Greater Manchester Spatial Framework and the Green Belt

(Limited Text - Ministerial Extracts only)

Wednesday 18th March 2020 Westminster Hall

[The Minister for Housing (Christopher Pincher)]

I am pleased to serve under your chairmanship for the first time, Mrs Nokes. I should say Ms Nokes—I will get my coat. I congratulate my hon. Friend the Member for Bury North (James Daly) on securing this important and topical debate, and all colleagues across the Chamber on their contributions. I was particularly struck by the doughty defence that my hon. Friend made of his constituents and their concerns. I was also struck, as were all hon. Members, by the, as ever, thoughtful speech from the hon. Member for Stalybridge and Hyde (Jonathan Reynolds).

The debate may not be as full as it could have been for a matter of this importance, but I think we all understand why. We may lack in quantity, but we do not lack in quality. As I said, powerful contributions have been made. I look forward to visiting Greater Manchester; my hon. Friend the Member for Bury, North put in an early bid for a visit, which I will make as soon as circumstances allow.

I am sure that all colleagues will understand that I cannot make any comment on the contents or the merits of the draft Greater Manchester spatial framework, as that could be seen to prejudice the Secretary of State’s position at a later point in the planning process.

[Sir Graham Brady]

While the Minister cannot comment on the merits of the GMSF, does he accept that it is self-evident that it would be better for it to be based on up-to-date household projections, rather than ones that are six years out of date? Very soon, some projections for 2018 will be produced; can we assume that they will be the projections on which the future draft will be based?

[Christopher Pincher]

I congratulate my hon. Friend on getting in so early with that question. A number of hon. Members across the Chamber have raised the question of housing projections. I can understand the reasons why, but we believe that the standard method remains consistent with delivering the homes our communities need, and that means basing our guidance on the 2014 household projections.

However, I would say two further things. The Secretary of State confirmed last week that he will look at reviewing the formula for calculating the local housing need, so that we encourage greater building in or near urban areas, and so that we can meet our target of 300,000 homes built each year.

It is worth noting that the standard method is not mandatory; in exceptional circumstances, an alternative approach can be used, provided that that reflects the current and future demographic trends and market signals. If my hon. Friend the Member for Altrincham and Sale West cares to check paragraph 60 of the NPPF, he will find reassurance in that paragraph.

[Robert Largan]

My hon. Friend the Member for Altrincham and Sale West (Sir Graham Brady) makes an important point about housing projections, but it is also a county lines issue. Does the Minister agree that it is important not only that the GMSF has accurate population figures, but that it factors in houses being built just outside Greater Manchester when doing the figures? A large number of houses are being built in places such as Chapel Buxton, which puts a lot of pressure on the A6. I have talked an awful lot to my next-door neighbour, my hon. Friend the Member for Hazel Grove (Mr Wragg), who I am certain would be here today if he was not self-isolating right now, and those numbers also need to be taken into account by the GMSF. We need a lot more joined-up thinking when it comes to county lines.

[Christopher Pincher]

I certainly agree that local authorities should work together and should work collaboratively. Of course, they have a duty to co-operate, so I encourage local authorities in and around Greater Manchester to work collaboratively together.

[Jim McMahon]

On a point of clarification, it is not the case that the Government believe that 2014 is the most appropriate evidence base; it is just that they did not have faith in the more recent population data, because of some anomalies that came out of it. For instance, Cambridge showed an under-supply of housing as a result of the more recent population data. It is not the case that 2014 was the point to which we should go because it was more accurate in that sense. It was a mistrust of the more recent data. It makes complete sense to suggest that we now go to the 2018 population data, and that, for me, would seem to be the most appropriate route. The idea that we use data that is now six years old does not make sense.

[Christopher Pincher]

As I said, we believe it to be the better method. The hon. Gentleman has already pointed out that the more recent analysis has thrown up some anomalies, so we believe the 2014 figure to be the better one, but the Secretary of State has said that he will review the NPPF, so I hope that the hon. Gentleman will watch this space.

I would also like to highlight a number of Government priorities, which are reflected in our national policy, such as our protections of the green belt.

[Jonathan Reynolds]

Before the Minister moves on to Government policy and while he is still talking about the household projections, much of the argument in Greater Manchester has been based around what set of figures give us what set of outcomes. The ONS website clearly states that its household projections should not be the basis for allocating housing numbers; they are an analysis tool and, for example, do not take into account any policy objectives such as more affordable housing or higher levels of economic growth. Will he confirm that point, from a ministerial point of view? If we get to the position where we in Greater Manchester do not want a more prosperous Greater Manchester—more affordable housing—if we have a set of figures that gives us no room to improve things for our constituents, that is not satisfactory either. We have to get a clear view of that from the Minister.

[Christopher Pincher]

We want to ensure that we build more appropriate homes. We know that we need those houses and the right sort of houses, with the right quality. Local need needs to be determined locally. The starting point is the minimum, not the maximum figure. The Secretary of State will talk about potential changes to the NPPF in due course, so I encourage the hon. Gentleman to make his further points in his own unique and eloquent way when the time comes.

In a moment, I will speak about our priorities on the green belt—support for prioritising brownfield development and our desire to see plans in place—but my hon. Friend the Member for Bury North also mentioned flooding as an issue of concern. As he knows, in the Budget speech last week, the Chancellor announced £5.2 billion of investment in additional flood defences. That will seek to ensure that communities around the country know that future development will be safe from floods. We will assess whether existing protections in the NPPF are enough, and we will consider options for further reform in our wider ambitions for the planning system. I hope that gives my hon. Friend and other colleagues some reassurance.

My hon. Friend also mentioned housing type as an issue, with large numbers of four or five-bedroomed homes. I draw his attention and that of the Mayor and the local authorities in Greater Manchester to the NPPF, which is very clear that local authorities need to identify homes of the right size, type and tenure, as necessary for local people. That needs to be reflected in their planning priorities, which I am sure is a point that my hon. Friend the Member for Bury North will make to the Mayor and his local authority.

[Jim McMahon]

Will the Minister ensure that, when we talk about flooding, we do not jump automatically to the issue of sites that historically were flood plains or have the potential to be at risk of flooding in future? We must also consider the wider infrastructure. Much of our existing sewerage infrastructure is Victorian, and was not built to take on the type of capacity that it is now expected to with the developments that keep getting added on to it.

[Christopher Pincher]

The hon. Gentleman is right that infrastructure needs to be fit and proper for the purposes to which it is put. We recognised that in the housing infrastructure fund made available to local authorities around the country, and will do so in the HIF successor, the SHIF, the single housing infrastructure fund.

A number of colleagues mentioned brownfield sites in their contributions. In last year’s debate on the GMSF, brownfield cropped up again and again. Last week’s “Planning for the future” statement by my right hon. Friend the Secretary of State made it clear that we will invest £400 million to use brownfield land more productively. We want to work with ambitious Mayors—I suspect that Andy Burnham categorises himself as such—and with local authorities to regenerate local brownfield land and to deliver the homes that their communities need on land that is already developed. That built on our previous work with mayoral areas, such as the £300 million housing investment fund agreed with the devolution deal in 2014. That is entirely devolved to the combined authority, and can be put to good use.

We will also provide local authorities with greater funding for infrastructure, ensuring that those who strive to build enough homes for their local communities and make the most of brownfield land in urban areas are able to access sufficient resources. In Greater Manchester specifically and most recently, we announced £51.6 million of forward funding to unlock more than 5,000 homes and funding for 10 marginal viability schemes worth £62.5 million, unlocking some 6,000 homes.

The Government have a number of other funds that can unlock tricky brownfield sites. They can support small builders and provide necessary infrastructure for development. They include the small sites fund, land assembly fund, land release fund, home building fund and public sector land funding. I hope that addresses some of the points that the hon. Member for Stretford and Urmston made about her constituents in Carrington. I encourage colleagues of all political stripes and persuasions to encourage the Mayor and their borough leaders to ensure every opportunity is taken to get the funding for the communities that they want and need.

The Government have placed their faith in the people of Greater Manchester and their elected representatives to shape their own future. We have backed that up through the devolution of wide-ranging powers under the leadership of the elected Mayor, who in this case is our former colleague, Andy Burnham. It is his role to work collaboratively across Greater Manchester and the political divide to provide leadership and a coherent vision of what is required. I am sure that colleagues across the Chamber will want to play an important role in nudging the Mayor in what they believe is the right direction for the GMSF.

[Sir Graham Brady]

The Minister is being generous in giving way. The Government do have some overarching policy objectives, with one of them being, as I alluded to earlier, the preservation and restoration of peat mosses, and £640 million was announced at the Budget for that purpose. Does my right hon. Friend accept that it would be foolhardy to allocate huge sums of public money for the restoration of some peat mosses while allowing development at peat mosses in Carrington or Chat Moss?

[Christopher Pincher]

I do not want to comment on specific sites in the GMSF simply because that might prejudice my right hon. Friend the Secretary of State’s position later, but certainly local authorities need to give very careful regard to the areas in which they build. They should look at brownfield sites first, and there are very careful controls, which I shall come on to, about building on the green belt. I hope that gives my hon. Friend the Member for Altrincham and Sale West (Sir Graham Brady) some more general reassurance, if not on the specifics that he raised.

My right hon. Friend the Secretary of State announced that we will publish an ambitious planning White Paper in the spring, and we will take a fresh and sensible look at planning rules to support local areas—especially those that have urban areas where housing is most needed—to plan. Our starting position is that we trust local planning authorities—Greater Manchester, in this case—in many parts of the country. We respect them, and the groups of authorities that are working together to produce plans reflect the spirit of co-operation and joint working that we want to see and to which the hon. Member for Stalybridge and Hyde referred.

On the green belt, which I know concerns a number of colleagues, plans are subject to a rigorous examination by the independent inspectors appointed by the Planning Inspectorate. The examination includes testing their consistency with national protections for the green belt. Planning inspectors will assess plans and their soundness against the national planning policy framework and against any other material planning considerations before coming to their conclusions. That includes assessing the plan for its consistency with our policies, which maintain strong protections for the green belt.

The national planning policy framework, which was revised last year, sets a high bar for alterations to green-belt boundaries. A local authority—or a collection of local authorities in the case of the GMSF—can use the plan to secure necessary alterations to its green belt, but only in exceptional circumstances. The planning inspector will check at examination that any changes to green-belt boundaries are fully justified. As a matter of law, plans are subject to a range of engagement and consultation activities with communities and many other organisations. The Government believe that such consultation is a vital element of the plan-making process.

I am aware from the comments made by colleagues that Greater Manchester published feedback from last year’s draft spatial framework public consultation in October. The Mayor is proposing a further consultation this summer, before the plan is submitted for examination by a planning inspector. Although we all accept that the Mayor, local authorities and Members of Parliament have significant and serious distractions now and for some time to come, I trust that the Mayor will move as fast as he can and I hope that he will ensure that consultation is meaningful and delivers a plan that all Greater Manchester can support. I know that my hon. Friend the Member for Bury North and other colleagues will work tirelessly in the interests of their constituents to ensure that the Mayor comes up with the best possible plan.

A benefit of strategic planning is that, by looking at housing need across a wider area, it can be met in areas with greater brownfield capacity rather than in those with more green-belt land. That involves the sort of co-operation and collaboration that colleagues have mentioned. I hope the Mayor seeks to minimise green-belt development while meeting housing needs in line with national policy.

The Government fully recognise the need to plan for and build more homes. A crucial first step is ensuring that local authorities plan for the right number of homes. I appreciate that sometimes that means that communities have to make difficult choices about where homes should go. I believe that those decisions are for local communities to make through the plan-making process, so I encourage the Mayor to bring his amended plan forward so that the people of Greater Manchester can respond accordingly. I hope that, in doing so, he pays due regard to the NPPF, the national design guide and the forthcoming national model design code, and that he ensures that excellent quality homes are built, and are appropriate to their surroundings and as beautiful as possible—that should be baked in.

Before I conclude, I congratulate my hon. Friend the Member for High Peak (Robert Largan)—the interloper in this Greater Manchester debate—on his ingenuity in shoehorning a transport request into his intervention. If he cares to write to me, I will forward his letter to the Secretary of State for Transport, with what I hope will be a suitably helpful covering letter.

In conclusion, I appreciate that there are likely to be a range of views about the GMSF. We have heard some of them in the Chamber today. That is to be expected and it shows that people care passionately about what happens in their communities, which is a good thing. The current draft of the GMSF received an unprecedented number of consultation responses. So I say again, as I am sure he is watching this debate from his office, I hope that the Mayor has listened to the feedback he has received in the consultation and the words that have been uttered in this Chamber, and that when he puts forward an amended plan for consultation later this year, it reflects the feedback he has received.

There is still a chance to further refine the spatial framework, its policies and proposals, over the coming months. As part of that, we may see some of the important issues highlighted today by colleagues, including my hon. Friend the Member for Bury North, considered. I hope the Mayor will not delay before he takes his next steps, because, as a number of colleagues said, the people of Manchester have been left in stasis for several years. It is time they had a plan that worked. I hope the Mayor demonstrates real leadership in the months ahead, as he did when he was a Cabinet member in Government. I know that, based on the contributions that have been made today, many hon. Members will help him along the way.