore do not consider that a further consultation period or poll is necessary. There is a further opportunity to make representations in respect of our proposals for those who wish to do so (see 12.3 below).

8. PROPOSALS

8.1 Having considered all the evidence available to us, we propose that, in the interests of effective and convenient local government, the boundary between the Counties of Carmarthenshire and Pembrokeshire in the area of the Communities of Clynderwen and Llandissilio West should be realigned in the area under review substantially to follow the existing eastward boundary of the Community of Clynderwen. We propose a change to the boundary between the Communities of Clynderwen and Cilymaenllwyd in the area of Efailwen and a change to the boundary between the Communities of Clynderwen and Henllanfallteg in the area of College Farm. The amended boundary between the Community of Clynderwen and the Communities of Cilymaenllwyd and Henllanfallteg will then form the new boundary between Carmarthenshire and Pembrokeshire. The proposed change to the County boundary is shown in blue on the map at Appendix 1 with the detailed amendments shown on the maps at Appendix 2 and Appendix 3.

8.2 We also propose to adopt the Ordnance Survey’s suggested change to the boundary between the Communities of Clynderwen and Henllanfallteg in the far southeastern corner of Clynderwen near Pen-deri farm. We propose that the boundary here be amended to follow the existing line of the course of the Afon Daulan. This proposal affects only a small area of land where there are no dwellings.

8.3 A detailed map to a larger scale showing the proposed new boundary can be inspected at the offices of Carmarthenshire County Council, Pembrokeshire County Council and at the office of the Commission in Cardiff.

9. CHANGE OF NAME

9.1 We noted that, although the official name of the community is Clynderwen, the name Clunderwen is used by the Community Council and on road signs etc. We consider that the ‘correct’ form is Clunderwen and therefore propose that the name of the Community is changed accordingly.

10. CONSEQUENTIAL ARRANGEMENTS

10.1 Under Section 54 (1) (e) of the Act, the Commission may make proposals for change of electoral arrangements for any local government area which is consequential on any proposed change in local government areas. A detailed analysis of the proposed changes to the electoral arrangements for the principal areas of Carmarthenshire and Pembrokeshire and the communities of Clynderwen, Llandissilio West and Cilymaenllwyd is given below.

10.2 The Community of Clynderwen is included with the Communities of Henllanfallteg and Whitland in the Whitland electoral division with 2,043 electors represented by 1 councillor (1995 electoral figures). The effect of the proposed boundary change would be to reduce the number of electors in the Whitland division to approximately 1,489 electors (1995 electoral figures). The ratio recommended by the Secretary of State for Wales in his Directions to the Commission in 1995 is 1:1750, and we take the view that the ratio based upon the 1995 electoral figures is sufficiently close to the recommended ratio not to require any change in representation. There are after all several electoral divisions within the county (Pembrokeshire) with fewer electors.

10.3 The Community of Llandissilio West is included with the Communities of Maenclochog and Mynachlog-Ddu in the Maenclochog electoral division with 1,273 electors represented by 1 councillor (1997 electoral figures). We propose that the Community of Clynderwen is included within the Maenclochog electoral division. This will result in a division with approximately 1,827 electors represented by 1 councillor. As stated at 10.2 the recommended ratio is 1:1,750 and we take the view that the proposed ratio for the Maenclochog division is sufficiently close to the recommended ratio not to require any change in representation. There are a number of other electoral divisions with a similar level of representation within the county and we consider that this would be an appropriate level of representation. We have noted the representation from Llandissilio West Community Council which asks us to consider an alternative name for the new Maenclochog electoral division. We have no strong views as to the naming of electoral divisions only that they should reflect the name of the area they cover and that, where applicable, consideration should be given to a Welsh alternative form of the name. We suggest that an appropriate name would be Cleddau Ddu (the Welsh form of Eastern Cleddau) as it is this river which forms part of the boundary of all four communities.

10.4 As, under these proposals, there will be no change to the boundary of the Community of Llandissilio West, we do not propose any change to the electoral arrangements for the Community Council.

10.5 Under these proposals, there will be a small change to the boundary between the Community of Clynderwen and the Community of Cilymaenllwyd resulting in several properties moving from Clynderwen to Cilymaenllwyd. We consider that this small change to the electorate does not adversely affect the electoral arrangements for either Community and therefore do not propose any change to the electoral arrangements for either Clynderwen or Cilymaenllwyd Community Councils.

10.6 Under these proposals there will also be a small change to the boundary between the Community of Clynderwen and the Community of Henllanfallteg resulting in one property moving from Henllanfallteg to Clynderwen. We consider that this small change to the electorate does not adversely affect the electoral arrangements for either Community and therefore do not propose any change to the electoral arrangements for either Clynderwen of Henllanfallteg Community Councils.

11. ACKNOWLEDGEMENTS

11.1 We wish to express our gratitude to the principal councils and all the community councils for their assistance during the course of the review and to all bodies and persons who made representations to us.

12. RESPONSES TO THIS REPORT

12.1 Having completed our review of part of the boundary between the Counties of Carmarthenshire and Pembrokeshire in the area of the Communities of Clynderwen and Llandissilio West and submitted our recommendations to the National Assembly for Wales, we have fulfilled our statutory obligation under the Act.

12.2 It now falls to the National Assembly for Wales, if it thinks fit, to implement them with or without modifications by means of an Order or to direct the Commission to conduct a further review. Such an Order will not be made earlier than a period of six weeks from the date that the Commission’s recommendations are submitted to the National Assembly for Wales.

12.3 Any further representations concerning the matters in the report should be addressed to the National Assembly for Wales. They should be made as soon as possible, and in any event not later than six weeks from the date that the Commission’s recommendations are submitted to the National Assembly for Wales. Representations should be addressed to:

Local Government Modernisation 2 Division

National Assembly for Wales

Cathays Park

Cardiff

CF10 3NQ

PROFESSOR E SUNDERLAND OBE LL MA PhD LLD FIBiol (Chairman)

E F L FITZHUGH OBE DL (Deputy Chairman)

MRS S G SMITH LLB (Member)

E H LEWIS BSc. DPM FRSA FCIPD

December 2001