House of Lords

Thursday 20th April 2023 Lords Chamber

Thursday 20 April 2023

11:00

Prayers—read by the Lord Bishop of Leeds.

Leave of Absence: The Lord Speaker

Thursday 20th April 2023 Lords Chamber

11:06

[The Lord Speaker (Lord McFall of Alcluith)]

My Lords, I wish to inform the House that on Monday 24 and Tuesday 25 April, I will be attending the Conference of Speakers of European Union Parliaments in Prague, at which the UK has observer status. I therefore seek the leave of the House to be absent until Wednesday 26 April.

Schools: Financial Literacy

Thursday 20th April 2023 Lords Chamber

Question

11:06

Asked by

[The Lord Bishop of St Albans]

To ask His Majesty’s Government what steps they are taking to promote financial literacy in schools.

[The Parliamentary Under-Secretary of State, Department for Education (Baroness Barran) (Con)]

My Lords, we work closely with the Money and Pensions Service and the Treasury to support the effective teaching of financial education in schools. The Money and Pensions Service has published financial education guidance for primary and secondary schools and we will deliver webinars for schools in due course. Our national network of 40 maths hubs also supports schools to improve their mathematics teaching, including financial content in the mathematics curriculum, based on best practice from east Asia.

[The Lord Bishop of St Albans]

I thank the Minister for her reply and I am glad to hear what His Majesty’s Government are doing. I do not know whether the Minister is aware, but the Church of England has been working on a project called Lifesavers, which came out of one of the Archbishops’ Commissions. It has so far delivered financial literacy training for 30,000 school pupils and trained 2,000 teaching staff. Given that only 5% of parents believe that their children are leaving school with adequate financial literacy, what assessment have His Majesty’s Government made of Lifesavers and other similar school projects, such as GoHenry, and how can they help these projects as we are seeking to roll them out and increase financial literacy?

[Baroness Barran (Con)]

The Government are very grateful to organisations such as Lifesavers for the important work they do providing very useful support to teachers and schools. According to the Money and Pensions Service, about 6.3 million children between the ages of five and 17 received some form of financial education across just over 100 programmes, so there is a great variety on offer across the country.

[Baroness Lampard (Con)]

My Lords, I draw attention to my registered interest as chair of GambleAware. Research shows that 96% of 11 to 24 year-olds are exposed to gambling marketing and advertising, and that exposure to gambling marketing can influence their attitudes towards gambling and the likelihood of them gambling in the future. In the light of that, what specific measures are the Government taking to ensure that schoolchildren are educated about the financial as well as other risks associated with gambling?

[Baroness Barran (Con)]

My noble friend makes a very important point. Risks relating to gambling are part of the RSHE curriculum and there are two main aspects of this. One is supporting pupils to manage risk and make informed decisions in relation to their mental well-being and their behaviour online. The second area relates to internet safety and harms and addresses exactly my noble friend’s point: pupils are taught about the risks relating to online gambling, including how advertising and information is targeted at them, the risks of accumulating debt and how to be a discerning consumer of information online.

[Lord Davies of Brixton (Lab)]

My Lords, I am glad that the Minister stressed the importance of mathematics in this context. Will she take the opportunity to inform the Prime Minister that it is facile to suggest improving maths in our schoolchildren without paying mathematics teachers enough money to encourage them to join and stay in the teaching workforce?

[Baroness Barran (Con)]

I have to say that I do not really have any intention of saying to the Prime Minister that his plans are facile. More importantly, I point the noble Lord to the pickup in recruitment of maths teachers following our interventions over the last three years.

[Lord Storey (LD)]

My Lords, those children and young people who are financially literate are less likely to make poor financial decisions. Unfortunately, we see many children, particularly those from poorer backgrounds, who are not able to make those correct financial decisions. It is not just about teaching maths; it is actually about having practical opportunities and experiences. Will the Minister reflect on how we might do that in a more coherent way across all schools, particularly starting in primary schools?

[Baroness Barran (Con)]

The Government agree with the noble Lord that it is that combination of the fundamental knowledge in relation to mathematics and reading that support financial literacy and that can be taught in schools, having really high quality materials for schools to use. But, beyond that, they should have the experiences that the noble Lord refers to. That is why we are grateful to organisations such as Young Enterprise and the Money and Pensions Service for the work they do outside schools to complement what goes on inside.

[Lord Vaux of Harrowden (CB)]

My Lords, the Fraud Act 2006 and Digital Fraud Committee heard a lot of evidence that young people are particularly susceptible to fraud and also to being conned into becoming money laundering mules. Can the Minister assure us that the financial education will include fraud to enable young people to protect themselves from becoming either victims or unwitting criminals?

[Baroness Barran (Con)]

Certainly, the aspects of the curriculum that relate to how to operate safely online include fraud, which is a growing and terrible problem, as the noble Lord points out.

[Baroness Thornton (Lab)]

My Lords, the United Kingdom strategy for financial well-being sets a national goal to ensure that 2 million more children and young people across the UK receive meaningful financial education by 2030. I have not found any evidence yet that the Government have dropped this goal, although I have yet to find any evidence that the Government are on track to deliver it. But I would like the Minister to wonder how that goal can be achieved, given that research from the APPG on Financial Education for Young People suggests that two in five teachers are completely unaware of the legal requirement to teach financial education.

[Baroness Barran (Con)]

I understand the direction of the noble Baroness’s question. I would say that the data from the APPG report, which is extremely valuable, is none the less from a very small sample. It was from, I think, 401 teachers across the four nations. So, I think we have to be careful about extrapolating from that. The Money and Pension Service, which is responsible for delivering the additional 2 million children receiving good financial education has a wide range of programmes, including support for teacher training, communication and support for parents as well.

[Lord Holmes of Richmond (Con)]

My Lords, I declare my financial services interests as set out in the register. Would the Minister agree that, alongside financial literacy, we should also revolutionise the curriculum with data literacy, digital literacy and data privacy literary, to have a curriculum fit for the future and fit for now? Further, would she join with me in congratulating the right reverend Prelate the Bishop of St Albans? With the financial literacy initiative from the Church of England, it is clear that the bishop and his colleagues are rightly engaged in both LifeSavers and afterlife savers.

[Baroness Barran (Con)]

I am happy to congratulate the right reverend Prelate on his and his colleagues’ contribution before, during and after life. In relation to my noble friend’s question, data and digital literacy already feature within compulsory national curriculum subjects. Data literacy is covered within mathematics, science, computing and geography and digital literacy within computing and RSHE. They also feature within the subject content of GCSEs, which are counted in the English baccalaureate.

[Lord Brooke of Alverthorpe (Lab)]

The noble Baroness will be aware that children are particularly susceptible to advertising, especially online advertising. Could she say when the Government are going to do something about gambling advertising and the effects it has on children?

[Baroness Barran (Con)]

I think I already, in response to my noble friend’s question, addressed, in part, the noble Lord’s question, namely in that we already teach children about the risks relating to advertising, and in particular the advertising of online gambling.

[Lord Weir of Ballyholme (DUP)]

My Lords, the Minister has rightly identified that there are a variety of good programmes out there, such as LifeSavers. But in my experience in this field and other fields, sometimes within schools there is not always the greatest awareness of what is there. In light of one of the earlier questions which talked about coherence in the system, what actions are the Government taking to ensure that schools are made aware of best practice in this field to ensure they get the best possible provision for their young people?

[Baroness Barran (Con)]

We are doing quite a lot to support schools in teaching financial literacy. So, as I mentioned, we will be delivering webinars for schools in the next academic year, which will help teachers deliver the most practical and engaging content. The Money and Pension Service has already published financial education guidance for schools, and there is a quality mark accreditation scheme. Also, the Oak National Academy will be producing curriculum packages in this area.

UN: Individuals Displaced by Conflict

Thursday 20th April 2023 Lords Chamber

Question

11:17

Asked by

[Lord Singh of Wimbledon]

To ask His Majesty’s Government what discussions they have had at the United Nations about the case for introducing an obligation on countries intervening in conflicts to accept a moral and legal responsibility for the safety and wellbeing of individuals displaced by such conflicts.

[The Minister of State, Foreign, Commonwealth and Development Office (Lord Goldsmith of Richmond Park) (Con)]

My Lords, a range of obligations exist in international humanitarian law and international refugee law concerning the safety and well-being of civilians displaced by conflict. The UK consistently uses its diplomatic influence to uphold these protective laws and hold those who violate them to account. We work tirelessly with the UN High Commissioner for Refugees and other relevant agencies to ensure protection and humanitarian assistance are provided to individuals displaced by conflict.

[Lord Singh of Wimbledon (CB)]

My Lords, I thank the Minister for his Answer, but it does not go as far as I would like. It is important that any country contemplating military action in today’s world accepts full responsibility for its action. Twenty years ago, we invaded Iraq and toppled Saddam Hussein on the pretext that he was accumulating weapons of mass destruction. His removal resulted in brutal civil war between Shia and Sunni and a mass exodus of terrified refugees, genocide against the Yazidis and the emergence of ISIS and the Islamic State, leading to further mass killings and a still continuing flight of traumatised refugees to a hostile world. Then there was the debacle of Afghanistan. My request to the Minister is that the UK take a moral lead in working through the UN to make it mandatory for any country that embarks on conflict, causing an exodus of refugees, to accept full responsibility for their care and well-being, not only for humanitarian reasons but also to deter other countries from strutting their importance through the use of force in a smaller, interdependent world.

[Lord Goldsmith of Richmond Park (Con)]

I thank the noble Lord for raising this issue and for the points that he has made, but we believe there is already a robust and comprehensive ecosystem of laws and norms to protect civilians displaced by conflict. However, he is right that the UK should use our position of leadership to highlight this issue politically and raise it on the global stage—and we do so. We regularly engage in UN discussions, including at UNGA and the UN Security Council, and underline the responsibility of all states engaged in armed conflict to respect international humanitarian law and international refugee law and act in accordance with our obligations under them. The UK has been one of the most consistent and loudest voices on the subject for some time.

[Baroness Chakrabarti (Lab)]

My Lords, I am grateful to the Minister for—I think—being clear that His Majesty’s Government still support the refugee convention, as I think he suggested that they are promoting it on the world stage. Will he commit to promoting it with his Home Office colleagues as well?

[Lord Goldsmith of Richmond Park (Con)]

My Lords, the UN High Commissioner for Refugees is a key partner for the UK. It provides protection and humanitarian assistance to refugees and other displaced persons. We have provided the UNHCR with more than £70 million in 2022-23, including £25 million for the Ukraine response.

[Lord Bellingham (Con)]

My Lords, does the Minister agree with me that the most evil and brutal invasion or intervention in recent years is Putin’s invasion of Ukraine? Does he agree that there is now a major moral responsibility on Russia to make sure that grain exports are facilitated?

[Lord Goldsmith of Richmond Park (Con)]

The noble Lord makes a key point. We have repeatedly called on Russia through the United Nations to cease targeting civilians and civilian infrastructure and allow unfettered humanitarian access to civilians impacted by this illegal invasion. The lack of compliance with international humanitarian law contributes to displacement in Ukraine. As the noble Lord suggests, pressure must be mounted on Russia to take responsibility.

[Lord Purvis of Tweed (LD)]

My Lords, I declare a voluntary interest as the UK chair of the peacebuilding charity Search for Common Ground. The UK is and continues to be a world leader in the “do no harm” principle, but the Independent Commission for Aid Impact highlighted a concern in its December report that:

“The UK government’s poor donor practice weakened results and increased the risk of doing harm”.


Has the FCDO had an opportunity to reflect on the ICAI report, and how will it ensure that we improve our delivery of peacebuilding services to ensure that we do not undermine the “do no harm” principle?

[Lord Goldsmith of Richmond Park (Con)]

My Lords, the FCDO is a permanently evolving organisation. We always try to refine and improve the manner in which we make substantial annual investments. Despite the cuts to spending, which the noble Lord rightly raises on a regular basis, we remain a major partner to the UN and other multilateral organisations, while spending more bilaterally to allow us to focus on the UK’s highest priorities. We are providing £108 million in core funding to UN humanitarian agencies this year, which makes us one of the top contributors of unearmarked support. That includes £33 million to the UNHCR and £6 million to the International Organization for Migration, and we will provide a far higher figure through country-specific programmes.

[Lord Collins of Highbury (Lab)]

My Lords, the noble Lord mentioned the work of the United Nations General Assembly. In 2018, it affirmed the global compact on refugees, a framework for responsibility-sharing and international co-operation. Given that 83% of people who have been forcibly displaced are hosted in low and middle-income countries, can the Minister tell us how the Government will build on that compact at the Global Refugee Forum later this year?

[Lord Goldsmith of Richmond Park (Con)]

I draw the noble Lord’s attention to the Integrated Review Refresh and the international development strategy, both of which were published recently, in which we reiterated our commitment to championing international humanitarian law. We are focused on protecting those most at risk, including from gender-based violence, and on barriers to accessing humanitarian assistance. We work closely with the UN humanitarian agencies, the UN General Assembly and the UN Security Council to promote compliance with international law, and will continue to do so.

[Lord Forsyth of Drumlean (Con)]

My Lords, given the atrocities being committed in Ukraine, can it be right that the presidency of the Security Council is held by the Russians?

[Lord Goldsmith of Richmond Park (Con)]

The noble Lord makes an important and valid point.

[Lord Griffiths of Burry Port (Lab)]

My Lords, I hope that I may make a valid point too, on the noble Lord’s assertion a moment ago on the amounts of money given by the Government to the UNHCR. I am off to Strasbourg on Sunday and will be debating the United Kingdom’s current immigration policy in its migration committee and in plenary. Granted the levels of support that have just been mentioned, I am interested to know why the UNHCR repeatedly, at length, in detail and according to law has set itself so fiercely against present proposals in the immigration Bill.

[Lord Goldsmith of Richmond Park (Con)]

My Lords, there can be no doubt that there is an urgent humanitarian need to stop the small boat crossings. The UK Government have introduced legislation to prevent further loss of life by disrupting the business model of people-smuggling networks. Clearly, a system that enriches those smugglers and people traffickers is one that needs improvement. That is what we are trying to do. New approaches to these kinds of issues will raise new questions for the interpretation of international law. The UK will work openly and constructively to ensure that its new approach is fully compliant with international human rights, refugee and human trafficking protections. The legislation is about ending dangerous and unnecessary routes to the UK; it is not about denying protections to those in immediate, genuine need. We will continue to work with the UNHCR, not least through the financial contribution that I mentioned earlier, to ensure that those most in need can find sanctuary in the UK.

[Baroness Smith of Newnham (LD)]

Do the Government believe that sufficient has been done to support those who were displaced in Afghanistan when we left so ignominiously in August 2021?

[Lord Goldsmith of Richmond Park (Con)]

My Lords, the manner in which the situation in Afghanistan was allowed to change caused appalling humanitarian problems on a scope and scale that has rightly taken the attention of this House on many occasions. I make the broader point that, as we restrict illegal migration through the legislative pathway that I was just describing, we will do more to help people at risk of war and persecution by setting up safe and legal routes, as we have done in the cases of Syria, Afghanistan, Hong Kong and Ukraine. Since 2015, the UK has offered places and safety to nearly 480,000 people. The Government will commit to resettle a specific number of the most vulnerable refugees from around the world every year, working with local councils to understand their capacity for accommodation and support first and providing for the annual number to be agreed by both Houses.

Yemen and South Sudan: Humanitarian Crises

Thursday 20th April 2023 Lords Chamber

Question

11:27

Asked by

[Baroness Anelay of St Johns]

To ask His Majesty’s Government what assessment they have made of the progress towards resolving the humanitarian crises in Yemen and South Sudan; and what assistance they have provided, along with international partners, to ensure that children and families in those countries have adequate access to food, water, and medical supplies.

[The Minister of State, Foreign, Commonwealth and Development Office (Lord Ahmad of Wimbledon) (Con)]

My Lords, I begin by referencing the devastating events in Sanaa last night. I offer the sincere condolences of the whole House to the families of those who lost their lives. The sadness of the loss of life is heightened by being so close to Eid ul Fitr. Reportedly, more than 80 lives were lost and many more were injured during a stampede at a charity event designed to provide cash and food to those most in need at Eid ul Fitr. Inna Lillahi wa inna ilayhi raji’un—to God we belong, to God we will return.

Resolving the dire humanitarian crisis in Yemen and South Sudan requires peace. The South Sudanese Government should implement their peace agreement and road map, end the violence and provide more of their own resources to alleviate the humanitarian crisis. Similarly, the de facto truce in Yemen continues to hold. Long-term stability will come only with a Yemeni-led political settlement under the auspices of the UN, but the UK will continue to support millions of vulnerable people in both Yemen and South Sudan.

[Baroness Anelay of St Johns (Con)]

My Lords, I join my noble friend in expressing distress at the events in Sanaa. I am grateful to him for his words. The humanitarian aid allocated by the international community to Sudan and Yemen has been essential. It is also essential to ensure that it reaches those in need there. My noble friend will be aware that, over the last six months or so, there has been a dramatic surge in the level of attacks on humanitarian aid workers and in the theft of their aid. Can he tell the House what work Ministers have been doing with our colleagues in the international community, particularly the African Union, IGAD and the troika, to ensure that the combatants eventually give way to humanitarian workers instead of, as at the moment, killing them?

[Lord Ahmad of Wimbledon (Con)]

My noble friend speaks with great insight and experience, and I am grateful for her work in this area. I totally agree with my noble friend about the importance of humanitarian corridors. Only yesterday, during the repeat of the Statement on Sudan, we discussed the appalling and abhorrent situation where not only aid workers but also UN aid agencies and senior diplomats are being attacked in Sudan. That has a natural impact on South Sudan, in terms of humanitarian assistance, because of the routes through, and the situation remains extremely dire.

There has been some more positive development in Yemen, with this truce led by the Kingdom of Saudi Arabia. We have engaged with all relevant governments in the near neighbourhood, as well as the key UN agencies and all international organisations. We remain very committed to continuing our support for humanitarian assistance but also to opening up key corridors to allow aid to reach the most vulnerable.

[Baroness Ritchie of Downpatrick (Lab)]

My Lords, considering the level of the humanitarian crisis in both Yemen and Sudan, will the UK Government now consider reinstating the overseas aid budget, which was reduced some two years ago to 0.5% of GNI, and returning it to the original amount of 0.7%?

[Lord Ahmad of Wimbledon (Con)]

My Lords, I have often said from the Dispatch Box that we seek to return to the 0.7%, but notwithstanding the reduction in 2022-23, the UK Government have continued to provide emergency food aid for an estimated close to 200,000 people, including daily water and sanitation provision in South Sudan. We have continued our support and at the UN-led humanitarian pledging conference in March 2023 retained £88 million of aid to Yemen. We remain amongst some of the primary donors when it comes to bilateral support. The difficulty on the ground, as highlighted by my noble friend Lady Anelay, has impeded vital aid reaching the most vulnerable.

[Lord Kamall (Con)]

My Lords, it is important that we look at how we can intervene in many ways, and the Minister has mentioned the role of international organisations. Given that South Sudan has expressed an interest in joining the Commonwealth, has my noble friend spoken to his Commonwealth counterparts about perhaps providing assistance via the Commonwealth?

[Lord Ahmad of Wimbledon (Con)]

My Lords, I know of my noble friend’s interest in the Commonwealth, which is an organisation that I know well. During the PSVI conference back in November, there was some hope about the situation in South Sudan. My right honourable friend the Foreign Secretary and I met with the then Defence Minister on various issues concerning how we could strengthen South Sudan, including its place in the international community. However, things have since taken a rather regressive path—indeed, the Defence Minister herself is no longer in place. First and foremost, we need unity among the different parties in South Sudan, and then I am sure we can move forward on other considerations as well.

[Lord Purvis of Tweed (LD)]

My Lords, as the Minister alluded to, humanitarian aid and co-ordination for South Sudan and Juba is through Khartoum and Khartoum Airport. I repeat my interest that I was in Khartoum over the Easter Recess, and in my March visit I met separately with Generals Burhan and Hemedti. Last night I had an opportunity to speak to the deputy head of the doctors’ union from Khartoum, who relayed to me the sheer horror of the medical crisis in Khartoum at the moment, and the problem of getting supplies into Khartoum Airport. He asked me to make a direct appeal, at Heads of Government level, to seek a monitorable cessation of hostilities in Khartoum to secure the airport open, which would allow medical assistance in and let co-ordinators for South Sudan and Juba to continue their much-needed work.

[Lord Ahmad of Wimbledon (Con)]

I assure the noble Lord we are very seized of this. The discussions around the situation in Sudan took place at the G7 Foreign Ministers meeting. My right honourable friend the Foreign Secretary has engaged with key partners, including the troika who have key responsibility in Sudan. We are also engaging directly at senior level, as my right honourable friend has with Foreign Ministers in the near regions, particularly countries such as the UAE, the Kingdom of Saudi Arabia and Egypt, which have obvious influence on the ground in South Sudan.

[Lord Collins of Highbury (Lab)]

My Lords, the noble Lord mentioned the promising discussions and the exchange of prisoners leading to a permanent ceasefire, and the lifting of the Saudi-led blockade of Yemen, but that pathway towards peace remains incredibly shaky. The noble Lord stressed the importance of a Yemeni-led political solution. As we have a special responsibility as a Security Council penholder, can the Minister tell us what we are doing to support Special Envoy Grundberg’s mediation efforts? And can he update us on our work at the Security Council to ensure that the political process delivers the peace the people of Yemen deserve?

[Lord Ahmad of Wimbledon (Con)]

My Lords, I agree with the noble Lord that we all welcome what is a truce of some kind, but it is holding—that is the important thing. When I visited the Kingdom of Saudi Arabia recently, I saw quite directly the important role being played by Saudi Arabia, particularly by their ambassador Mohammed Al-Jaber who talked me through some of the reconstruction in the government-held areas. We have seen some progress through certain talks that took place directly, both with the UAE, the Kingdom of Saudi Arabia and Yemen, which have brought progress. I have engaged directly with the Foreign Minister of Yemen, as has my right honourable friend, and we are meeting with key personnel from the United Nations to ensure that the current truce can build into something much more substantial that will stand the test of the current challenges we face. It is tragic that, as I said, where aid does get through, such events can occur very quickly—we are still getting the full details, but it appears to have been an accidental firing that then caused havoc, which shows the sense of insecurity that people, including the most vulnerable people, in Yemen feel currently.

Prepayment Meters: Code of Practice

Thursday 20th April 2023 Lords Chamber

Question

11:36

Asked by

[Baroness Brinton]

To ask His Majesty’s Government how they will ensure that the new Ofgem Code of Practice regarding installing pre-payment meters for vulnerable and disabled customers will be enforced.

[Baroness Bloomfield of Hinton Waldrist (Con)]

My Lords, the code of practice is a step in the right direction, with better protections for vulnerable households, increased scrutiny of supplier practices, and redress measures when prepayment meters were wrongly installed. Ofgem has now confirmed that it will put strengthened rules into energy company licences so that they can be enforced. The Government will monitor very closely the behaviour of suppliers and regulators and will not hesitate to intervene again if necessary.

[Baroness Brinton (LD) [V]]

My Lords, after the appalling behaviour of energy suppliers forcibly installing prepayment meters at the homes of the most vulnerable and disabled, why is Ofgem’s new voluntary scheme not compulsory? Worse, the categories “High Risk—Do not install” and “Medium Risk—Further assessment required” are confused and rely on energy supplier staff to make medical judgments. Someone awaiting a transplant is high risk but, post transplant, when they are medically still very vulnerable, they may not be. As Scope pointed out, does a customer with dementia even have the capacity to respond to chasing calls and emails? Does the Minister think that staff from energy suppliers should be making these medical decisions, and how will safe practice be enforced?

[Baroness Bloomfield of Hinton Waldrist (Con)]

The noble Baroness asked a number of questions. First, Ofgem does not have the right to impose rules without consultation. It is an independent regulator accountable to Parliament, but this voluntary code is agreed by all suppliers; it will be put into their contracts by October. There were some nuances and details perhaps lost in the Ofgem announcement on Tuesday about the code of practice. The medium-risk group is always protected by the precautionary principle so, if there is any doubt that the consumer is financially vulnerable or likely to disconnect, they must not install a prepayment meter. The vulnerable group includes any family with children under five, the elderly over 65, those with many other serious medical conditions including Alzheimer’s and Parkinson’s, and those in temporary situations such as pregnancy and bereavement. Ofgem has worked very hard to try to include everybody in the prevention of installation of prepayment meters and will continue to do so. They have all been paused for the moment.

[Baroness McIntosh of Pickering (Con)]

My Lords, I refer to my interest as honorary president of National Energy Action. Could my noble friend address two vital issues that the code of conduct does not cover? First, prepayment customers pay more per unit than any other customer, regrettably, and that has so far not been addressed by the Government. Will she urgently address it? Secondly, the standing charge is increasing, often every six months, by up to 20% a time. That is a charge over which customers have no control whatever at a time when there is a cost of living crisis.

[Baroness Bloomfield of Hinton Waldrist (Con)]

My noble friend is not quite correct, in that we are doing a lot to tackle the higher costs that PPM users pay, and the Government are taking action to end the prepayment penalty. There are specific costs associated with prepayment meters, not least that the Post Office is often used as a conduit for payment and charges, and there are some regulatory and system costs. We have acted, we are continuing to take action, and we are introducing reforms to the energy bills to remove this premium paid. For the moment, that will be covered by the energy price guarantee and there will be permanent resolution to the issue in April 2024.

[Lord Berkeley (Lab)]

My Lords, does the Minister think that the use of the precautionary principle by those who install the prepayment meters is rarely the kind of judgment that these people are expected to make? Are they expected to make a judgment on whether somebody is 85 or 84? Does it not need to be much more clear cut as to who can have the exemption and who cannot?

[Baroness Bloomfield of Hinton Waldrist (Con)]

The noble Lord makes a fair point but, once all the conditions of the code of practice have been met, there must be at least 10 attempts to contact the customer before a prepayment meter is installed. Then when it is installed, which is often with a bailiff, there has to be body camera footage to show that it has been done correctly. The precautionary principle is a very strong bar. If there is any doubt that the consumer is financially vulnerable, cannot pay, and is at risk of being cut off, the meter must not be installed.

[Baroness Lister of Burtersett (Lab)]

My Lords, notwithstanding what the Minister said about the precautionary principle, and following my noble friend, are the Government really satisfied that the firm ban on enforced prepayment meters will not cover high-risk groups such as lone parents of a newborn babies, people with Alzheimer’s, and those aged 80 to 84? Surely they are at high risk and should not have to rely on the exercise of the discretion—the precautionary principle—of the installers.

[Baroness Bloomfield of Hinton Waldrist (Con)]

The noble Baroness mentions some temporary conditions covered by the precautionary principle, which can include pregnancy and bereavement. But if a supplier concludes, taking into account the meter type, the aftercare support, and reasonable energy-saving assumptions, that the household will frequently or for prolonged periods self-disconnect and risk causing significant consumer harm, the supplier must consider the prepayment meter not to be safe or reasonably practical and must not install it.

[Baroness Eaton (Con)]

My Lords, there is understandably grave concern about the effect of prepayment meters on the vulnerable and disabled. Can my noble friend clarify whether the social tariffs are still an option? Additionally, what is being done to improve the energy bill support scheme voucher take-up?

[Baroness Bloomfield of Hinton Waldrist (Con)]

My noble friend refers to a number of policies that the Government have put in place to give financial support to consumers, and social tariffs are indeed still an option. Following the Government’s Autumn Statement commitment, we are working with consumer groups and industry to consider the best approach from April 2024 when the energy price guarantee comes to an end, and this could include social tariffs. As for the energy bill support scheme voucher take-up, we have a problem in that, as of 1 March, 97% of vouchers have been delivered since the scheme launched, but only 78% of these have been redeemed. This means that at this time 2.1 million vouchers have been issued to suppliers but not redeemed by households, so we are carrying out extensive communications, including through the Help for Households, to encourage people to redeem these vouchers. We are making announcements through local radio, charities, consumer groups and the media generally to encourage people to take up this support.

[Baroness Blake of Leeds (Lab)]

My Lords, we have all heard the harrowing stories that come from forced entry into the homes of the most vulnerable people in this country. I would like some more clarification. Surely discretion from the energy companies is not the answer, as we have heard. Why do the Government not take responsibility and continue the ban on installations until a better system is in place protecting the vulnerable. Is not failure to act on this a dereliction of duty?

[Baroness Bloomfield of Hinton Waldrist (Con)]

The Government were very quick to take action following the Citizens Advice report in mid-January. The Secretary of State responded in late January by writing to Ofgem and all suppliers, and forced installation of PPMs was then stopped within weeks—even before the take-up by the national press campaign—so I do not agree that we have not done enough, quickly enough. The energy, markets and consumer team in the Department for Energy Security and Net Zero is responsible for this. We will monitor Ofgem very closely to make sure that all the provisions that we have put in place to protect vulnerable customers are indeed practicable and enforced.

[Baroness Altmann (Con)]

My Lords, I congratulate the Government on their scheme to help people with energy costs. That was clearly an appropriate response. But in connection with these forced prepayment meter—or smart meter—installations, will the code of practice include how the meters are installed, whether they are installed in places that are accessible, and whether those who have them are trained in how to use them? It should surely be part of the code to ensure that putting in a meter which elderly and disabled people do not know how to operate does not happen. Installing it at the top of a high cupboard which, if people are elderly and cannot reach it safely but need to stand on a stepladder to press that button and restore their energy supply, should not happen either.

[Baroness Bloomfield of Hinton Waldrist (Con)]

The noble Baroness makes some very good points. The aim of the code of practice is to set out very clearly how suppliers should protect customers in vulnerable circumstances. This will include minimum steps that suppliers need to take to conclude whether it is actually safe to install a prepayment meter, with greater prescription—as we have heard—about how vulnerability is defined, and enhanced aftercare for PPM users. Additionally, the supplier will have to carry out a site welfare visit before a PPM is installed. As I have said before, all installations of prepayment meters have been paused until suppliers can prove that they are compliant and have given redress measures to those whose prepayment meters have already been installed.

Top Secret Document Leaks

Thursday 20th April 2023 Lords Chamber

Commons Urgent Question

The following Answer to an Urgent Question was given in the Commons on Tuesday 18 April.

“The unauthorised disclosure of classified US documents discovered last week was clearly a concerning development. The Defence Secretary spoke to his opposite number in the US last week and has been kept closely informed since. He is in Washington this week for a long-planned briefing to the House Foreign Affairs Committee as well as for other bilateral meetings. Clearly, while there, he has been able to discuss things further with Secretary Lloyd Austin and others. The US Department of Defence and intelligence community are currently conducting their own investigation to determine the validity of those documents and the circumstances under which they were leaked.

The UK commends the swift action taken by US law enforcement to investigate and respond to the leak, including the arrest of a suspect. As the Secretary of State, the US Department of Defence and the French Ministry of Defence have already said, not all of the information apparently leaked is accurate. Colleagues will be frustrated, I know, that I am unable to tell them which bits are inaccurate as these are sensitive intelligence matters, but it is important, nonetheless, to stress the need for caution when reporting what has apparently been leaked. Obviously, the investigation is now a matter for the US legal system.

As the refreshed integrated review set out earlier this year, the US remains the UK’s most important ally and partner. The depth of the UK’s relationship with the US remains an absolutely essential pillar of our security. We remain committed to supporting Ukraine’s armed forces in response to Russia’s illegal invasion. Ukraine has repeatedly shown us its determination and resilience in the face of Russia’s barbaric invasion, and, as we have said, we are working in lockstep with allies through forums such as the G7 and NATO, and efforts such as the UK-led international fund for Ukraine, to get Ukraine the firepower that it needs to rapidly regain its territory.”

11:48

[Lord Coaker (Lab)]

My Lords, it is obviously of huge concern that top secret US documents were leaked, including files purporting to be on the war in Ukraine. In assessing what damage this may have done, are the Government looking into why the Wall Street Journal reported last week that the leak was first put out in January among a small group of posters on a messaging channel that trafficked in memes, jokes and racist talk? This posting in January of top secret files went, according to the Wall Street Journal, unnoticed for weeks by the outside world. If accurate, this is a very concerning matter, so can the Minister look into what did happen and whether that report is accurate? In the light of all this, can the Minister tell us what the MoD is doing to improve security, including data breaches?

[The Minister of State, Ministry of Defence (Baroness Goldie) (Con)]

I thank the noble Lord for his Question. I am not privy to the content and detail of the article to which he refers, and even if I were, I would be reluctant to comment. As the noble Lord is aware, an internal United States investigation is now taking place and the broader issue is now the subject of investigation by the United States criminal justice system and is sub judice, therefore I am unable to comment further on that. On data breaches, our MoD takes information and data-handling responsibilities very seriously. Following previous investigations, we have introduced measures to prevent breaches recurring—that is a targeted campaign of re-education and retraining. It might be helpful to the noble Lord to know that, for example, when I log on to my MoD desktop I am now immediately presented with an automatic message about keeping equipment safe, and we are now unable to send an email on MoD equipment without being prompted to add a sensitivity label. I must say that that makes me think very carefully about what I am sending and to whom I am sending it.

[Baroness Manzoor (Con)]

My Lords, I welcome the comments that the Minister made regarding some of the improvements. However, given the seriousness of the security breaches which have occurred within our MoD, what further improvements can she highlight today that have been made to combat this happening again?

[Baroness Goldie (Con)]

I think the most uncomfortable security breach for the MoD was in 2021, when papers were left at a bus stop. Following that event, the Secretary of State sent a metaphorical dose of syrup of figs through the department. That involved re-education and retraining, with an online security test to be sat, in which Ministers had to participate—I shall not share the results with the Chamber but it was a very pertinent wake-up call—and random bag searches were introduced in the main building for people accessing and leaving the department. I would also say to my noble friend that a risk assessment/risk evaluation exercise, introduced before the security leak in the United States of America, is currently ongoing, and that will be an important contributor to how we can improve further.

[Baroness Smith of Newnham (LD)]

My Lords, in the other place Dan Jarvis asked the Minister whether he was able to give assurances that data on our Armed Forces held by private sector contractors was fully secured. The Minister said that he assumed so but would go away, find out and write to Mr Jarvis. Can the Minister inform this House whether there is yet an answer to the question? If such data is not securely held, what work will the MoD be doing to ensure that security is improved?

[Baroness Goldie (Con)]

I do not have the response which my right honourable colleague promised in the other place, but I undertake to ensure that a copy is forwarded to the noble Baroness whatever that response is. Our private contractors operate under a very strict regime, not just in terms of vetting the people they have who have access to sensitive material, but also, in terms of undertakings, those individuals must comply with the Official Secrets Act and with the rules, protocols and all the security practices which we expect. There have been instances where these have been breached and prosecutions have ensued. Therefore measures are in place, but I will make the further detail promised by my right honourable friend in the other place available to the noble Baroness.

[Lord Anderson of Swansea (Lab)]

My Lords, the leaks reveal the US assessment that there will be an imminent vulnerability of Ukraine to Russian aircraft. What lessons have we learned in terms of early provision of aircraft and countermeasures to Ukraine?

[Baroness Goldie (Con)]

As I indicated yesterday in responding to a question about Ukraine, we are working in lockstep with our allies through forums such as the G7 and NATO and efforts such as the UK-led International Fund for Ukraine to get Ukraine the firepower it needs to rapidly regain its territory. We are in daily contact. Tomorrow the Secretary of State for Defence will be at Ramstein, the airbase in Germany, at a meeting hosted by the United States. We are also anticipating the NATO summit in Vilnius in July, and we have constant bilateral engagement with our other partners. Everything is being done to ensure that we can respond as meaningfully as possible to what Ukraine thinks it needs.

[Lord Craig of Radley (CB)]

Media reports suggest that the individual originally responsible is an American of considerable youth who still had access to a great number of very sensitive files. Can the Minister confirm that that indeed is the case and further confirm, as regards the Ministry of Defence and our coverage, that it is not as exposed as the American one seems to have been?

[Baroness Goldie (Con)]

I can confirm to the noble and gallant Lord that the American criminal justice system has identified an individual, who I understand has been arrested and I presume is detained. On sharing information within our own MoD, we are very careful about where that information is, where it is stored and to whom it is transmitted. As I said in response to an earlier question, very detailed procedures are now in place to ensure that the correct balance is struck. We have to be careful not to obstruct this vital sharing of information, which may be incredibly important to inform discussion and decisions, while ensuring that we balance that with the need to store and manage the transmission of material responsibly and securely.

[Lord Foulkes of Cumnock (Lab Co-op)]

My Lords, given the increased threat from Russia, including recently in the Moray Firth area, which the Minister may wish to comment on, as well as from China, Five Eyes co-operation is even more important. Can the Minister give us an assurance that this unfortunate incident in the United States will not undermine and reduce our Five Eyes co-operation?

[Baroness Goldie (Con)]

I thank the noble Lord. On the Moray Firth, we have been careful to ensure that our surveillance of maritime activity by Russia is extensive, and we take the security and resilience of our national infrastructure very seriously. As the noble Lord will be aware, we have increased Royal Navy presence patrols and have invested £65 million in the first of our two multi-role ocean surveillance ships. On the relationships with our important allies such as Five Eyes, other NATO partners or other security organisations, going back to the question from the noble and gallant Lord, Lord Craig, we are absolutely clear that our ability to protect our own sovereign states and to act in concert to protect global security depend on acquiring and sharing sensitive information. We all understand the importance of that, but equally we all understand the obligations which attach to it, and the balance to which I refer is one of which all our allies and partners are cognisant.

[Lord Bellingham (Con)]

My Lords, further to the question from the noble and gallant Lord, my former constituent, the point he made goes to the absolute core of this crisis. The perpetrator, Jack Teixeira, was 21 years old, an airman in the Massachusetts Air National Guard, hardly a key unit at the very heart of the fight against terrorism and the war in Ukraine. He had access to top secret files and substantial Five Eyes intelligence but was a very junior official. Can the Minister make it clear that our Government will do all they can to impress upon the United States and Five Eyes partners that allowing this type of security intelligence to be dealt with by someone so junior is incredibly concerning?

[Baroness Goldie (Con)]

I do not think anybody would disagree with my noble friend’s assessment. As he will be aware, the Secretary of State for Defence was scheduled to be in Washington—that had been prearranged—but an opportunity will be taken to speak directly about this issue. As always with cases like this, there is something which every state can learn, whether it is a state directly involved or a partner or ally of that state. The gravity of what has happened is completely understood, and certainly we are very sensitive to that within our own MoD. I have indicated some of the measures that have been taken and, following the American incident, our Permanent Secretary immediately instigated action to check that the highest standards were being observed.

Chinese Police Stations in the UK

Thursday 20th April 2023 Lords Chamber

Announcement

The following Answer to an Urgent Question was given in the House of Commons on Wednesday 19 April.

“The latest reporting in the Times on the so-called overseas police stations is of course of great concern. As my right honourable friend the Minister for Security said in his previous Statement on the matter in November last year, investigations by the law enforcement community are ongoing, which limits what I can say in the House about a live investigation into a sensitive matter. As Members will appreciate, I do not want to say anything that would jeopardise any operational investigations or indeed any potential future prosecutions.

I will, however, take this opportunity to reassure the House of the Government’s resolve to protect every community in this country from transnational repression. Protecting the people of the United Kingdom is of the utmost importance. Any attempt to coerce, intimidate or illegally repatriate any individual will not be tolerated. That egregious activity is part of a wider train of authoritarian Governments—not just China, but others—perpetrating transnational repression in an effort to silence their critics overseas, undermine democracy and the rule of law, and further their own narrow geopolitical interests.

Through our police forces and the intelligence agencies that work with them, we take a proactive approach to protecting individuals and communities from threats. Where we identify individuals who may be at heightened risk, we are front-footed in deploying security measures and guidance where necessary.

The upcoming National Security Bill will strengthen our powers to deal with transnational repression and with agents of foreign states more generally. Coercion, harassment or intimidation linked to a foreign power will be criminalised under the new foreign interference offence in that Bill. Existing criminal offences against a person, such as assault, will in future command higher sentences where they are undertaken at the behest of a foreign power through the state threats aggravating factor in that Bill.

The National Security Bill will also introduce a new foreign influence registration scheme, and we will not hesitate to use those new powers to bear down on the activities of foreign entities of concern. The Bill will return to this House in early May and I call on all honourable Members to support it when it does.

It is clear, however, that we can and must do more. That is why the Prime Minister asked my right honourable friend the Minister for Security to lead a new defending democracy taskforce, a key priority of which is to enhance our response to transnational repression. That work is ongoing and he will provide an update to the House in due course. It builds on the work done by his ministerial predecessor, my right honourable friend the Member for East Hampshire, Damian Hinds, who I see is in his place. I am clear, as are the rest of the Government, that the repression of communities in the UK will not be tolerated and must be stopped.”

11:59

[Lord Ponsonby of Shulbrede (Lab)]

My Lords, yesterday in the Times newspaper there was a report into a Chinese businessman with links to an alleged Chinese secret police station in Croydon. This report raises serious questions about national security. This businessman, who has attended Chinese Communist Party political conferences, has also attended organised Conservative Party fundraising dinners and other events involving former Conservative Prime Ministers. Although we have raised this issue here before, after police stations were reportedly uncovered in Hendon, Glasgow and Croydon, we have received no update. Meanwhile, operations in New York and the Netherlands have taken action against Chinese police operations, and the Canadian and German Governments have expressed concern about operations in their countries.

Here, we have to contend with the additional dimension that one individual who has been linked to an operation here has links with the Conservative Party and has met Ministers. We know that the director-general of MI5 has warned that Chinese authorities are attempting to exert influence over our political system. Can the Minister tell us the extent of the contact this individual has had with Ministers? What action are the Government taking to look into this role within the Conservative Party and the involvement he has had with the Government? Have any other individuals connected with these operations been identified, and are their similar concerns about them seeking to influence British politics?

[The Parliamentary Under-Secretary of State, Home Office (Lord Sharpe of Epsom) (Con)]

My Lords, I share the noble Lord’s concern about this threat to our democracy, but as the Security Minister said in a previous Statement on this matter in November last year, investigations are still ongoing and it would be inappropriate for me to comment any further on operational matters, as to do so could obviously jeopardise future prosecutions.

However, I take this opportunity to reassure the House of the Government’s resolve to protect every community in this country from transnational repression. As regards the internal party aspects of this, it is my understanding—and if I am wrong, I will obviously come back to correct myself—that this individual was prominent in a particular Chinese organisation within the Cities of London and Westminster. Beyond that, I do not think he had any involvement or contact with Ministers, and, as all noble Lords around the House know, prominent politicians are featured in photographs with very many people, most of whom they will not know.

[Lord Wallace of Saltaire (LD)]

My Lords, I recognise that it is difficult to comment on this immediate case. Therefore, I raise some slightly wider questions. China is not the only authoritarian state which attempts to catch up with and influence its nationals here. We all recall the occasion when a member of the royal family of one of the Gulf states was taken off the streets in Cambridge and taken back to the Gulf states. Can the Minister assure us that other states and their behaviour in Britain—including some with whom we are relatively closely allied, such as the Gulf states—are also in scope and that the Government are concerned about that?

Secondly, universities have a particularly sensitive role here—I speak as a former academic. Last year, one vice-chancellor told me that his biggest single problem in maintaining free speech in his university was keeping the peace between his Hong Kong students and his Chinese mainland students. I put that down as a marker for further discussion. The Defending Democracy Taskforce was mentioned several times in discussion in the other place yesterday. I tried to find out exactly what it is covering, how far it is intended to have some cross-party representation and what its plans are. It is very difficult to find out whether it really exists, how often it meets, what it is doing and what its strategy is. At a later stage, could the Minister’s department communicate to some of us what the Defending Democracy Taskforce’s intentions are?

[Lord Sharpe of Epsom (Con)]

The noble Lord raises a couple of very good points. Obviously, any attempt to coerce, intimidate or illegally repatriate any individual will not be tolerated; it does not matter where they are from. The Higher Education (Freedom of Speech) Bill and the National Security Bill both contain provisions to ensure that universities have the tools they need to deal with interference and threats to academic freedom. The noble Lord is quite right to draw the House’s attention to the Defending Democracy Taskforce, which my right honourable friend the Security Minister introduced in the other House in November last year. He has been asked for updates; I have not seen him since those were asked for, but I will make sure that the representations from this House, as well as the other place, are understood. I can also commit that higher education falls within the remit and scope of the Defending Democracy Taskforce, so there will be more to be said on that matter. Noble Lords will also appreciate that there are a number of other areas, including, as I said, the National Security Bill, where we will tighten up our ability to respond to some of these issues.

[Lord Deben (Con)]

Does my noble friend accept that in a democracy, it is very important that Ministers and Members of Parliament are available to the public as a whole, and it would be a great sadness if this kind of allegation, proven or unproven, becomes a way to ensure that people are unable to reach to the heart of government, as they ought? I hope the Government will continue to state that those who are malefactors should of course be prosecuted with great urgency; but it is very important that those who merely wish to get people in government to understand what is happening in the world—frankly, it is not always obvious that the Government know that—should have access.

[Lord Sharpe of Epsom (Con)]

I agree with my noble friend. As I said earlier, it is very difficult for any prominent politician of any party, within or outside government, to know precisely who is appearing in a selfie with them. We should be very cognisant of that fact. I also agree that if subsequent bad behaviour, illegal behaviour, is discovered, whatever it may be, the full force of the law should be brought to bear.

[Lord Anderson of Swansea (Lab)]

My Lords, I concede that the investigation is at an early stage, but is it the Government’s working assumption that this phenomenon is not confined to Croydon and there are other such so-called police stations around the country—looking particularly, I would guess, at Chinese students in the UK?

[Lord Sharpe of Epsom (Con)]

My Lords, again, it is difficult for me to comment on ongoing matters, but the noble Lord on the Opposition Front Bench mentioned a couple of other police stations that have been aired in the public domain in the past, so yes, it is fair to say that there is more than just one.

[Lord Hannan of Kingsclere (Con)]

My Lords the advance of autocracy in China since 2012 has been vertiginous. We have seen the creation of a panopticon state where face recognition and location technology are fused to follow and monitor every citizen, and where big online platforms such as Alibaba, Weibo and Tencent both proselytise for the regime and spy on its behalf. Although we often talk of it as Orwellian, I think a better metaphor would come from Huxley, in the sense that even when Chinese students in western universities are put in a place where they do not have censors and firewalls to worry about, they still tend not to look at “dangerous” websites. Will my noble friend confirm that one thing we can do to promote democracy in China is to support the China where democracy and freedom have advanced, especially since the 1990s, namely, Taiwan: a China on the doorstep of red China which shares its language and culture but rejects its totalitarianism?

[Lord Sharpe of Epsom (Con)]

My noble friend asks a very good question. The UK’s long-standing policy on Taiwan has not changed: we have no diplomatic relations with Taiwan but a strong unofficial relationship which is based, as my noble friend said, on deep and growing ties in a wide range of areas and is certainly underpinned by shared democratic values.

[Lord Foulkes of Cumnock (Lab Co-op)]

My Lords, can the Minister give more details about the situation in Glasgow? Scottish universities are taking in students from China to raise income because there are no fees from Scottish students, and some strange people from China may be getting in under the guise of being students. The Scottish Government have a very strange contract with a Chinese company that is causing grave concern among the public in Scotland. The Scottish Government have been trying to take a greater role in foreign affairs, without the kind of support that the Home Office and Foreign Office have from our intelligence agencies. Can the Minister give an undertaking that the UK Government will talk to the appropriate Scottish Ministers about this issue and make sure that they are dealing with it efficiently and safely?

[Lord Sharpe of Epsom (Con)]

The noble Lord will appreciate, as I said before, that I am unable to comment on ongoing operational matters and investigations. I listened carefully to what he said, and rather than make that commitment regarding the devolved Administration myself, I will certainly ensure that my noble friend Lord Offord is aware of his concerns and suggest that he looks into them.

Levelling-up and Regeneration Bill

Committee stage
Thursday 20th April 2023 Lords Chamber

Committee (10th Day)

Relevant documents: 24th and 31st Reports from the Delegated Powers Committee, 12th Report from the Constitution Committee

12:10

Amendment 240

Moved by

[Lord Berkeley]

240: After Clause 93, insert the following new Clause—
“Cycling, walking and rights of way plans: incorporation in development plans(1) A local planning authority must ensure that the development plan incorporates, so far as relevant to the use or development of land in the local planning authority’s area, the policies and proposals set out in— (a) any local cycling and walking infrastructure plan or plans prepared by a local transport authority;(b) any rights of way improvement plan.(2) In dealing with an application for planning permission or permission in principle the local planning authority shall also have regard to any policies or proposals contained within a local cycling and walking infrastructure plan or plans and any rights of way improvement plan which have not been included as part of the development plan, so far as is material to the application.(3) In this section—(a) “local planning authority” has the same meaning as in section 15LF of PCPA 2004;(b) “local transport authority” has the same meaning as in section 108 of the Transport Act 2000;(c) a “rights of way improvement plan” is a plan published by a local highway authority under section 60 of the Countryside and Rights of Way Act 2000.”Member's explanatory statement
This new Clause would require development plans to incorporate policies and proposals for cycling and walking infrastructure plans and rights of way improvement plans. Local planning authorities would be required to have regard to any such policies and proposals where they have not been incorporated in a development plan.

[Lord Berkeley (Lab)]

My Lords, it gives me great pleasure to start this day in Committee by moving Amendment 240. I shall also speak to the other amendments in this grouping.

I am very grateful for the support of the noble Lord, Lord Young of Cookham, the noble Baroness, Lady Randerson, and my noble friend Lord Hunt of Kings Heath, who apologises for not being here today. This amendment has the support of the Bicycle Association, Bikeability Trust, British Cycling, Cycling UK, Living Streets, Ramblers and Sustrans. I think you can say that that support basically includes the Better Planning Coalition. Its purpose is to ensure that the various walking and cycling network plans and rights of way drawn up by county councils or combined authorities are incorporated into local planning authorities’ development plans and are reflected in their planning decisions. This would help to safeguard land for new walking and cycling routes or rights of way, including disused railway lines, improve existing routes, and ensure that developments connected with existing or new walking, wheeling or cycling networks with secure development contributions are introduced. This came to a head within the last six months, when National Highways was caught filling in disused railway bridges with concrete to prevent them from being used in the future as footpaths or cycleways, for example. I am grateful that there has been a pause put on that. I hope that it stays a pause, because it was a very stupid decision with no benefit whatever.

This amendment addresses the problems of local planning authorities that sometimes, wittingly or unwittingly, frustrate a higher tier authority’s aspirations for walking, cycling and rights of way by not recording these network aspirations in their development plans. That means that they are not safeguarding the land for these networks or to connect new developments with existing networks for secure developer contributions to implement or upgrade specific routes. There is much discussion going on about all these issues, but it is very important that this covers what is happening now and what might happen in future. The biggest problem is when we have two-tier authorities—county councils or combined authorities, and district councils. In one case, one part of a unitary authority commissioned Sustrans to assesses the feasibility of reopening a disused railway line as a walking and cycling route, while another part of the same authority gave permission for a housing development which blocked the route. There is no point in doing this; it wastes a lot of time and seriously affects the people who want to develop cycling or walking routes.

Local transport authorities have a duty to prepare a statutory local transport plan. They are also responsible for drawing up one or more non-statutory local cycling and walking infrastructure plans. That is all a bit of a mouthful, but really important. Usually it is the same body, but for each one it is required to draw up a statutory rights-of-way improvement plan for its area. We probably all have examples in our own areas of rights of way not being taken very seriously—and we will talk about that later—but all these things need co-ordination.

The Government have argued that our concerns about this lack of co-ordination would best be addressed through the NPPFs, rather than through legislation. My worry is that the current NPPFs, which are still in proposed revisions, mention these local cycling, walking and infrastructure plans only in passing, leaving out the right-of-way plans altogether. This results in developments being granted permission without taking into account the need for walking and cycling or improving these links. I call it active travel—it is a bit shorter. I am sure that the Minister will take this amendment seriously, and I hope that she gives me a nice positive response to it and says that perhaps we can have further discussions and see what happens.

My Amendment 470, on electric vehicle charging, is quite a short amendment. It requires a change to the Electricity Act, for the Government to facilitate or accelerate the rollout of electric vehicle charging points for domestic and commercial customers. We have discussed this in your Lordship’s House quite a few times. A few statistics really worry me, frankly. First, the Government have a target of 300,000 public charging points by 2030, and there is a long way to go before we get there. Interestingly, a Written Answer from the Minister on 29 March to the noble Lord, Lord Taylor of Warwick, stated that the number of installations were 8,600 public charging, 71,000 electric vehicle home charge schemes, and very few electric charge point sockets and grants, while workplace had 15,000.

Another telling Written Answer, to the noble Baroness, Lady McIntosh of Pickering, on 21 March, stated that

“the majority (around 75%) of electric car charging happens at home, as it is often cheaper and more convenient for drivers.”

I am sure that the Minister is right, but the problem is: how many people have home charging? I expect many noble Lords here have home charging, if they want it, but there are an awful lot of people in this country who park on the road and, if they want to charge their cars, they will have to get it off a lamppost.

Another Written Answer from the Minister said that there was no national data on how many lamppost chargers were available. If we do not know how many are available, we do not know who wants them, and we do not know where the public ones are, where do you charge your heavy goods vehicle or coach? Who will fund them? Most important of all, what about the regulation of chargers? There is a lot for the Government to do to meet their target of 300,000 charging points by 2030.

Finally, I support the amendment tabled by the noble Baroness, Lady Randerson, on the same subject. I am sure that she will tell us a great deal more of it. I beg to move.

[Lord Young of Cookham (Con)]

My Lords, in this debate on transport, it is a pleasure to follow in the slipstream of the noble Lord, Lord Berkeley, and add some footnotes to his speech on Amendment 240.

Before I turn to the amendment, I will say a word about the target of 300,000 EV chargers. Some chargers are fast chargers and some are slow chargers. At some point, we need to define more accurately the division of those 300,000. If they are all slow chargers, that will not do the trick. If they are fast chargers, we may not need quite so many. So a bit of granularity on that target at some point would be welcome.

Researching for this debate, I came across a government document stating that

“continuing growth in road transport and consequential environmental impacts present a major challenge to the objective of sustainable development. Traffic growth on the scale projected could threaten our ability to meet objectives for greenhouse gas emissions … and for the protection of landscapes and habitats”.

I should have recognised it instantly, as it was in a document that I published nearly 30 years ago when I was Planning Minister. It was PPG13, which offered advice to local authorities on integrating land-use planning and transport. Its object was to reduce reliance on the car by promoting alternative means of travel and improving the quality of life.

I note in passing that I referred to the then Government’s policy of increasing the real level of fuel duty by an average of at least 5% a year—a policy now very much in the rear-view mirror—and also my commitment to introducing electronic tolling on motorways. Back in 1993, I was clearly a little bit ahead of the game.

Amendment 240 could almost have been lifted from PPG13. It promoted development within urban areas at locations highly accessible by means other than the car, and it supported policies to improve choice for people to walk, cycle or catch public transport, rather than drive between homes and facilities that they need to visit regularly.

I also came across an article in the Independent from 10 July 1995, when I became Transport Secretary and continued my campaign. In an open letter to me, Christian Wolmar wrote:

“When your appointment as Transport Secretary was announced, the whoops of joy from cycling campaigners could be heard across the nation. The notion of having a Transport Secretary who is not only an active member of Friends of the Earth but also an active cyclist and tandem rider was beyond their wildest dreams”.


So, the Minister will not be surprised that, as middle age taps me on the shoulder, my commitment to environmental means of transport is undimmed.

The noble Lord, Lord Berkeley, set out the case for the amendment, which I believe is even stronger than it was in the 1990s. I will not repeat it. I understand from the Government’s response to a similar amendment in another place that, instead of an amendment to primary legislation, the objectives to the amendment should be incorporated in a revised NPPF, as the noble Lord, Lord Berkeley, has just said. My response is that I tried that and it did not work. We need to be more assertive.

Paragraph 1.10 of PPG13 said:

“If land-use policies permit continued dispersal of development and a high reliance on the car, other policies to reduce the environmental impact of transport may be less effective or come at a higher cost”.


That is exactly what has been happening, as the Government’s own publication, Gear Change: A Bold Vision for Cycling and Walking, published in 2020, recognised. Despite the exhortation in that PPG and, I suspect, many other PPGs since, we have not seen the transformation in planning for transport that is required. We continue to build housing with little or no public transport provision, or where it is impractical to get to school, the shops or work without jumping into a car. We must up our game and cease relying on guidance.

The amendment also addresses the problem touched on by the noble Lord, Lord Berkeley, that has arisen in two-tier authorities, where, typically, the county council is the transport authority but the district council is the planning authority: if you do not have the commitment to walking or cycling networks recorded in the district plan, this can then frustrate the county’s ambition to promote cycling and walking networks—clearly an undesirable outcome.

The challenge to my noble friend, who I am delighted to see is replying to this debate, is to convince me that we should continue to rely on guidance, as I suspect my officials advised me to do in 1993, despite the evidence that it has not brought about the transformation that I aspire to. I wish her every success.

[Baroness Randerson (LD)]

My Lords, I am pleased to speak to a number of amendments in this group, to which my name is attached. This is, of course, a group of transport-related amendments. Like the noble Lord, Lord Young, I am very pleased to see that we have the Transport Minister here to respond in detail to us, because all the warm words on levelling up are meaningless without decisive action to improve transport infrastructure and services. Poor transport facilities almost exactly mirror the overall picture of the social divide in our country: poorer areas have poor public transport and poor transport infrastructure generally.

There is a reason why London and the south-east are the richest parts of the UK: they have the transport links to service the areas well, and one reinforces the other. I say that while recognising of course at the same time that there is poverty and disadvantage amongst the most privileged.

I start with Amendment 240, to which I have added my name. The noble Lords, Lord Berkeley and Lord Young, have spoken in some detail, and with greater information than is necessary for me to repeat here today. But I want to endorse the fact that this has to be about broadening access to the activities of cycling and walking and safeguarding our rights of way: for many decades, we have been accustomed to the gradual erosion of the practicality of safe walking and cycling, and the erosion of our rights of way on footpaths. The car has been king for a very long time. If we are going to truly improve the quality of our lives and the lives of the generations to come, we need a much broader and more informed approach. In my own local area, I notice the cycleways that disappear into nothing at key junctions and so on. It is a skilled business to provide really good cycling and walking facilities.

Turning to Amendment 468, the intention here is to prioritise the requirements for disability access at rail stations. Progress on this has been painfully slow—way too slow. I use this opportunity to praise the work of the noble Baroness, Lady Grey-Thompson, and my noble friend Lady Brinton, who raise these issues time and again in the media and in this House. We live in an ageing society, and we should be much more encouraging to those people who are less mobile but who want to travel by rail or bus. So this amendment goes way beyond the simple issues of wheelchair access, access for those with sight impairment and so on. It is about access for people who are less agile.

However, treatment is far from being on an equal basis for those people in wheelchairs. As a regular rail traveller myself, I watch this week after week. Despite huge efforts by the staff, there is still so much further to go. We have to ensure that people do not have to book way ahead in order to be able to make a simple journey.

12:30

I ask a very specific question: why are new facilities still being built which are not fully and easily accessible for people who cannot run up a flight of stairs? There was recently publicity about Network Rail bridges being built which were not fully accessible.

An example I have used before is Pokesdown station in Dorset, which is quite a busy station. It is in the Bournemouth conurbation. When the contract was given to the then new train operating company, which I think must be about five years ago, I asked specifically about plans for a passenger lift at that station because it has an extremely long and steep flight of stairs to both platforms. I was told then that the passenger lift was imminent. I made the point that it was unstaffed for much of the day while trains were coming and going. It remains “imminent”—or possibly not imminent—and, of course, it remains inaccessible for anyone less than fully agile. This is even more frustrating because there is an apparently disused goods lift. There is a shaft and there is potential for a lift already built. There must be dozens of examples like that throughout the country.

Finally, I turn to Amendments 470 and 486, which look at the future of electric vehicles. I am very concerned that the charging infrastructure is already developing with inbuilt inequality. The noble Lords, Lord Berkeley and Lord Young, raised very important issues. I will not repeat the details and statistics given to us, but I would say to the noble Lord, Lord Young, that, as well as standard rate and fast chargers, there are also rapid chargers. He has pinpointed a key issue: the level of awareness among all of us about the difference in the provision from one area to another.

[Lord Berkeley (Lab)]

Could the noble Baroness explain whether rapid or fast is the faster of the two?

[Baroness Randerson (LD)]

Rapid is faster than far, but that would not be obvious to the average local public sector employee whose job it is to ensure that there is adequate infrastructure for EVs.

My Amendment 486 requires the Government to update us regularly on their strategy to improve the charging network. It particularly refers to the discrepancies across the country. The discussion often relates to the pure numbers of charge points, but just as important are two different factors. The first is the adequacy of the numbers available in public places. The noble Lord, Lord Berkeley, has made that point. Currently, EV ownership is concentrated among more affluent people—those with drives and who can therefore have chargers attached to their homes. We cannot have an EV revolution that is only for the rich. People who live in terraced houses and in flats must also be able to own EVs. As the revolution plays out and a second-hand market develops for electric vehicles, this becomes an ever more pertinent point. The second factor is that the Government have emphasised time and again that they believe that the market will adequately take care of the provision of charge points, but the figures do not bear that out. London and the south-east have a far more generous ratio of electric vehicles to public charge points than any other part of the UK.

My conclusions are that particular problems need to be addressed. The first is the disparity in cost between home charging and public charge points. If you charge at home, you pay 5% VAT; if you charge in a public car park, a public place or from a lamppost, you pay 20% VAT. That reinforces the unfairness. I urge the Government to deal with the issue soon as otherwise it will hamper any of their best intentions on this issue.

The second conclusion is that the Government must work much harder to increase support and funding in areas that have large gaps in their electric vehicle infrastructure. They are often towns in poorer areas and, of course, almost every rural area. Local authorities have a key role in this but often need greater advice because officials do not know the difference between fast and rapid and so on. They need not just money but support and advice to help them, otherwise EVs will remain vehicles for rich areas and poorer areas will remain subject to suffering from poor air quality.

My final point on this is that the Government simply must address the delays in national grid connection. They are hampering the whole thing which is totally inadequate to service the revolution that needs to take place.

In relation to Amendment 48 from the noble Baroness, Lady Bennett, I live in Wales. This week, 20 miles per hour became the default speed limit throughout the country. I live in Cardiff, where it has been the default speed limit for some time, and we have all—more or less—got used to it. The traffic flows more smoothly.

[Baroness Bennett of Manor Castle (GP)]

My Lords, I guess I should rise at this point to follow with pleasure the noble Baroness, Lady Randerson, who made a point that I was going to make. I note that in Scotland, they are going for 2025. This is a case where England urgently needs to catch up. I will primarily speak to Amendment 482. It is very simple:

“for “30” substitute “20”.

This is a “20 is plenty” amendment. I am going chiefly to speak to that, but I note that this is a very neat and fit group of amendments.

We express Green support for Amendment 240. We obviously need to get active transport joined up to make preparation to make sure that it happens. Also, we support Amendment 486 from the noble Baronesses, Lady Pinnock and Lady Randerson, on disability access in railway stations. Of course, we broadly agree with electric vehicle charging points. However, on the interaction between these two issues, we have to make sure that where vehicle charging points are installed on roads, they do not make the pavements less accessible, particularly for people with disabilities, with strollers and other issues. The space should be taken from the road and cars and not from pedestrians.

Returning to my Amendment 482, this would make the default general speed limit for restricted roads 20 miles per hour. Among the many organisations recommending this is TRL, formerly the Government’s Transport Research Laboratory. Going from the local to the international, there was of course the Stockholm Declaration, adopted by the UN General Assembly in 2020, which recommends 20 miles per hour speed limits where people walk, live and play. That is the global standard that the world is heading towards, and we really need to catch up on this. I can see much nodding around your Lordships’ House. I am sure many noble Lords know that pedestrians are seven times more likely to die if they are hit by a vehicle travelling at 30 miles per hour compared with 20 miles per hour. If they are aged 60 or over, they are 10 times more likely to die when hit by a vehicle at 30 rather than 20.

Noble Lords might say this is the levelling-up Bill rather than general provision, but to draw on just one of many reports that reflect on this issue, Fair Society, Healthy Lives: the Marmot Review says that targeting 20 miles per hour zones

“in deprived residential areas would … lead to reductions in health inequalities”.

However, there is, of course a problem. The Marmot report was looking within the current legal framework for travel, but it is extremely expensive to bring in local areas of 20 miles per hour speed limits. There needs to be local signage and individual traffic regulation orders, and then presumably, if there is to be some hope of compliance, there needs to be an education campaign. All of those things cost money, and councils in some of the poorest areas of the country will find it most difficult to find those funds.

If we think about some of the other impacts, as well as road safety, 20 miles per hour speed limits where people live, work and shop reduce air pollution and noise pollution. These are things that particularly tend to be problems in the most deprived areas. The wonderful 20’s Plenty for Us campaign that has been working on this for so long, and increasingly effectively, notes that there is a 30% reduction in fuel use with “20’s plenty”, so it saves people money as well—something of particular interest to the most deprived areas of the country.

This is a very simple measure, by which we could catch up with other nations on these islands and really make an improvement to people’s lives, health and well-being. I have focused on the practical health impacts, but the reason this group of amendments fits together so well is that, if you want to encourage walking and cycling, then ensuring that the vehicles on the road travel more slowly is a great way to open up the entire road network to cyclists and walkers. Of course, it could also build communities: the reduction in noise pollution gives neighbours more of a chance to chat over the garden fence and build those communities that we desperately need.

[The Earl of Lytton (CB)]

My Lords, my name is attached to Amendment 470 in this group, and it is a particular pleasure to follow the noble Lord, Lord Berkeley, on this. I would like to say a few words about the question of footpath access that he addressed initially. It seems to me—and it was amply spoken to by the noble Lord, Lord Young of Cookham—that this is part of the essential infrastructure that enables people to have what used to be, and I hope still is, known as multi-modal travel opportunities. In other words, one has at least some sort of menu of options, and one is not just obliged to be in a motor vehicle. This goes to the heart of what we do about making sure that developments are both related to existing settlements, where these facilities are available, and do not become detached from that unless there is some particular reason—and then only when this infrastructure is put in. So I am very much in favour of that.

12:45

On the point made by the noble Baroness, Lady Randerson, about access for people with mobility difficulties, yes, I know all about that. My local railway station is associated with a very large school complex, and there is not much in the way of housing there, although there is a retirement development, surprisingly—otherwise, you might say it was in the middle of nowhere. Those who want to get to London who are not good at navigating stairs have to get on the coast-bound train—in other words, the train going in the opposite direction—and change at the next station down, where there is at-grade access. They must come off on the coast-bound platform, wheel themselves if there are in a wheelchair, or cross using a walking frame or whatever else, over the level crossing when the train has stopped straddling the level crossing—which is what the train often does because the platform is too short—and then they go round to the other platform. There is of course a bridge, but of course that is another lot of steps. Thankfully, the train schedule is so organised that people do not have to wait two trains hence in order to catch the one back up to London, which is where they first wanted to get to. So I am familiar with this.

On the issue of railways, there has been a great move in my part of West Sussex to try to close off footpaths that cross over railways at what are called unguarded crossing points, because there have been one of two very serious and tragic accidents involving those. Of course, it is a bit difficult, because where do you reroute the path to in order to make it convenient? At one stage, when I was chairman of the Rights of Way Review Committee—a collective of non-governmental and voluntary organisations of one sort or another—I rather blotted my copybook because I tried to get across the message that we must not be fossilised in our views about the rights of way system; we have to make a transition towards something that is fit for purpose today. I ran into issues with people who thought that legacy rights of way must be retained at all costs. I think they were disturbed to find that I was not entirely at one with them on that, in the sense that I felt that, if some that were not that important could be given up, there would be a better chance of getting ones that were needed and accorded with modern practice. When we are talking about users of these things, let us not forget that it is not just cyclists and walkers but people with children in buggies who need to get to and fro—in particular on what I would call the fringes of development areas. It is vital that there is access to open countryside, and if we do not have this network then it does not work.

However, I digress, because the amendment to which I added my name is to do with charging points. I am not an expert on this and I do not have an electric vehicle, but I have tenants who, every now and again, ask about electric vehicles. One of the chief problems is that a fast charger—I do not know if it is “fast” or “rapid”, but it is one of them at any rate—requires a three-phase electricity feed. I do not have that and, indeed, I am at the limit of what can be drawn off a pole transformer that is on the property. When I asked about bringing three-phase in, the chap from UK Power Networks or whatever it was said he did not even want to tell me what it would cost. He said it was absolutely eyewatering and he did not tell me what it would cost, but I imagine it was several tens of thousands of pounds just to bring in a third cable overhead and provide a new network.

The noble Baroness raised a more acute point to do with the overall capacity. There is a lot of demand queuing up for this because, if we are talking about electric vehicles that is one thing, but if we are decarbonising people’s heating in their homes that is another thing altogether. I remember, not so long ago, quizzing the noble Lord, Lord Berkeley, about what this meant in terms of the additional demand on the grid—it was pretty substantial. We are not anywhere near that, either in the generating capacity or the distribution system on the network.

So we are a tad behind the curve, and the only way that I can see to deal with that is having a much more comprehensive approach. That is due to be, or has been, discussed in the context of the Bill, which looks at decentralised generation of one sort or another, so that we can somehow get more capacity back into the system. This is a great problem because, if you want to charge your car in 40 minutes, for example, that requires a lot of power going into the charging unit. If you just want to do it overnight, via a 13-amp extension lead from your living room, that is another matter altogether. So I appreciate that getting this right and getting more granular, in the terms of the noble Lord, Lord Young of Cookham, is vital, or else we will lose sight of this and try to cater to one thing when, in fact, there is a basket of other things. So I am very supportive of this.

The only amendment I have not spoken to is that of the noble Baroness, Lady Bennett of Manor Castle, who is right: where there are 20 mph limits, the traffic often does flow more quickly. On the other hand, there are areas with 30 mph limits that should probably be retained, unless you get complete gridlock; one thinks of arterial routes into towns. But that is possibly a debate for another day, and I doubt that the noble Baroness would necessarily agree with my analysis.

[Baroness Pinnock (LD)]

My Lords, I was reflecting that we have barely mentioned levelling up in the last two Committee days. Yet my noble friend has helpfully raised the importance of relating everything we do to the levelling-up missions, which include references to accessible public transport in order to enable accessibility to employment. That was timely.

My name is on Amendment 468, which is about accessible railway stations. I will not repeat what my noble friend said because I cannot add anything, except that I endorse her praise of the work of the noble Baroness, Lady Grey-Thompson, and my noble friend Lady Brinton, and their consistent determination to keep accessible public transport at the forefront of our thinking. If public transport is accessible to the least mobile, it is much better for everyone else, those who are mobile; it makes it better for everyone.

I will briefly speak to Amendment 240, in the name of the noble Lord, Lord Berkeley, because some planning issues are related to it. Everything he said is quite right. The NPPF, which we have mentioned several times, already has a policy on retaining public rights of way, cycle networks, bridleways and so on. Therefore, many local plans will incorporate them, including that of my own council, which

“will support development proposals that can be served by alternative modes of transport such as public transport, cycling and walking”.

The council says:

“The core walking and cycling network as shown on the Policies Map will provide an integrated system of cycle routes, public footpaths and bridleways that provide opportunity for alternative sustainable means of travel throughout the district and provide efficient links to urban centres and sites allocated for development in the Local Plan”.


I thought that all local plans would incorporate such policies, although, from what the noble Lord, Lord Young of Cookham, said, this is clearly not the case. He pointed to the division of responsibilities for highways between the counties and districts, for planning purposes. Therefore, when plan-making, I hope the Government will have a requirement—they may already have one, but if so, it needs to be underlined—to incorporate the highways policies of the responsible council concerned. That would solve at least one of the problems raised.

The fundamental problem with a lot of our planning development policies—I raised this in a different context on the last Committee day—is implementing them. As with my council, we can have grand and worthy policies on retaining the public rights of way network, cycleways, bridleways and all the rest of it, but when that comes up against commercial development interests, I can tell noble Lords now that those interests always win. We have to find a way of balancing that better.

Of course, if a public right of way goes through a commercial developer’s site, it will want to adjust it, but this always has to be in the best interest of the public right of way as well; however, that often does not happen. For example, a development site in my locality abuts the M62, and a historic public right of way went through the middle of it. Of course, the developer did not want to retain it, and the proposal was to divert it so that it ran along the M62. Who would use that? Some of us managed to get it put elsewhere on the site—but that is what we are up against. This is my plea to the Minister, and it is a big challenge for all the wonderful policies we have discussed: how can we ensure that they can be implemented when they are up against commercial interests? That is the key because currently, commercial interests have the upper hand in the end, and in my experience they always win.

Perhaps the Minister will be able to tell me that all new planning applications are required to have an electric vehicle charging point, because that would make sense. My council requires this. This could go into the NPPF, and, if it is not possible—because flats are being considered—there could be a requirement for public provision in the locality of the development.

My noble friend Lady Randerson raised a big challenge about the differential VAT charges. This is outrageous: I had not realised that public charging points have higher VAT attached to them than domestic ones. If we are really going to encourage electric vehicle use, which we must, surely a tax incentive is one of the ways to do so. With those words I look forward to what the Minister says.

13:00

[Baroness Taylor of Stevenage (Lab)]

My Lords, I support Amendment 240 in the names of my noble friends Lord Berkeley and Lord Hunt, the noble Lord, Lord Young, and the noble Baroness, Lady Randerson. Before I turn to the specific amendments in this group, I will mention the very helpful discussion which took place in Grand Committee on Monday on the Built Environment Select Committee’s report on public transport in towns and cities. The committee’s recommendations were very helpful to our consideration of this Bill. I thank the chair of that committee, the noble Lord, Lord Moylan, and his predecessor, the noble Baroness, Lady Neville-Rolfe, the members of that committee and all those who gave evidence.

The Minister—the noble Baroness, Lady Vere—was part of that discussion so there is no need for me to go through all the points relevant to the Bill, which I am sure she will pass on to her colleagues in the Transport team and the DLUHC team. However, it was the overwhelming view of the committee and all noble Lords who took part on Monday that a formal link should be introduced between local plans and local transport plans. In view of the amendments in this group, it is important to record that strongly held view today.

Can I say how much I agree with the noble Baroness, Lady Randerson, about the importance of transport to the levelling-up agenda? Like the noble Lord, Lord Young, and the noble Baroness, Lady Randerson, I too am very pleased to see the Minister responsible for transport here today to respond to the debate. As the fortunate resident of a town designed with 45 kilometres of cycleway built into it, it is unthinkable to me that planning for cycling and walking, and considering at local plan stage the infrastructure needed to support that, would not be in the Bill and intrinsic to the planning for our communities. If this amendment is accepted—I really hope it will be—then the subsequent NPPF or whatever is going to succeed that will need to take account of the anomalies that occur in these aspects of planning in two-tier authorities. My noble friend Lord Berkeley referred to that earlier.

Generally these can be resolved through good liaison between authorities, but consideration should be given, as responsibility for both transport and rights of way sit with county councils, as we have heard, whereas the local plan is the responsibility of the district council. It will also need to be clear in terms of rights of way improvement plans that the responsibilities for maintenance—should it be necessary—ransom strip land purchase and so on remain the responsibility of those authorities which currently hold them. To be clear, the fact that a planning authority includes them in its local plan does not necessarily incur any additional financial or legal responsibility for these matters than existed previously. Concerns about lack of co-ordination through the National Planning Policy Framework were referred to by my noble friend Lord Berkeley, and including this provision in the Bill might encourage authorities to work together where that is not the case already.

In relation to Amendment 468 in the names of the noble Baronesses, Lady Pinnock and Lady Randerson, I echo comments about the tireless work of the noble Baronesses, Lady Brinton and Lady Grey-Thompson. It is very important to clarify that this should apply to all railway stations, including retrospectively. I know that is a difficult issue and how it works together with other disability legislation, such as the Disability Discrimination Act, should be clearly identified. There are already some provisions in there but I do not think it goes as far as we would want it to and the proof of that is what we see in our local railway stations. We heard many of examples of that during the debate.

It is, of course, crucial that we do all we can to make our rail system accessible, safe and user-friendly for all passengers. Indeed, we will never make the quantum leap in switching from private car travel to public transport that we need to reach zero carbon without such measures. I come back to the Built Environment Select Committee’s inquiry into public transport, which has very clear recommendations on this subject. As the noble Baroness, Lady Randerson, said, progress has been painfully slow on this to date and we need a bit of a rocket under it to get it going again. The very helpful introduction of things such as senior railcards is of far less use if you need to navigate several flights of stairs to cross even from one platform to another.

Amendment 470 in the names of my noble friend Lord Berkeley, the noble Baroness, Lady Scott of Needham Market, and the noble Earl, Lord Lytton, requires the Secretary of State to facilitate the accelerated rollout of EV charging points for domestic and commercial customers. I strongly support this very laudable aim but there are still unresolved issues. First, as the noble Lord, Lord Young, and the noble Baroness, Lady Randerson, have both identified, we are already seeing inequalities develop in EV charging provision and we need to watch out for that very carefully, particularly in the context of the Bill.

Then there is the issue of technology and whether it is settled enough yet to encourage the considerable cost of a UK-wide rollout. Many of us in this Chamber will remember the issues around VHS and Betamax. That is the classic example of when, if you jump early to the wrong technology, it can be very expensive indeed. Many noble Lords referred to improvements in very fast charging facilities and the way that picture is developing so rapidly. It is difficult to know when that will settle. The noble Lord, Lord Young, referred to the difference between fast and slow chargers, and we need to make sure that we get the most up-to-date provision wherever it is possible.

Secondly, in terms of domestic provision, the complex issues referred to by noble Lords by this afternoon of on-street charging must be resolved. For those fortunate enough to have a drive or land at the side of their property where charging points can be installed, it is not such an issue, but if you live in a terraced street and in housing where that is not so easy to do, it is. The noble Baroness, Lady Bennett, rightly made the point that this should not interrupt easy walking access for residents. For properties with no adjacent parking, installation of EV charging points can prove expensive and very disruptive in terms of cable laying and so on. My noble friend Lord Berkeley raised this issue too; we have to be concerned about it. Lastly, I have a slight concern that giving this responsibility in legislation to the Secretary of State will simply result in it and potentially the resultant cost and headaches being transferred to local authorities. That is something we need to think carefully about.

I also agree with noble Lords who have said that National Grid really has to get its act together on this issue. Even in developments I have been engaged with in my own borough, it is very often National Grid that really holds things up on many of the measures that we want in levelling up and regeneration. We need to work on how National Grid can respond more quickly to these developments.

No doubt, all those issues could be considered and resolved and there is clearly an urgent need to accelerate the provision of EV charging. My noble friend Lord Berkeley mentioned 8,000 public charging points. This is woeful. The noble Lord, Lord Young, mentioned that this has been flagged up for over 30 years now. We can all remember talking about this many decades ago, so surely it is time now that we made urgent progress.

I turn now to Amendment 482 from the noble Baroness, Lady Bennett of Manor Castle. At the moment, some local authorities do a very good job of making the case to residents in their communities for reducing speed limits, and I pay tribute to campaign organisations such as 20’s Plenty for Us that are producing fantastic support on that. In addition to the points that have been made about it, I also mention that the reduction in pollutants at lower speed is a key issue here as well as the other benefits in noise pollution, safety for other road users and so on.

We believe that this is an area where decisions are far better taken locally so that benefits can be explained fully as the change is implemented. I pay tribute to Hertfordshire County Council, which has worked very closely across the county with local councillors and their communities to develop an evidence base, introduce consultation with members and the communities that they represent and then put appropriate funding allocation in place, first on a pilot basis and then more widely across the county. That is a very good example, and it was lovely to hear another example of how the Welsh Labour Government are leading the way in this respect.

Amendment 486 in the name of the noble Baroness, Lady Randerson, refers to the need for the Government to update Parliament on progress against their EV infrastructure strategy, which was published in March 2022. Irrespective of the comments I made earlier about the complexities of introducing EV charging, at the very least the Government should be delivering against the strategy they have set for themselves. The disparity in provision from place to place is as important as the sheer number of charging points available, so we certainly support the amendment.

[The Parliamentary Under-Secretary of State, Department for Transport (Baroness Vere of Norbiton) (Con)]

My Lords, I am very pleased to make my debut on the LURB. I am sorry that it has taken so long, but I may be back again in due course, should there be more transport amendments. Today, it is my job to address this group of amendments, which relate to transport; there are four, and I shall address each in turn.

I start with Amendment 240, in the name of the noble Lord, Lord Berkeley, which relates to cycling and walking and to the role of active travel in local development. I think that all noble Lords agree that the Government recognise the importance of walking and cycling and the role that the planning system plays in enabling development in sustainable locations, supported by active travel infrastructure. It is already the case that national planning policies must be considered by local authorities when preparing a local plan and are a material consideration in all planning decisions. The Bill does not alter this principle and will strengthen the importance of those national policies which relate to decision-making.

The existing National Planning Policy Framework is clear that transport issues, including opportunities to promote walking and cycling, should be considered from the earliest stages of plan-making and when considering development proposals. The NPPF also states that policies in local plans should provide for attractive and well-designed walking and cycling networks with supporting facilities, such as secure cycle parking, drawing on local cycling and walking infrastructure plans. The NPPF also places environmental objectives at the heart of the planning system, making it clear that planning should protect and enhance our natural environment, mitigate and adapt to climate change, and support the transition to a low-carbon future. The Government have recently concluded a consultation on changes to the NPPF to ensure that it contributes to climate change mitigation and adaptation as fully as possible.

I always react with some trepidation when my noble friend Lord Young of Cookham shares his thoughts with your Lordships’ House. He has an enormous amount of experience in this area—and, it would seem, in most areas of government. He challenged me to explain why we think the guidance will achieve our aims. I believe that it is more than just guidance; the NPPF and the new national development management policy set out the Government’s planning policies for England and how they should be applied. These are material considerations in planning decisions. The power in securing positive change for communities is substantial and should not be referred to as just “guidance”.

There is another step forward—perhaps slightly towards where my noble friend would like us to be—with Active Travel England. Many noble Lords will know that Active Travel England was set up relatively recently, and its role will expand over time. It will become a statutory consultee on certain major planning applications from June this year. That means that local planning authorities will be required to consult ATE on planning applications, where developments meet one of the following minimum thresholds: where it has 150 residential units; where it is 7,500 square metres of commercial area; or where it is a site with an area of 5 hectares or more. Furthermore, ATE will also take an active role in supporting the preparation of local plans and design codes.

It is also worth reflecting that local plans must be put in place quickly, and so we must avoid imposing a plethora of additional statutory requirements which local authorities must have regard to, especially when clear expectations are already set through national policy. There is one other—

[Baroness Pinnock (LD)]

I apologise to the Minister, but could she explain to the House where the balance lies between commercial interests and their development, and the policies that she has rightly described as very positive and as needing to be put into place? In my experience, the balance is currently in the hands of the commercial interests.

13:15

[Baroness Vere of Norbiton (Con)]

I had better write with more details on that subject. As noble Lords will know, I have not been involved in the Bill for very long but, reflecting on some of the contributions to the Built Environment Committee, I sometimes question whether noble Lords have any confidence in local authorities at all. If the noble Baroness is asking what the balance is between commercial interests and other local interests, I ask: do we not want the local authority to be making those decisions for its local communities and therefore granting planning permission on that basis? In terms of how we would provide the overarching vision for that, I am very happy to set that out in more detail in a letter.

[Baroness Taylor of Stevenage (Lab)]

My apologies for also interrupting the Minister. I know that she has not been part of previous discussions on the National Planning Policy Framework with regard to the Bill, or the sequence of events as to when we will see the finalised version of the NPPF, but noble Lords have expressed concern that we are being told that some things are going into one, while other things are going into the other. Because we will not see the finalised version of the National Planning Policy Framework before the end of Committee—unless the Bill goes on even longer than it already has—we have concerns that we will not understand what is going into one and what is going into the other. I repeat that point again, because it is very important to some of the previous points under discussion in earlier days in Committee about how the two fit together.

[Baroness Vere of Norbiton (Con)]

Indeed, I am aware that those conversations have been happening and, as a Transport Minister, perhaps I had better not add anything further. However, it is worth highlighting that the Government are taking forward other policies for cycling and walking, which I believe will be helpful to local authorities in thinking about how cycling, walking and active travel are taken into account when it comes to local development. The Manual for the Streets guidance is incredibly important and is being updated. We are also planning to refresh the guidance supporting the development of the local transport plan.

It is also worth noting the tens of millions of pounds that the Government have awarded to local transport authorities to upskill the capacity and capabilities of their staff to ensure that things happen. For example, the noble Baroness, Lady Pinnock, mentioned her council in Kirklees, where things all seem to be tickety-boo. Therefore, I would expect other local authorities to look at that council to try to emulate that because, essentially, we want local decisions to be taken locally—that is at the heart of this matter.

I turn now to the amendment on railway accessibility in the name of the noble Baroness, Lady Pinnock. I appreciate the contributions made by the noble Earl, Lord Lytton, and the noble Baroness, Lady Randerson, providing details of specific areas where we need to make improvement. Improved access to the railway is a key priority for the Government. The Transport Secretary is committed to funding transport infrastructure improvements, including improvements to stations to make them more accessible for disabled passengers. The Department for Transport has already invested £383 million under the Access for All programme between 2019 and 2024, and there is more to come.

The Design Standards for Accessible Railway Stations, published in 2015, set out the standards that must be met when new railway infrastructure or facilities are installed, renewed or replaced. Noble Lords may question the date of 2015 and say that it is a little while ago, but I reassure them that the process is being set out at the moment as to how the standards will be refreshed.

Noble Lords will also be aware that the Government have now completed an audit of all stations across the network. That data will be shared with Great British Railways; it will be made public; and that will be very helpful for ensuring that as many people as possible who are less mobile can travel. I accept, however, that some stations remain less accessible. Can we fix them all at once? I am afraid we cannot, but I would like to reassure the Committee that all stations, regardless of size and location, are eligible for funding under the Access for All programme.

[Baroness Randerson (LD)]

I am very pleased to hear about the Government’s commitment and that we will soon get details that will help us on this. We all acknowledge that you cannot do it all at once. What we want to see is progress, so I was very disappointed to read about the Network Rail briefing this week, which became public. It said that the amount of money available was not enough to maintain existing standards of reliability on the railways, let alone make progress with improving accessibility. The noble Baroness might like to make a comment on that.

[Baroness Vere of Norbiton (Con)]

The noble Baroness would probably decline to make a comment on that at this moment, as that would take us far away from the area of accessibility, which is under consideration today. However, the noble Baroness asked whether progress had been made. So far, step-free accessible routes have been delivered at 200 stations, and smaller-scale access improvements have been made at 1,500 stations. We have made progress; there is much more progress to come; and we are absolutely committed to making it.

Amendments 470 and 486 relate to the charging of electric vehicles, I share all noble Lords’ concerns about electric vehicle charge points and how important they are as we decarbonise our transport system. The first of the two amendments seeks to amend the Electricity Act 1989 to add an explicit reference to electric vehicle charge point provision in addition to the need to

“secure that all reasonable demands for electricity are met”.

The Electricity Act 1989 already requires the Secretary of State to give regard to securing that all reasonable demands for electricity are met. This requirement already includes the charging of electric vehicles. We therefore believe that the amendment is unnecessary, and indeed that it might be unhelpful to other equally critical areas of the decarbonisation effort such as, for example, heat pumps. In carrying out this duty under the Electricity Act, the Secretary of State works closely with Ofgem, as the independent energy regulator is responsible for regulating network companies to ensure that sufficient grid capacity is built and operated to meet consumer demand. Of course, we work very closely with Ofgem as price controls are developed, so that our work aligns to meet the needs of customers, including electric vehicle users.

We are investing £3.1 billion for network upgrades to support the uptake of electric vehicles and heat pumps. This is significant upfront funding and, combined with an agile price control system for net zero-related expenditure, it will enable the investment in the network infrastructure needed to facilitate heat and transport electrification.

There were a number of questions around the provision of charge points themselves. The noble Baroness, Lady Pinnock, asked about new homes. We laid legislation that came into force in June last year requiring most new homes and those undergoing major renovation with associated parking in England to have a charge point or a cable route for charge points installed from the outset. We estimate that this will lead to the installation of up to 145,000 new charge points across England every year.

The noble Lord, Lord Berkeley, asked about home and business charge points. The Government have supported the installation of about 400,000 of these charge points. Of course, there will be many, many more out there that have been installed without government support—and, to my mind, long may that continue.

I turn now to the second of the two amendments on charge points, which relates to reporting. I do not believe that this amendment is necessary, because I am pleased to confirm that the Government routinely publish monthly and quarterly EV public charging device statistics. These are broken down by device speed category, region and local authority area. The latest report outlined that, as of 1 April, there are more than 40,000 available public charging devices, of which more than 7,600 are rapid or above charging devices—a 33% increase. We also routinely publish the number of devices funded through government grant schemes. As I pointed out, many more will be installed that are not funded by the Government, and we would not necessarily be able to find out where they are. If there is further information that the noble Baroness would like about public charging points that we might reasonably be able to gather, I would be very happy to discuss this with her further. I have noted the other comments on EV charge points and will reflect on them further.

Finally, I turn to the amendment in the name of the noble Baroness, Lady Bennett of Manor Castle, about a blanket reduction on restricted roads from 30 to 20 miles per hour. I noted some of the comments from the noble Baroness, and I agreed with some of them. None the less, I am not convinced that a blanket application of this lower speed limit is appropriate because, again, it would undermine local decision-makers’ ability to set the most appropriate speed for the roads in their area, based on local knowledge and the views of the local community. Actually, I am pleased that the noble Baroness, Lady Taylor, agrees with me. Indeed, she seems to agree with me for England but not for Wales, where it is not something that a local authority can decide.

[Baroness Taylor of Stevenage (Lab)]

I believe there was widespread consultation from the Welsh Government with Welsh local government in terms of doing this. I have that in my notes, but my notes are a bit scribbly and I missed it out. May I just make the point that the Welsh Government, as they always do, have consulted very widely with Welsh local government on this?

[Baroness Vere of Norbiton (Con)]

That is fantastic to hear, and I am sure that all local authorities 100% agreed with the Welsh Government in that regard.

The second element to this is that a blanket approach would be—

[Baroness Bennett of Manor Castle (GP)]

Would the Minister acknowledge that 30 miles per hour was, of course, the blanket applied by Westminster? That is what has been set by Westminster, and it is of considerable cost for councils to apply a reduction. We are discussing the levelling-up Bill, and it is councils in the poorest areas of the country that would see the greatest benefits but may well not have the money to be able to bring in that improvement for their residents.

[Baroness Vere of Norbiton (Con)]

I was about to come on to the fact that changing the speed limit on a blanket basis would be incredibly costly and complex to introduce. I go back to the first point, which I believe is the stronger of the two arguments, because you can throw money at anything and make it work. Local authorities quite rightly have the power to set speed limits on the roads in their areas. Many local authorities have decided to do 20 miles per hour zones in all or parts of their area, and that is entirely up to them. We endorse that approach in Department for Transport guidance and, particularly, we think that that is something that should be considered where pedestrians, cyclists and vehicles are all in close proximity. However, they are not always in close proximity. There will be roads which the local community and their local elected leaders will decide should stay at 30.

If one were to apply this blanket change to 20 miles per hour, what would happen is that all of the repeater signs for 20 miles per hour that already exist for those areas that are 20 miles an hour would have to be removed, or there would have to be repeater signs for 30 miles an hour put in. This would, of course, be after the local authority had gone through its entire road network to figure out which roads should be at which speed. So I believe that where we are at the moment provides the balance between ensuring that local people are taking responsibility and decisions for matters that affect their local communities, based on their local knowledge. The corollary to that is that if one applies a blanket approach now, it would be very costly, as the noble Baroness has already pointed out herself.

With the assurance that I have given in relation to each of the amendments in this group, I hope that the noble Lord, Lord Berkeley, will feel able to withdraw his Amendment 240 and that the other amendments in this group are not moved when they are reached.

13:30

[Lord Berkeley (Lab)]

I am grateful to all noble Lords who have spoken in this excellent debate. Many of them are probably the usual suspects on these things, but it has been a useful debate, reinforcing many of the views that we have all held for a long time. The noble Lord, Lord Young of Cookham, mentioned PPG13; I remember it when I was in the commercial side, which is a very long time. Christian Wolmar is still chair of the Labour transport group and we are both patrons of the All-Party Group for Cycling and Walking. The group held an event in Portcullis House yesterday and Mr Wolmar was there promoting this. It is working very hard, which is good to know.

I will not respond to all the other comments on other amendments; it is not my place to do that. I just point out to the Minister, who mentioned the NPPF and the question in relation to my Amendment 240 on whether we should rely on the new NPPFs, that I said in my opening remarks that the current one mentions local cycling and walking infrastructure plans only very briefly and does not mention right of way improvement plans at all. We will need to look very carefully at what the Minister said in her helpful response and decide whether we bring back something different on Report.

I cannot resist one last comment on the speed limit issues. Once we all have electronic self-driving cars, it can all be changed anywhere at the click of a mouse—if we believe that will ever happen.

On that basis, I beg leave to withdraw the amendment.

Amendment 240 withdrawn.

Amendment 241 not moved.

Amendment 241A

Moved by

[Baroness Taylor of Stevenage]

241A: After Clause 93, insert the following new Clause—
“Meaning of “affordable housing”: affordable rent(1) In Annex 2 of the National Planning Policy Framework (glossary), in paragraph (a) of the definition of “affordable housing” (affordable housing for rent) omit “or Affordable Rent, or is at least 20% below local market rents (including service charges where applicable)”.(2) As soon as reasonably practicable and within two months of this Act being passed, the Secretary of State must publish a revised version of the National Planning Policy Framework, replacing the Affordable Housing for Rent definition with one based on incomes not market rates.”

[Baroness Taylor of Stevenage (Lab)]

My Lords, in moving Amendment 241A, I shall speak also to my Amendment 500 and comment on other amendments in this group.

I should declare from the outset that social housing is a topic very close to my heart. As a new-town child, when I was growing up, more than 30,000 of the 38,000 homes in my town were built and managed by the development corporation and later taken over by the council. Almost everyone I knew lived in a council home. They had been built in self-contained neighbourhoods with large amounts of green space, schools, health facilities, shops and so on all within a 10-minute walk. They were mostly two, three and four-bedroom family houses with gardens. Sadly, as land values have increased, that type of development is all too scarce.

As noble Lords will be aware, the introduction of right to buy not only took a scythe to housing stocks but, particularly in the new towns, disrupted the community cohesion brought about by shared housing tenure. Those 30,000 homes that I mentioned earlier have reduced to just over 8,000 now. The figure for the UK is that there are around 1.5 million fewer council homes now than in 1980. Councillors’ inboxes are full—permanently—of housing cases. Surely the generations who benefited from right to buy cannot just pull up the ladder behind them. From the experience of my councillor surgeries, they had not anticipated the impact on their children and grandchildren, never mind all the other young people for whom private renting, let along buying homes, is fast disappearing over their financial horizon.

Just yesterday, we had a shocking report from the National Housing Federation, setting out the impact of overcrowding, particularly on the life opportunities of young people. The findings of its report say that more than 300,000 children in England have to share beds with other family members. Some 2 million children live in cramped conditions with little or no personal space. Ethnic minority households are three times more likely to be overcrowded than white households. More than one-quarter of the parents living in overcrowded homes who were questioned by researchers said that they regularly had to sleep in a living room, bathroom, hallway or kitchen.

The family featured in the National Housing Federation press release, Joanna and her daughter Deni, were forced to seek council help when private rented accommodation became too expensive. Joanna had never been able to afford a two-bedroom property but, with rents soaring, now struggles to afford a one-bedroom flat. Deni, a talented musical student who is on the Royal Opera House programme for promising singers, has shared a bed with her mother for the whole of her 10 years and spends school holidays sitting on that bed while her mother works from home.

My own casework contains hundreds of housing cases a year, around 70% of which relate to homelessness, overcrowding or affordability. Shelter, which does such magnificent work in this area, held an independent commission which pointed out that we have lost 1.5 million social homes since 1980 and recommended that government rediscover publicly built housing as a key pillar of our national infrastructure by building 3.1 million new social homes over the next 20 years. That is a very ambitious target, especially when we note that only 6,463 more social homes were built last year, and 500 of those were by my local authority. After the Second World War, local authorities built more than 126,000 social homes a year. The biggest barriers are land and funding. Shelter, IPPR, CPRE, National Housing Federation, Onward and Create Streets all call for reform of the Land Compensation Act 1961, so that landowners are paid a fair price for their land without hope value. We will discuss this when we come to future amendments. Local government has also argued for many years that we should retain 100% of our right-to-buy receipts. We welcome recent developments on that front but, had it happened decades ago, we would not have seen the catastrophic impact on housing stock levels.

The Resolution Foundation’s Housing Outlook report for the first quarter of 2023 stated that, although mortgagors had been affected by rising interest rates,

“private and social renters are much more likely to report falling behind or struggling with their housing costs”.

It also said that,

“worryingly high numbers of … renters report signs of material deprivation and are resorting to sometimes unsustainable strategies to manage their housing costs”.

They include borrowing money, using savings or not heating their homes. The ONS deems rental properties affordable if a household does not spend more than 30% of its income on rent. In this country, only the east Midlands and the north-west had rent prices affordable to those in the lower quartile of household income.

There are also key financial drivers to the provision of social rented homes. First, the rent paid by social renters is recirculated to improve stock, build new homes, develop specialist housing and so on. This is sometimes the case with good private landlords, but not always. Secondly, it makes no sense to subsidise higher private rents through the benefits systems. A rapid increase in social housing stock would generate savings, as there are stark contrasts in rent levels. The figures for my area are indeed stark, with social rent for a two-bedroom property at £110 a week and private rent at £235. The local housing allowance is just £195. The amount that councils spend on temporary accommodation has increased by 71% in the past five years and now costs more than £1 billion a year.

I hope that I have set out clearly the issues and the impact that housing supply is having on the affordability of housing. My Amendment 241A is included to remove from the NPPF the spurious term “affordable housing” from rented properties that are 20% below market rent. In many areas, that would be far from affordable. For many families on low incomes, the only affordable housing is social rented housing.

Amendment 242, in the names of the noble Lord, Lord Stunell, and the noble Baroness, Lady Thornhill, and Amendment 242ZA, in the names of the noble Lord, Lord Stunell, and the noble Baroness, Lady Pinnock, attempt a comprehensive redefinition of the term “affordable home” to ensure that there is a link between median incomes and the definition of affordable homes, with that definition then enshrined in regulations. We support this proposal in principle and would want to work with the sector to ensure that there is a much more meaningful definition included in legislation and in the National Planning Policy Framework.

Amendment 262 in the name of the noble Baroness, Lady Pinnock, highlights the specific issues of affordable housing in national parks and areas of outstanding natural beauty. The issues around these were clearly elucidated by my noble friend Lady Hayman yesterday—I am sorry, on Tuesday. The weeks go by with this Bill, I am afraid. She quoted the former chair of National Parks England, Carl Lis, who warned that young people and national park staff are being forced out of their communities, in part by the high prices driven by exclusive holiday homes. She also referred to a statement by the Secretary of State in the other place on 21 March in which he pledged planning changes to the Bill to ensure that restrictions would be put in place on conversions of homes to Airbnbs. Failure to act on this important issue will see the continued decimation of communities in our most precious landscapes, as increasing numbers of homes are bought for second homes and converted to Airbnb use. Local councils must be able to use the planning system in the best interests of their communities. I hope that this amendment and that submitted by my noble friend on Tuesday, or a version of them, will be accepted to achieve the Secretary of State’s aim.

Amendment 286 in the name of the noble Baroness, Lady Pinnock, suggests bringing forward the requirements of the future homes standard to June 2023. In view of the protracted progress on the Bill through your Lordships’ House, this may prove a tad ambitious, although, of course, we hope that these can be implemented as quickly as possible. The second part of this amendment would grant powers to local authorities to determine for themselves what percentage of affordable homes is needed. We absolutely accept this in terms of devolution principles, but I just echo my noble friend Lady Hayman’s comments on Tuesday that, although we must be serious about meeting the affordable housing need, we also need to consider that communities need mixed tenures in housing.

We support Amendment 438 in the names of the noble Lords, Lord Best and Lord Shipley. I remember the absolute horror with which the original announcement of this measure was greeted by my colleagues in local government in 2012. Some London boroughs rightly pointed out that every property in their housing stock would exceed the threshold. We welcome the fact that the Government have already committed that they will scrap this policy, so perhaps incorporating this amendment is a quick and easy way to do so.

Lastly, I turn to my Amendment 500. Mission 10 in the White Paper is the key mission relating to housing. While its ambition in terms of improving the quality of rented property is admirable, in other ways it looks at housing through the wrong end of the lens: it sees levelling up only through the point of view of property ownership. For millions of people on housing waiting lists, in temporary accommodation, sleeping on their friends’ sofas or, as in a case I dealt with yesterday, having to conduct access visits with their children in their car because they have nowhere to live, the prospect of a safe, sustainable home with a secure social housing tenancy would meet their immediate aspirations of levelling up. That is why we hope the Government will recognise the absolute importance and value of social housing and use the opportunity of the Bill to commit to building the numbers we need. I beg to move.

[The Lord Bishop of Leeds]

My Lords, I shall speak in support of Amendment 242 in the name of the noble Lord, Lord Stunell. I do so having consulted the Bishop of Chelmsford, who leads for the Church of England on housing but is unable to be here today. It is clear, I think, that we need to rethink what genuinely affordable housing is and how an adequate supply can be delivered. In London, the south-east and many other areas across the country, the current affordable housing for rent definition of 20% below market rates makes little difference to those on a median income, let alone those in most need. Without redefinition, we will continue to work under the illusion that homes classed as affordable are helping to solve the housing affordability crisis, when for the most part they are not.

Of course, we need a multifaceted approach to solve the lack of affordable homes. I was interested to learn from the Bishop of Chelmsford that Vicky Ford MP has been addressing this in relation to Chelmsford. During her 10-minute rule Bill debate on 22 February, she spoke to the shortage of affordable housing we face locally and nationally. Her Affordable Housing (Conversion of Commercial Property) Bill would apply affordable housing obligations to conversions of commercial property to residential occupancy. The Bill is due its Second Reading in the Commons on 26 May, and we certainly hope that it will make some progress.

13:45

Today, I urge the Government to look favourably on Amendment 242, which seeks a new definition of affordable homes based on the income of the purchaser or renter and not the open market price of the property. The amendment’s three-pronged approach is, in my view, an effective one. In linking a calculation of affordability to the local housing allowance for renters, it agrees that the Government’s own calculation in relation to housing benefit works for a particular local housing market and can play a part in bringing more affordable accommodation. On this point, I briefly urge the Government to unfreeze LHA from April 2020 levels to truly reflect the increase in rents over the past three years.

Likewise, it is welcome that the amendment seeks to ensure that

“annual mortgage costs … do not exceed 35% of the adult median income of employed people”.

This is a good proxy for ensuring affordability across England in a way that reduces exclusion. The amendment’s provisions on shared ownership flow from the same sound formulas already set out. It is clear that we need an immediate short, medium and long-term solution to the affordable housing crisis we face. Sticking plaster approaches of X number of homes built or not built in a year will not address this. This amendment would be a very helpful step in the right direction towards defining what truly affordable housing should look like.

[Lord Stunell (LD)]

My Lords, I am very pleased that I chose to give way to the right reverend prelate the Bishop of Leeds, because he has done a superb job in introducing the amendment in my name, and I thank him very much for that. Perhaps I can just step back and look at the group that we are debating as a whole. There are five different approaches from the different amendments, which are all tackling the same problem. They approach it in different ways, but they are all aiming at a common destination. I will say to the Minister that it would be a mistake for her to simply play off the five different amendments and assume that there is no consensus and that this can simply be dismissed. They are all aimed at correcting the same fundamental policy mistake, which is to assume that the current formulation of the words “affordable homes” actually means affordable homes. It does not. It does not mean that, either in the private rented sector or the private ownership sector.

The highly desirable provision of affordable homes is supposed to be delivered through the planning obligations placed on developers when planning permission is granted. The calculation of that affordability is currently based on 80% of the market sale price of that property on that site or, alternatively, 80% of the market rent which is applicable in that general locality. Now the reality is that in many parts of England, especially but not only in London, taking 20% off either the market price or the rental price, while it does make it cheaper, does not make it affordable to those in the most local housing need.

My noble friend Lord Foster provided me with a typical case that illustrates this rather dramatically. It relates to Southwold in east Suffolk, where there are significant housing problems—for instance, last month, 31 homeless families applied to occupy one vacant rental property. So, there is absolutely no shortage of demand; it is a rural area 100 miles away from London. There is a terrible shortage of supply, despite the availability of so-called “affordable homes” achieved as a result of a planning agreement. One such so-called affordable shared ownership property in Southwold has been on the market for two years, during which time there have been no eligible local people able to afford to take it on. Local incomes are simply not high enough. That unaffordable home is on a redeveloped former hospital site where more than £1 million of public money has been contributed to “prioritise housing for local people”. Now, because there has been no eligible buyer, that home is going on the open market. That is a tragic lost opportunity to provide a home to meet local need; and, of course, it is a pitiful waste of public money.

In most London boroughs, affordable homes are not in reach unless you have two professional incomes at the household’s disposal. If Ministers doubt that, I suggest that they might like to ask the civil servants sitting in the Box behind them about their housing circumstances. Young professionals in London are squeezed out of the purchasing market and in grave difficulty even in the renting market. Those two London professionals who put their incomes together will perhaps be able to buy a house at a discounted price. That is good, but it is not a solution to London’s housing crisis. In Southwold and many other areas of the country, neither professional employment nor the bank of mum and dad can bridge the gap between real life and the policy intentions of “affordable homes”.

The five amendments in this group on this topic all start from the premise that affordability has real meaning only if it is based on income levels and not on the market or capital value of the home. Amendment 242 in my name and that of my noble friend Lady Thornhill was the first to appear on the Order Paper, but I concede that it is not necessarily the best option for the Minister, because it sets out a simple way of calculating affordability and might perhaps be best described as a statutory instrument rather than an approach to go in a Bill. But what we have is a formula that is based on existing databases for homes for sale, rent and shared ownership. That calculation is focused on local housing allowance figures for renters and for purchasers of median household income. We do not need a royal commission to consider these matters, nor indeed does the ONS need to devise a new way of measuring things. Everything is there, so the Minister could just get on with it.

I very much welcome the support of the right reverend Prelate the Bishop of Chelmsford, with whom I had discussions beforehand, and now of the right reverend Prelate the Bishop of Leeds, for my Amendment 242, but I recognise that such a specific amendment might in itself be controversial. Therefore, my noble friend Lady Pinnock and I also tabled Amendment 242ZA, which puts the same proposition in the court of the Minister or the Secretary of State to write the regulations rather than us doing it for him. I do not need to spend too much time advocating for either of these or commenting on the other options in the group. All are aimed at a complete reset of the affordability policy as it stands in the NPPF, so that homes set aside under that policy in future are affordable for those in housing need.

However, I need to spend a short time underlining that there are at least two parallel affordability bottlenecks. The first, which my Southwold example highlights, is the bottleneck—almost the deceit—caused by the assumption that a home sold at 80% of its market price is likely to be affordable to those in most housing need. It is true that such homes bring a new slice of first-time buyers into the market, but in many places they will be people with substantial incomes, a long way above those referred to by the right reverend Prelate and so eloquently by the noble Baroness, Lady Taylor of Stevenage.

Providing them through the planning system as affordable homes misleadingly implies—sometimes it is explicitly said—that it is a significant move towards tackling and reducing housing need for those in most hardship. That is simply not true. The recalibration we seek in my two amendments is to put that right and bring all such homes within reach of any household at or above the median income for that area. My noble friend Lord Foster tells me that, in Southwold, the affordability ratio is currently 17:1. That is outrageous. What happens to the affordability ratio if you take 20% off the price? It becomes 13:1. That does not make it affordable. Affordability defined like that is simply a poor joke.

The second bottleneck is the provision of an affordable home for households whose income is below the median and for whom a house purchase is completely out of sight. Such a household will by default be in the formal or, increasingly, the informal rented sector, as the noble Baroness, Lady Taylor, powerfully illustrated. There is sloppy talk about affordable homes being provided for rent within schemes of development which are far removed from the reality of people’s lives and their ability to pay. As a side note, half of the council homes sold are now back in the private rented sector—it is officially known that half of all the sold social homes have been transferred to the private rented sector, where the average rent is approximately double what it would be. You have terraces with a mixture of former council homes and those that remain social homes where the rent paid can be different by a factor of two, depending on whether it is a sold home or not.

My two amendments offer a solution by setting out clearly what is to be regarded as affordable rent when evaluating developments that purport to provide such accommodation. If adopted, the claims by some developers about their provision of “affordable” units would be weeded out and more genuinely affordable homes for rent would enter the market. For the third category of shared ownership, we recognise that a hybrid calculation of affordability will be required, and we have outlined how it might be done.

However, this is not about the minutiae of particular schemes; it is about recognising and then doing something about turning the hollow words of affordability calculated on house prices into a meaningful policy based on households’ ability to pay. If Ministers accept that basic principle and reshape the existing schemes to make affordable homes affordable, based on income, I am sure that all noble Lords with amendments down would be only too ready to work with them to get the small print right and dot the “i”s and cross the “t”s. Pending that important step, I will keep my Amendment 242.

14:00

[The Lord Bishop of Leeds]

My Lords, before the noble Lord takes his seat, may I apologise for jumping the gun? Before he had been able to speak to his own amendment, there was a silence and, like nature, I abhorred a vacuum, but I do apologise.

[Lord Stunell (LD)]

I think the spirit moved. It is good the right reverend Prelate spoke first in this case.

[Lord Best (CB)]

My Lords, I rise to speak particularly to my Amendment 438, but I will preface my remarks by saying how much I have appreciated this debate and the contributions from the noble Baroness, Lady Taylor of Stevenage, the noble Lord, Lord Stunell, and the right reverend Prelate the Bishop of Leeds. We have explored this issue in a comprehensive and useful way, and I greatly appreciate that.

I draw noble Lords’ attention to the Affordable Housing Commission report, which came out in the middle of Covid and was therefore buried and forgotten by everybody. The AHC report, which noble Lords can find via Google or their favourite search engine, was a pretty big effort, thankfully funded fully by the Nationwide Foundation—the Nationwide Building Society’s foundation—with a secretariat from the Smith Institute; I had the honour of chairing this. The report is a pretty meaty document and worth those who are interested in this subject following through, but that was a great debate on those amendments, and I support the essence of all of them.

My amendment 438, to which the noble Lord, Lord Shipley, has kindly added his name, seeks to remove from the statute book an obnoxious, offensive legislative measure which has hung over local authorities since the passing of the Housing and Planning Act 2016. I reiterate my declaration of interest as a vice-president of the Local Government Association. Back in 2016, I was the LGA president and along with allies from all parts of the House, including the noble Lord, Lord Porter, with his local government expertise, and the noble Lord, Lord Kerslake, we fought—unsuccessfully—to remove these awful sections from the 2016 Act.

What does this part of the Housing and Planning Act 2016 say, and why is it so troublesome? The key section imposes obligations on local authorities to sell their most valuable council housing when tenants move out, rather than reletting the property. It does so by requiring local authorities to pay a levy to the Secretary of State equivalent to the market value of the best council housing when it becomes vacant, multiplied by the estimated number of vacancies for the next year. To raise the money to pay this levy, local authorities would obviously have no option but to sell their most valuable homes. Most of the proceeds from these compulsory sales go straight to the Secretary of State, who, in a convoluted twist, would use the money to compensate housing associations for selling properties at large discounts to their tenants under an extension of the right to buy.

The effect of this extraordinary measure, had it ever been implemented, would have been highly damaging both for local authorities trying to meet the acute need for social housing in their areas and for the families desperately waiting for a home. Council housing would be further stigmatised and labelled as only for those with no hope of anything better, and with fewer re-lets, pressure on the remaining council stock would be even more intense than it already is.

Buyers of the housing which councils would be forced to sell would very often be private landlords who would let to similar occupiers but would charge market rents, thereby imposing twice the burden on the Exchequer for tenants in receipt of benefits. I was glad to catch up with the latest statistic from the noble Lord, Lord Stunell: that 50% of properties sold under the right to buy have been moved into the hands of private landlords and, obviously, let at rents that are twice as much, if not more.

To add insult to injury, the 2016 Act also empowered the Secretary of State to top up this raid on council resources by requiring local authorities to raise the rents to market levels for any tenant foolish enough to increase their income above a fixed level. The extra rent would not go towards management and maintenance of council housing but instead would be remitted to the Secretary of State as a windfall for the Government.

I moved an amendment opposing the measure and it was carried by a huge majority in this House. I even featured on the BBC documentary on the work of the House of Lords. Although it remains in law, it is another ingredient in the 2016 Act that thankfully has not seen the light of day.

Returning to the compulsory sales of higher-value council housing, as is addressed by the amendment, we can now see what a disaster this would have been—but the offending measure remains on the statute book. In reality, this sword of Damocles hanging over councils is no longer a major threat since Government Ministers have made it clear that they have no intention of using these draconian asset-stripping powers. Indeed, I am confident that Ministers understand the imperative for more, not less, social housing provision.

It was, no doubt, the work of an enthusiastic but naive special adviser coming up with a cunning wheeze to extract the cost from local authorities of securing new right-to-buy sales by housing associations. Today there would be little appetite for such shenanigans which would reduce the stock of available social housing, following the right to buy’s removal of 2.8 million council homes and the subsequent higher costs of using the private rented sector instead. Indeed, the right to buy has now been abolished in Scotland, and Wales is following suit.

Councils have welcomed the Government’s recent move enabling them to retain 100% of right-to-buy receipts for 2022-23 and 2023-24. With long waiting lists for social housing and the private sector becoming more and more unfeasible for many households, that announcement should support councils trying to replace the homes sold through right to buy. It would be helpful if the Government completed this change and made it permanent rather than just for two years. On this theme, I hope that the Government will finally agree to councils having the ability to set right-to-buy discounts locally as part of the Bill’s emphasis on devolution.

The time has surely come to be rid of this 2016 misguided measure to strip local authorities of their best housing assets. The LGA and others have been waiting for a legislative opportunity for the Government to enact their clear intention to have nothing to do with this defunct legislative device. The Bill provides that opportunity, and I think everyone in local government and in the world of social housing will breathe a sigh of relief to see this expunged from the statute book. I commend this amendment.

[Lord Young of Cookham (Con)]

My Lords, I wish to intervene briefly to put this debate in an important context. Before I do so, I commend the noble Lord, Lord Best, on eventually achieving the victory which he sought when the 2016 Act was going through; it was not the best piece of legislation on housing that Parliament has seen. I agree with what the right reverend Prelate said—that we should unfreeze the local housing allowance or, if we cannot, increase the discretionary housing grant, to enable those who find that they cannot meet the rent to have more support.

I also agree with the noble Lord, Lord Stunell, that “affordable” is a misnomer, but there is a fundamental choice that we have to make, which is: the higher the rents, the more social houses you can build; and the lower the rents, the fewer social houses you can build. That is simply because of the way that social landlords are funded. A Government decide to have a capital fund available for new builds. A Government of a different persuasion may have a higher figure than the current one but, whatever that figure, the number of houses that can be built is dependent on the rent levels which the social landlords can charge.

A Housing Minister has a choice: you can have lower rents, social rents or genuinely affordable rents, but you will get less output. When I had responsibility and was faced with this spectrum, I went for slightly more output but slightly higher rents, to meet the demand for new houses and to build more houses that would last 60 years. I recognise that others may choose to go the other way on the spectrum, but you cannot get away from the fact that this is the choice. If you want to have affordable rents reduced to social rents, the consequence is that you will have fewer houses. I make this intervention at the end of this debate just to put it in a slightly broader context.

[Baroness Pinnock (LD)]

My Lords, I have two amendments in my name that I wish to speak to briefly. However, prior to that, I say that my noble friend Lord Stunell made an important point about how all the amendments here are trying to resolve the issue of what is affordable. So-called affordable homes are those built by the commercial sector as part of a development—a planning obligation—yet the challenge for us all is to provide homes at a social rent, which is roughly estimated as 50% of the market rent.

It is a tragedy for this country that successive Governments seem to have abandoned provision of homes for social rent in any large numbers. Local authorities have been severely constrained in building their own social housing, and the provision of homes for social rent has largely been left to housing associations. We then come to the conundrum which the noble Lord, Lord Young of Cookham, just rightly pointed to—that the capital that housing associations receive from government depends on their flow of rental income. Therefore, do you have more or less? Either way, everybody agrees that there are insufficient homes for social rent.

About 30 years ago, my authority had 42,000 council houses at social rent—it now has 21,000. That is the scale of what has happened. Indeed, my noble friend Lord Stunell is absolutely right that about half of them are now back in the market as private rented properties at a higher rent for folk but without any of the support packages provided for homes for social housing rent within either a local authority or a housing association. That is a huge challenge that this country needs to tackle. One of the key factors in levelling up is a decent home—it is in the levelling-up missions. Millions of people in our country do not live in an adequate, safe home appropriate for their family, and we need to address that scandal.

On affordability, my noble friend Lord Stunell expertly laid out the issues, and I do not wish to say anything, except that obviously I totally support him. I wish to raise one issue about affordability that is a bit of a side issue. It seems that any property built as part of a commercial development which is deemed affordable should be affordable in perpetuity. My own council adopted that policy—I have to say as a result of pressure from my own party there—so that, when the house is bought, the 80% factor remains. The least the Government could do is to include that as part of a definition of affordability.

14:15

I just point to the two amendments in my name, the first being Amendment 286, about the future homes standard. I am an optimist. June 2023 is in the amendment to adopt it, but I doubt whether this Bill will have reached anything like the end of its route by then. The idea is that, if you can incorporate the future homes standard, which is about changing building regulations so that new homes are built to a much higher standard of insulation and improved heating and hot water systems, it would mean that developers would have to start recognising it, and not try to get away with it. Unless we adopt it now, it will be at least five or seven years before those properties are built. That was the purpose of that amendment—and to define affordability in a local context. Where I live in West Yorkshire, you can still buy a house for £150,000. You probably could not buy a garden shed for that in London. There is a wide range of house pricing and housing rents, and local authorities ought to be able, as part of their understanding of their local area, to define that.

Lastly, I reference Amendment 262, about national parks and areas of outstanding natural beauty. The noble Baroness, Lady Taylor of Stevenage, raised them, and I agree with what she said. If we are to retain the landscape value, which is the purpose of these definitions, we must enable local people to have homes that they can afford—hence the amendment in my name. With that, I look forward to what the Minister has to say on this very important debate.

[Lord Thurlow (CB)]

My Lords, before we conclude this group, I start by saying that I do not know how any Government with a social conscience could listen to our debate for the last couple of hours without feeling an urgent desire to scrap the right to buy.

I support Amendment 438 in the name of the noble Lord, Lord Best, concerning the sale of higher-value council residential properties. We must not forget that a lot of them are very old, they may have a lot of bedrooms, and they may be under-occupied, as we understand it, and very expensive to maintain—all good reasons for selling them. But we have a chronic shortage of housing. We all know that; we have heard it repeatedly today. If you geometrically increase that to the chronic shortage of social housing, or affordable housing, it is a crisis. The proceeds of all council residential property sales should be reinvested into social housing and affordable housing. They are not, as we have heard again and again. The failure to replace the units lost by the right to buy—the noble Lord, Lord Stunell, referred to it very eloquently—is a disgrace.

The private developers, who build large numbers of residential units for private sale are under an obligation to provide an allocation under the Section 106 agreements for affordable housing, but this is abused by developers—everyone in the industry knows that. The affordable housing obligation is subject to something called a financial viability appraisal. The bigger developers are frequently huge, multi-million-pound public companies; they have the resources, expertise and firepower to employ legal advisers at the highest and most expensive level to provide the financial viability assessment that suits their purposes. There is no possibility of local authorities being able to take on this challenge, partly because they would have to do it so frequently, and partly because they are short of funds in the first place and hardly able to challenge planning applications even on a private level from time to time. I am afraid that there is very little likelihood of the numbers of social or affordable housing being increased in the short-term. I conclude that—

[Lord Stunell (LD)]

I thank the noble Lord for giving way. Does he agree that a compounding factor is that the calculations of viability studies are kept secret and that, if they were more transparently available, some of the abuse that he quite rightly refers to would be reduced?

[Lord Thurlow (CB)]

I thank the noble Lord for his comment. I agree entirely with what he says. Without being able to challenge line-by-line a financial viability appraisal, it becomes an impossible task. A lot of the elements of financial appraisals are subjective, and value is therefore very much in the eye of the beholder. I absolutely agree with the noble Lord’s comment. However, until developers are required to provide sufficient social housing, together with the contribution from government sources, I unconditionally support the amendment tabled by the noble Lord, Lord Best.

[The Parliamentary Under-Secretary of State, Department for Levellin Up, Housing & Communities (Baroness Scott of Bybrook) (Con)]

My Lords, I thank my noble friend Lord Young of Cookham for his explanation of the difficult decisions that social landlords must navigate through with the competing requirements on their rental amounts. That is really important; it is not just about building other properties—there are many other pressures that we continue to put upon them.

Amendment 241A, and Amendments 242 and 242ZA, tabled by the noble Lord, Lord Stunell, relate to the definition of affordable housing. It is right to raise the importance of ensuring that affordable housing meets the needs of those who require it. Before addressing the amendments specifically, I assure noble Lords that the Government recognise the need to increase the supply of the most affordable type of affordable housing—that is to say, let at social rent. That is reflected in our commitment in the levelling-up White Paper to increasing the amount of social housing available over time to provide the most affordable housing for those who need it. A large number of new houses to be delivered through our £11.5 billion affordable homes programme will be for social rent.

The consultation that we published before Christmas on the NPPF also recognised the need for more social rent homes. Subject to the outcome of that consultation, we are proposing to make changes to the NPPF to make it clear that local planning authorities should give greater importance in planning to social rent homes when addressing their overall housing requirements in their development plans and making planning decisions. However, we also recognise that local authorities need flexibility to deliver exactly what is needed in their area, and this may vary depending on local circumstances. We want to ensure that, when there is innovation in models for the delivery of much-needed housing to meet the needs of those who require it, we can flex the system to incorporate such innovation.

So, we are aiming for a “Goldilocks zone”. If we define affordable housing too strictly either within the Bill or the NPPF, we risk stripping local authorities of their flexibility to decide what is appropriate in their area. But, if we leave the definition of affordable housing entirely to local authorities, we risk losing the levers to drive important government ambitions, including those relating to the increased delivery of social rent. That is why we are keen to maintain the existing approach, in which the Government set the direction through policy and regulation, while also allowing space for local authorities to shape this approach to best meet local need.

It is for that reason that I am concerned that Amendments 241A, 242 and 242ZA, which are all concerned with linking the definition of affordable housing to a specific measure of income, would be too restrictive. In the National Planning Policy Framework, affordable housing is described as housing for sale or rent to those whose needs are not met by the market and which complies with one or more specific definitions. Those specific definitions encompass several different types of accommodation, to meet the housing needs of a range of people in different circumstances and housing markets.

This includes affordable rent as well as social rent homes. Affordable rent was introduced in 2011 to make it possible to deliver a larger number of affordable homes for a given amount of public investment. This has helped to support the delivery of over 632,600 affordable homes since 2010. Of that total, more than 440,000 were homes for rent and, of these, more than 162,000 were for social rent.

The definition in the National Planning Policy Framework, to be read alongside relevant Written Ministerial Statements and guidance, also encompasses a range of options, including shared ownership and First Homes, that offer routes into home ownership for households whose needs are not met by the market. These options are typically available at a price below market value. Eligibility can also be assessed in relation to overall household income, or in reference to local incomes and house prices.

In relation to shared ownership specifically, the Government understand the need to maximise the scheme’s affordability both at the initial point of purchase and over the longer term. That is why shared ownership is specifically designed to enable prospective buyers to purchase the right percentage share of their home for them, based on an affordability assessment conducted by an independent financial adviser. By linking shared ownership status as a form of affordable housing to a specific measure of income, we would be removing this much-needed flexibility to tailor the scheme to the individual circumstances of prospective buyers.

In relation to compulsory purchase orders and the community infrastructure levy—and its replacement, the infrastructure levy—the definition of affordable housing is linked to the definition of social housing in the Housing and Regeneration Act 2008. This definition encompasses both “low-cost rental accommodation” and “low-cost home ownership accommodation”. There is flexibility to add other descriptions of housing via regulations.

This ensures that regulations can then be amended so that definitions for the purposes of the community infrastructure fund can also be updated. This approach has been maintained in the Bill for those areas which touch on developer contributions: the infrastructure levy, street votes and community land auctions.

It is right to preserve this flexibility, alongside our proposal that national planning policy should place much greater value on homes for social rent. I therefore hope that the right reverend Prelate and the noble Lord, Lord Stunell, will not press their amendments.

I turn next to Amendments 262 and 500 in the names of the noble Baronesses, Lady Pinnock and Lady Taylor of Stevenage. These amendments seek to enable local authorities to mandate that new housing under their jurisdiction be affordable; to define “affordable” for that purpose; and to enable Ministers to set legally binding targets for the construction of social housing.

14:30

While I entirely understand the sentiment behind these amendments, the proposed approach would be counterproductive. Local authorities are already empowered to set policies in their local plan that require developers to deliver a defined amount of affordable housing on market housing sites unless exceptions apply. These policies are able to take into account local circumstances in setting the appropriate minimum amount of affordable housing, which will vary across the country.

Under the infrastructure levy, we will introduce a new right to require through regulations, in which local authorities can require that a certain proportion of the levy be delivered as on-site affordable housing. For rural areas, policies are already in place such as our rural exception sites policy, which helps to bring forward much-needed affordable housing in such areas. We went further in 2020 by publishing planning practice guidance, which should help bring forward more of these sites in future.

The revenue from market housing is vital for delivering affordable housing and other vital infrastructure, with 26,000 affordable homes delivered through developer contributions in 2021-22. In addition, our new infrastructure levy will be able to deliver as much on-site affordable housing as at present, if not more. A top-down legislative requirement would fail to allow for the nuances of local circumstances to be taken into consideration and would, in any case, not be an appropriate way to incentivise the construction of affordable housing.

Finally, the approach suggested in Amendment 262 could undermine the autonomy that national parks rightfully possess as local planning authorities. In response to the noble Baroness, Lady Taylor of Stevenage, I would say at this point that the issues of Airbnb and second homes were brought up by the noble Baroness, Lady Hayman of Ullock, earlier this week and I am getting a response on that.

On Amendment 286, also in the name of the noble Baroness, Lady Pinnock, I will take subsections (1) and (2) of the proposed new clause first. The 2025 timeline delivers on our net-zero commitments while making sure that the construction sector has sufficient time to deliver the skills and supply chains for a significant change in the way we build houses. We have already accelerated our work on a full technical consultation for the future homes standard. We will consult in spring 2023 and legislate in 2024, ahead of the standard coming into force in 2025. We are not, however, waiting until then to take action. We introduced an uplift in standards, which came into force in June 2022. The uplift delivers a meaningful reduction in carbon emissions as a stepping stone to the future homes standard. Regarding the role of local authorities, all levels of government have a role to play in meeting our net-zero targets. Plan makers already have the power to set energy efficiency standards at local level which go beyond the national standards if they wish.

Turning to subsections (3) and (4) of the proposed new clause, taken together this part of the amendment would enable local authorities to mandate that new housing under their jurisdiction be affordable and defines “affordable” for that purpose. While again I entirely understand the sentiment behind the amendment, the proposed approach would be counterproductive. As I said, local authorities are already empowered to set policies in their local plans that require developers to deliver a defined amount of affordable housing on market housing sites unless exceptions apply. These policies are able to take into account local circumstances in setting the appropriate minimum amount of affordable housing, which will vary across the country. Under the infrastructure levy, as I said, we will introduce the new right to require through regulation, in which local authorities can require that a certain proportion of the levy be delivered as on-site affordable housing.

[Lord Stunell (LD)]

The Minister is being extremely thorough. She has emphasised very much that she does not want to constrain local authorities exercising their decisions as is appropriate for their area. Can she give us some assurance that when the NDMPs and the revised NPPF are published that we will not find that they are being constrained via a different route?

[Baroness Scott of Bybrook (Con)]

I cannot give that assurance because we have not yet published them, but from everything I know of where the Bill is going with planning, we are encouraging local authorities to make those local decisions within the national framework, and I do not expect any further constraints on local authorities in that regard.

This is probably the right time to also bring up the issue that the noble Lord, Lord Thurlow, raised about transparency and viability. We agree with many of the criticisms of the misuse of viability assessments. That is why we are introducing the infrastructure levy, which removes the need for viability assessments as part of the planning permission process. If we take it out of the process, I hope we will not have this argument in the beginning. I have had many arguments over viability in the past. If we take it out of the system, I hope that will stop in future.

Moving to Amendment 438, in the name of the noble Lord, Lord Best, I understand why he has put forward his amendments. While I appreciate totally the sentiment behind them, we do not believe this would be the correct legislative vehicle for this policy. The Government have provided public assurances that they will not require local authorities to make a payment in respect of their vacant higher value council homes in the social housing Green Paper and stand by that commitment. The Levelling Up and Regeneration Bill does not address the topic of social housing, and the Government do not wish further to complicate such a complex set of legislative measures. However, the Government remain committed to legislating on this issue at an appropriate time in the future. I can provide assurances at the Dispatch Box to the noble Lord that the provisions laid out in Chapter 2 of Part 4 of the Housing and Planning Act 2016 have not been brought into effect and this Government have no intention of doing so. The provisions lack a regulatory framework to underpin the policy, and therefore there is no risk of local authorities being subject to them before we are able to legislate in the future. I hope this reassures the noble Lord that the Government remain committed to the decisions set out in the social housing Green Paper and that provisions will be made in future for this revocation to be issued. I hope the noble Lord will feel able not to move the amendment.

[Baroness Taylor of Stevenage (Lab)]

I am grateful to noble Lords for such an interesting debate on a crucial topic central to the Levelling Up and Regeneration Bill. As a result of the discussions we have had, the National Housing Federation’s figure for people in need of social housing is now 3.8 million—that is 1.6 million households. That is around 500,000 more households than the 1.16 million that are on official waiting lists. We all know the reasons for that: not everybody who is in need of housing will necessarily want to spend the next 20 years on a housing waiting list. In so many areas it is impossible to see people ever being housed as a result of those housing lists.

I thank the right reverend Prelate the Bishop of Leeds for his important comments, particularly about us needing to understand what genuinely affordable housing means. It certainly does not mean the definition that is used in planning at the moment. I agree with his comment that we are under an illusion that housing built under the “affordable homes” category will resolve the housing crisis—it will not. I totally support his comments about unfreezing local housing allowance levels, which would be an important step. Over many decades, we have seen sticking-plaster approaches to tackling the housing situation in this country, which consequently continues to deteriorate.

The noble Lord, Lord Stunell, rightly said that all of the amendments in this group are aimed at the same destination. Neither in renting nor in homes for sale does “affordability” mean what it says on the tin. We are all trying to make sure that we do what we can in the Bill to change that to some extent.

It is misleading to say that the Help to Buy schemes, which the noble Lord, Lord Stunell, mentioned, will tackle the issue for those most in need of housing. Taking a little risk, I will mention a conversation I had with a former Conservative Minister, who said, “I don’t know why you keep banging on about social housing, Sharon. Everyone can afford to buy a house under our Help to Buy scheme”. That is clearly not the case. The noble Lord, Lord Stunell, quoted his noble friend who said that, in Southwold, the affordability ratio is 17:1, and 13:1 after a 20% discount. That is the case in quite a lot of the country, although not everywhere.

More than 50% of social homes have been transferred into the private rented sector, which is a great grievance to those of us who deal with the impact of that. Where that rent is paid by universal credit or other benefits, instead of DWP paying—I shall use the figures I quoted earlier—£110 a week rent for those properties, the public purse now pays £235 a week for them. That does not make any sense at all, so we need to do all we can to address this situation.

As ever, I was pleased to hear from the noble Lord, Lord Best, about his amendment. I thank him for reminding us about the Affordable Housing Commission report, which is very good and we all need to take account of it. I am afraid I found the Minister’s comments on the amendment proposed by the noble Lord, Lord Best, a bit disappointing. None of us, including the Government, want this measure. The noble Lord, Lord Best, called it an “obnoxious” and “offensive” legislative provision, which it is. He pointed out that it has hung over local government since 2016. We could use this legislation to get rid of it. Why do we not do that? Under that legislation, local authorities were expected to raise the rent to market levels where tenants improved their financial situation. When that happened, it greatly concerned me that this would not benefit local communities or our housing stock but would tip into the bottomless bucket in the Treasury. It is time that that provision was scrapped. I absolutely support the comments of the noble Lord, Lord Best, about local decisions being taken on right-to-buy discounts. That measure is way past time, and we should absolutely have it.

The noble Lord, Lord Young, spoke about unfreezing local housing allowance, which I agree with. He also mentioned discretionary housing payments. In many local authorities, the allocated amount of discretionary housing payment runs out in Quarter 1, and then various bodies, including government advisory bodies and Citizens Advice, often send tenants to their councils to request discretionary housing payment, when in fact it has run out in the first three months of the year. That is simply because of the cost of living crisis and the level of rents that are putting so much pressure on those discretionary housing payments.

14:45

The noble Lord, Lord Young, also rightly raised the issue that we are often faced with the difficult choice of low rents or increasing rents and having enough funding to provide new builds. I support that, but there are other ways of doing this. The Government have provided some funding for new housing, but local authorities and other public sector bodies can also 3be creative about the way they use their land and property to deliver social housing and use their assets to contribute to resolving the housing crisis. For example, there can be mixed developments where the authority uses the surplus from private sales to fund the social housing on those developments. In my own borough, we had closed-down pubs and we did a land swap with a doctors’ surgery, so the doctors got a new surgery and we got a housing site. We also used a low-demand garage block to build specialised housing for street homeless people. There are solutions, but he is right that we have to get round this point that you either have high rents or you do not have any new build. That requires government intervention, and we need to think about that.

The noble Lord, Lord Thurlow, said that he did not know how anyone could listen to this debate without wanting to scrap right to buy. I have to approach this cautiously, but I am very sympathetic to that point. He also spoke about affordable housing being abused by developers on the often spurious grounds of viability. The noble Lord, Lord Stunell, mentioned that these calculations are still allowed to be kept secret and they absolutely should not be. Communities should know why developers are saying that they cannot put affordable housing in their developments.

As ever, I was grateful to the Minister for her very detailed response on the debate. However, to defend the status quo, which is how her comments could be interpreted, is very difficult in the circumstances of the housing situation that many people in our communities face. I think there is an increasing burden on the rental income stream and the Minister is correct to say that. The regulatory burden is not helping. I completely understand why the Government are increasing the regulatory burden, but this puts additional pressure, which is not covered, as I understand it, by new-burdens regulations.

It has been a very good discussion on all these housing points. I will withdraw the amendment for now, but I hope the Minister recognises the strength of feeling in your Lordships’ House on some of these issues. This means we will want to come back to this on Report. I think we may want to push for Report stage not to be held until we have the benefit of detail. We keep being told that these things are going to be in the NPPF and the NDMPs, so it may be that we want to consider whether Report stage should be before we have sight of those documents. But, for the moment, I withdraw my amendment.

Amendment 241A withdrawn.

Clause 94 agreed.

Amendments 242 and 242ZA not moved.

Schedule 8: Minor and consequential amendments in connection with Chapter 2 of Part 3

Amendments 242A to 242H

Moved by

[Baroness Scott of Bybrook]

242A: Schedule 8, page 327, line 9, at end insert—
“Local Government Act 1972
A1 In section 138C of the Local Government Act 1972 (application of sections 138A and 138B to other authorities), in subsections (1)(s) and (2)(c), for “an order under section 29” substitute “regulations made under section 15J”.”Member's explanatory statement
This amendment inserts an amendment to the Local Government Act 1972 which is consequential upon Schedule 7 to the Bill.

242B: Schedule 8, page 327, line 11, at end insert—
“1A In section 2A (the Mayor of London: applications of potential strategic importance), in subsection (6)(aa), for “development plan document” substitute “local plan, document which is or forms part of a minerals and waste plan or supplementary plan”.1B In section 59A (development orders: permission in principle)—(a) in paragraph (b) of subsection (3)—(i) for “development plan document” substitute “local plan or supplementary plan”;(ii) for “section 37” substitute “section 15LH”;(b) after that paragraph insert—“(ba) a document which is, or forms part of, a minerals and waste plan within the meaning of Part 2 of the 2004 Act (“a minerals and waste plan document”);”(c) in subsection (5)(b), for “development plan document” substitute “local plan, minerals and waste plan document or supplementary plan”.1C In section 70(4) (determination of applications: definitions), in paragraph (l) of the definition of “relevant authority”, for “section 29” substitute “section 15J”. 1D In section 74 (directions etc as to method of dealing with applications), in subsection (1BB) for “development plan document” substitute “local plan, document which is or forms part of a minerals and waste plan or supplementary plan”.”Member's explanatory statement
This amendment inserts amendments to the Town and Country Planning Act 1990 which are consequential upon Schedule 7 to the Bill.

242C: Schedule 8, page 328, line 6, at end insert—
“2A In section 306 (contributions by local authorities and statutory undertakers), in subsection (2)(ab)—(a) after “by a” insert “minerals and waste planning authority or”;(b) after “duty of” insert “minerals and waste planning authority or”.2B In section 324 (rights of entry), in subsection (1)(a), for “local development document” substitute “local plan, document which is or forms part of a minerals and waste plan or supplementary plan”.”Member's explanatory statement
This amendment inserts amendments to the Town and Country Planning Act 1990 which are consequential upon Schedule 7 to the Bill.

242D: Schedule 8, page 328, line 10, at end insert—
“3A “(1) Schedule 1 (local planning authorities: distribution of functions) is amended as follows.(2) In paragraph 7, for sub-paragraph (10) substitute—“(10) A relevant county policy is a policy contained in a relevant document, plan or revision which—(a) has been submitted for independent examination under Part 2 of the 2004 Act and has not been withdrawn, or(b) has been adopted, approved or made for the purposes of that Part.(10A) In sub-paragraph (10)—(a) a “relevant document, plan or revision” means—(i) a document prepared to be, or to form part of, the county planning authority’s minerals and waste plan for the purposes of Part 2 of the 2004 Act,(ii) a revision of a document which is, or forms part of, the county planning authority’s minerals and waste plan for the purposes of that Part,(iii) a supplementary plan prepared by the county planning authority acting as a minerals and waste planning authority under that Part, or(iv) a revision of a such a supplementary plan;(b) the reference to submission of a relevant document, plan or revision for independent examination under Part 2 of the 2004 Act is to be taken to include any case where an independent examination is held under that Part.”(3) In paragraph 8(3E), in paragraph (b) of the definition of “relevant neighbourhood development plan”, for “(3)” substitute “(2A)”.(4) In paragraph 8A(2), in paragraph (b) of the definition of “relevant neighbourhood development plan”, for “(3)” substitute “(2A)”.3B In Schedule 13 (blighted land), in paragraph 1A—(a) for “development plan document”, in the first place it appears, substitute “local plan, minerals and waste plan or supplementary plan”;(b) for Note (2) substitute—“(2) For the purposes of this paragraph a local plan is a local plan, or revision of such a plan, which— (a) has been submitted for independent examination under Part 2 of the Planning and Compulsory Purchase Act 2004 (in this paragraph, “the 2004 Act”) and has not been withdrawn, or(b) has been adopted, approved or made for the purposes of that Part.(2ZA) For the purposes of this paragraph a minerals and waste plan is a document prepared to be or to form part of a minerals and waste plan, or a revision of such a document, which—(a) has been submitted for independent examination under Part 2 of the 2004 Act and has not been withdrawn, or(b) has been adopted, approved or made for the purposes of that Part.(2ZB) For the purposes of this paragraph a supplementary plan is a supplementary plan, or a revision of such a plan, which—(a) has been submitted for independent examination under Part 2 of the 2004 Act and has not been withdrawn, or(b) has been adopted, approved or made for the purposes of that Part.”;(c) omit Note (3);(d) for Note (4) substitute—“(4) In Notes (2) to (2ZB) the references to submission of a local plan, a supplementary plan, a document or a revision for independent examination under Part 2 of the 2004 Act are to be taken to include any case where an independent examination is held under that Part.””Member's explanatory statement
This amendment inserts amendments to the Town and Country Planning Act 1990 which are consequential upon Schedule 7 to the Bill.

242E: Schedule 8, page 328, line 11, at end insert—
“3A GLAA 1999 is amended as follows.”Member's explanatory statement
This amendment is consequential upon the sixth amendment in the Minister’s name to Schedule 8 to the Bill.

242F: Schedule 8, page 328, line 12, leave out “of GLAA 1999”
Member's explanatory statement
This amendment is consequential upon the seventh amendment in the Minister’s name to Schedule 8 to the Bill.

242G: Schedule 8, page 328, line 13, at end insert—
“4A In section 346 (monitoring and data collection), in paragraph (b), for “local development documents” substitute “local plan, any document which is or forms part of a minerals and waste plan and any supplementary plans”.4B In section 347 (functional bodies to have regard to strategy)—(a) for “section 24” substitute “sections 15CA(2) and 15CC(7)”;(b) for “requires certain of a Mayoral development corporation’s documents” substitute “require local plans, minerals and waste plans and supplementary plans”.”Member's explanatory statement
This amendment inserts amendments to the Greater London Authority Act 1999 which are consequential upon Schedule 7 to the Bill.

242H: Schedule 8, page 335, line 36, at end insert—
“Commons Act 2006
15 In Schedule 1A to the Commons Act 2006 (exclusion of right under section 15 of that Act (registration of greens): England), in the Table—(a) in paragraph 3 of the first column—(i) for “development plan document” substitute “local plan, a document which is to be or to form part of a minerals and waste plan or a supplementary plan”;(ii) for “section 17(7)” substitute “section 15LE(2)(g)”;(b) in paragraph (a) of the entry in the second column corresponding to paragraph 3—(i) after “The” insert “plan or”;(ii) for “under section 22(1) of the 2004 Act” substitute “under—(i) in the case of a local plan, section 15E of the 2004 Act;(ii) in the case of a document which is to be or to form part of a minerals and waste plan, section 15E of that Act (as applied by section 15CB(7) of that Act);(iii) in the case of a supplementary plan, regulations made under section 15CC(11) of that Act.”(c) for paragraph (b) of the entry in the second column corresponding to paragraph 3 substitute—“(b) The plan or document is adopted or approved under Part 2 of that Act (but see paragraph 4 of this Table).”;(d) in paragraph (c) of the entry in the second column corresponding to paragraph 3, after “which the” insert “plan or”;(e) for paragraph 4 of the first column substitute—“4 A local plan, a document which is or forms part of a minerals and waste plan or a supplementary plan, which identifies the land for potential development, is adopted or approved under Part 2 of the 2004 Act.”;(f) in paragraph (a) of the entry in the second column corresponding to paragraph 4—(i) after “The” insert “plan or”;(ii) for “section 25 of the 2004 Act” substitute “section 15G of the 2004 Act (including as applied by section 15CB(7) of that Act, in the case of a minerals and waste plan)”;(g) in paragraph (b) of the entry in the second column corresponding to paragraph 4, after “in the” insert “plan or”.Planning and Energy Act 2008
16 The Planning and Energy Act 2008 is amended as follows.17 (1) Section 1 (energy policies) is amended as follows.(2) In subsection (1), for “development plan documents,” substitute “local plan and any supplementary plan, a minerals and waste planning authority may in their minerals and waste plan and any supplementary plan,”.(3) After that subsection insert—“(1ZA) In relation to the minerals and waste plan or supplementary plan of a minerals and waste planning authority, references in subsection (1) to development in their area are to minerals and waste development in the relevant area.”(4) In subsection (4)—(a) in paragraph (a), for “section 19” substitute “sections 15C, 15CA and 15CC”;(b) after that paragraph insert—“(aza) sections 15CB and 15CC of that Act, in the case of a minerals and waste planning authority;” (5) In subsection (5), for “development plan documents” substitute “a local plan, a minerals and waste plan or a supplementary plan”.18 In section 2 (interpretation), for the definition of “development plan document” substitute—““local plan” , “minerals and waste development”, “minerals and waste plan”, “minerals and waste planning authority”, “relevant area” and “supplementary plan” have the same meaning as in Part 2 of the Planning and Compulsory Purchase Act 2004 (see, in particular, section 15LH of that Act);”Marine and Coastal Access Act 2009
19 (1) Schedule 6 to the Marine and Coastal Access Act 2009 (marine plans: preparation and adoption) is amended as follows.(2) In paragraph 1—(a) in sub-paragraph (2), after paragraph (d) insert—“(da) any minerals and waste planning authority whose relevant area adjoins or is adjacent to the marine plan area;”;(b) in sub-paragraph (3)—(i) in paragraph (a) of the definition of “local planning authority”, for “section 37” substitute “section 15LF”;(ii) after that definition insert—““minerals and waste planning authority” means an authority which is a minerals and waste planning authority for the purposes of Part 2 of the Planning and Compulsory Purchase Act 2004 (see section 15LG of that Act) and “relevant area” has the meaning given by that section.”(3) In paragraph 3(6), in paragraph (a) of the definition of “development plan”, for “section 38(2) to (4)” substitute “section 38(2A) to (4)”.Waste (England and Wales) Regulations 2011 (S.I. 2011/988)
20 In regulation 16(3) of the Waste (England and Wales) Regulations 2011 (general interpretation: meaning of planning authority), for sub-paragraph (b) substitute—“(ba) a local planning authority or minerals and waste planning authority for the purposes of Part 2 of the 2004 Act;”.Housing and Planning Act 2016
21 The Housing and Planning Act 2016 is amended as follows.22 In section 6 (starter homes: monitoring), in subsection (2), omit paragraph (c).23 In section 7 (starter homes: compliance directions), in subsection (1)(b) for “local development document” substitute “local plan, document which is or forms part of a minerals and waste plan or supplementary plan”.24 In section 8 (starter homes: interpretation), for the definition of “local development document” substitute—““local plan” , “minerals and waste plan” and “supplementary plan” have the same meaning as in Part 2 of the Planning and Compulsory Purchase Act 2004 (see, in particular, section 15LH of that Act);”Conservation of Habitats and Species Regulations 2017 (S.I. 2017/1012)
25 The Conservation of Habitats and Species Regulations 2017 are amended as follows.26 (1) Regulation 41 (nature conservation policy in planning contexts) is amended as follows.(2) In paragraph (1), after “of land” insert “or minerals and waste development”. (3) In paragraph (2)(a)(i)—(a) for “section 17(3)” substitute “sections 15C(3) and (4) and 15CC(3)”;(b) for “local development documents” substitute “local plans and supplementary plans made by local planning authorities”.(4) Omit the “and” at the end of paragraph (2)(a)(ii).(5) After paragraph (2)(a) insert—“(aa) in relation to minerals and waste development, sections 15CB(2) and (3) and 15CC(5) of that Act; and”27 (1) Regulation 108 (co-ordination for land use plan prepared by more than one authority) is amended as follows.(2) In paragraph (1), for the words from “prepare” to the end substitute “prepare a relevant joint plan”.(3) In paragraph (2), for “joint local development document or plan” substitute “relevant joint plan”.(4) In paragraph (3), for “joint local planning document or plan” substitute “relevant joint plan”.(5) In paragraph (5), for “joint local development document or plan” substitute “relevant joint plan”.(6) After that paragraph insert—“(6) In this regulation “relevant joint plan” means—(a) a joint spatial development strategy, joint local plan or joint supplementary plan (within the meaning of Part 2 of the 2004 Planning Act),(b) a document which is or forms part of a joint minerals and waste plan under sections 15I and 15IA of that Act (as applied by section 15CB(7) of that Act), or(c) a joint local development plan under section 72 of that Act.”28 (1) Regulation 111 (interpretation of Chapter 8 of Part 6) is amended as follows.(2) In paragraph (1)—(a) in paragraph (b) of the definition of “land use plan”—(i) for “local development document as provided for in” substitute “joint spatial development strategy, local plan, document which is or forms part of a minerals and waste plan, supplementary plan or any revision of such a plan or document under”;(ii) omit the words from “other” to the end;(b) in paragraph (a) of the definition of “plan-making authority”, after “replacement)” insert “or section 15CC of the 2004 Planning Act (supplementary plans)”;(c) in paragraph (b) of the definition of “plan-making authority” omit “or an order under section 29(2) of the 2004 Planning Act (joint committees)”;(d) after that paragraph insert—“(ba) a local planning authority or minerals and waste planning authority for the purposes of Part 2 of the 2004 Planning Act;”;(e) in paragraph (c) of the definition of “plan-making authority”, omit sub-paragraph (i);(f) after that paragraph insert—“(ca) anyone exercising powers under section 15H, 15HA or 15HB of, or Schedule A1 to, the 2004 Planning Act;”(3) In paragraph (2)—(a) for sub-paragraphs (a) and (b) substitute— “(aa) the adoption of a joint spatial development strategy under section 15AD of the 2004 Planning Act or of an alteration of such a strategy under section 15AF of that Act;(ab) the adoption or approval of a local plan, document which is or forms part of a minerals and waste plan, supplementary plan or a revision of any such document or plan under Part 2 of the 2004 Planning Act;”;(b) in sub-paragraph (c) for “publication” substitute “adoption”.”Member's explanatory statement
This amendment inserts amendments to various enactments which are consequential upon Schedule 7 to the Bill.

Amendments 242A to 242H agreed.

Amendment 242I not moved.

Schedule 8, as amended, agreed.

14:49

Sitting suspended.

15:19

Clause 95: Regard to certain heritage assets in exercise of planning functions

Amendment 243

Moved by

[Baroness Hayman of Ullock]

243: Clause 95, page 102, line 35, at end insert—
“(5) The Secretary of State must, within one year of the day on which this section comes into force, publish a report of a review of the efficacy of Local Heritage Lists and the resources local authorities have to produce them.(6) The Secretary of State must, on the day on which this section comes into force, publish the results of the 2018 review of the non-statutory guidance on Assets of Community Value.”Member's explanatory statement
This means that the Secretary of State must publish a report of a review of Local Heritage Lists and the results of the 2018 review of the non-statutory guidance on Assets of Community Value.

[Baroness Hayman of Ullock (Lab)]

My Lords, Amendment 243 is in the name of my noble friend Lady Taylor of Stevenage. Amendments 244 and 246 in this group are both also in her name. I shall briefly speak to them and make some comments on some of the other amendments in this group.

My noble friend’s Amendment 243 asks the Secretary of State to

“publish a report of a review of Local Heritage Lists and the results of the 2018 review of the non-statutory guidance on Assets of Community Value”.

Amendment 246 also refers to assets of community value—ACVs—asking for draft legislation to be published to reform the processes.

Amendment 244, which is on a slightly separate issue, is about decision-making on temporary stop notices. The amendment says that, when making a decision on the correct recipient of a temporary stop notice, the authority should have regard to the tenancy status of the occupier and their level of responsibility for any works on the property. It is pretty straightforward as to why we have laid this amendment, so I shall be brief. We believe it is really important to guard against a situation where the wrong person may be held accountable for works on a property for which they actually have no responsibility whatever. The Local Government Association was very clear that we should make this point during the debate on the Bill. We believe that other factors should be taken into account before any notice is issued, because we really need to make sure that the correct person—the person liable—is the person that has been identified. It would be very helpful if the Minister could provide some information on how the Government can ensure, in future, that this is what happens, so that we do not end up with people with no responsibility suddenly having a lot of problems with sorting out works on the property in which they are living but for which they do not have responsibility.

We have laid the amendments on the assets of community value because they are very important. We believe that communities should play a key role in both the preservation and the delivery of local assets that sit outside of local authority control. We know that the Localism Act 2011 contains important powers for local communities to be able to do just this, but the problem is that there are issues around how it works. Under current rules, buildings or pieces of land which are, or have been, used to

“further the social wellbeing or social interests of the local community and could do so in the future”

can be nominated to be classified as an ACV by community groups or councils. But if an ACV goes up for sale, a local group that can make a decision as to whether it wants to bid for this is given only six months to gauge whether it is able to bid for it—and it is only during that six-month period that the owner is unable to sell it. After that six-month grace period elapses, they can sell assets of community value to anybody they want to. A report compiled by the Levelling Up, Housing and Communities Committee in Parliament suggested that the six-month grace period was too short and that it would sideline groups in more disadvantaged communities from being able to make bids. We believe that this needs to be changed.

The Labour Party has proposed extending the time frame to 12 months. We believe that local people from every community—not just those who are wealthy and have the resources to put their bids together very quickly—should have the opportunity to take control of, possibly, pubs, historic buildings or, perhaps, football clubs that come up for sale and would otherwise just fall into disrepair. We also believe that they should have first refusal on valuable assets when they come up for sale, including the right to buy them without competition. They should also have the right to force a sale of land or buildings that have been left to fall into a state of significant disrepair. If these processes were reformed to allow and encourage every community to take advantage of it, it would do so much more for the large number of communities that are currently threatened with losing community assets but do not have the ability to put together bids to take them under community control. I urge the Minister to look carefully at how this could be improved for the benefit of all communities.

I would like to make a few comments on Amendment 245, in the name of the noble Earl, Lord Lytton, about the results of the Historic England pilot on compensation rights. This comes under Clause 98 of the Bill, which seeks to remove compensation when a local authority has wrongly served a building preservation notice which, when it was served, prevented any additional work from progressing. We have been talking to the CLA about this, and it disagrees that this is the right way forward, as not only are there significant property rights implications but it also removes an important check on local authorities that wrongly serve building preservation notices. This can cause huge disruption and costs for the owners. We believe that compensation is key to the protection of individuals’ rights. Moreover, the many compensation provisions across the planning system are a vital part of its fairness. If mistakes happen and people suffer loss then, surely, they should be compensated. I shall not talk any further on this because I am sure that the noble Earl will go into great detail, but we appreciate his amendment. It is an important area that needs to be looked at.

My noble friend Lady Andrews has also put down some important amendments on the demolition of buildings, development rights, reduction of carbon emissions and the importance of local communities’ abilities to shape local places. Currently, most buildings can be demolished without planning permission if they are not listed and not in a conservation area. These permitted development rights for demolition have already been removed for buildings such as pubs and theatres, but there is no requirement for the buildings to be run down or beyond repair for this right to apply. We have had some very helpful briefings from the Victorian Society about its concerns on these issues, and we consider that my noble friend’s amendments are very important. I hope that the Minister can support them. I beg to move.

[The Earl of Lytton (CB)]

My Lords, I will speak to Amendment 245—a probing amendment—in my name and that of my noble friend Lord Devon. Unfortunately, my noble friend cannot be here today due to other pressing matters. I must first declare my ownership of two listed buildings and the occupation of a third. I have also acted professionally as a chartered surveyor who has surveyed many listed and unlisted buildings and structures where works were proposed. I am very grateful for the support and input of the CLA, of which I am a member, and of Historic Houses and the Listed Property Owners Club. I am particularly grateful for, as it were, an introduction by the noble Baroness, Lady Hayman of Ullock. It was rather unexpected, because I did not think that it would necessarily be a matter that her party would relate to in those terms.

I acknowledge the importance to the nation of protecting its heritage. When the listing of buildings first came about in, I think, the 1950s, it carried with it an obligation to seek consent for works that affected the character of a listed building. It was not originally the case that effects on character meant that every alteration required consent. However, over the years, because the citations for listing and the descriptions of the matters of importance were, to put it bluntly, minimalist, that is how it has come to be operated. It has now almost become the norm for common periodic maintenance and repair to be caught by a demand for formal consent—things which, for any other unlisted building or structure, can be done without any formality.

15:30

A listed building application is not a particularly simple science: it requires a formal submission with drawings, sample materials and so on. Statements of heritage impact incur no small measure of cost, not to mention frequent inordinate delays in getting a determination. I speak from professional experience on that. I acknowledge, though, that there is no fee for making a listed building application—thankfully, in the context of what I have just explained. The idea persisted, however, that flexibility for public administrative purposes justified the appropriation to the public interest of overriding control of historic environments and, further, that this was more important than clarity for owners—or planners. However, I acknowledge that, in many instances, historic buildings, features and environments that would otherwise have been lost have been preserved by the building listing process, while unprotected ones have been lost.

What constitutes the legitimate public interest in this matter is something of constant evolution; it may be contextual, whereby legal constructs, such as curtilage, setting, attachment of artefacts and so on must be weighed up with important associations, past occupiers and events. If we overlay on to this the fact that nearly every listed building or structure of any significant age, including some parks and gardens, has undergone changes due to the inconsistently sympathetic or unsympathetic actions of successive owners and that, in a majority of cases, the listing process fails to capture the construction and management history of the item in question, it is easy to see the outcome.

Moreover, I must say that, in my experience, the competence of personnel typically involved in some public sector determination of historic building attributes is often as patchy as their affordability to local government. I know of local authorities that do not have their own in-house people; the in-house people were, in my view, the salt of the earth, but they do not have them any more. They outsource so many days a month to an external contractor, who comes in and out and may not have any detailed understanding of vernacular features.

I come to the point of Amendment 245. When an owner acts in good faith with a building that they know is not listed and not in a conservation area and sets about carrying out works that they would be entitled to do under the prevailing laws—and, it should be said, possibly under a permitted development—it matters if, unexpectedly, the authority decides to stop works on the grounds of a previously undisclosed, unrecorded and formally unnotified, but deemed priority, cultural interest by serving a building preservation notice, thus bringing works to a halt for six months.

This may sound like a bit of semantics, but I will mention it anyway. The “Listed Buildings Act” referred to in Clause 98 of the Bill is, I understand, shorthand for the Planning (Listed Buildings and Conservation Areas) Act 1990. Perhaps, at some stage, that could be corrected.

Under the current rules in Section 29 of that Act—I am not going to go into this in extensive detail—there is a provision for:

“Compensation for loss or damage caused by service of building preservation notice”.

It applies

“where a building preservation notice”

has been served and

“ceases to have effect without the building having been included in a list”

of protected buildings. One might say that this has the potentially perverse effect that, rather than getting yourself into trouble by not including it on a list, you include on the list all sorts of things that are perhaps of dubious merit. But I leave that to one side. It goes on to say that an owner who is affected by this in such a way is

“entitled to be paid compensation by the local planning authority in respect of any loss or damage directly attributable to the effect of the notice”.

Then it describes how the loss and damage might be payable, including

“a sum payable in respect of any breach of contract”.

The rationale is clear: if a local authority proceeds without carefully considering its grounds for listing a property as being of architectural or historic interest and in doing so ultimately concludes that it should not be listed, but the process occasions loss to the owner, there is entitlement to compensation for that loss. As I say, perversely this arrangement might lead to unforeseen outcomes, such as including things that should not be on the list, but bear in mind that the owner may be caught in the middle of a contract of works that might be a matter of recurring repair and refurbishment and, as I say, could be permitted development. So they are clearly vulnerable at that stage, and most people would consider that the reasonable enjoyment of one’s property, without the intervention of unsubstantiated statutory powers, should be compensated as a matter of basic rights to the reasonable enjoyment of one’s property. Recognising, however, that local government is acutely underresourced to deal with heritage matters, I note that it appears to have been an object of policy of successive Administrations to pass the risks and costs to owners rather than to internalise them within the public domain, notwithstanding the questionable economic justification or social justice of so doing.

I acknowledge that some minds within the Government’s heritage adviser, Historic England, did at least consider an alternative approach. That was to provide a form of indemnity insurance against claims arising from building preservation notices. This got as far as a pilot study, which had the intention of providing practical guidance to forward policy; however, the promised report that was supposed to be the outcome of this exercise has never yet seen the light of day and there has been no subsequent discussion or debate on the matter. Yet here we are, faced with Clause 98, which purports to remove the right to compensation. The only justification I can find, having made some inquiries of people with closer links to local government than I have, is that it was seen as being handy to have. If that is the justification, I do not think it is good enough. It would, to my mind, have the perverse outcome of facilitating speculative and wholly unjustified interventions by local authorities without need for demonstrable grounds, and with that the denial of fair and equitable treatment of owners where it can be shown they were needlessly and adversely disadvantaged.

I remind noble Lords that Clause 98 does not apply to the situation in Wales. I assume that the current compensation provisions there remain intact. This seems, at best, a tad asymmetric. That is the point of principle here, which is why Amendment 245 sets out to put the cart back behind the horse, where it belongs, so that the Secretary of State shall first consider and consult on the outcome of the pilot scheme before Clause 98 can be brought into force.

To conclude, I have two points. I ask the Minister for a reasoned justification for Clause 98, because I have not seen one. But I cannot entirely leave the matter there without noting that this is not the only instance in the Bill where the overriding of private property rights in the public interest, without proper safeguards, suggests an infringement of human rights legislation. I further understand that the Joint Committee on Human Rights has not commented on the Bill, which is why I have drawn some of the other instances, but not this particular one, to its attention. It does, however, cause me to further ask the Minister, in the light of my explanations, by what metric his noble colleague felt able to certify HR compliance of the Bill, which appears on its title page. I beg to move.

[Baroness Andrews (Lab)]

My Lords, this is an important group of amendments, and I have great pleasure in supporting them all. I have two amendments in my name, which reflect a particular interest that the Victorian Society has in the demolition of non-listed buildings. I am very grateful to the Victorian Society for marshalling support for these amendments. I would also say that these are amendments that sit the heart of the Levelling-Up and Regeneration Bill, and they follow present practice, to which I will draw attention. I am grateful to the noble Lords, Lord Shipley and Lord Carrington, for their stamina in being here to support these amendments. I will try to be brief.

My amendments address a serial, long-standing failure to protect the historic built environment that gives the ordinary places we live character, memory and beauty through familiar structures. Nationally protected buildings are, as we know, protected if they are listed. They are secured by law, but the demolition of most buildings is permitted without planning permission if they are not listed or in a conservation area, even if they are in good condition and have potential new uses. This has been happening, as recorded by the Victorian Society, across the country, and the problem is that because of the historic underlisting of important buildings that Historic England identifies through the Saunders report. Buildings that are potentially listable and not on the list can be demolished.

Permitted development is exactly what it says: the ability to demolish or change a structure with none of the protections or local involvement that the planning system provides. It has been an unwelcome flood that has been extended in recent years, which brings unpredictability and perverse consequences. It is well overdue for a review, and I ask the Minister to consider very seriously whether he and his colleagues can put that into practice now.

The changes that PDR promotes, together with what the noble Lord previously implied—the hollowing out of planning departments and the loss of conservation specialists—means that our villages, small towns and cities are at greater risk than they have been for some time. The risk is from cumulative change as well as casual change, and it is irreversible. Locally listed buildings—a very small number in relation to the whole—are now particularly vulnerable. My two amendments focus on these groups.

Amendment 312G would remove permitted development rights for all demolition. It would allow for public consultation and would protect all non-designated heritage assets. Amendment 312H focuses on the local listing of buildings. It removes permitted demolition rights for locally listed assets and protects non-designated heritage assets that are on a local planning authority’s local list. This is long overdue. We also suggest that the Secretary of State could provide further clarity by setting out a definition of what qualifies as a local list following consultation.

These amendments are timely and would re-engage local communities. They would be extremely welcome, and I offer them as a gift to the Government, who are now in an election year. They are timely. Is it not better to save our historic assets that are still safe, habitable and useful than to pull them down? Increasingly, this is how people feel. In recent years, when so much in the country has shifted around us, we have come increasingly to value the quality and resonance of our local environment. This intensified during the pandemic.

When I was heavily involved with the Heritage Lottery Fund, we funded a great deal of locally inspired small projects within 15 minutes of the places where people live. We had a tremendous response. It drew out of local communities the things that they felt were really important to them. It is clear that keeping and repurposing historic buildings—schools, surgeries, churches, cinemas, factories, mills—is seen as an infinitely better alternative and one within reach. They retain character and diversity and inspire unique pride across the generations. We have lost so much, and we will lose more unless we stop and pause.

Once something is gone, whether it is the Euston Arch or a local cinema, we cannot recover it. At a time of so much instability in the high street and excessive office building, surely the time has come to rethink and repurpose for what people need today, whether that is childcare centres or marketplaces.

15:45

The second argument for timeliness has been used across this Bill for many days: climate change. Demolition wastes energy and demands more. We are now in the final lengths if we are to avoid the tipping point of global temperature—1.5 degrees Celsius above pre-industrial levels—but our preparations are, to reflect what our Climate Change Committee has said, pitifully inadequate. It is not enough to build new houses to net-zero standards, even if we were doing that. The demolition and reconstruction of buildings is a huge expense that brings a direct increase in emissions; up to 51% of a residential building’s carbon is emitted before the building is operational, and for an office building it is up to 35%.

It is particularly perverse—this bears on the argument that we have been having on the conservation of buildings for many years—that the VAT rules incentivise demolition. There is no VAT on demolition, but there is 20% VAT on repair and maintenance. It makes no sense. If that were reversed, it would help us meet our net-zero target. What could possibly be wrong with that?

The second argument is simply democratic. Demolition is the nuclear option, yet one in which the local community has no say. By bringing demolition of all non-designated assets as well as those that are locally listed into planning disciplines, the local authority and the local community would finally have some influence and be able to follow through. This seems to be reasonable and right. I simply say to those who argue that this is impractical, would give too much power to local people and set back development that my first amendment would not prevent demolition; it would just have to be considered on its own merits. It brings a benefit with it because in most cases it would be logical to make an application for demolition alongside the application for the new building, which would enable the site to be considered strategically as a whole. A de minimis right would remain regarding small structures so that planning permission would not be required for demolition.

These arguments apply to both my amendments, but apply to the second with specific force. It is self-evident that buildings which are locally listed have a particular character and meaning for the local community. They are a clear guide to what is significant and enable local decisions to reflect that. That is the only protection they have. However, blanket PDRs exclude them. The buildings on the local list can be demolished without planning permission if they are not in a conservation area. A local community hall at the heart of a community, but not in a conservation area, can be demolished without challenge.

At present, the only option for saving a locally listed building is to use the cumbersome procedure of an Article 4 direction, which is a real hassle. It does not get used because the time and people are not there and it is too expensive. Anyway, not all local authorities have local lists, as the Government have recognised by putting £1.5 million into improving their coverage and consistency. My second amendment in this group would put protections around these most significant and well-loved local buildings, which are often better known than national monuments. That would be the first step, but the Government could strengthen this by issuing guidance on the criteria that those local lists would have to meet to be excluded from PDRs.

These amendments have been carefully thought out and prepared. They have the support of the Heritage Alliance, which represents a wide constituency of heritage bodies, and are entirely consistent with the published advice issued by Historic England. Even more persuasively, they are completely consistent with the spirit of this Bill and the principles and practice of the levelling-up agenda. I welcome that the role of heritage in promoting the levelling-up agenda has been recognised in the partnerships between government and the heritage bodies that are working to conserve and develop historic assets and the environment around the country, particularly in poor areas. Government figures show that £594 million—a terrific amount of money—of the £2.1 billion from the second round of the levelling-up fund has been awarded to local projects to restore local heritage.

These amendments serve that purpose. There are beautiful and resourceful historic buildings in every community in the country, no matter how different they are, which reflect the history of those communities and can be put to work for another generation whose needs are different. I commend the amendments to the Minister and hope that he will take their point.

[Lord Carrington of Fulham (Con)]

My Lords, I rise to support the amendments that were so ably addressed and presented by the noble Baroness, Lady Andrews. These are important amendments because the demolition of historic building is a very long-standing problem. I do not want to go through all the arguments that the noble Baroness, Lady Andrews, ably set out in her speech; I want to consider some slightly different issues which these amendments would help to address.

Part of the long-standing problem is that historic buildings are not properly protected by either our planning or listing systems. This is partly because fashions change, partly because of prejudice and partly purely because the legislation does not keep up with the need to protect buildings as they become old and more vulnerable. It is an old problem. Those of us who go back a few years—I ought to say that I have been a member of the Victorian Society since I was a teenager, which some of you will be surprised to hear was one or two years ago—will remember the Firestone factory, which was expected to be listed as a great Art Deco building. It was knocked down overnight—indeed, it was severely damaged to ensure that it could not be repaired—to stop it being listed. The Firestone building was not alone. Those of you who remember the last 20 or 25 years will recall Kensington Town Hall in Kensington High Street. Outrageously, the local council, whose politics I strongly agree with, knocked down the façade of the old town hall overnight to stop it being listed. Neither of these buildings would necessarily have been a great priority for listing, but they were certainly well worth protecting.

Another problem is that the listing regime has a bias, as the noble Baroness, Lady Andrews, has said, against buildings which are post-1850. This means that if a building is prior to 1850, it is very likely to be listed; if it is after 1850, it is less likely to be listed. I just have to tell you the names of some of the architects whose careers were entirely after 1850: think of the very great Richard Norman Shaw, Charles Voysey, Edwin Lutyens and Giles Gilbert Scott, who rebuilt the new Chamber of the other place down the corridor. These days, all their buildings would probably be listed.

Of course, architecture was not only great architects. Often, the great architect would put up a design, maybe even publish the design, and other architects would then take on that design and build buildings which perhaps did not have the genius of a Richard Norman Shaw but possibly had the style of one. These days, English Heritage would almost certainly consider them to be derivative and therefore not worthy of protection. It is a very serious problem.

Having slightly defined one bit of the problem, I want to come on to why developers use the permitted development rights to knock down buildings. If a developer is buying a building, he is buying it almost in every case to build another building on the site, unless he is trying to extend his garden. If a developer rushes in to knock down what was there before, before getting planning permission to build what they are going to replace it with, there is a reason for doing that. One reason may be, as with the Kensington Town Hall and the Firestone tyre factory, that they thought it might be listed. The other reason is that it is much more difficult for a planning committee of a local authority to refuse planning permission to an empty site than it is to a site that already has a perfectly usable building on it, so they will knock it down. There is a third reason, the one raised by the noble Baroness, Lady Andrews, concerning VAT—they may feel that there is an incentive to get on with the work because of the VAT and the cash elements in it, but, frankly, that is minor compared with the other two.

So there is an issue here which needs to be addressed. There is no reason why developers should not be required, at the time they put in their planning application to rebuild on a site, to put in a similar, parallel application to demolish. I am not saying that every building should be protected; that would be nonsense—there are a lot of buildings which, quite frankly, could easily be replaced with better buildings. What I am saying, and I believe this is also what the noble Baroness, Lady Andrews, was saying, is that we need to think about it. We need to look at the building that is there and say, “Is this a building that could better be used by being refurbished and keeping the character of the town or street preserved?”.

Those of us who have travelled, as I am sure all of us have, around Europe will be well aware of the beauty of towns in France, Germany or wherever, where the character of the town has been preserved to look as though it evolved gently over time to reflect the character of the people. Too often, our towns and high streets are a higgledy-piggledy collection of some fine buildings, some meritorious buildings, some rather dull buildings and some buildings that look as though they were designed and built purely with the idea of keeping the costs down but with no real element of design. We need to bring this to an end: we need to stop developers’ profits determining what it is that our towns, villages and high streets look like—we need to ensure that more thought goes into it.

I think these amendments go a long way to achieving that. The problem I have with them is that some of the worst offenders in knocking down buildings are local authorities themselves. Sadly, local authorities will police their own planning committees, and consequently if they want to do something for whatever reason and there is a building in the way, they will give themselves planning permission to knock it down and rebuild when they probably should not. I do not know how we get round that, but it is a problem and has been a problem in London for some time, where civic buildings in particular have been knocked down outrageously because the town hall decided that what it really wanted to do was build a monument to the current councillors. That is something which we need to address and these amendments do not address it, but they are a movement along the way.

It has also been suggested that it would be sensible for these amendments to have timelines in them. The suggestion has been twofold. One is that the time should be 1948, so we would not remove permitted development rights from buildings built after 1948. I would oppose that. As much as I like Victorian and early 20th-century buildings, some very fine buildings built after 1948 are vulnerable too. The other suggestion is that the timeline should be based on 1850, which, frankly, is a nonsense for the reasons I have already given. Therefore I strongly support these amendments.

16:00

However, I will end by giving the House the apologies of my noble friend Lord Cormack, who could not be here to move his own Amendment 247B, which is in this group of amendments and which gives protection to statues and monuments; it is not confined just to buildings. My understanding is that this is largely already covered in existing legislation. The removal of statues from listed buildings would clearly require planning permission. There is a degree of protection but I am unclear as to quite how much, and I would greatly appreciate it if my noble friend the Minister could elucidate exactly what is possible.

There is also an issue around the desecration of statues, which has become rather fashionable, from writing graffiti on the statue of Winston Churchill in Parliament Square to putting funny hats on the statue of Disraeli in Liverpool—I rather suspect he would have found that rather amusing and would have enjoyed it, provided that the hat was decorative and fun and fell in with his zeitgeist. I am not sure that statutes are protected from being defaced, and I would be grateful if my noble friend the Minister could comment on that as well.

Other than that, I strongly support these amendments. I hope that they will be acceptable to the Government and to the House, and I look forward to our heritage, our streetscapes and our towns being better protected as places of beauty, history and community than they are at present.

[Lord Shipley (LD)]

My Lords, I agree strongly with what the noble Lord, Lord Carrington of Fulham, just said about Amendments 312G and 312H, as well as with what the noble Baroness, Lady Andrews, said about them. This is a particularly serious matter and I hope that the Government will pay due attention. A range of issues has been raised in this group, the comments made by the noble Lord, Lord Carrington, on timelines might be a possible way forward for discussion and prove productive.

I have had concerns for some time about permitted development rights, feeling that in some cases they are simply too loose. My previous concerns have related, for example, to conversions of offices to residential flats for sale, which often reduces the total number of places where people can go to work and increases the distances to where their place of work may then have to be. Very often, permitted development rights are used for short-term development reasons but where those reasons may not be in the long-term interests of a local area, and we need to remember that long term.

I have put my name to Amendments 312G and 312H alongside those of the noble Baroness, Lady Andrews, and the noble Lord, Lord Carrington of Fulham, because there is another aspect of permitted development rights that I believe needs reform in the interests of maintaining our heritage. According to the Royal Institute of British Architects, approximately 50,000 buildings are demolished each year. Many of them may well be unfit or unsuitable for the modern age, and demolition is understandable in those cases where they are going to be replaced with something better.

However, that is not always the case, as we have heard from previous speakers. The Victorian Society has produced evidence that high-quality historic buildings are being demolished when they still have a useful purpose. Many buildings are not listed when they could be. I have concluded that there is a gap in our regulations, which should require that older buildings, at least, that are not listed, should have to undergo a further test. That test is, I suggest, the planning system, which could consider demolition as part of a redevelopment application. If there is no redevelopment application, there is no obvious reason to demolish the building, where it is safe. That could end up with an empty site for a long time, or a later application for a worse development than the building demolished.

These arguments relate to Amendment 312G, but Amendment 312H is also critical. It requires planning permission to demolish locally listed buildings. These lists exist for a reason, and demolition should not be treated lightly. Strangely, not all local councils have local lists anyway, which is another concern.

It should not be possible for buildings on a local list to be demolished without planning permission if they are outside a conservation area—rules currently apply if they are inside a conservation area. I ask the Minister: what is the point of a local list otherwise? Local lists need protection from poor, short-term decisions on demolition which are contrary to our long-term heritage interests. This is about buildings that matter to local people and future-proofing our heritage, and I very much hope the Minister will concur.

[Lord Thurlow (CB)]

My Lords, first, I simply put right a matter of record. I failed to declare my interests in our debate before lunch. I have two buy-to-let properties, as marked on the register.

I now briefly reference Amendment 247B from the noble Lord, Lord Cormack, ably introduced by the noble Lord, Lord Carrington of Fulham. I refer to our heritage assets in the context of properties, as well as statues and artwork. In the UK, a disproportionately small minority can cause heritage assets to be removed from public view, whether they are in public or private ownership or locations.

Furthermore, the world we live in of modern development seldom includes a requirement on developers to contribute to what I think is referred to as the public realm. Most larger developments, as we have heard from the noble Lord, Lord Carrington, are built to minimum cost. We must not forget that good architecture and good design—itself expensive—is a great contribution to the public realm. The presence of statues and monuments, and good building design is a really important contribution to society. Planning applications should have a public realm box, simply to ask whether they are making any contribution to the public realm and heritage assets. The amendment of the noble Lord, Lord Cormack, should also refer to heritage assets which are stored out of sight and yet are in public ownership.

[The Parliamentary Under-Secretary of State, Department for Culture, Media and Sport (Lord Parkinson of Whitley Bay) (Con)]

My Lords, this group of amendments relates to heritage, assets of community value and permitted development rights for demolition of buildings. I am pleased to be responding as Minister for Heritage, and I am very happy to discuss these matters with individual noble Lords, as I speak for the first time on this Bill.

Amendment 243, tabled by the noble Baroness, Lady Taylor of Stevenage, and moved by the noble Baroness, Lady Hayman of Ullock, would require the Secretary of State to publish a review of local heritage lists and the results of the 2018 review of the non-statutory guidance on assets of community value. That review was undertaken to shape the future direction of the policy in the levelling-up White Paper that His Majesty’s Government committed to and explore how the existing community asset transfer and asset of community value schemes can be enhanced. We will continue to make funds available to groups through the community ownership fund.

Regarding the review of local heritage lists, the Government recognise the importance of identifying and managing those parts of the historic environment which are valued by their community. We have given £1.5 million to 22 places across England to support local planning authorities and their residents to develop new and update local heritage lists. Our intention is that the lessons learned from that work will be shared with other local authorities so that they too can benefit from the good practice that is building up in this area. As part of the development of the new national planning policy framework, we will also develop new proposals for statutory national development management policies, including policies to protect local heritage assets. Such proposals will be subject to future consultation; we would not want to pre-empt the outcome of that consultation by taking steps such as those envisaged in this amendment right now.

Amendment 246, also tabled by the noble Baroness, Lady Taylor, would require draft legislation to reform assets of community value to be published within 90 days of Royal Assent of this Bill. Community assets play a vital role in creating thriving neighbourhoods. The assets of community value scheme enables communities and parish councils with the right to register a building or piece of land as an asset of community value if the principal use of the asset furthers their community’s well-being or social interests and is likely to do so in future. The scheme has been successful in helping community groups to identify important local assets at risk of loss. As I have mentioned, the levelling-up White Paper committed us to consider how the existing assets of community value framework can be enhanced. We must ensure that any changes to the legislation are workable in practice. To do this in a meaningful way needs consultation with all the parties that it will affect, including community groups, local authorities which are responsible for listing assets, and businesses and private individuals who are property owners. An amendment such as this risks creating legislation which does not work in practice. The framework must balance community power and the ability to safeguard community assets in a way that is fair, targeted and proportionate. We are committed to exporting the scope for improvements which can maintain this important balance, but it is important that we do so in a way which gives time with those with an interest to reflect on their experience and any proposals for change.

Amendment 244, also tabled by the noble Baroness, Lady Taylor, would mean that when deciding on the correct recipient of a temporary stop notice, the authority should have regard to the tenancy status of the occupier and their level of responsibility for any works on the property. Clause 96 addresses a gap in the enforcement powers available to local authorities in relation to listed buildings, which will help to protect these irreplaceable assets for generations to come. While under the Town and Country Planning Act 1990 local authorities have the power to serve temporary stop notices, there is currently no equivalent power in relation to listed buildings. Clause 96 amends the Planning (Listed Buildings and Conservation Areas) Act 1990 to give local planning authorities the power to issue temporary stop notices in relation to unauthorised works to a listed building in England.

The noble Baroness’s amendment seeks to add a requirement for local planning authorities to have regard to the tenancy status of the occupier and their level of responsibility. Temporary stop notices are an existing enforcement tool which local planning authorities are accustomed to issuing. Those planning authorities have experience of considering matters such as tenancy status and the level of responsibility for works carried out when they serve such notices, which would also apply in this context. The Government believe that the local planning authorities do not require the additional guidance that this amendment would provide, so they do not feel that it is necessary.

The noble Baroness, Lady Hayman of Ullock, asked me how local authorities can identify the owner of the properties when sending out a temporary stop notice. They can use a variety of sources: for instance, council tax records, planning application registers, and the Land Registry are some of the open sources of information that they are already able to consult. Usually, they would do everything they can to identify to whom it should best be served, and it can indeed be to a variety of people.

16:15

Amendment 245 was tabled by the noble Earls, Lord Lytton and Lord Devon. The noble Earl, Lord Lytton, asked for a rationale for Clause 98. In short, the current system for issuing building preservation notices is not working. These notices offer interim protection to a building which is considered to be of special architectural and historic interest, which is at risk of alteration or demolition, but they are not being used enough by local authorities because of a fear of inordinate costs. The Government find that unacceptable. Local planning authorities, through our expert heritage advisers, Historic England, have already clearly indicated that the risk of compensation being paid out remains a barrier to serving these notices. We therefore do not feel that a public consultation on this would be helpful to identify further underlying causes: we think we know what it is. Noble Lords should also note that the majority of buildings assessed while a building preservation notice is in place have gone on to be given permanent statutory protection.

The noble Earl mentioned Historic Houses. I am meeting its director general, Ben Cowell, next week, so I will be happy to discuss the matter more with him. He also mentioned the Listed Property Owners Club which, by definition, covers properties which are already listed and therefore have the protections that come with that. The Government are confident that the removal of compensation will encourage local planning authorities to make greater effective use of the building preservation notice process, thus helping to better protect our nation’s most important historic buildings from potentially harmful alterations or extensions, or demolition.

[The Earl of Lytton (CB)]

Could the Minister explain why he considers it appropriate for authorities to have this power but, to visit direct—and it must be direct—loss in order to be compensable, he thinks it is not appropriate that the exercise of powers should be accompanied by compensation? What other areas where the compensation code might be deemed to apply does he think are in some way disposable? I remind him of the principles that I referred to right at the end of discussing human rights, on the questions of the reasonable enjoyment of one’s property, not being dispossessed of it by the state other than for an overriding reason, and then only on the provision of proper compensation, determined by an independent adjudicator if necessary. Does he depart from those particular principles?

[Lord Parkinson of Whitley Bay (Con)]

I am grateful to the noble Earl for his questions. If it is helpful, I am very happy to speak to him in advance of my meeting with Ben Cowell next week, so that I can have a fruitful discussion with him and with Historic Houses on this point.

He asked about the Secretary of State’s declaration on the Bill. That is self-evident: the Secretary of State has found it compatible with human rights laws. But I will leave it to colleagues at the Secretary of State’s department to speak further on that. With the offer to meet the noble Earl ahead of my meeting, I hope that he will be happy with the point that I have outlined about wanting to remove what we see as a hindrance to these notices being served.

Amendments 312G and 312H, tabled by the noble Baroness, Lady Andrews, would require the Secretary of State to remove permitted development rights for the demolition of buildings. These amendments aim to reduce demolition and consequently carbon emissions, to increase communities’ ability to shape local places and to protect non-designated heritage assets. I completely agree with the remarks she made about the value of historic buildings and our historic environment to communities and the importance of preserving them for generations to come. I pay tribute to the work she has done over many years on this at English Heritage, the National Lottery Heritage Fund and in many other ways.

Permitted development rights are a national grant of planning permission that allow certain building works and changes of use to take place. There is a long-standing permitted development right which permits the demolition of buildings, subject to certain limitations and conditions, as she outlined in her speech. Her Amendment 312G seeks to remove this permitted development right for all but the smallest buildings. Her Amendment 312H seeks to remove the right for locally listed heritage assets only. These amendments would mean that works to demolish affected buildings would require the submission of a planning application.

I want to make it clear to noble Lords that the Government are committed to ensuring that planning permission contributes to our work to mitigate and adapt to climate change. National planning policy is clear that the planning system should support our transition to a low-carbon future, including helping to encourage the reuse of existing resources and the conversion of existing buildings where appropriate. The National Model Design Code encourages sustainable construction focused on reducing embodied energy, embedding circular economy principles to reduce waste, designing for disassembly and exploring the remodelling and reusing of buildings where possible rather than rebuilding. I know that our heritage bodies—not just our arm’s-length bodies such as Historic England but right across the sector—are doing sincere and fruitful work to make sure that we have the skills, not just now but in generations to come, to carry out the works to effect that.

I also want to stress that the Government recognise the need to protect historic buildings and other assets valued by their local communities. The heritage designation regime in England protects buildings of special architectural and historic interest, but we understand there are many other buildings and assets that local people cherish. Planning practice guidance encourages local planning authorities to prepare local lists of non-designated heritage assets. I mentioned earlier the £1.5 million we have given to support local planning authorities and their residents to develop new and updated local heritage lists, with the intention that the lessons learned from that work will be shared later this year.

Local planning authorities have the power, where they consider it necessary, to remove specific permitted development rights to protect a local amenity or the well-being of an area by making an article for direction. Powers to amend permitted development rights already exist in primary legislation. There are also tools within the existing planning system that can be used to manage demolition more responsively, such as the National Planning Policy Framework and local design codes. So, while we appreciate the importance of reducing carbon emissions, supporting local democracy and of course protecting heritage assets, we do not believe that these amendments are necessary to achieve those aims. I want to assure the noble Baroness that we will of course continue to keep permitted development rights under review and look at them with a heritage lens as well.

I understand the point raised by my noble friend Lord Carrington of Fulham about the protections available to more recent buildings. While the tastes of individual Ministers are rightly irrelevant in the process, I share his admiration for the work of Giles Gilbert Scott. I live close to what was King’s College Hospital in Denmark Hill and is now the home of the Salvation Army. I had the pleasure of speaking on 8 September last year—a date which sadly sticks in the mind—to a conference organised by the think tank Create Streets on diverse modernities, where I was able to talk about his other buildings, such as the university library and the memorial court at Clare College in Cambridge.

I said on that occasion that the Government recognise that the eligible age for protection by statutory listing needs to continue rolling forward. In the past, recent buildings have not been a focus for listing, but I am glad to say that that is no longer the case. One-third of the buildings listed by recent Secretaries of State have been 20th century buildings. I think one of the most recent examples is the headquarters of Channel 4 on Horseferry Road, which dates from the 1990s.

The listing regime is not prejudiced. As per the Secretary State’s principles for selection, planning and development are not taken into account when listing a building—it is done purely on historic and architectural merit. The older a building is and the fewer surviving examples there are of its kind, the more likely it is to have special interest. From 1850 to 1945, because of the greatly increased number of building erected and the much larger number of buildings that were constructed and have survived, progressively greater selection is therefore necessary. Careful selection is of course required for buildings from the period after the Second World War.

I am very grateful to my noble friend for speaking to Amendment 247B tabled by our noble friend Lord Cormack. As my noble friend Lord Carrington said, the noble Lord sends his apologies for not being able to be here in your Lordships’ House today. Noble Lords will know he is the last person who would wish to express discourtesy to your Lordships’ House. He has given me permission to share that it is only because he is collecting his wife from hospital following an operation that he is unable to be here today. I am sure noble Lords will understand and want to join me in wishing Lady Cormack a swift recuperation.

I am grateful to him for his amendment, which highlights the importance of lists of locally important heritage assets. I have been able to speak to my noble friend about his amendment and some of the points that lie behind it. As Minister for Heritage, I am, on behalf of the Secretary of State, responsible for the statutory designation system that lists buildings of architectural and historic importance, and protects monuments of national importance. Local listing is a non-statutory means by which local planning authorities can, if they wish, identify heritage assets that are of local importance but do not meet the criteria for national designation and statutory protection as a listed building or a scheduled monument, and then take account of these assets during the planning process. In recent years, the Department for Levelling Up, Housing and Communities has provided financial support to selected local planning authorities wishing to develop a local list with the assistance of Historic England.

Local lists are discretionary; some local planning authorities compile local lists and some do not. Under the terms of local listing, it is up to those authorities which heritage assets they include in local lists. I am not, at present, convinced that, given this discretionary nature, we should be legislating for local lists to include all statues and monuments in an area. While many statues and monuments are very clearly cherished by the local community and should be included on local lists, there will be instances where it would be inappropriate to include certain statues and monuments—for instance, a sculpture in somebody’s private garden. Local planning authorities, following consultation with their communities, are best placed to decide what should be included on a local list.

Our national designation system already ensures statutory protection of our most significant heritage assets, including statues and monuments. The national listing process already protects those that meet the criteria of special architectural or historic interest. We have recently increased the protections for non-designated statues and monuments in public places that are more than 10 years old, whether they are locally listed or not. Their removal now needs explicit planning permission, and we have made it clear in national planning policy that decisions on statues and monuments should have regard to our policy of retaining and explaining these important historical assets.

My noble friend raised the question of the definition of “alteration”, pointing to some examples, including the statue of the Earl of Beaconsfield, Benjamin Disraeli. As it is the day after Primrose Day, and the birthday of my noble friend Lord Lexden—the Conservative Party’s official historian—I must echo my noble friend’s comments about Disraeli and the amusement he might find in some of the treatment of statues of him today. But the point my noble friend makes is an interesting one, which I am happy to discuss with him and my noble friend Lord Cormack. As he is not here for me to ask him not to move his amendment, I offer, on the record, to discuss this with him and any other noble Lords. I beg all noble Lords whose amendments I have addressed not to move their amendments and beg the noble Baroness to withdraw her amendment at this juncture.

16:30

[Baroness Hayman of Ullock (Lab)]

I thank all noble Lords who have taken part in this debate, and I thank the Minister for his thorough response to these amendments. On my noble friend’s Amendment 243, I was pleased that the Minister said that the Government will continue to provide funds for assets of community value, but just providing funds does not address the problem that many communities do not have the capacity to put the bids together in the first place. That is our main concern here. It looks like we are again waiting to hear the detail—this time about what will be in the NDMPs. I guess we will be updated on this later on in the Bill, but I am sure we will return to it when we get to those particular clauses.

On Amendment 246, it is good that the Minister talked about the Government’s improvements in this area but, again, this comes back to the fact that more needs to be done to support all communities’ abilities to put together suitable bids and plans. Some communities are not able to; they do not have that ability. So it is not about the amount available—it is making sure that all communities have proper access and are able to put together suitable bids.

On the local heritage lists in Amendment 243, one of our concerns is that they do not have any standing in planning law, so there is a big gap between what has listed status and what is available to go on to local heritage lists. We think that local authorities should be able to determine that degree of protection, which they currently cannot, for buildings on their heritage lists. The noble Lord, Lord Shipley, said that many local authorities do not even know about them, so there is an issue there that the Government could perhaps take a look at.

The noble Earl, Lord Lytton, made some good points—he is always extremely clear about his concerns—and I am sure he will want to come back to discuss them further. My noble friend Lady Andrews made some really important points, as did the noble Lord, Lord Carrington of Fulham, when he supported her. She said that there had been a long-standing failure to protect our historic environment. Our amendments work with hers quite well to try to look at the bigger picture and strengthen protections. The noble Baroness made the important point that planning departments are really strapped, so they need more help to protect buildings from demolition. Developers have a lot of money and often a lot of resources available to them, but local authorities do not have those resources or the people. If the Minister is able to look at my noble friend’s second amendment again, that would be extremely helpful—there could potentially be some way forward. He seemed to agree with much of what she said, so perhaps he could suggest a similar amendment on Report, which would be helpful.

The noble Lord, Lord Carrington of Fulham, made a good point about certain iconic buildings that have disappeared. I am sure that all of us can think of similar buildings in our own communities that have gone, and it has really shocked people when they have been demolished unexpectedly, even when there was already an agreement that they would not be demolished.

So this is a good group of amendments, and I hope that the Minister will consider some of the arguments further. In the meantime, I beg leave to withdraw.

Amendment 243 withdrawn.

Clause 95 agreed.

Clause 96: Temporary stop notices in relation to listed buildings

Amendment 244 not moved.

Clause 96 agreed.

Clause 97 agreed.

Clause 98: Removal of compensation for building preservation notice

Amendment 245

Tabled by

[The Earl of Lytton]

245: Clause 98, page 108, line 19, at end insert—
“(3) Subsections (1) and (2) shall only take effect following an order made by the Secretary of State.(4) The Secretary of State may only make the order in subsection (3) once a public consultation on the case for the change, drawing on the results of the Historic England indemnity pilot, has been completed.”Member’s explanatory statement
This amendment ensures that the results of the Historic England pilot are taken into account and that there is public debate and scrutiny before compensation rights are removed.

[The Earl of Lytton (CB)]

My Lords, I will not move this amendment, but I look forward to meeting with the Minister about this, and I may well return to it at a later stage in the Bill.

Amendment 245 not moved.

Clause 98 agreed.

Amendment 246 not moved.

Amendment 247

Moved by

[Lord Lexden]

247: After Clause 98, insert the following new Clause—
“Permitted development: replacement windows in conservation areasIn the Town and Country Planning (General Permitted Development) (England) Order 2015 (S.I. 2015/596), Schedule 2, Part 1, Class A.3(a), after “materials” insert “(and, in respect of a replacement window in a conservation area, style and colour)”.”

[Lord Lexden (Con)]

My Lords, I move Amendment 247, brought forward by my noble friend Lord Northbrook, who sadly cannot be here today. I will also speak to Amendments 247A and 285 in this group and in his name. I speak on his behalf.

The most important amendment in this group is Amendment 247A, and I shall deal with it first. It provides a solution to a significant problem. Local planning authorities—LPAs—in deciding on an application for development in a conservation area are currently required under Section 72(1) of the Planning (Listed Buildings and Conservation Areas) Act 1990 to determine whether the proposed development would preserve or enhance

“the character or appearance of that area”.

LPAs have a wide degree of discretion in deciding whether this statutory test is passed. In a number of conservation areas—and I am thinking particularly of the Royal Borough of Kensington and Chelsea—planning officers, for understandable reasons, do not normally live in or near the relevant conservation area, but they routinely substitute their own opinions for the opinions of those who do, frequently in disregard of the relevant conservation area appraisal document and advice from important third parties such as Historic England. This problem is particularly acute in the royal borough, where harmful decisions have been made in the past and then used as a precedent to justify approving further harm of a similar nature.

This line of reasoning has been criticised frequently by the Planning Inspectorate and runs contrary to the advice of Historic England in its Historic Environment Good Practice Advice in Planning: 2 called Managing Significance in Decision-Taking in the Historic Environment, which was published in March 2015. Paragraph 28 of this document states:

“The cumulative impact of incremental small-scale changes may have as great an effect on the significance of a heritage asset as a larger scale change. Where the significance of a heritage asset”—


and this, of course, includes the entirety of the conservation area—

has been compromised in the past by unsympathetic development to the asset itself or its setting, consideration still needs to be given to whether additional change will further detract from, or can enhance, the significance of the asset”.

Regrettably, such consideration is all too often not given by planning officers in their decision reports in the exercise of delegated powers or in their advisory reports to planning committees. Surely the people best qualified to assess whether a proposed development will preserve or enhance the character or appearance of a conservation area are those who live in it. Under this amendment, LPAs would be required to pay special attention to the views, if any, expressed by those who live in the area.

The Government might perhaps take the view that LPAs are already obliged to consider all comments made during the course of a consultation on a planning application, rendering the amendment unnecessary. However, the obligation in this amendment to pay special attention is stronger than the obligation merely to have regard to comments made and the amendment is specifically tied to comments made by those who live in the area. If planning officers wish to substitute their own opinions on what is good for a conservation area, they should explain clearly and convincingly why they seek to do so and why the views of local residents should not be respected. This amendment would introduce the necessary arrangements.

I turn now to Amendment 247, which concerns permitted development rights to install replacement windows in conservation areas. Currently, permitted development rights to improve or alter a dwelling house are subject to a condition that

“the materials used in any exterior work must be of a similar appearance to those used in the construction of the exterior of the existing dwellinghouse”.

The amendment would require that replacement windows in a conservation area must be of similar style and colour to the windows they are replacing, not just that the materials be of similar appearance, if the right to install the new windows is to be permitted development. This would not require replacement windows to be of similar style and colour, but simply bring them within the scope of planning control if they are not.

As we all know, many conservation areas in England have attractive streets of 19th-century terraced houses, in which the windows fronting the street are white-painted wooden sliding sash windows with traditional Georgian-style glazing bars enclosing relatively small panes of glass. Many LPAs routinely include as a standard condition of planning approvals in conservation areas that any replacement of sliding sash windows fronting the street should be like-for-like sliding sash windows, but this can be challenged successfully. For example, there was a remarkable case in the Royal Borough of Kensington and Chelsea, where the owner of a house installed an ugly, non-sliding sash window in breach of a planning condition. A complaint was made to the council and a request was made to planning enforcement to have the window removed. One of the local ward councillors, who happened also to be the cabinet member for planning at the time, said that it was clearly inappropriate and would need to be replaced as soon as possible. The enforcement officer agreed with the complaint, and an enforcement notice was duly served. The owner then told the council that his new window was in fact a permitted development; the result was that the enforcement notice was cancelled, and the enforcement officer accepted that the council had no control over its style. The window remains. I note, in passing, that it was very surprising that neither the owner, his planning consultants, the cabinet member for planning nor the enforcement officer were aware, at the time of the application, that the installation of the replacement window was a permitted development. That was a reflection of the confused state of the general permitted development order at the time, on which I shall say a few words when I turn to Amendment 285.

Is it not odd that the current applicable condition for the permitted development right to install replacement windows is merely that similar material must be used? That is to say that, if the window being replaced is made of wood and glass, the replacement window should also be made of wood and glass. The purpose of permitted development rights is to facilitate obvious improvements without the need for planning permission, but how can this entitlement to install ugly new windows be considered an improvement?

I hope that the Government will be inclined to consider the amendment sympathetically. If not, perhaps my noble friend will explain the logic of requiring similar materials but not similar style and colour. Replacement windows fronting attractive streets in conservation areas should be like-for-like; if not, they should need planning permission, and the GPDO should be amended to reflect that.

Finally, I turn briefly to Amendment 285. Schedule 2 to the general permitted development order sets out permitted development rights—namely, rights to develop for which planning permission is not required. It gets amended several times a year. Unfortunately, on the legislation.gov.uk website, there is often no up-to-date, consolidated text, so anyone wishing to see what rights exist, or which existed at the time of a specific application, has to spend many hours on the internet searching for all the amendments made to it since it came into force on 15 April 2015, and this research needs to be conducted separately on each occasion. I have mentioned already one example of where failure to provide a consolidated text confused even experts and professionals in the planning world. Most other legislation is available to read on the internet in up-to-date, consolidated form, so why not the GPDO?

16:45

I am glad to see that today, some seven or eight years after the 2015 GPDO came into force, an up-to-date consolidated text is now, at long last, available on the official website. As of today, the text is up to date, but this is a rare occurrence. All too often the text says that there are outstanding changes not yet made by the legislation.gov.uk editorial team. Why are changes not made promptly?

All citizens surely have a right to see legislation clearly in its current state. This amendment would place a statutory duty on the Secretary of State to ensure that an up-to-date consolidated text is made available on the official website at all times. Would that not be appropriate and right? I beg to move.

[Baroness Pinnock (LD)]

My Lords, I have a lot of sympathy with the views expressed by the noble Lord, Lord Lexden, about conservation areas and permitted development rights. For residents who are fortunate enough to live in a conservation area, it is both a privilege and a responsibility. When the noble Lord was trying balance homeowners wanting to make appropriate changes—and sometimes inappropriate changes—and local planning conservation officers seeming to rule the roost over what is and is not appropriate, I asked myself, “Where were the local councillors in this mix?”. Where I am a councillor, I have conservation areas in my ward, and where there is a disagreement about what is appropriate, I ask for it to go to the planning committee. Then, it has a public airing, which is precisely what should happen. The planning conservation officer states one view and residents another, and a decision is made. One of the great purposes of planning committees is to air views, balance them out and come to a conclusion.

I also have concerns about always expecting to maintain the standards of a building that was created 100 or 200 years ago in wood and glass, when the rest of us are trying very hard to increase insulation, particularly of windows and doors. A couple of years ago, I visited a window manufacturer not too far from here which makes heritage windows from plastic. I could not tell the difference, even though I have an interest in conservation and heritage. In our regulations, we need to enable that to happen so that buildings remain appropriate for the time, while conserving the best features and personality of a townscape, which I know the noble Lord, Lord Lexden, wants to retain for people to love and enjoy in the future.

[Baroness Hayman of Ullock (Lab)]

My Lords, I thank the noble Lord, Lord Lexden, for introducing the amendments in the name of the noble Lord, Lord Northbrook.

I just make a very brief comment about the issue of replacement windows. My concern comes from a property that I know; it is in a conservation area and the windows are basically falling to pieces. It is owned by a young couple who applied for planning permission to replace the windows with something very similar, but not like for like—they could not afford like for like. Of course, they were turned down because it did not fit under the planning regulations as they are currently set up. A couple of years on, the outcome is that the windows are falling to pieces and nothing is happening. The couple are stuck, and the windows look dreadful. That is not their fault; they cannot afford to do what the planning inspectors tell them that they have to do.

I am very pleased that these amendments have been brought forward, because they enable us to talk about these anomalies in the way that the planning legislation is currently set up. It tries to protect the look of a place, but if that means that something does not happen because the owners of the property do not have the resources or finances to be able to do it, the property starts to decline. We have the example of windows, but it can be so much more. These are quite specific planning issues, but this is something that needs to be looked at.

[Baroness Bloomfield of Hinton Waldrist (Con)]

My Lords, I would like to thank my noble friend Lord Northbrook for tabling these amendments and my noble friend Lord Lexden for so ably introducing them.

Amendment 247 would require amendments to permitted development rights. Permitted development rights are a national grant of planning permission which allow certain building works and changes of use to take place. Rights in relation to England are set out in the Town and Country Planning (General Permitted Development) (England) Order 2015 (2015/596). As we heard in the debate immediately preceding this group, heritage assets, including conservation areas, are an irreplaceable resource and it is important that we ensure that they are protected. Local authorities are required by law, in carrying out their functions, to pay special attention to the desirability of preserving or enhancing the character or appearance of conservation areas.

We are committed to quality and design regardless of whether homes are delivered through a permitted development right or a planning application. We intend to consult on introducing secondary legislation so that existing permitted development rights with design or external appearance prior approvals will take into account design codes where they are in place locally. Local authorities can remove specific permitted development rights to protect local amenity or the well-being of the area by making an Article 4 direction.

As committed to in the Government’s British Energy Security Strategy, we are currently undertaking a review of the practical planning barriers that households can face when installing energy-efficiency measures. This will include replacement windows with improved glazing, including in conservation areas. While this review is under way, it would be premature to accept this amendment, as it would curtail the scope of any legislative recommendations that the review might set out in due course.

To go further on that, because I know that this area was of concern to both noble Baronesses, Lady Hayman and Lady Pinnock, the Government are fully committed to encouraging home owners to incorporate energy-efficiency measures in their properties. As part of this, we recognise the need to ensure that more historic buildings have the right energy-efficiency measures to support our zero-carbon objectives. The review of heritage and energy efficiency committed to in the British Energy Security Strategy and currently under way will enable the Government to respond to the issue in an informed and joined-up way. In addition, powers to amend permitted development rights already exist in primary legislation. For these reasons, the Government are unable to support this amendment; however, we will continue to keep permitted development rights under review.

I turn to Amendment 247A, which proposes a new clause amending Section 72 of the Planning (Listed Buildings and Conservation Areas) Act 1990 to require, in exercise of planning functions, special attention to be paid to the views of residents in conservation areas. I understand my noble friend’s concerns. However, the purpose of Section 72 is to ensure that local planning authorities are required, when making planning decisions, to pay special attention to the desirability of preserving or enhancing the character or appearance of conservation areas. It is an important, long-standing duty that protects conservation areas.

Engagement with the sector during policy development for the Bill acknowledged that the framework for protecting the historic environment works well, although there are opportunities, we acknowledge, for targeted improvements. The package of heritage reforms focuses on maintaining the strong protections for the historic environment within the new planning system and, where possible, building on the existing framework. The proposed reforms will build on the existing protections without introducing any additional restrictions on development. It would be inappropriate to extend it so that local planning authorities have to pay special attention to the views of those living in conservation areas too. It would mean the views of conservation area residents would have greater weight than those living outside the area, which we think would be unfair.

In addition, in determining planning applications, decision-makers are already required to consult with local residents, and their views are taken into account. This will not change in our reformed system, and we are also taking powers in the Bill to improve the consultation process, making it more accessible by complementing more traditional forms of engagement with digital tools. It is not considered necessary, therefore, to duplicate these arrangements by extending the Section 72 special attention duty.

Turning to Amendment 285, we agree that it is important that the most up-to-date consolidated version of the general permitted development order, which sets out all the national permitted development rights, is publicly available online. Amendments to the order are often made, as we introduce new permitted development rights or make changes to the existing rights, through amending orders. The latest consolidated version of the general permitted development order is already available on the Government’s legislation website, alongside the original version.

I hope that I have provided the noble Lord with adequate reassurances, but we are unable to support these amendments at this time.

[Lord Lexden (Con)]

My Lords, I thank the two noble Baronesses on the Opposition Front Benches for their valuable points, particularly relating to replacement windows. I am grateful, above all, to my noble friend on the Government Front Bench for her full and carefully considered comments. My noble friend Lord Northbrook and those who are associated with him in giving further consideration to these matters will look very carefully at what my noble friend has said, and then they will be able to decide what further action they may wish to take. On that basis, I beg leave to withdraw the amendment.

Amendment 247 withdrawn.

Amendments 247A and 247B not moved.

Clause 99: Street votes

Amendment 248

Moved by

[Lord Young of Cookham]

248: Clause 99, page 108, line 34, at end insert—
“(3) If there is conflict between street voting on development and the development plan, a determination must be made in favour of the development plan.”Member’s explanatory statement
The outcome of a street vote may conflict with the development plan. The amendment provides guidance on how to resolve this conflict.

[Lord Young of Cookham (Con)]

My Lords, we come now to the clause in the Bill dealing with street votes, which has generated a substantial number of amendments, of which mine is the lead amendment. It seeks to ensure that a street vote cannot conflict with a local plan. This clause was not in the Bill when it was introduced in another place: it was introduced on the second day of Report. The Government have said that Clause 99

“is intended to encourage residents to consider the potential for additional development on their streets, and support a gentle increase in densities, in particular, in areas where additional new homes are needed”.

I expect the Minister will describe the provisions of the clause in more detail, so I will not spell them out.

We have heard the expression “gentle densification” several times from the Secretary of State; it is something he clearly approves of. I will need some clarification before I lend it my approval, for this reason. Michael Gove was in another place, as I was, when the noble Lord, Lord Prescott, then John Prescott, the Secretary of State, came up with a similar policy of promoting suburban development and the development of back gardens. Those with long memories will remember that all hell broke loose. On 7 March 2007, the Daily Mail thundered:

“Thirty thousand gardens every year ‘torn up’ due to Prescott's policies”.


My party was whipped to vote on a Friday for a Private Member’s Bill to block the policy. Greg Clark, the then shadow Minister, wanted gardens to be reclassified as greenfield sites, and he took up the cause because local authorities were powerless to stop gardens being built on. When my party won the 2010 general election, Greg Clark, then the Minister, ordered changes to planning rules that meant gardens will no longer be seen as brownfield land, ripe for development. Crucially, it meant that stronger powers were available to local authorities to block “gentle densification”.

I just mention that to put this proposal in a broad historic and political perspective and to suggest some caution before we endorse it. Normally, and indeed given the controversial background to this proposal, innovation such as this, in the planning world, would be preceded if not by a Green Paper then at least by some form of consultation to gauge its practicality and effectiveness. This would involve the LGA, the Royal Town Planning Institute and, of course, the public. Nothing of the sort ever took place. This policy emerged from a think tank and was fast-tracked into primary legislation, overtaking on the way some well thought-out and badly needed policies on housing reform, in sharp contrast to the normal process of policy formation. I believe that the Government are adopting a high-risk strategy and, rather than going straight into primary legislation, they should test the proposal in the usual way and then consider how best to proceed. There is nothing particularly urgent about this, and we need to get it right.

17:00

One of the problems I have with the clause is that it sits very uneasily with the objective of planning policy in the rest of the Bill, which is to promote certainty in the planning process through the adoption of local development plans. The development plan is supposed to act as the master plan for development at the local level and should therefore take primacy. Any variation from the plan would then have to go through a process before development at variance with the plan can proceed. Uncertainty is a theme that has run through all our debates. Ad hoc street votes undermine that principle, leaving residents who participated in good faith in the plan-making stage and are satisfied with the outcome with no recourse if policies at variance with the plan are then adopted following a street vote. As the LGA has pointed out, you can make provision for gentle densification using processes that already exist. That is one reason why Clause 99 does not have the support of the LGA.

Let me turn to the report of the Delegated Powers and Regulatory Reform Committee. Of the 19 pages that the DPRR Committee devoted to this marathon Bill of 223 clauses and eight schedules, no fewer than six are devoted to this one clause. To summarise its verdict, this is what it said about its objections:

“A common thread runs through them all: in each case, we consider that the power relates to matters that are too significant in policy terms to be left to be determined by regulations”.

It wants whole sections of the clause removed. To date, I do not think the Government have responded to that report, which came out on 1 February.

I was grateful to my noble friend the Minister for allowing officials to brief me in February about this clause, and I pay tribute to the lengths she has gone to try to satisfy my curiosity about the Bill. But it would be fair, following that briefing, to say that the policy is still in gestation. I believe that, if the clause survives, the intention is not to roll out the policy nationwide immediately but to have some pathfinders to test-drive the policy. Can my noble friend confirm this?

I have a real problem with how this is going to work out in practice. Take a suburban road, which we will call “the Avenue”. On either side are detached houses with back gardens with access to the garden by the side of the house. Parallel to the Avenue on either side are two other roads. Their back gardens back on to the back gardens of the houses on the Avenue. Under this clause, residents in the Avenue can decide, in a majority street vote, to allow those who want to do so to build a bungalow or indeed a two-storey house in their back gardens. This will clearly have an impact on the residents in the parallel roads, who will find their privacy affected, as there will be a new home overlooking their garden. But crucially, they have no vote. Also, those residents on the Avenue who voted no will find that their garden too has an intrusive development next door. I would not want to be the Member of Parliament for the Avenue. There is a potential recipe here for major neighbourhood friction, and I just wonder if this policy has been fully thought through. It would put into the shade the disputes we read of about leylandii.

I mentioned the LGA’s opposition. It said:

“We do not support the proposals for street votes as it could add another layer of complexity to the planning system, stifling the production and implementation of local plans and the delivery of affordable housing.”

I do not believe that the policy will help to solve the acute shortage of affordable accommodation. I suspect that we may get a lot of attics making already expensive houses even more expensive.

To be constructive, I should say that I have no objection to street votes feeding into the development plan process. Appropriate account could then be taken of the outcome in formulating the local plan, not least in formulating required likely future infrastructure such as schools, GP surgeries, transport infrastructure and the rest. However, if development happens at random and outside the local plan process, as proposed in this clause, that could lead to significant infrastructure shortfalls in local areas, with associated negative impacts on communities and potentially increasing community resistance to new development.

Criticisms were made of this clause at Second Reading but, given the scope of the Bill and the length of time allowed to Ministers for winding up, my noble friend was understandably unable to address them then. I know he will want to do so today. I think I have said enough to indicate that, in the words of Sir Humphrey, this is a brave initiative. I beg to move.

[Baroness Taylor of Stevenage (Lab)]

My Lords, it is always a pleasure to follow the noble Lord, Lord Young. I will speak to our Amendments 249, 250, 251, 252, 253, 254, 255, 256 and 257 in the name of my noble friend Lady Hayman. A number of those amendments echo the concerns of the noble Lord. It is important to place on record that the clause to which amendments in this group refer was not in the Bill when it was debated in the other place, so it has not had the kind of scrutiny you would expect for a proposal of this kind. Therefore, it is right that your Lordships’ House gives this clause and the amendments submitted very careful consideration.

I agree with the noble Lord, Lord Young, that the progress of this proposal straight into primary legislation is unusual to say the least—I would call it inexplicable. I have much sympathy with his comments that, were the street votes part of a consideration that the planning and development committees took into account, that might be a different issue. However, from the proposal in the Bill it seems that they are intended to sit outside that.

In recent decades, changes to the planning system have meant that local people and, on occasion, local councillors have felt that they have little say or control over what happens in their area due to a combination of permitted development, changes to use classes—meaning, for example, that there is little to stop your high street being dominated by betting shops and vape stores—the prevalence of conversions to houses of multiple occupation, which puts particular pressure on infrastructure and parking and can change the character of neighbourhoods, and the hollowing out of so many coastal and rural areas as family homes become holiday and Airbnb lets. We have heard powerful advocacy for the role of neighbourhood forums and town and parish councils in previous debates on the Bill. There is undoubtedly something of a community engagement vacuum in the delivery of new homes which the advocates of street votes believe they can help fill.

As a member of the Co-operative Party, a sister party to the Labour Party, and a former chair of the Co-operative Councils’ Innovation Network, I have spent more than 10 years promoting and supporting greater engagement of residents and communities in the decisions taken on their behalf, so we absolutely support the principle sitting behind the street votes proposition. I am very grateful to Samuel Hughes from Create Streets, who took a great deal of time to brief me and my noble friend Lady Hayman and kindly provided us with a background briefing on street votes.

The problem with the clause as drafted is that it is very thin on detail, not least any detailed definition of “gentle densification”, which we have heard so much about during the Bill. I am sure that the Minister will tell us that it will be in the regulations or the National Planning Policy Framework, but in this case it is particularly important to understand how the system of street votes will work. Even their most passionate advocates feel that there is room for more clarity in the Bill.

Our amendments in this group attempt to understand how this detail and some of the potential complications will be resolved. As an example, although greenbelt, areas of outstanding national beauty and historic buildings are expressly excluded, there is no mention of conservation areas.

In his article, which is generally very positive about street votes, the designer Alastair Parvin points out that, when you start thinking about the detail of how they might work, it is not hard to see how it could all go very wrong. Those of us who have been involved in planning will feel the same trepidation that what seems, on the face of it, like a move towards community engagement, development and an ultimate expression of street democracy, may also need to be particularly well thought through in advance to avoid the obvious potential pitfalls.

The system of local authority planning may seem bureaucratic, complex and too slow, but you could argue that it is developed that way to ensure, for example, that experts in planning, law and finance are involved, that there is transparency in the process, that decisions are properly debated and recorded, and that there are proper voting procedures, appeals processes and declarations of interest. As Alastair Parvin notes, to even think about the idea of every street in the UK emulating this way of working, appointing an urban designer, holding consultations, drawing up a valid design code, having it checked against local policies, revising it, holding committees, leafleting, then organising a referendum, is utterly exhausting and could be expensive in time and money. It could also add a significant potential burden on to local planning departments that are already feeling overstretched. He also points out that community politics can be, at best, dominated by those with the loudest voices and, at worst, pretty toxic, with the potential for style wars or tribalism to develop, or those who are fixated about parking to take over—in my experience, there are plenty of them. I loved his line,

“we’re talking about doing design-by-committee with Alan Partridge on the committee”.

How do we ensure that those participating are not being coerced or receiving financial inducements, particularly the elderly and the vulnerable? Street votes will also have to take into account that, while many places in the UK may have well-defined streets, as the noble Lord, Lord Young, pointed out, some do not. There have a variety of layouts, types and styles, with perhaps less well-defined groupings or boundaries. Some of you may be familiar with Radburn layouts that are common in first-generation new towns, where houses that appear to be on one street are actually in three different streets.

It is important that we note the comments of the Local Government Association, which were quoted by the noble Lord, Lord Young. It says that it wants to work with government to enhance opportunities for engagement and reach a wider audience within the process of developing local plans, and that is the key to the answer here. Amendment 248, in the names of noble Baroness, Lady Thornhill, and the noble Lord, Lord Young of Cookham, is welcome and very straightforward, and we would certainly support that amendment to bring clarity to the precedence of the local plan, should the outcome of a street vote conflict with that.

My noble friend Baroness Hayman’s first amendment ensures that residents who have a recent connection with the area are included in street votes. We are very grateful to Generation Rent for its proposals in this respect. It makes the valid point that street votes must work for renters as well as owner-occupiers. Part of the answer, which is included in the Bill, is to enfranchise residents, not owners, so that tenants have as much democratic say as owner-occupiers, and absentee landlords are not further empowered over tenants’ homes. However, we agree with Generation Rent that this is not enough in itself so, before any homeowner or landlord can redevelop with permissions issuing from a street vote, any tenant resident in the building over the past two years must have consented. The alternative could be that landlords could refund 12-months’ rent or give their tenants 12 months’ notice. The Bill is very light on issues affecting tenants in this way, which is why we hope that our amendment will redress that balance.

Amendment 250, in the name of my noble friend Baroness Hayman, relates to the important issue of voting thresholds. We believe that it is important that it is a very high proportion; we would suggest two-thirds of total residents should support the proposals, not just a majority of those who turn out to vote. This ensures that developers cannot try to game the process and proposals can pass only if they have the overwhelming support of local people.

Create Streets, working with London forums and the Community Planning Alliance, also suggests two further safeguards—first, requiring that a resident in at least half of eligible households vote in favour, and second, that at least half of those registered to vote at the addresses on the street for at least three years must vote in favour. We would like to see this detail in the Bill but, if not, perhaps it could be considered for any subsequent statutory instrument.

17:15

Amendment 251, again in the name of my noble friend Lady Hayman, probes the possibility of residents agreeing a code of construction practice for a development. This would ensure that communities can choose patterns of development that are minimally disruptive to them and best suited to their needs and priorities. We understand the Government may be considering including this provision in secondary legislation, but it too could easily be provided in the Bill. Doing so would provide assurance that it could not be overlooked subsequently and that a full range of tools and safeguards for the community would be provided.

Our Amendment 254 refers to biodiversity targets. We believe that the kind of development enabled by street votes could be a huge improvement in relation to biodiversity occurring on brownfield sites, relieving the pressure on the countryside and relying on public transport rather than new road infrastructure. To ensure that street votes deliver on this potential, all development through street votes should be required to meet the national 10% biodiversity net-gain target. For technical legal reasons, this requires some adaptation of existing regulations to ensure they apply correctly to development permitted through street votes. There is a clause for this in the Bill, allowing the Secretary of State to make provisions modifying or excluding the application of Schedule 7A, on biodiversity gain in England. However, as drafted, it would allow the Government not only to modify biodiversity net-gain regulations so that they apply to street vote development, but to exempt street vote development from those regulations. This could be precluded by an amendment saying that the Secretary of State should have power to modify the regulations but only in ways that do not make them less strict than they were had the development been permitted through the normal planning system.

Amendment 255 is to probe what engagement has been done with the Association of Electoral Administrators in relation to street votes. This association, as we all know, can provide expert advice on how the types of electoral process that may be necessary for street votes could be conducted. They will also be able to liaise with teams across the country in councils that may need to be involved. These teams are generally small and highly skilled groups of council officers, and it would be important, as with many other consultations with the professionals involved with this process, to assess any potential impact on them of the street votes proposal.

I have mentioned the potential for conflicts of interest to arise in relation to street votes, as it does with all planning matters; in local authorities, these issues are taken especially seriously in relation to planning. Our Amendment 256, in the name of my noble friend Lady Hayman, probes how this will be dealt with in relation to street votes. For example, would declarations be necessary if one of the residents of the street was likely to be a developer engaged in building out the proposed development? What land ownership declarations would need to be made so that all residents understood where there might be a disproportionate benefit to one particular resident or group of residents? We would also understand the sentiment behind Amendment 253A in the name of the noble Lord, Lord Stunell, who made such an eloquent case for neighbourhood forums on Tuesday. We agree that setting neighbourhood forums up to go head-to-head with street votes may have the exact opposite effect than joining communities together for a harmonious approach to planning, which is surely what the Bill intends to do.

[Lord Stunell (LD)]

My Lords, it is a pleasure to follow the noble Lord, Lord Young of Cookham, and the noble Baroness, Lady Taylor of Stevenage, in this debate. My contribution is quite modest compared to their overarching and sweeping criticism of Clause 99 but, just by way of flanking fire, perhaps I can say that it covers eight pages of the Bill, which is more than the whole of Part 1, which sets up the mission statements. That seems to me to be a wholly disproportionate application of drafting time, when we consider the level of detail not present in Part 1 and the level of detail here. That is perhaps the only point at which I would wish to challenge the noble Baroness, Lady Taylor of Stevenage, in her request for yet more detail. I honestly do not think this Bill needs any more detail on street votes.

Nevertheless, I have tabled Amendment 253A, which aims to ensure that where approved neighbourhood plans are in place, they cannot be overturned by a street vote. It is, to that extent, rather in the same vein as Amendment 248, moved by the noble Lord, Lord Young. He set out that there should be a clear hierarchy between street votes and development plans so that local development plans trump street votes. My amendment takes a different approach to neighbourhood plans. It simply adds to the list of places where street votes cannot be held—which exists in the Bill—those areas that have valid neighbourhood plans in force. In other words, within areas where there is an approved neighbourhood plan, street votes are not to be an available mechanism.

Like the two previous speakers, I do not really get what value there might be in street votes as a concept. I see some places where they may create or might enable some worthwhile flexibility at a micro level below the reach of borough-wide development plans. However, I admit that I am struggling to imagine what a good example of that might exactly be. It has been suggested, by the Minister, apart from anybody else, that it provides the opportunity for low-level densification of homes in a street. I think the noble Lord, Lord Young, commented to some extent on that, but I will just pick up a point made by the noble Baroness about biodiversity.

One of the things that recent planning changes have brought into view is that gardens should not be paved because of the need to maintain natural drainage. The more the footprint of buildings is increased, the bigger the run-off and the bigger the risk of local flooding at the least. Therefore, that connection will sometimes be a consideration which needs to be taken into account.

It is easy to imagine some less benign examples of street votes, such as perhaps a west London street agreeing that sub-basements with cinemas and car parks would be perfectly fine there. If that was done on the basis of a referendum, the result of which—just to pick two figures out of the air—was 52% to 48%, there would not just be some discontented people living in neighbouring streets but perhaps substantial levels of discontentment in that street.

That brings me to ask a question about who gets to vote. Presumably they are people registered on the electoral roll. That is just as well, because in that west London street the big houses probably also have five or six servants—chauffeurs, cooks and chefs—and, of course, the let-out as far as the voting goes is that they are probably not UK subjects. The noble Baroness made a good point on behalf of renters: in a community, particularly an inner urban area where a transient population is normal, who votes, when they vote and what the qualification is to vote is important.

One of the many pluses of a neighbourhood plan, particularly the process leading up to its adoption, is that all those nook-and-cranny micro details can be considered and a consensus built as part of that plan. That is itself subject to a public endorsement and a referendum. It seems to me fundamentally wrong to have a situation in which such an endorsed, publicly recognised and approved plan, with a level of local public participation that far exceeds the adoption of a local development plan by a planning authority, could be overruled or subverted by random revocation of bits of it in the street votes.

My argument is straightforward. Essentially, where a valid neighbourhood plan is in force, all the work on microsites and flexibilities will have taken place already in drawing up that plan. Whatever the merits of the principle of street votes, they would be an unnecessary duplication of effort and expense within a neighbourhood plan area. My amendment avoids that overlap and the inevitable confusion it would cause in the local community if its democratically prepared neighbourhood plan was set aside, even if only in one part. I hope to hear that the Minister agrees with that and will accept my amendment.

[Baroness Pinnock (LD)]

My Lords, I think we can say that there has been a less than enthusiastic response to the proposals in Clause 99, and I endorse everything said by the three previous speakers. Rather than laying out any other reasons in great detail, which other noble Lords have done, my questions for the Minister are these. First, what is the problem to which this is the solution? Secondly, what is a street? I know there is a clause defining a street, but I should really like to know whether Manchester Road in Huddersfield, which stretches for seven miles, counts as a street, or Halifax Road, which goes from Halifax to Dewsbury. Is 10 miles a street? I need to understand what a street is.

That leads to my third question. We have discussed at length in the past few days the purpose of planning and what is required of our planning system to enable development, but also to enable communities that work and to protect our environment. Currently, any planning application for more than one house needs a construction management plan but there is no reference to that in Clause 99. In any development of the sort that I think is being considered—back gardens or whatever—there is also the question of linking to the existing utilities, particularly water and wastewater removal in some areas. We need to know how sustainable that will be or whether there will have to be sustainable urban drainage to achieve it. Where I am now, nearly all the developments must have attenuation tanks built into them to do what they say: hold back the water to reduce the risk of flooding. All that would need to be thought about, as well as the issues that the noble Baroness, Lady Taylor, raised about biodiversity.

The Government, in their wisdom, changed permitted development rights of change of use from offices to residential areas. Because that could be done without proper process, one of the big issues that ensued concerned parking—or the lack of it—because there was no provision and no consideration had to be given to it, so none was applied for and there was a big problem.

17:30

This could be the same because it is not going through normal considerations and a well thought-through planning process that considers what must be thought about. Since I came here from faraway Yorkshire, I have wondered whether a lot of our proposals in legislation are based on experience in London. I do not think that street votes are going to go down right well in parts of Yorkshire, to be honest. People will turn to their local councillors and ask us to solve it, which many times we have. Is this another London thing? I have the view that it is. Let us have a Bill for London, stick all these things in it and leave the rest of the country alone.

[Earl Howe (Con)]

My Lords, a range of questions have been asked on this group of amendments. It might be helpful if I begin with the question posed by the noble Baroness, Lady Pinnock, and set out why the Government are bringing forward this measure in the Bill.

Local people can, quite understandably, be resistant to new development in their area if they have little say over what gets built and it does not reflect their preferences. However, many of us know that residents are often more supportive when they can play a direct role in shaping that development, including what it looks like. The Government are looking to deliver more good quality homes in the right places. To help achieve that, we want to encourage some intensification of development in existing residential areas, particularly areas of low density in towns and cities where this has the support of residents.

Clause 99 introduces street vote development orders, which will provide residents with a new opportunity to take a proactive role in the planning process and bring forward the development that they want to see on their streets. This new route to planning permission will support wider local efforts in bringing forward developments of new or more spacious homes in places where they are needed most. Amendments 248, 251, 253A, 254 and 257 all deal with how street votes will fit with the wider planning system and related requirements, and I propose to address them as a group.

In moving Amendment 248, my noble friend Lord Young of Cookham emphasised the desirability of achieving maximum certainty in the planning system. The first thing for me to say is that we want to create a predictable system where residents have a high degree of certainty on what development is likely to be permissible before they prepare a street vote development order proposal and that we want to make the system accessible and easy to use. To achieve that, we propose to do things a bit differently with this new tool. We want to depart from existing practice, which relies heavily on the interpretation of local policies to determine whether a development is appropriate, and move to an approach where proposals are assessed against more precise requirements which will be prescribed in regulations. These prescribed regulations will include what type of development and what type of uses are allowed, as well as detailed design requirements such as floor limits, ceiling heights and the extent to which a plot can be used.

We want to test this through consultation ahead of drafting the secondary legislation. These requirements will provide residents with that certainty and ease of use and be designed to ensure that street votes development is high quality and that any local impacts are managed. While I understand the intentions behind my noble friend’s amendment, it would, if agreed, prevent us applying this new approach and therefore I am unable to support it. I emphasise that this is an issue that we intend to consult on as part of a wider consultation on the detail of the measure to ensure that a wide spectrum of views is considered and that the policy delivers for communities.

I turn next to Amendment 251 in the name of the noble Baroness, Lady Hayman of Ullock, which was spoken to by the noble Baroness, Lady Taylor. Where there is a street vote development order, we of course wish to see the resultant impacts of construction on residents and the local environment minimised. The powers we are seeking would allow the Secretary of State to prescribe in regulations the documents that must accompany a street vote proposal. They could potentially include a code of construction practice. We intend to consult on what these requirements should be as part of the wider consultation on the detail of the measure. Setting out the documentary requirements in the Bill would prevent us considering this, alongside other detailed matters, through consultation.

[Baroness Taylor of Stevenage (Lab)]

Does the Minister accept that as part of that consultation we should speak to the Local Government Association or other representatives of local government? The drawing up of such codes and so on would almost certainly involve professionals in the planning departments of local authorities. They are at breaking point already—they are greatly stretched—and these street votes can presumably pop up at any time. They will not necessarily be part of a planned workload for local authorities. One of our concerns is that if some of these codes and other things that might be needed to support street votes are not very clear in secondary legislation or the SI that brings it in, it will put an incredible burden on those hard-pressed local authority planning departments. That is probably why the LGA has spoken out so strongly against this proposal, or one of the reasons. If we are going to do some extensive consultation on this before we see secondary legislation on it—which begs the question of why it could not have come in secondary legislation in the first place—that issue needs to be considered.

[Earl Howe (Con)]

We want to engage in extensive consultation. I have every confidence that the Government will want to garner opinion from sources that have expertise of the kind that the noble Baroness mentions, and I see no reason why the LGA will not be included in that. If I can provide her with greater certainty, I will certainly do so by letter. I will be talking more about the broader consultation process in a minute or two.

The effect of Amendment 253A in the name of the noble Lord, Lord Stunell, would be to exclude development in any area with a designated neighbourhood forum from the scope of street vote development orders. This would mean that, as he explained, street vote development orders could not be used in areas where, I suggest, they would be of most benefit, for example, where local people want more homes, or where greenfield land is under particular pressure from housing development. I reassure the noble Lord that neighbourhood planning will continue to play an important role in the planning system. Indeed, other measures in the Bill reinforce this. Where street vote development orders operate, communities will continue to be able to participate in neighbourhood planning. Indeed, our intended consultation will give neighbourhood planning forums and other interested parties an opportunity to shape the policy and ensure that it delivers for communities.

[Lord Stunell (LD)]

I thank the noble Earl for giving way. He has perhaps got the cart in front of the horse there. My amendment refers to neighbourhood plans which are in force. It seeks to make sure the decisions the public take on all the issues that he has just outlined as being highly desirable—those which have completed and formed a neighbourhood plan—are not then subject to a further random challenge from a particular street vote. It is not a question of the preparation of a neighbourhood plan; my amendment would not apply in that situation.

[Earl Howe (Con)]

I take the noble Lord’s point. This highlights again how important it will be to ensure that the results of the consultation reflect issues such as those the noble Lord has raised. It may be that the general feeling is to go along the road the noble Lord has suggested. I do not want to pre-empt the consultation result in that sense, but let me reflect further on what he has said. Again, I will be happy to write to him if I have further wisdom to impart at this stage.

I can understand the reasons for tabling Amendment 254, in the name of the noble Baroness, Lady Hayman, to which the noble Baroness, Lady Taylor, spoke. I do not, however, agree that it is necessary. As a general point, biodiversity net gain will be an important point of the planning system going forward. It will ensure biodiversity must be enhanced when new development occurs and habitats will be impacted. Having said that, my colleagues at Defra have recently published the Government’s response to their consultation on the implementation of biodiversity net gain—BNG. This response makes clear that certain types of development will be exempt from BNG requirements.

The powers in the Bill require regulations to specify the development which can be consented to through a street vote development order. We are likely to use those powers to specify a range of development, from more minor developments such as roof extensions to more extensive development. In line with the wider policy approach, it is therefore likely to be appropriate to exempt some forms of street vote development from BNG requirements. That is why we are seeking the power in the Bill to both modify and exclude BNG provisions under Schedule 7A.

The noble Baroness asked in particular about conservation areas, and I will touch on that. I recognise the important role that conservation areas play in protecting local heritage. Proposals for street vote development orders will be independently examined against a set of prescribed requirements. The importance of local heritage will be taken into account in the design of these requirements. In addition, street vote development orders cannot be used to consent to the development of listed buildings and scheduled monuments.

The noble Baroness, Lady Pinnock, asked about infrastructure and perhaps I could reply to her in this particular context. We recognise that improvements to local infrastructure may be needed to support street vote development. Where street vote development takes place, local authorities will be able to secure value from the new development by charging a specific community infrastructure levy rate targeted at street vote development. This will ensure that value generated by the street vote development can be captured and used to secure infrastructure and affordable housing that will support the local area.

I turn briefly to the issue of whether it is appropriate to seek a delegated power in this case. As Defra’s recently published implementation plans make clear, much of the detailed implementation for biodiversity net gain will be set out in secondary legislation. It is therefore also appropriate to set out the biodiversity net gain arrangements for street vote development orders in secondary legislation to ensure that the systems work in harmony.

I can understand the reasons for tabling Amendment 257 in the name of the noble Baroness; however, I do not agree it is required. Clause 100(3) of the Bill allows for local authorities to expedite the procedure for setting community infrastructure levy rates for street vote development where local authorities do not have immediate plans to update or introduce CIL rates within their authority.

17:45

Unlike other developments, we do not intend for street vote developments to be subject to Section 106 planning agreements to deliver on-site affordable housing. However, we recognise that in some cases it may be appropriate for street vote developments to contribute towards affordable housing. That is why this clause allows authorities to spend street votes CIL receipts on affordable housing, where they consider it appropriate to do so. It is not possible at this stage to make any prediction about the amount of affordable housing that would be provided by street vote development orders, for the simple reason that we need baseline data and we do not know how many street vote developments will come forward.

Turning to the issue of annual reporting, I note that local authorities are already required to report annually on CIL expenditure in their infrastructure funding statements. We will be considering as we develop the policy the role that monitoring of CIL expenditure can play, as a part of the wider monitoring strategy for street votes.

Amendments 249, 250, 252 and 253 all relate to who is eligible to participate in the street vote process and I will address these as a group. Street vote development orders are intended to give those who currently live in the relevant area the opportunity to come together and prepare a development proposal for their street. If the proposal passes independent examination, a wider group of local people will get the opportunity to vote on whether planning permission should be granted. While I absolutely acknowledge and understand what the noble Baroness was seeking to achieve with Amendment 249 and her interest in who will be eligible to submit proposals and vote, the effect of her amendment would allow for people who no longer live in the area to participate in the process, which would be contrary to the intention of the policy.

Once again, these are matters for the consultation. We intend to consult on the relevant date for meeting the conditions for eligibility to be in a proposer group and the eligibility for who can vote in a referendum before exercising the relevant powers to ensure we get the balance right.

My answer is similar regarding Amendment 250, which covers a concern voiced by my noble friend Lord Young of Cookham. The powers we are seeking allow the Secretary of State to prescribe in regulations the minimum number or proportion of qualifying individuals that are needed to form a group which is eligible to submit a proposal with a view to it being independently examined and ultimately put to referendum. We want to ensure proposals have sufficient local support before they progress, and we similarly intend to consult on this as part of a wider consultation on the detail of the measure.

[Baroness Taylor of Stevenage (Lab)]

The noble Earl has mentioned, a couple of times now, independent examination of street voting. Does that mean the idea is that we will have a whole new round of public inquiry processes for every street vote that is introduced?

[Earl Howe (Con)]

No, it most certainly does not. Our intention is to appoint the Planning Inspectorate to examine proposals and make the street vote development orders on behalf of the Secretary of State.

[Lord Stunell (LD)]

I wonder if I could help the noble Earl. For neighbourhood plans, there is an independent examiner who is not actually drawn from the inspectorate but obviously has to be a qualified professional person of independent standing according to an agreed register. I would have thought that, bearing in mind that is a task that is bringing forward a significant number of neighbourhood plans each year and the Government intend to bring forward more, there would be a substantial multiplier effect if street votes go ahead. So the pool of independent examiners may have to be deepened and widened somewhat beyond the Planning Inspectorate if he intends to proceed.

[Earl Howe (Con)]

That is a helpful suggestion, which I am happy to feed in.

On Amendments 252 and 253, in the name of the noble Baroness, the Government recognise that leaseholders will often have an interest in proposals for street vote development. Leaseholders will be able to be part of a group that can bring forward a proposal for a street vote development order if they are registered to vote in a local council election at an address in the street area on a prescribed date. If a proposal passes examination, a referendum will be held on it. Subject to the outcome of consultation, the Government envisage making a provision so that individuals, including leaseholders, who are registered to vote in the local council election at an address in the street area, as well as commercial rate payers there, will be eligible to vote. Again, we intend to consult on this proposal and on our proposals for referendum approval thresholds as part of a wider consultation on the detail of the measure.

[Baroness Pinnock (LD)]

I apologise. The noble Earl said that commercial developments in an area would have a vote, but how would they be on the electoral roll? Clause 99 says they would be.

[Earl Howe (Con)]

It is not that businesses would be on the electoral roll. If I misspoke, what I meant to say was that residents who are registered to vote in a local council election at an address in the street area on a prescribed date will be eligible to vote as part of this arrangement, as well as commercial rate payers in the area.

[Baroness Pinnock (LD)]

So could Tesco, for instance, have a vote, if there was a little Tesco Express on the street?

[Earl Howe (Con)]

The intention is that, if there is a commercial business paying commercial business rates, it should be allowed a voice in this process.

[Baroness Pinnock (LD)]

This gets more interesting by the day.

[Earl Howe (Con)]

No doubt this will be the subject of further debate—

[Lord Stunell (LD)]

And consultation.

[Earl Howe (Con)]

Yes, and consultation.

Before I speak to the government amendments, I will turn to Amendments 255 and 256, also in the name of the noble Baroness, which deal broadly with issues of propriety. I recognise the valuable expertise that organisations like the Association of Electoral Administrators can bring, but I do not agree with the noble Baroness that it is necessary to place a statutory duty on the Secretary of State to engage with them. As part of our work to develop the detail of the street votes policy for regulations, we will seek a wide range of views, as I mentioned earlier, from organisations such as the Association of Electoral Administrators and the Society of Local Authority Chief Executives to help us to get the secondary legislation right and to ensure that the policy operates effectively. However, it is right that the Secretary of State will be required to consult the Electoral Commission, given its important statutory role to ensure free and fair elections and polls.

[Baroness Taylor of Stevenage (Lab)]

I hear what the noble Earl is saying. In that respect, our amendment was more to seek the views of the Association of Electoral Administrators about the level of pressure that might be put on those groups—I made this point on planning teams earlier—if they were involved in a number of different referenda in their areas at the same time, for example. These can come out of the blue—we would not know when—so there are issues around how they are resourced to deal with that kind of uncertainty in their workloads.

Two big questions have come out what the noble Earl has said. First, as the noble Lord, Lord Stunell, said, it seems that we are going to have a whole new inspectorate. We had a light-hearted suggestion that it might be called “Ofstreet”, but that is for later determination. Who is going to pay for that inspectorate? Secondly, there is the issue of referendums. Referendums can be quite expensive—we have done them on parking issues in my borough. It costs quite a lot of money because you have to be very careful about how they are done to make sure they are fair. Who pays for those?

[Earl Howe (Con)]

My Lords, if I may say so, that is a very helpful intervention from the noble Baroness. She raises a number of key points, some of which will no doubt be covered in the consultation, but if I can expand on that I will be happy to write to her.

On Amendment 256, I would like to make it clear that the Government take the potential for conflicts of interest seriously. I am however confident that local authorities and the Planning Inspectorate, both of which we envisage having an important role in the street vote process, have appropriate safeguards in place to minimise conflicts of interest. It is a matter for local authorities to determine their own conflict of interest policies. I have every confidence that all local authorities treat conflicts of interest seriously and have robust procedures in place for both their members and officers. It would not be proportionate to legislate that local authorities publish guidance on managing conflicts of interest specifically on street votes, although no local authority would be prohibited from doing so if they so wished.

Our intention is to appoint the Planning Inspectorate to examine proposals and make street vote development orders on behalf of the Secretary of State. As the independent examiner, the Planning Inspectorate has its own conflicts of interest policy to support the proper and efficient allocation of work. In addition, chartered town planners, who may support residents in preparing proposals, are bound by the Royal Town Planning Institute’s code of professional conduct. This includes provisions to declare and avoid conflicts of interest.

I turn briefly to the government amendments in this group. The Government are committed to ensuring that street vote development is subject to the same principles in relation to environmental impact assessment as development enabled by other routes to planning permission. This is consistent with the Government’s commitment on non-regression of environmental protections. Without amending the Bill, it would be unclear for qualifying groups and relevant bodies how the EIA requirements would apply to street vote development. Amendments 257A, 504H, 504I, 504J and 509A allow for the Secretary of State to make regulations modifying the existing process under the EIA regulations so they operate effectively for street vote development orders. Where development that is consented under a street vote development order is EIA development, it will continue to be prohibited unless an assessment has been carried out and the environmental impacts are considered when making the order. Amendments 248A, 256A and 258A make technical and consequential provision to the Town and Country Planning Act, the Planning (Listed Buildings and Conservation Areas) Act 1990 and the Elections Act 2022. These minor changes to these Acts—

[Lord Stunell (LD)]

I thank the noble Earl for giving way—I realise he has a mammoth task this afternoon. Amendment 258A introduces a new schedule to the Bill. It appears to be five pages long, which raises the total text to some 15 pages. I wonder whether he could say a little bit more about that schedule and what it is attempting to achieve. I am looking at paragraph 1(7), which is obviously difficult to interpret because it inserts bits into other legislation. Maybe he would like to write to me about this. Really quite important stuff is being parachuted into the Bill, on top of all the uncertainty we have been discussing. I wonder whether he would like to sketch in how the new schedule, which I suppose is going to renumbered as Schedule 8, fits into the general structure of this clause.

18:00

[Earl Howe (Con)]

I appreciate the noble Lord’s question and his interest in that amendment; I understand why he felt he should have asked the question. My advice is that, despite its size, this additional schedule represents a minor and technical change, which is necessary to ensure the effective operation of the street votes process and to ensure that it is integrated into the wider planning system. However, I am happy to write to him with further and better particulars.

I hope that the Committee will feel more comfortable with the provisions as I have explained them, and that the government amendments will be accepted when they are reached.

[Baroness Pinnock (LD)]

Near the beginning of my speech, I asked the Minister if he would be able to define a street. Could he do so now?

[Earl Howe (Con)]

I am so sorry I omitted to reply to the noble Baroness; I will write to her. It is a question I ask officials myself. It is an issue which will be decided in the consultation because, as she rightly said, there will be instances where a street, as such, does not exist. For example, you might have a small community of houses where the owners or residents may wish to apply under this procedure. In short, this is an issue to be determined under the consultation.

[Lord Young of Cookham (Con)]

My Lords, the hour is late, and we are less than half way through the targeted groups for the day, so I will be as brief as I can in winding up this fairly lengthy debate. I note that all those who spoke to their amendments had at some point held elective office, either as councillors or in other place—and, in some cases, both. That may explain the lukewarm—I think that is the best adjective I can use—reception for this proposal. The conclusion I draw from this is that the role of a think tank is to think and to come up with radical policies; the role of government is not to fast-track those into primary legislation but to subject them to critical scrutiny and consultation, and then progress to the next stage. The more I listened to the debate, and the more I heard my noble friend the Minister use the word “consultation”, the more I have come to the conclusion that, while I said in my opening speech that this was a policy in the process of gestation, it is in fact the size of a pinhead, as far as I can see, when it comes to movement towards delivery.

I will now pick up some of the points raised. The noble Baroness, Lady Taylor, struck a note of caution about the policy and agreed with me that it was okay to have street votes as a process of feeding into the formulation of a district plan, but she wanted more clarity and asked for assurances about conservation areas for which an assurance was not given. She asked relevant questions about the role of tenants, voting thresholds and declaration of interests. As I understand it, a short-term tenant will have a vote, but the owner, who is not in the property at the moment, will not. There are a lot of issues behind entitlement to vote, which I will come to a moment.

I suspect that the noble Lord, Lord Stunell, was a Minister in the DCLG in 2010, when the Prescott policy of not-so-gentle densification was overturned—his head is stationary, so I do not know whether he was or not; now it has moved vertically, indicating that he was indeed in the department then. He made the point—I will come to it in a moment—about the priority of the neighbourhood plan. One of the worrying things that my noble friend the Minister said in his reply was that, where a neighbourhood has gone through the whole process of consultation, and has developed and had approved a neighbourhood plan, and then within that neighbourhood a street comes up with a proposal which is in conflict with it, the street vote has priority because my noble friend was unable to accept the amendment.

The same applies to my amendment. When one has gone through the whole process of formulating a district plan, residents throughout the district feel confident in the outcome. They then find that it can be overturned by a street vote. The noble Baroness, Lady Pinnock, again highlighted the potential for neighbourhood conflict, which is one of the things that really worries me about this. I am grateful to my noble friend the Minister, whose patience and tolerance have been extended to the extreme over the past hour and a half. I note that he did not reply to the points that I made about the DPRR report, which made some scathing criticisms and suggested that whole sections of this Bill should be removed. Nor did he indicate when the Government might reply to that report.

My noble friend said that the street vote could go ahead with the support of residents, but we do not know what is meant by “support” or “residents”. As I read it, there will have to be an assessor; it will have to go through a process. My understanding is that an inspector—probably from the Planning Inspectorate—would be appointed to assess it. We did not get an answer to the question of who pays for the PINS inspector who is going to assess the proposal. The ratepayers will have a vote, but it is not quite clear who will exercise that vote on behalf of the business. If there is one very small business and one huge business, do they both have one vote? Who exercises it?

The conclusion that I draw from this is that the best thing for the Government to do is to drop this clause. Frankly, the Bill is far too long; this is not urgent; there is no great demand for it. That was quite clear from what my noble friend said whenever he was asked a question: “This is subject to consultation”. We should have had the consultation before we had the legislation. Although I will withdraw my amendment, I suspect that if I did not, I would win the vote quite comfortably on the basis of the exchanges that we have had so far. In the meantime, however, I thank all noble Lords, and particularly my noble friend. I beg leave to withdraw my amendment.

Amendment 248 withdrawn.

Amendment 248A

Moved by

[Baroness Scott of Bybrook]

248A: Clause 99, page 109, leave out lines 12 to 16 and insert—
“(i) an Authority election, where any part of the street area to which the street vote development order would relate is within the City of London, or(ii) an election of councillors of any relevant council (other than the City of London) any part of whose area is within the street area to which the street vote development order would relate,”Member's explanatory statement
This amendment amends the conditions for an individual to be part of a “qualifying group” for the purposes of new section 61QB of the Town and Country Planning Act 1990 (as inserted by clause 99), to remove the overlap in cases where any part of the street area to which the street vote development order would relate is within the City of London (which is also a “relevant council” for the purposes of the 1990 Act).

Amendment 248A agreed.

Amendments 249 to 256 not moved.

Amendment 256A

Moved by

[Baroness Scott of Bybrook]

256A: Clause 99, page 117, line 22, leave out subsections (3) to (13) and insert—
“(3) Schedule (Street votes: minor and consequential amendments) contains minor and consequential amendments in connection with this section.”Member's explanatory statement
This amendment introduces a new Schedule which makes minor and consequential amendments in connection with Clause 99 (street votes).

Amendment 256A agreed.

Clause 99, as amended, agreed.

Clause 100: Street votes: community infrastructure levy

Amendment 257 not moved.

Clause 100 agreed.

Amendment 257A

Moved by

[Baroness Scott of Bybrook]

257A: After Clause 100, insert the following new Clause—
“Street votes: modifications of the Town and Country Planning (Environmental Impact Assessment) Regulations 2017The Secretary of State may by regulations make provision modifying the application of the Town and Country Planning (Environmental Impact Assessment) Regulations 2017 (S.I. 2017/517) in relation to the grant of planning permission by a street vote development order.”Member's explanatory statement
This amendment provides a power to modify the application of the Town and Country Planning (Environmental Impact Assessment) Regulations 2017 in relation to the grant of planning permission by a street vote development order.

Amendment 257A agreed.

Clause 101: Crown development

Amendment 257B

Moved by

[Baroness Pinnock]

257B: Clause 101, page 124, line 2, at end insert—
“(aa) residents of the local area who may be affected by the application, and”Member's explanatory statement
This amendment would require the Secretary of State to consult local residents before determining an application under this section.

[Baroness Pinnock (LD)]

My Lords, my Amendment 257B is to Clause 101, by which the Government will centralise to the Secretary of State some of the most important planning decisions that will be taken in any locality. The example that I will use is that of the proposed use of former airfield accommodation for housing asylum seekers. I do not want to debate the principle of that today—it is a proposal by the Government. What I am interested in, and concerned about, is the proposal from the Government as to how such a decision will be made. This relates to some of the most important planning applications that will ever occur in a locality. As we have heard over the last few meetings of this Committee, there is a well-thought-through, well-laid-out and well-understood—on the whole—planning process to determine applications either for a new development or a change-of-use development. The proposal here is to try to bypass that, because it would be difficult.

We live in a democracy, and the whole purpose of a democracy is for the voice of the people to be heard and for decisions to be made, having heard the voice of the people—of residents. I feel really strongly about this. In my experience, the worst thing that happens in a locality is when somebody in authority tries to impose a solution. It never works—and the experience of the Government so far shows that this will not work. The proposal for Linton-on-Ouse airfield in North Yorkshire to be used for accommodation for asylum seekers had to be fairly rapidly rescinded because of local objections. There is a way of doing things—and, yes, it takes time, but time is a healer. It gives a way of hearing voices that are, at first, perhaps angry, but can then be made less angry, or perhaps even ameliorated, through discussion and hearing both sides of a proposal.

Currently what happens with any planning application, but particularly big planning applications is that, first, it is notified in a formal way and word gets round in informal ways. A timetable is laid out for how the planning application will be considered, including a period in which objections can be made by local people. Then there is an opportunity at a meeting of the planning committee to hear the proposal and any objections. I think that most planning committees now allow, and encourage, members of the public to speak to the committee so that their voices and concerns can be heard. If planning officers are involved, one of their skills is to try to find a way through a difficult proposal by hearing the voices of those who live in the locality and of the planning proposal applicant. They try to find a way through so that, while nobody will be totally satisfied, there is less dissatisfaction. The decision is made in an open way—it is webcast, these days, well reported and understood—and a list of planning conditions are laid out so that all the issues that local people are concerned about can be addressed.

18:15

The issue is that we have 166,000 asylum applicants, and because processing them has been so dreadfully slow—perhaps deliberately so, I do not know—they are talking about moving asylum seekers from hotels to this disused accommodation. Do noble Lords know how many sites they will have to find to get everybody out of a hotel? It will be a minimum of 80. Have we got 80? This is a folly that we have in front of us.

I understand that the Government have a problem here, but asylum seekers, in my view, have a right to be housed in a clean and safe environment while their asylum application is being heard. If the Government cannot do that in a speedy way, then they create for themselves a problem. But in this instance what is not acceptable, in a democracy, is for the solution to be that up to 2,000 individuals will be housed in former accommodation without the consent of the surrounding community, because it will have an impact on them. The impact can be ameliorated, but they need their voice to be heard. That, for me, is the issue. We live in a democracy, people have a right to have their voice heard, and that is the whole purpose of my amendment. I beg to move.

[Baroness Hayman of Ullock (Lab)]

My Lords, I thank the noble Baroness, Lady Pinnock, for introducing her amendment. We agree with everything she has just said. I am also objecting to Clause 101 standing part of the Bill, because we are very concerned about the implications of this clause. We have also put down an amendment to probe whether guidance will be published on Clause 101, but our major concern is with the clause itself.

As we have heard from the noble Baroness, Clause 101 inserts new sections into the Town and Country Planning Act to provide for two new routes to apply for planning permission for the development of Crown land in England. In other words, we are talking about land where there is a Crown or Duchy interest. In the case of either route, the provisions in the clause will allow the appropriate authorities to apply for planning permission direct to the Secretary of State, rather than being subject to the same requirements and application processes as anyone else wishing to undertake development. In such circumstances, the Secretary of State must notify the local planning authority whether they intend to decide the application. If they decide to determine it themselves, they can approve it either conditionally, or unconditionally, or refuse it. They will also have to consult the local planning authority, to which the application would otherwise have been made, but the authority will have no right to veto it.

What does the policy paper that sits alongside the Bill say? It says that it is a means to

“provide a faster and more effective route for urgent and nationally important Crown development”.

That sounds all well and good, but, like the noble Baroness, Lady Pinnock, we are also concerned about the implications of introducing such an open-ended measure. This is regarding both removing appropriate and necessary limits on the exercise of executive power and denying communities a chance to express their views about development in their area and their ability to indicate either consent or opposition.

We fully appreciate that there will be emergency situations where it is necessary to speed up the planning application process for essential development. Off the top of my head, I can think of the Nightingale hospitals during the Covid pandemic. However, the broad scope of the provisions in the clause, which do not provide for any limit on the type of development that can be approved directly by the Secretary of State, or in what circumstances, means that they could be used for a much wider range of proposals.

This could include a number of circumstances, but I would like to focus on one in particular, as did the noble Baroness, Lady Pinnock. The Committee will know that the Government have opened centres to provide accommodation for asylum seekers and are looking to open further such centres. I would like to thank Asylum Matters, Medical Justice, the Helen Bamber Foundation and Ripon City of Sanctuary for their helpful briefings. The Government have, as the noble Baroness said, consistently sought to avoid public scrutiny of and consultation about the construction or operation of large-scale institutional facilities for asylum accommodation.

The Home Office has previously successfully opened such facilities on ex-military sites at Coltishall in Norfolk—which is now closed, despite an attempt to reopen it—Napier in Folkestone, which is still open, and Penally in Pembrokeshire, which is now also closed. It has further made attempts, despite local opposition, to construct or operate similar facilities in Barton Stacey, Hampshire, in a facility on the Yarl’s Wood Immigration Removal Centre site in Bedfordshire and, from April 2022, as was mentioned by the noble Baroness, at an ex-military base in the rural village of Linton-on-Ouse, North Yorkshire. All these projects have been the subject of intense controversy and, in the cases of Napier and Penally, legal challenge over the profound harm to people seeking asylum, as well as the lack of government consultation of local communities and the resulting impacts on community cohesion.

At both Yarl’s Wood and Linton-on-Ouse, pre-action correspondence was issued, and the developments were halted prior to judicial review. At Penally, the Secretary of State for Wales stated that he first had discussions with the Home Secretary about use of the site just nine days before it opened, and the local health board was informed three days prior. At Napier, the local council, local MP and local and district councillors wrote to the Home Office to protest that they had been given

“very little notice of the decision”

to open the barracks and that it was

“one they could not support”.

A similar lack of consultation occurred at Barton Stacey and at Yarl’s Wood. In the case of Napier, planning permission for the facility was initially secured under class Q emergency development rights for six months, subsequently extended to 12. The Secretary of State granted herself permission to use Napier Barracks for a further period of five years, without any public consultation, through the unusual procedure of using delegated legislation.

The Government’s approach has been criticised by your Lordships’ Secondary Legislation Scrutiny Committee, which raised concerns that the Town and Country Planning (Napier Barracks) Special Development Order 2021 had been laid while Parliament was in recess and that “insufficient information” had been provided by the Government about these developments.

After the fact, the Home Office ran a public “consultation” on the change of use of the site. But this cannot be considered a meaningful consultation, as it took place after permission had been extended. The planning statement that was issued at this time included a commitment to complete a statement of community involvement. This has still not been published, despite the consultation closing at the end of January last year. Perhaps the Minister could give an update on that.

In a judgment handed down on 24 June last year, the High Court ruled that the decision to grant planning permission for a further five years was unlawful. The judge ruled that there was a failure to have proper regard to the public sector equality duty and that the development raised

“very obvious issues … in particular relating to … potential victimisation and harassment … and the fostering of good relations”.

Lack of consultation by the Government has had serious effects on community cohesion in places where large-scale institutional sites have been contemplated. Last April, the Government announced their intention to move towards a system of large-scale permanent asylum accommodation centres in which to place people seeking asylum who would otherwise be destitute, while they await a decision on their claim. The flagship announcement of a facility to accommodate 1,500 people seeking asylum on the ex-RAF base at Linton-on-Ouse, which we have mentioned, was made without any reference at all to the local community, the parish council, the district council, the police and crime commissioner or local police and health services. An initial justification for this was that it was part of a bigger series of announcements.

Current planning laws and, in particular, the right of local residents to be heard on decisions which affect them have proved a barrier to government attempting to institute these large-scale accommodation facilities. Our concern is that the powers provided for in this clause are to facilitate the driving through of centres regardless of their impact on the people placed in them or the local communities in which they are situated. They allow government to totally bypass local councils on asylum accommodation. This is completely the wrong approach. We believe it should be a legal requirement to consult local authorities on asylum accommodation locations.

Appropriate safeguards must be added into the clause to ensure that there are limits to the use of these powers and that minimum requirements are in place to secure some measure of consent from affected local communities. Without a firm commitment that such safeguards will be introduced at a later stage, we believe that Clause 101 must be removed from the Bill.

[Lord Hodgson of Astley Abbotts (Con)]

My Lords, I have not participated in this Bill so far. I arrived today thinking seriously about the matter of principle in the powers given to the Government by Clause 101, and with some sympathy for the ideas behind Amendments 257B and 258ZA. I am disappointed by the way in which both noble Baronesses have spoken to them, moving away from the principle of the way in which the Government have powers to a discussion about immigration policy and the use of asylum centres. That is a much narrower issue; it will come out of this, but it gets away from the principle of the Government having undue powers for whatever reason. Moving on to something highly controversial and difficult at this stage muddies the water in a way that is unhelpful for those of us who think that Clause 101 contains undesirable powers.

The noble Baroness referred to the Secondary Legislation Scrutiny Committee, which I chaired during the Napier barracks statements. We have seen the Government push the envelope, in particular during the pandemic. The noble Baroness, Lady Bakewell of Hardington Mandeville, will recall some of this as a former member of the committee. Things such as permitted developments were pushed out in response to the needs of the pandemic. I understand that; emergency statements needed to be taken and things needed to be done quickly.

We saw the impact of that in many ways, but most obviously in our having restaurants in the street, which was needed at the time because otherwise they would have had to close due to social distancing. We on the SLSC were content about this because there was a sunset clause built in. However, a year later it was removed by another piece of legislation. By two steps, the Government moved from one position to another with minimal scrutiny from your Lordships’ House and the other place. That is the issue I am interested in exploring in this clause, rather than involving ourselves in discussions about immigration, which will take us back to all sorts of difficult areas that will not help the development of the argument.

The Government said in response to our concerns about making these permitted developments permanent that we were semi-killjoys, trying to stop restaurants in the street and so on, but the reality is that they were controversial for mothers with buggies, pallet truck drivers, people with limited vision and, above all, people who lived above them—all of us talk rather louder and laugh a bit more when leaving a restaurant at 11 pm having had a few glasses of wine, so people found their children being kept awake and so on.

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I am not saying that was the right policy or the wrong policy, but it was one that should not have been made by the stroke of a pen in secondary legislation— unamendable—and that could not be properly debated, and on which local thoughts and views could be taken more properly into consideration. If the Government are to push on with Clause 101, I hope they will think about ways whereby some of the powers can be constrained, in light of the way we have seen the envelope of the power being pushed very greatly in the past.

[The Earl of Lytton (CB)]

My Lords, it is a pleasure to follow the noble Lord, Lord Hodgson of Astley Abbotts. My concern is to do with not the specific examples referred to, but that we seem to be in a situation where we are asked to confer an unconstrained power in relation to an undefined objective. The undefined objective is “national importance”, and I have not been able to find a definition of what that might be. I suppose you would say that I might ask from these Benches: is the national importance clearly distinguishable from the political aspirations of the Government of the day? Is it something different? I would want to know because I would not want to confer a power without having a very clear sense of purpose.

We turn to the matter of “urgency”—not emergency, I stress, but urgency. We need to understand what that amounts to. It may be irksome to Governments of the day—the more centralist and command economy-type the thinking, the more irksome it becomes—to go through hoops to do with projects that involve Crown land. But it is the price of democracy, and the price of the maintenance of the rule of law and the continuation of what might be regarded as the rules-based system. That demands a degree of consistent approach. Without having some definitions in the Bill, it is difficult to see how there could be any consistent approach here, as opposed to one based on whim.

Some of the examples that the noble Baroness, Lady Hayman, produced in her excellent introduction made it look like Government gaming the system, and that worries me very greatly because it is not just the Government that may be here today, but one tomorrow or in future years, and perhaps—who knows?—one that is more extreme of right or left; I say not which. I get back to the rules-based system. Are we in that environment or are we getting into the area where anything goes?

I mention the following because I do not want it to be used as the lever by the Minister when he comes to reply. Wrapped up in the middle of page 123 of the Bill, in new Section 293B(11), is the provision for matters of national security and public disclosure that would be

“contrary to the national interest”.

I get that, and I do not have any principled objection to it, subject to adequate definitions and safeguards. I want to know how “national importance” and “national interest” interface for a start.

Going over the page in the Bill, page 124 states, in new Section 293C(3), that:

“A development order may make provision as to the consultation”—


“may”, but does not have to. That cannot be an entirely optional extra at the whim of whichever Secretary of State happens to be in power at the time. Still on page 124, new subsection (8) states:

“The following provisions do not apply for the purposes of determining an application … sections 66(1) and 72(1) of the Planning (Listed Buildings and Conservation Areas) Act”.


Section 66(1) is in relation to the desirability of conserving and protecting listed buildings, and Section 72(1) is effectively the same but for conservation areas. But when the Bill says:

“The following provisions do not apply”,


they clearly do not apply to anybody, not even the Secretary of State. The Secretary of State is, in other measures, asking the general citizenry to comply with precisely the same burdens that they decide, on a whim, that they are going to relieve themselves of. I am behind the noble Baroness, Lady Hayman, because this is just not good enough.

[Lord Berkeley (Lab)]

My Lords, I rise briefly to support my noble friend Lady Hayman, who performed an excellent destruction of this clause. Other noble Lords have said much the same thing. I have one question for the Minister, because this is all about the Crown, but I cannot see any definition in the clause of who “the Crown” is. There are other definitions in other parts of the Bill, which include the Duchy of Cornwall, which I shall come on to in the next amendment, the Duchy of Lancaster, and the Crown Estate. It makes me think that what we are really trying to do is to go back to a time when we had “the Crown” in the shape of Henry VIII, who could do more or less what he wanted. This seems a very good start to the Government’s plan to give Henry VIII, in the shape of whoever is in charge at the time, carte blanche to do what they want.

[Lord Lansley (Con)]

My Lords, I am glad to follow the noble Lord, Lord Berkeley. Before we hear from my noble friend, I want to say that Section 293 of the Town and Country Planning Act 1990 defines what is Crown land and goes on to make it clear what is an appropriate authority for the purposes of what is being introduced in Section 293B, down to and including,

“in relation to Westminster Hall and the Chapel of St Mary Undercroft … the Lord Great Chamberlain and the Speakers of the House of Lords and the House of Commons acting jointly”

being the appropriate authority.

I want to ask my noble friend about something because I simply do not understand it. There is an existing Section 293A, which as it stands is called “Urgent Crown development: application”; it has almost the same name as new Section 293B. I completely understand that the existing legislation does not appear to include all the provisions relating to how the Secretary of State deals with such an application and how the Secretary of State might give permission, so it is probably defective. But then I do not understand why all this is being added in and Section 293A is not being repealed. Perhaps my noble friend can explain that to me.

[Earl Howe (Con)]

My Lords, looking first at this clause as a totality, I will begin by explaining briefly the purpose of the proposed measure. The purpose of Clause 101 is to update the existing provisions for development by the Crown that is of national importance and required urgently by providing a new, faster, more effective and efficient route for seeking planning permission. It also provides a new route for nationally important development that is not urgent. The objective of these reforms is to ensure that planning decisions can be made in a timely and proportionate way on development that is of national importance and is promoted by the Crown.

Let me banish what I have perceived from this debate is a misconception. A special urgency procedure for urgent and nationally important Crown development has existed in legislation for many years. The purpose of the clause is to update this route so it can be used more effectively to deal with urgent national crises and supplement it with a new route for making a planning decision for non-urgent planned Crown development which is of national importance.

The Government believe that, where a Crown development is of genuine national significance, the Secretary of State, who is democratically accountable to Parliament, should be able to make a planning decision rather than an individual local planning authority answerable to its local community. The Secretary of State is best placed to take a national, balanced and impartial view of the need for development.

Let me explain that nationally important but non-urgent applications will still be considered against the plan-led approach we advocate through the Bill, and local communities will be given their opportunity to give their views and have these taken into account. Again, there is precedent for this type of approach within Section 62A of the Town and Country Planning Act, where planning applications can be submitted directly to the Secretary of State. It is thought that this route would be suitable for development such as new prisons and extensions to the defence estate.

All sorts of hares have been set running on this provision, and it is most important for me to emphasise that the urgent route that we are introducing would be used sparingly where—and only where—it can be demonstrated that development is needed urgently and is nationally important. Those are high bars, but the route could, for example, be used for development needed on Crown land to develop medical centres in the event of a pandemic. Such development will need to be operational in a matter of weeks so decisions can be made very quickly. Other examples could include accommodation needed urgently in the event of a future influx of refugees, or military training facilities.

I was grateful to my noble friend Lord Hodgson for at least part of what he said, if not for all of it. Press reports have been misleading on the issue of housing illegal migrants. As I have said, the power can be used only for Crown development which is of both national importance and needed urgently. As I have said, this is a high bar, and Crown bodies making an application will need to justify that using this route is appropriate.

This does not concern any situation that we may currently be facing on illegal migrants. In the first place, it is worth bearing in mind that this power will not take effect straightaway, contrary to reports in the press. The Bill needs to finish its passage through Parliament and then we will need to lay regulations and produce guidance before this can properly be brought into force. That will take time. To this end, it may not be a suitable route for the immediate issue of housing of migrants to address the current immigration backlogs. In the case of asylum accommodation on MoD bases, it will be for the Home Secretary to decide whether to bring forward an application when the powers are in place.

We recognise that the procedure for this urgent route is not the same as the more commonly known statutory procedure for determining planning applications. It is therefore, I say again, a route that will be used sparingly. I say to the noble Earl, Lord Lytton, that those promoting the development must clearly demonstrate that there is an urgent need for the development, that timely decisions cannot be delivered by other planning routes and that it is therefore in the wider public interest that the planning decision is accelerated using the new procedure.

18:45

The Crown body promoting the development will need to demonstrate that the urgent route is the right one before the Secretary of State considers the merits of the development, and the Secretary of State, when determining applications for crown land, will make any decision only on the basis of evidence and considerations which are relevant to the planning merits of the case—not who the applicant is. It has been a feature of the modern planning system, since its inception in 1947, that the Secretary of State can make impartial planning decisions instead of local planning authorities, and we have well-established and robust procedures to ensure propriety. I hope I have given the noble Baroness sufficient assurance by way of the background rationale.

Let me continue by addressing the amendments in this group. Amendment 258ZA, tabled by the noble Baroness, Baroness Hayman, would require the Secretary of State to publish guidance on the use of this measure 60 days after the Bill reaches Royal Assent. I can confirm that we will be issuing guidance to Crown bodies, local planning authorities and others to support the implementation of these two new routes to permission for Crown development. It would not, however, be appropriate to make it a legal obligation to bring this forward within 60 days of enactment. The provisions in the Bill cannot be brought into force until the necessary secondary legislation is in place, which will provide the detail of the application processes to be followed. The primary legislation alone is not sufficient. For this reason, I hope the noble Baroness understands why we cannot bring forward guidance in advance of the secondary legislation, which in itself will need to be prepared through engagement with Crown bodies and other stakeholders. I hope I have assured the noble Baroness that guidance will be forthcoming.

Amendment 257B, proposed by the noble Baroness, Lady Pinnock, concerns the urgent Crown development route set out in new Section 293B of the Town and Country Planning Act 1990, as referred to by my noble friend Lord Lansley. The amendment proposes that, before a decision is made on whether to grant planning permission under this section, the Secretary of State must consult local residents. As I set out earlier, the purpose of Clause 101 is to reform how planning permission is sought for development that the Crown considers to be of national importance and urgently needed.

The special urgency procedure that is available currently allows a planning application to be made directly to the Secretary of State rather than to the local planning authority. After this, the procedure operates much like a called-in planning application. This is one where the Secretary of State makes a decision rather than the local planning authority. There is a requirement for publicity in a local newspaper, and applications cannot be determined until a 21-day consultation period has taken place. If either the applicant or the local planning authority wishes, the Secretary of State must allow each party the opportunity to appear before, and be heard by, a planning inspector.

This process, from start to finish, is likely to take many months. Regrettably, these arrangements are not fit for purpose when dealing with a project that may need to be put in place in weeks, not months, and where the planning process is just the first step. Consequently, the arrangements have never been used, even during the Covid pandemic. There is a simple reason for that, which is that by requiring many of the same procedures as a conventional planning application, decisions cannot be made quickly enough to react where development of national importance is needed urgently. I should say, however, that our reformed process retains the requirement for the Secretary of State to consult the local planning authority, which will be able to reflect any local concerns before a decision is made.

Of course, I completely understand and support the intent of the amendment proposed by the noble Baroness, Lady Pinnock, that a local community’s involvement is an important principle in our planning process. In an ideal world, we would want more involvement from local communities on these decisions.

However, regretfully, as has been shown by the current process for nationally important and urgent development, we must have a system in place which enables any Government to react quickly in circumstances where a development which by its nature must be delivered urgently and is in the national interest can be delivered. Creating a system which mirrors what we have already will not benefit our communities when we need to make planning decisions urgently. With these reasons, I hope that I have persuaded the noble Baroness of why I cannot accept this amendment.

[Baroness Pinnock (LD)]

I thank the Minister for his careful response to the concerns that have been raised. I said at the outset that I understand that some planning decisions must be made rapidly in the national interest.

However, unrestrained power for an undefined purpose of national importance, as the noble Earl, Lord Lytton, said, is at the heart of this. The Executive are taking too much power without being clear on why an urgent decision is needed. If the Government had come forward with a speeded-up process for urgent decisions, shortening the planning process because something is urgent but still enabling people to have their voices heard, I would be more inclined to support that, but not them just saying that, basically, the Secretary of State can make the decision.

I end with this because it is near—well, nearish—me. Linton-on-Ouse was an abject failure of this process. A decision was made to use that accommodation. Nobody was asked, nobody was told. Lots of people said, “Oh, right, we’re not having this then”, as they do in Yorkshire and no doubt do elsewhere. They decided to have a public meeting and put an end to it, and that is exactly what happened, whereas with thoughtful, informed decision-making, the Government may have been able to get to a solution. The Minister’s proposal that this is the only way to get a timely, proportionate, faster and more effective route has not been borne out in practice.

I get upset when the phrase “illegal migrants” is used. The people coming across the channel are asylum seekers. If some of them have their asylum applications refused, they will at that point be illegal migrants, but otherwise they are asylum seekers.

I beg leave to withdraw the amendment.

Amendment 257B withdrawn.

Clause 101 agreed.

Amendment 258

Moved by

[Lord Berkeley]

258: After Clause 101, insert the following new Clause—
“Application of TCPA 1990 to the Duchy of Cornwall(1) Section 293 of TCPA 1990 (application of Act to Crown land: preliminary definitions) is amended as follows.(2) In subsection (1), in the definition of “Duchy interest” omit “or belonging to the Duchy of Cornwall”.(3) In subsection (2), omit paragraph (d).(4) In subsection (3B), omit paragraph (b).”Member's explanatory statement
This amendment is intended to provided that for the purposes of planning law the Duchy of Cornwall is treated as any private sector entity.

[Lord Berkeley (Lab)]

I rise to speak to Amendments 258 and 504GJI in my name. Both refer to issues to do with the Duchy of Cornwall. As the Minister will probably know, I live on the island of Bryher in Scilly, and I have been challenging the Duchy of Cornwall on many things for a number of years, including one or two Private Member’s Bills, which only got so far.

Things move on. We have a new Duke of Cornwall, and I welcome him, but if one looks at the website of the Duchy of Cornwall and at much of its publicity, it emphasises that it is in the private sector. My argument is that if you are in the private sector, you have to behave as any other company, estate or whatever that exists in the private sector. Sometimes that is maybe good for the tenants, sometimes it may not be. I will not get into all the other issues that may be affected by changes in the personnel there, but there are two issues that I want to cover tonight.

The first is in Amendment 258 on the application of the Town and Country Planning Act to the Duchy of Cornwall. In other words, why should the Duchy get special treatment for planning applications and everything when other similar organisations do not? That comes back to the question that we had just had now, which is who is the Crown? It is a difficult one. I do not think that the Minister answered my question on this in the previous group. I am sure that he will have a go at doing it again. There are the Crown Estates, which are doing very well in the offshore field, as well as everywhere else, bringing in lots of revenue, and the Duchy of Lancaster and the Duchy of Cornwall. All of them, apart from the Duchy of Cornwall, are effectively arms, shall we say, in the relationship between the Crown and the Government and in the financial arrangements and control that the Treasury has.

However, the Duchy of Cornwall is slightly different, so in addition to my suggestion that it should not have any special treatment when it comes to planning applications—which affect a lot of people on the Isles of Scilly, in Cornwall and probably in other places as well—there is leasehold reform, which we have been debating for about five years. I have a lot of friends who are leaseholders who want to buy their freehold from the Duchy. It affects many people on the islands and probably on the mainland as well. We have had some very interesting and useful documentation on this. The last major one was the Law Commission’s report on leasehold enfranchisement, which I thought was excellent. I sent in lots of evidence and a lot of other people did. It came up with a very good report in July 2021 recommending the right to buy for many people. I am not going to read out all its recommendations, but they were wide ranging and, I think, generally welcomed by leaseholders.

However, the Duchy argued that it should be exempt from any right to buy on the Isles of Scilly and the off-islands and on certain buildings on the mainland and elsewhere. Its reason was that the areas where these buildings were located were of such enormous importance to the environment and the quality of the life there that it should not be left to the local planning authority to decide whether a lease should be able to be converted into a freehold.

19:00

It is all set out in the Law Commission’s report in paragraph 7.166. Noble Lords will be pleased to know I am not going to read it out, but it is well worth a read for the definition of what it calls “excepted areas”. I think it is true to say that the Law Commission’s report doubted the evidence from the Duchy that it really needed exemption for these excepted areas.

People compared the definition of an excepted area to something like Carlton House Terrace in London. Nobody would want somebody to buy that building. It is a national heritage building and should remain that, in my view, whoever owns it. However, what if you live in a three-bedroom house in a very large castle area in St Mary’s with a wall round it—with even no evidence that the Duchy should own the Isles of Scilly at all—and it is nowhere near the castle itself? It seems wrong that these people are not able to buy their freehold, as they have been asking to for about 20 years. Will Ministers, with a bit of urgency, set up to produce a report on when all the missing parts of the Law Commission report which have not been dealt with will be dealt with? In particular, will they also encourage the Duchy, with the Government’s help, to reach agreement as to whether it really is necessary for those in such small and fairly insignificant properties like those which we all live in there, to not be able to buy their freehold? It would be good to hear the Minister’s answer on that.

Some 2,500 residents live on the Isles of Scilly, and I have one other issue to raise relating to transport. We have been lobbying for better transport to the Isles of Scilly for years. There is a 33 year-old ship that trundles across in the summer at a single fare of £89—pedestrians only, and no cars. They do not want cars there, but I am just saying that it is expensive. Getting there is pretty difficult.

I was really pleased that the Government encouraged the Council of the Isles of Scilly to apply for a capital grant from the levelling-up fund to fund new, modern, efficient ships. They would operate all year round with good quality and charges, managed by the Council of the Isles of Scilly with the Department for Transport’s help, to provide a much better service to the mainland. This was going very well; it has not gone that fast, because the local MP and the steamship company, which is the monopoly supplier of services, thought that they would rather get the £45 million grant from the Government and not have to go out to tender. In other words, they wanted what I call a “bun” so they could continue to operate this pretty awful service without any competing services.

On Tuesday, the steamship company announced that it could finance a new ship without any government help—funny, that. It has been asking for the last 10 years for government help and suddenly it has found the money—if you believe it. I want to encourage Ministers, particularly the Levelling Up Minister, who is here, to keep going with the council and the Department for Transport and come to a conclusion which will enable the fares to come down and for a proper service in summer and winter. As is required for all major procurement issues with local authorities, they should put it out to tender. There are at least four shipping lines around the country and Europe that will want to tender. I hope they will also tell the monopoly supplier that he is not going to get his £45 million without that. That is the purpose of my two amendments. I beg to move.

[Baroness Taylor of Stevenage (Lab)]

My Lords, I thank my noble friend Lord Berkeley for once again using his very detailed, particular knowledge and expertise of issues around the Isles of Scilly and Cornwall. As ever, we are grateful to him for speaking up for those communities. The question he asks is an important one: why should anybody be exempt from proposals in this Bill, never mind the Duchy of Cornwall?

I will start with Amendment 504GJI on leasehold. We have had long and protracted discussions around leasehold in the course of discussions on this Bill previously. My noble friend Lord Berkeley referred to the Law Commission report on leasehold and the recommendations that people should be able to buy out freehold. I cannot see any reason that Law Commission report has not been acted on, and I hope the Minister will be able to enlighten us about that.

Certainly, it does not seem to us that there should be exemptions that sit outside of that for any reason. If the Law Commission has looked closely at the rationale for the exemptions that were put forward by the Duchy and not found those to be reasonable, it seems that the Government should treat the Duchy of Cornwall in the same way as they treat everybody else. As we have heard the Secretary of State say number of times now, if the Government intend to end the feudal leasehold system, will the Duchy of Cornwall be exempt from that, too, or will the Duchy of Cornwall’s properties be included in that legislation? If the Minister cannot provide the answer today, I am happy to take an answer in writing to that question.

My noble friend Lord Berkeley was kind enough to provide information about the issue related to the Isles of Scilly steamship company to us in advance of today’s session, and the point that he makes is a very valid one. For the communities on the Isles of Scilly, this really is an issue of levelling up. He has given us information on the very steep fare increases on that steamship company, and I understand the fare is now some £89. People on the Isles of Scilly will need to use that service. Their choice is either to travel by air, which we do not want to encourage, or to use this steamship company. A strange situation has developed here; it is a situation that I wish I had had in my borough, where when you find you have to go into competition to deliver something if you use government funding, you suddenly find, after 10 years of asking for government money, that the money has appeared miraculously. That does seem a very strange situation. There needs to be close attention to the way these issues are treated. They are issues of levelling up, because communities on the Isles of Scilly want to know they are being treated in the same way as other communities in the United Kingdom. I support my noble friend Lord Berkeley’s amendment.

[Earl Howe (Con)]

My Lords, I will start by addressing Amendment 258 and then move on to Amendment 504GJI, tabled by the noble Lord, Lord Berkeley. Amendment 258 would remove land in the Duchy of Cornwall from the definition of “Crown land”, as part of planning law. The noble Lord asked what the definition of “Crown land” was, and I apologise for not answering him in the previous debate. It is set out in Section 293 of the Town and Country Planning Act 1990, as my noble friend Lord Lansley rightly indicated in the last debate. It is, broadly, land in which there is a Crown or a Duchy interest—I shall expand on that in a second. I appreciate that the noble Lord tabled a number of Private Member’s Bills concerning the treatment of the Crown and the Duchy of Cornwall, and I admire his tenacity in this regard.

For the benefit of the Committee, I will set out some factual and historical background. For a long time, the Crown was not subject to planning control, but, in 2006, provisions within the Planning and Compulsory Purchase Act 2004 made it subject to planning permission, subject to special modifications. These recognise not only the unique nature of operational Crown land—prisons and military bases, for example—but the uniqueness and importance of the royal estates.

It is important first to understand the complex status of the Duchy of Cornwall. The title “Duke of Cornwall” and the inheritance of the Duchy were created in 1337 by a charter that carries the authority of an Act of Parliament. By virtue of that charter, the Duchy vests in the eldest son of the sovereign, also being heir apparent. Where there is no son and heir, the estate reverts to the Crown. Craies on Legislation notes:

“That is why … the Crown’s prerogative attaches to the lands of the Duchy of Cornwall, for the reason that they never entirely cease to be Crown lands”.


In short, there is always the possibility of the Duchy reverting to the sovereign, as his or her property. For this reason, the Duchy never entirely ceases to be Crown lands. For example, in recent times, King George VI had no son, so, on his accession, there was no Duke of Cornwall and the Duchy remained with King George VI.

Removing the Duchy of Cornwall from the definition of “Crown land” within Section 293 of the Town and Country Planning Act risks disrupting this well-established constitutional arrangement. This could open widespread implications for not just planning but how the Duchy is treated in law more widely. I have enormous respect for the noble Lord, but I am not sure that it is appropriate to open up this debate as part of the Bill. From his previous experience, he will appreciate that it would not be right for a single individual or party to seek to change the law on the way the Duchy of Cornwall is treated. If that is done at all, it has to be done with cross-party support. In addition, a Bill affecting the Duchy requires the King’s consent and sometimes also the Prince’s consent. For the reasons I set out, the Government have no intention to change the definitions of “Crown land” at this time, especially where this concerns changes that could affect His Majesty’s hereditary rights.

Amendment 504GJI addresses the impact that recommendations in the Law Commission’s 2020 report on enfranchisement would have on the Government’s levelling-up and regeneration objectives, including for leaseholders on land owned by the Duchy of Cornwall. The Government are committed to making it easier and cheaper for leaseholders to purchase their freeholds and extend their leases, and we are grateful to the Law Commission for its detailed report on enfranchisement reform. This report addressed a range of matters relating to the qualifying criteria for enfranchisement and lease extensions, including the applicability of these to leaseholders of the Crown, the Duchy of Cornwall and the Duchy of Lancaster. In January 2022, the Government consulted on Law Commission proposals that would improve access to enfranchisement and the right to manage. I am sure that the noble Lord will appreciate that this is a long-term and complex reform programme with many interdependencies, and it will take time to get the detail right. Once it is enacted, the effect will be felt for generations, so we are determined that this work consider all the implications with care.

19:15

We are considering the Law Commission’s recommendations, including those relating to the qualifying criteria for enfranchisement and lease extensions, as well as the applicability of these to the leaseholders of the Duchy of Cornwall, alongside responses to our consultation. The Secretary of State has set out his intention in Parliament to bring the outdated and feudal leasehold system to an end. We are due to bring forward further leasehold reforms later in this Parliament. Details will be published in due course. There will be an impact assessment to accompany any future legislation on leasehold.

Given the extent of government action on leasehold reform set out elsewhere in policy and our intention to legislate in this area, and the detail I have already mentioned on the reasons not to change the definition of Crown land at this time, I hope the noble Lord will feel able to withdraw Amendment 258.

[Lord Berkeley (Lab)]

I am grateful to the Minister for giving us a very interesting history lesson, which I certainly knew about but maybe other noble Lords did not. As he said, this goes back to 1300 or thereabouts, when the Duchy started. Yes, it would cause trouble to make changes; however, there has to be a debate about the Duchy land. Is it in the private ownership of the Duke of Cornwall, or it is in what you might call state ownership, alongside the Crown Estates and the Duchy of Lancaster?

When the Law Commission report came out a couple of years ago, I wrote to the Duchy of Cornwall, the Duchy of Lancaster and the Crown Estates to ask whether they were going to implement the recommendations, in particular for their own land. I got really good answers from the Crown Estates and the Duchy of Lancaster. They said they would follow the recommendations, but in a slightly different way. The Duchy of Cornwall could not make up its mind. It is seen to be trying to be different, and I do not quite know why, because I love it dearly. It is something that probably ought to be looked at, but I will not go any further on that this evening.

There is a democratic deficit, and if the Minister is saying we are going to go ahead and try to complete the process, which I certainly welcome, how is the democratic input from the Duchy of Cornwall’s residents and others, such as stakeholders, going to be put in?

We have had a very interesting debate and I thank the Minister for his helpful answers, and on that basis, I beg leave to withdraw the amendment.

Amendment 258 withdrawn.

Amendment 258ZA not moved.

Amendment 258A

Moved by

[Baroness Scott of Bybrook]

258A: Before Schedule 9, insert the following new Schedule—
“ScheduleStreet votes: minor and consequential amendmentsTown and Country Planning Act 1990
1 (1) TCPA 1990 is amended as follows.(2) In section 5 (the Broads), in subsection (3), for “61Q” substitute “61QM”.(3) In section 56 (time when development begun), in subsection (3)—(a) after “(7),” insert “61QI(8),”;(b) for “108(3E)(c)(i)” substitute “, 108(3E)(c)(i), 108(3DB)(c)(i)”.(4) In section 57 (planning permission required for development), in subsection (3), for “or a neighbourhood development order” substitute “, a neighbourhood development order or a street vote development order”.(5) In section 58 (granting of planning permission: general), in subsection (1)(a), for “or a neighbourhood development order” substitute “, a neighbourhood development order or a street vote development order”.(6) In section 62 (applications for planning permission or permission in principle), in subsection (2A)—(a) at the end of paragraph (a) omit “and”;(b) after paragraph (b) insert “, and(c) applications for consent, agreement or approval where that consent, agreement or approval is required by a condition or limitation imposed under section 61QI(1).”(7) In section 65 (notice of applications for planning permission or permission in principle), in subsection (3A)—(a) at the end of paragraph (a) omit “and”;(b) after paragraph (b) insert “, and(c) any application for consent, agreement or approval where that consent, agreement or approval is required by a condition or limitation imposed under section 61QI(1) or any applicant for such consent, agreement or approval.”(8) In section 69 (register of applications etc)—(a) after subsection (1)(cza) insert—“(czb) street vote development orders or proposals for such orders;”;(b) in subsection (2)(b), after “Mayoral development order,” insert “street vote development order or proposal for such an order,”.(9) In section 71 (consultations in connection with determinations under section 70), in subsection (2ZA)—(a) at the end of paragraph (a) omit “and”;(b) after paragraph (b) insert “, and (c) an application for consent, agreement or approval where that consent, agreement or approval is required by a condition or limitation imposed under section 61QI(1).”(10) In section 74 (directions etc as to method of dealing with applications), in subsection (1ZA)—(a) in paragraph (a)—(i) at the end of sub-paragraph (i) omit “and”;(ii) after sub-paragraph (ii) insert—“(iii) a consent, agreement or approval where that consent, agreement or approval is required by a condition or limitation imposed under section 61QI(1), and”;(b) in paragraph (b)—(i) at the end of sub-paragraph (i) omit “and”;(ii) after sub-paragraph (ii) insert “, and“(iii) applications for consent, agreement or approval where that consent, agreement or approval is required by a condition or limitation imposed under section 61QI(1).”.(11) In section 77 (reference of applications to Secretary of State), in subsection (1), for “or a neighbourhood development order” substitute “, a neighbourhood development order or a street vote development order”.(12) In section 78 (right to appeal), in subsection (1)(c), for “or a neighbourhood development order” substitute “, a neighbourhood development order or a street vote development order”.(13) In section 88 (planning permission for development in enterprise zones), in subsection (9), for “or a neighbourhood development order” substitute “, a neighbourhood development order or a street vote development order”.(14) In section 91 (general condition limiting duration of planning permission), in subsection (4)(a), for “or a neighbourhood development order” substitute “, a neighbourhood development order or a street vote development order”.(15) In section 94 (termination of planning permission by reference to time limit: completion notices), in subsection (1), after paragraph (d) insert “; or(e) a planning permission under a street vote development order is subject to a condition that the development to which the permission relates must be begun before the expiration of a particular period, that development has been begun within that period, but that period has elapsed without the development having been completed.”(16) In section 108 (compensation)—(a) in the heading, for “or neighbourhood development order” substitute “, neighbourhood development order or street vote development order”;(b) in subsection (1)—(i) in paragraph (a), for “or a neighbourhood development order” substitute “, a neighbourhood development order or a street vote development order”;(ii) in the words after paragraph (b), for “or the neighbourhood development order” substitute “, the neighbourhood development order or the street vote development order”;(c) in subsection (2), for “or a neighbourhood development order” substitute “ , a neighbourhood development order or a street vote development order”;(d) in subsection (3B)—(i) in paragraph (ba), at the end omit “or”; (ii) after that paragraph insert—“(bb) in the case of planning permission granted by a street vote development order, the condition in subsection (3DB) is met, or”;(e) after subsection (3DA) insert—“(3DB) The condition referred to in subsection (3B)(bb) is that—(a) the planning permission is withdrawn by the revocation or modification of the street vote development order,(b) notice of the revocation or modification was published in the prescribed manner not less than 12 months or more than the prescribed period before the revocation or modification took effect, and(c) either—(i) the development authorised by the street vote development order had not begun before the notice was published, or(ii) section 61QI(8) applies in relation to the development.”(17) In section 109 (apportionment of compensation for depreciation), in subsection (6), in the definition of “relevant planning decision”, for “or the neighbourhood development order” substitute “, the neighbourhood development order or the street vote development order”.(18) In section 171H (temporary stop notice: compensation), in subsection (1)(a), for “or a neighbourhood development order” substitute “, a neighbourhood development order or a street vote development order”.(19) In section 264 (cases in which land is to be treated as not being operational land), in subsection (5)(ca), for “or a neighbourhood development order” substitute “, a neighbourhood development order or a street vote development order”.(20) In section 324 (rights of entry), in subsection (1A)—(a) the words from “the reference” to the end become paragraph (a);(b) after that paragraph insert “, and(b) the reference to a proposal by the Secretary of State to make any order under Part 3 includes a reference to a proposal submitted (or to be submitted) to the Secretary of State for the making of a street vote development order.”(21) In section 333 (regulations and orders)—(a) after subsection (3) insert—“(3ZZA) Subsection (3) does not apply to a statutory instrument containing regulations made under any of sections 61QB to 61QJ or section 61QL if a draft of the instrument has been laid before, and approved by a resolution of, each House of Parliament.”;(b) after subsection (3ZA) insert—“(3ZZAA) No regulations may be made under section 61QC(3), 61QH(2) or 61QI(5) unless a draft of the instrument containing the regulations has been laid before, and approved by a resolution of, each House of Parliament.”(22) In Schedule 1 (local planning authorities: distribution of functions), in paragraph 6A, at the end insert “or any of sections 61QA to 61QM (street vote development orders)”.Planning (Listed Buildings and Conservation Areas) Act 1990
2 (1) The Planning (Listed Buildings and Conservation Areas) Act 1990 is amended as follows. (2) In section 66 (general duty as respects listed buildings in exercise of planning functions), in subsection (4), after “orders” insert “or street vote development orders (except as provided by SVDO regulations within the meaning given by section 61QM of the principal Act)”.(3) In section 72 (general duty as respects conservation areas in exercise of planning functions), in subsection (4), after “orders” insert “or street vote development orders (except as provided by SVDO regulations within the meaning given by section 61QM of the principal Act)”.Elections Act 2022
3 In section 34 of the Elections Act 2022 (campaigners), in subsection (6), in the definition of “local referendum”, after paragraph (d) insert—“(e) section 61QE of the Town and Country Planning Act 1990 (referendums on street vote development orders);”.The Conservation of Habitats and Species Regulations 2017
4 (1) The Conservation of Habitats and Species Regulations 2017 (S.I. 2017/1012) are amended as follows.(2) In regulation 75 (general development orders)—(a) in the heading, after “orders” insert “and street vote development orders”;(b) in the opening words, after “2017” insert “or a street vote development order”.(3) In regulation 76 (opinion of appropriate nature conservation body)—(a) in the heading, after “orders” insert “and street vote development orders”;(b) in paragraph (1), after “order” insert “or a street vote development order”;(c) in paragraph (6), after “order” insert “or a street vote development order”.(4) In regulation 77 (approval of local planning authority), in the heading, after “orders” insert “and street vote development orders”.(5) In regulation 78 (supplementary)—(a) in the heading, after “orders” insert “and street vote development orders”;(b) in paragraph (3)(b), after “order” insert “or development order”.(6) In regulation 85B (assumptions to be made about nutrient pollution standards)—(a) in the heading, after “orders” insert “and street vote development orders”;(b) in paragraph (1)(a) after “orders” insert “and street vote development orders”.”Member's explanatory statement
This amendment inserts a new Schedule which makes minor and consequential amendments in connection with clause 99 (street votes).

Amendment 258A agreed.

Schedule 9 agreed.

Clause 102: Minor variations in planning permission

Amendment 258B

Moved by

[Lord Lansley]

258B: Clause 102, page 130, line 28, at end insert—
“(5A) Where a subsequent planning permission (Permission B) is for localised changes to a wider development approved in the existing permission (Permission A), which would not have the effect of rendering the implementation of the Permission A physically impossible, the implementation of permission B does not preclude future reliance upon Permission A (in relation to existing or future development) outside of the area to which permission B relates.”Member's explanatory statement
This amendment would support the continuation of “drop-in” permissions in large-scale developments, while maintaining the “Pilkington” principle, that they must not render the original permission physically impossible.

[Lord Lansley (Con)]

My Lords, I remind noble Lords of my registered interest as chair of the Cambridgeshire Development Forum. This group relates to planning permissions. There are a number of different amendments for different purposes and perhaps noble Lords will forgive me if I speak only to my Amendment 258B, which has a particular purpose. It seeks to provide a clear, statutory provision in relation to an area of planning law that has recently become uncertain and which if not clarified would create a number of costly and difficult consequences both for developers and planning authorities.

I will explain the background. The issue relates to large developments which are built out over a significant period; they are developments which have had a full planning permission. Of course, if development proceeds in phases with outline permission, or with a hybrid mix of outline and full permissions for different phases, the scope for varying a large development can be adjusted over time—but I am talking here about developments with full planning permission. In relation to those, it is clear that variations to that full planning permission are limited. Section 96A of the Town and Country Planning Act 1990 permits variations to a planning permission that are not material. Clause 102 of the Bill seeks to insert into that Act a new subsection (5) stating that planning permission may be granted in relation to an existing permission

“only if the local planning authority is satisfied that its effect will not be substantially different from that of the existing permission”.

That is not quite the same as the existing law; it is a step forward, but a very modest step in that direction. However, the issue is where a developer seeks permission within the boundary of an existing large-scale development for a significant variation to the plan. What happens where two permissions exist together in relation to the same site?

This matter arises in relation to what is known as the Hillside judgment—Hillside Parks Ltd v Snowdonia National Park Authority—to which I will return soon. The Supreme Court judgment was given in November last year, so it is quite recent. In paragraph 28, it said:

“There is … no provision of the legislation which regulates the situation where two or more planning permissions granted for development on the same site are, or are claimed to be … inconsistent. The courts have therefore had to work out the principles to be applied”.


The key case in this respect, up until now, has been Pilkington v Secretary of State for the Environment. I will not dwell on the two bungalows and the smallholding which were the subject of that case. Lord Widgery, in his judgment, stated that the test would consider

“whether it is possible to carry out the development proposed in that second permission, having regard to that which was done or authorised to be done under the permission which has been implemented”.

In a sense, what Pilkington established was the idea that permission could not continue to be valid where it had become physically impossible to implement it by virtue of a subsequent planning permission that has been consented. However, that has tended, over time, to imply that, where it is not physically impossible to fulfil an existing planning permission, it would remain valid, notwithstanding that there is an additional permission in relation to part of the site. So the general expectation has been that, where permissions relate to the same site, the issue is whether the implementation of one renders the other physically incapable of implementation. If it does, the approval of the latter would render the former invalid; if it did not, the former permission would not be invalidated.

I turn now to the Supreme Court judgment of the Hillside case in November last year. An issue for the appellants—Hillside Parks Ltd—was that the Court of Appeal had held that the original planning permission for the whole site could not be interpreted as separable. Paragraph 71 of the judgment of the Supreme Court justices said:

“We agree with the view expressed by the Court of Appeal in this case that where, as here, a planning permission is granted for the development of a site, such as a housing estate, comprising multiple units, it is unlikely to be the correct interpretation of the permission that it is severable”.


Consequently, if a permission were implemented in relation to a part of a larger site, even if the rest of the original permission could be completed, the fact that the whole original permission could not be completed would render the original permission no longer valid.

The problems that arise from this were summarised in submissions to the Supreme Court by counsel for the appellants who submitted that it would cause serious practical inconvenience if a developer who, when carrying out a large development, encountered a local difficulty or wished for other reasons to depart from the approved scheme in one particular area of the site, cannot obtain permission to do so without losing the benefit of the original permission and having to apply for a fresh planning permission for the remaining development on other parts of the site. The Supreme Court justices took the view that that was indeed the legal position: that where a developer had been granted a full planning permission for one entire scheme and wished to depart from it in a material way, it is a consequence of the very limited powers that a local planning authority has to make changes that a full new permission would be required.

I am very grateful to the Home Builders Federation, which supplied a full briefing after I tabled the amendment. It supplemented my knowledge quite a bit. I hope noble Lords have received its briefing, which included several case studies to show how these consequences of the Hillside judgment last November could create cost, delay and disruption to development in large sites. I am not proposing to go through the case studies. I hope noble Lords will understand that at this late hour that would not be terribly helpful. It implies, however, with a series of examples, that the cost of a new, full application with all the attendant documentation, such as environmental impact assessments for a whole site, would be a very costly and time-consuming consequence.

Local planning authorities will not easily resource new large-scale applications for sites which they had regarded as already consented. It could mean that opportunities for desired changes, such as, in one example, to give a small builder access to part of a larger development, would not be offered if they would put the whole scheme at risk. I do not think we can even get into how difficult the community infrastructure levy or, in future, the infrastructure levy, would be to calculate in relation to such further planning permissions relating to the whole existing site. The uncertainty of whether the permission for a large site might be rendered invalid would be a serious risk to the effective delivery of major sites. Only immaterial changes on a large site would be regarded as safe: everything else would put it all at risk.

My objective in Amendment 258A is to give a straightforward statutory provision which would re-establish the position as it had been understood, i.e. that only if a subsequent permission renders the completion of an original permission physically impossible would the earlier permission be invalidated and—perhaps even more important by contrast—if it does not render the original permission physically impossible on the rest of the site, the earlier permission may continue to be relied upon in relation to the rest of that site, i.e. excluding the area to which the subsequent permission has been applied.

I am very grateful for the vocal support I have received for this amendment from the Home Builders Federation. I hope that the Minister may be able to support the intention of this amendment to the extent that she might even look to Parliamentary Counsel’s expertise to see whether my amendment serves the purpose or whether something supplementary might be moved on Report to achieve this—I hope—helpful objective. I beg to move.

[Baroness Bakewell of Hardington Mandeville (LD)]

My Lords, I rise to speak to Amendment 268 in the name of the noble Lord, Lord Carrington, to which I have added my name. I have to say at the outset that I have no idea whether the noble Lord, Lord Carrington, would agree with my comments, but I hope that he would.

Your Lordships have listened to, and taken part in, many debates over the years on the challenges faced by rural communities. The noble Lord, Lord Cameron of Dillington, and my noble friend Lord Foster of Bath have chaired committees looking in depth at these challenges. The noble Lord, Lord Cameron, called for a national rural strategy, and I support this. Similarly, my noble friend Lord Foster pressed the case for there to be proper recognition of the challenges rural communities face and for the Government to have a discreet policy which recognises this. There is an industrial strategy, so why not a rural strategy?

The Government’s response was that all the issues faced by rural communities were covered under many other policy areas, so there was no need for a rural strategy. Assurances were given that all government policies would be rural-proofed. This, therefore, was a refusal to have a rural strategy—and there is very little evidence that all government policies are rural-proofed.

19:30

The economic viability of rural areas is very fragile. Small business parks tend to be in large towns. Of course, there are excellent examples of business parks in very rural areas—the Eaglewood business park in Ilminster, Somerset, is one such and I am sure there are many others around the country—but it is a struggle. Economic development is vital to providing both facilities and jobs for those living in rural areas.

Young people, having finished their statutory education, may go away to university; or they may stay and, if lucky, learn a trade at the local FE college. They will look around for a job and find that the market is very limited. There may be a manufacturer in the large neighbouring town that is offering apprenticeships, but these will not be numerous. Their options for a job, let alone a progressive career, are limited. It is no wonder that, once they are able, many young people opt to leave their home towns and villages and go to the cities to seek security for their futures.

“Economic development” has somehow become a dirty phrase and not what would take place in rural areas. It is difficult enough to get sufficient housing in rural areas, but business parks and small manufacturing units face a very big struggle. Those opposing housing developments often cite the lack of jobs for the people who would live in the homes created as their reason for objecting to the developments. It has all become too difficult for some, while others are champing at the bit.

During Covid, many people were working at home and found that the different lifestyle suited them; they wanted to work in their local areas instead of having to commute to the larger towns and cities where they had previously worked. However, having looked around, they found that, unless they had a job that actually allowed them to work from home, there was little or no employment that allowed them to go out to work in their local area, despite their considerable skill set.

It really is time for Governments of all persuasions to stop ignoring economic development in rural areas. Having this proposed new clause on permission in principle for rural economic development in the Bill would make a tremendous difference in extending the permission in principle planning route to developments relating to economic development. It would validate the desperate need for rural economic development and, hopefully, lead to more rural jobs.

I know that the Minister understands the issues of rural economic development, as she was the very successful leader of Wiltshire County Council for many years. I hope that she is able, on behalf of the Government, to give a positive response to Amendment 268.

[Baroness Hayman of Ullock (Lab)]

My Lords, there are two amendments in this group in the name of my noble friend Lady Taylor of Stevenage: Amendment 259, which probes subsection (7), which is inserted by Clause 102; and Amendment 260, which probes the involvement of the Mayor of London under the new section. We consider Clause 102 to be relatively straightforward, in that it simply makes provisions concerning minor variations to planning permission, allowing for greater flexibility to make non-substantial changes that would not be possible at present without the submission of multiple applications by various different routes.

On that basis, we broadly welcome this change, because it will give effect to something that is long overdue, simplifying arrangements currently in place that were only ever intended as a short-term holding position. However, we have tabled Amendments 259 and 260 because there are a couple of areas of concern that we would like the Government to look at. First, current arrangements ensure that, if a variation to planning permission is sought, whether before or after completion, the circumstances of the day are considered when determining the Section 73 application. That, of course, includes the policies in place at the time and any other material considerations. However, as drafted, Clause 101(7) suggests to us—and the Minister may be able to clarify this—that the circumstances at the time of the original grant of permission would be the framework for determining applications in future. We are concerned that this would mean, for example, that if a new local plan had been adopted since the original permission, that plan—which might, for example, include more challenging environmental standards—could not be applied in deciding whether or not to grant the Section 73 application. It may well be that the Minister can clarify that for us.

Similarly, many Section 73 applications relate to the number of residential units or to floor space. Again, as drafted, we are concerned that the decision-maker would not be able to, for example, revisit the amount of affordable housing provided by the scheme, potentially creating a significant loophole. We think that local planning authorities should be able to consider up-to-date planning policy and/or guidance when determining such applications, to guard against such adverse consequences as I have just been talking about. We therefore propose that subsection (7) be removed from the clause.

Our second issue of concern relates to the powers that are devolved to the Mayor of London on strategic planning applications. As the Minister well knows, the Mayor has powers to become the decision-maker for strategic planning applications, subject to certain provisions. However, we are concerned that the Bill as drafted provides only for the Secretary of State’s call-in powers; we believe that leaves a vacuum in relation to the mayoral powers. We propose Amendment 260 to follow Clause 102(13) to ensure that the powers of the Mayor of London to call in applications in accordance with the terms of the Town and Country Planning (Mayor of London) Order are still taken into account.

I shall say a very few words on the other amendments that have been discussed. First, I thank the noble Baroness, Lady Bakewell, for introducing Amendment 268 in the name of the noble Lord, Lord Carrington. It is a very interesting amendment, and I am glad that she spoke to it. I absolutely agree with her that we should have a rural strategy. I should draw attention in my interest, in that I have recently been working with the Co-operative Party on its rural policy reviews: it is something that is very close to my heart at the moment. The Government should look closely at how they can give a bit of a leg-up to rural economic development. The Minister will know the particular challenges: there needs to be consideration and support and, as this is a levelling-up Bill, it is an opportunity to take that into account for our rural communities.

I thank the noble Lord, Lord Lansley, very much for his very thorough introduction. It was very interesting, because I had read the amendment and thought, “Okay, it could be about this; this is what I am thinking”, but his clarification was extremely helpful. I think that he has drawn attention to a really important anomaly in the way the current legislation works. In many ways, that brings us back to something that we have said over and over again—that it would have been better had we had a very specific planning Bill, then we could have got into the nitty-gritty of the current legislation, looked at how it could have been improved and streamlined, and any anomalies such as the noble Lord has drawn our attention to, and any contradictions, could have been properly resolved. So I say to him that we support him in what he is looking to do with his amendment and it would be a very sensible and practical thing for the Government to bring forth such an amendment on Report.

[Lord Stunell (LD)]

I just want to briefly say that I very strongly support the plea put in by my noble friend in relation to a rural strategy. I am also interested to understand the Minister’s response to the queries that the noble Baroness on the Labour Front Bench has raised about subsection (7); it requires some further explanation. I wait to see what the Government’s amendments look like. With that, I am happy to sit down and let proceedings continue.

[Baroness Scott of Bybrook (Con)]

Amendment 258B tabled by my noble friend Lord Lansley touches on the very specific matter of drop-in applications—not a legal term but one that is used a lot in planning circles. I know he will be well-versed in these matters, and I am grateful to him for exposing me to such technical but none the less important aspects of the planning process at this time of night. I thank my noble friend.

As we have heard, this amendment has been brought forward in response to the judgment handed down last year by the Supreme Court on Hillside Parks Ltd v Snowdonia National Park Authority. My noble friend has given much more detail, but this case considered how far new planning permissions for development that would affect existing planning permissions make these earlier planning permissions unlawful to complete.

I would like to assure my noble friend that my department is already engaging with the development sector to understand the implications of the Hillside judgment for existing and future development practices. As he will know, the matter of drop-in permissions whereby a developer seeks a separate, new permission to overlap part of an existing planning consent has been highlighted as a concern, particularly given their role in supporting the delivery of large-scale developments, which can take several years to build out.

I recognise that the intent of my noble friend’s amendment is to provide legal clarity about the validity of existing planning permissions where a new, overlapping permission is brought forward. However, I must stress that the case law in this area is now quite clear that, unless expressly severable, an existing permission must be interpreted as an integrated whole, and that where a new, overlapping permission comes forward that materially departs from that earlier permission, such that it is impossible to deliver that earlier development, it would be unlawful to carry out further works under that earlier permission. Of course, where the existing permission is clearly severable, or where a new, overlapping permission is not material, it will still be possible for developers to make a drop-in application.

New Section 73B, as introduced by Clause 102, provides for a new, alternative way to make amendments to development proposals and enables minor variations to be made to existing planning permissions. This will allow for changes to be made to existing development proposals, such as to the descriptor plans or conditions, accounting for any amendments already made, providing that the cumulative effect of those amendments does not represent a substantial difference to the original permission. It will be for the local planning authority, in exercising its planning judgment, to decide what constitutes a substantial difference on a case-by-case basis. We anticipate, therefore, that the new Section 73B will provide an alternative route for making changes for many large-scale developments, rather than them having to rely on drop-in applications. We will continue to work closely with the sector to consider whether more guidance about varying permissions would be helpful, and I would be very happy to discuss this further with officials and my noble friend if he would find that useful. With that assurance, I ask my noble friend to withdraw his amendment.

Amendment 259 tabled by the noble Baroness, Lady Taylor of Stevenage, and moved by the noble Baroness, Lady Hayman of Ullock, is intended to probe the purpose of new subsection (7) in Clause 102. This amendment was also tabled in the other place, with the concern that the provisions as drafted would require applications under new Section 73B to be considered in accordance with the framework in place at the time of the original grant of planning permission. New subsection (7) requires that the local planning authority limits its consideration only to the difference in effect that could arise between the original permission and any subsequent grants to vary or remove conditions under Section 73 or the new route, as a result of granting planning permission under the new route.

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For example, where changes are proposed under the new route to the layout of the development granted by an existing permission, only those changes would be considered, looking at their difference in effect from the proposed layout in the original permission as well as any subsequent variations to the layout that have already been granted. This is a complex area of planning changes, so I would be very happy to put this in writing so that noble Lords have it clearly before them.

Section 70(2) applies and requires that the decision must be made in accordance with the local development plan so far as is material to the application and any other material considerations. This means the development plan in place at the time of the decision. Consideration only of the changes in effect between the earlier planning permissions and the proposals put forward under the new route would mean that the principle of development is not revisited. This is in line with the existing procedure under Section 73, where an applicant applies to carrying out existing development without complying with certain planning conditions. I hope this provides reassurance. I will put it in writing and make sure that copies go to all noble Lords in the Committee and to the Library. I hope the noble Baroness, Lady Taylor, will therefore not press her amendment.

Amendment 260, also tabled by the noble Baroness, seeks to clarify that new Section 73B applies to the Mayor of London in his capacity as the local planning authority when determining applications of potential strategic importance. This amendment was also discussed in the other place. I can confirm that these provisions apply to the Mayor of London. An application made under new Section 73B is an application for planning permission and is therefore captured by Section 2A(1)(a) of the Town and Country Planning Act 1990, which enables the mayor to direct that they are the local planning authority for applications of potential strategic importance. Making explicit provision for new Section 73B is not necessary. There are other examples of routes to planning permission not referenced in Section 2A which are still captured, such as retrospective applications made under Section 73A. I will put this in the same letter so that it is in writing. With that, I ask that the noble Baroness does not press this amendment.

Amendment 268 in the name of the noble Lord, Lord Carrington, ably spoken to by the noble Baroness, Lady Bakewell of Hardington Mandeville, seeks to bring economic development within rural areas into the scope of permission in principle in the Town and Country Planning (Permission in Principle) Order 2017. While I have huge respect for the knowledge of the noble Lord, the noble Baroness and others and know how important economic development is in rural areas, I do not think this is the way to do it. However, I will take it back and consider with officials how we can strengthen economic development in those rural areas.

[Lord Foster of Bath (LD)]

I apologise for intervening at this late hour. On that point, since the Minister has promised she is going to write to people and has just said very clearly, on the record, that she shares the importance of economic development in rural areas, and given that I asked at Second Reading for evidence that the levelling up Bill had gone through the rural-proofing process, would she be kind enough to include in that letter details of how that process was carried out in relation to this Bill, because frankly, many of us think there is very little evidence of that?

[Baroness Scott of Bybrook (Con)]

I will certainly reflect on that question and see what we can do.

I thank the noble Lord, Lord Carrington, for his amendments, and I appreciate his concerns on a matter, which is close to his heart and to the heart of the noble Baroness opposite. While I support the intentions to lend further support to our rural economy, unfortunately I cannot accept this amendment, as it will not have the intended effect, and we believe it is unnecessary.

The permission in principle consent route is an alternative way of obtaining planning permission for certain housing-led development. When a proposed development is under consideration, it separates the matter of principle away from technical details. Our national planning policy framework strongly supports policies and decisions to promote sustainable development in rural areas. In particular, it states that to support a prosperous rural economy, local plans, neighbourhood plans and decisions should enable the development and diversification of agriculture and other land-based rural businesses.

Additionally, as set out in Section 58A of the Town and Country Planning Act, any economic development coming forward through permission in principle would have to be predominantly for housing development. Provision already exists to allow local planning authorities to grant permission in principle for economic development related to residential schemes within rural areas. Section 5A of the Town and Country Planning (Permission in Principle) Order 2017 also enables local planning authorities to grant permission in principle to any non-housing development if it is associated with residential development, and where the scale of the development and the use to which it may be put is specified.

I am aware that permission in principle is often used to test the principle of housing development within rural areas, rather than applicants going through the conventional planning application route, and these are assessed with our National Planning Policy in mind. It is a valuable tool in this respect, and I hope this provides reassurances to the noble Lord and the noble Baroness, and accordingly that she will withdraw his amendment on his behalf.

I turn now to Amendment 282, tabled by the noble Baroness, Lady Taylor of Stevenage, and put forward by the noble Baroness, Lady Hayman of Ullock, on the speeding up of the planning system. There are around 400,000 planning applications every year. The Government have heard many representations that the planning application process is too slow and inaccessible for some users—notably those without the expertise, such as everyday people. It therefore requires improvement and modernisation. The powers being brought forward in Clause 116 enable the Government to apply a more consistent, streamlined and digitally enabled approach to the way in which the applications are made, making it easier for everyday people to submit a planning application. This will also make planning data more accessible. My department is already working with local authorities to tackle the very issue that this amendment raises, working collaboratively with the local authorities through the Open Digital Planning project, which aims to increase efficiencies in the development management process through creating modern development management software. Local authorities using the software that we are trialling have seen an estimated 35% time saving in the pre-validation process, when an application is first submitted, and post-validation, when the process is to reach a decision.

Before enacting these powers, we will fully engage with the local planning authorities and the sector as a whole; given that one of the core aims of this power is to streamline the process, we will of course consider the impact on speed of decision-making. While I support the intention of this amendment, the Government are unable to support its inclusion and hope that the noble Baroness will not press it.

Lastly, government Amendments 260A and 260B provide for consequential amendments to Clause 102 to make consistent the legislation with respect to an application being made directly to the Secretary of State, in relation to new Section 73B and Section 73 of the Town and Country Planning Act 1990.

[Lord Lansley (Con)]

I am grateful to my noble friend, particularly for the opportunity to have further discussions with a view to coming back to this issue positively at Report. Drop-in permissions have played a significant part in enabling development to go ahead as people need it to do. The case law may now be clear, but it has become clear in the form in which it has developed only because there is no statutory basis for undertaking drop-in permissions in the way that they have been done for a number of years—and that is what we need to achieve. With her very kind response, I beg leave to withdraw Amendment 258B.

Amendment 258B withdrawn.

Amendments 259 and 260 not moved.

Amendments 260A and 260B

Moved by

[Baroness Scott of Bybrook]

260A: Clause 102, page 132, line 7, leave out from “section” to “after” on line 8 and insert “62A (applications that may be made directly to the Secretary of State)—
(a) in subsection (2),”Member's explanatory statement
This amendment paves the way for the second amendment in the Minister’s name to Clause 102.

260B: Clause 102, page 132, line 9, at end insert—
“(b) in subsection (3)(d), after “73(1)” insert “nor an application that is to be determined in accordance with section 73B”.”Member's explanatory statement
This amendment adds a consequential amendment to Clause 102.

Amendments 260A and 260B agreed.

Clause 102, as amended, agreed.

Clause 103 agreed.

Clause 104: Completion notices

Amendment 261

Moved by

[Baroness Taylor of Stevenage]

261: Clause 104, page 135, line 13, at end insert—
“(3A) But notwithstanding subsection (3) the completion notice deadline may be less than 12 months after the completion notice was served if the local planning authority are of the opinion that—(a) development has not taken place on the site for a prolonged period, (b) there is no reasonable prospect of development being completed within a reasonable period, and(c) it is in the public interest to issue an urgent completion notice.(3B) A completion notice may include requirements concerning the removal of any buildings or works authorised by the permission, or the discontinuance of any use of land so authorised, at the end of the completion period, and the carrying out of any works required for the reinstatement of land at the end of that period.”Member's explanatory statement
This amendment would enable the issuance of completion notices withdrawing planning permission with a deadline of less than 12 months when certain conditions are met, and enable completion notices to require that building works be removed from a site or a site be reinstated to its previous condition.

[Baroness Taylor of Stevenage (Lab)]

My Lords, I rise to move my Amendment 261 and I am very pleased that government Amendment 261A is complementary to my amendment, or at least I hope that is the intention.

Across the country, communities and councils have found themselves in the incredibly frustrating situation where permissions are sought but sites stay empty, and development does not progress; the LGA estimates that sites with planning permission for over a million homes have not been developed. As well as unbuilt housing we also see employment sites not progressed, communities and local businesses left in limbo and local areas facing an uncertain future and unable to make further plans.

In its comments on proposed reforms to the planning system, the LGA said:

“It is disappointing that no tangible powers were brought forward in the Bill to enable councils to encourage developers to build-out. We would urge the Government as a matter of urgency to empower councils to take decisive action on this issue.”


Too often it is local government that gets the blame for not approving plans quickly enough, but the LGA points out that since 2010-11 over 2.8 million homes have been granted permission but only 1.6 million have been built. In fact, nine out of 10 planning applications have been approved by councils and most adhere to the strict time guidelines for approvals.

The LGA has called for the Government to charge developers full council tax for every unbuilt development when the original planning permission expires, and for it to be easier for councils to use compulsory purchase powers to acquire stalled housing sites or where developers do not build to a timescale agreed with the local authority.

Since the pandemic, this situation has deteriorated because of labour shortages and the inflationary rise in the cost of materials so, as well as developers who are simply holding on to land to cash in on land values, there are also many genuine cases where the viability of schemes has been eroded. The LGA’s housing spokesperson has said that,

“by giving councils the right powers to incentivise developers to get building once planning permission has been granted, we can go further and faster ... to deliver the reform needed to enable councils to tackle the housing crisis”.

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Our amendment, which I hope is self-explanatory, would give councils the power to issue completion notices withdrawing planning permission with a deadline of less than 12 months and/or would enable completion notices to require that building works are removed from a site or a site be restored to its previous condition. We hope that even knowing that councils have this power will encourage faster build-out and ensure that our local authorities have a power to act where that does not happen.

We also support the very sensible Amendment 269, submitted by the noble Lord, Lord Best. Although local authorities have the power to specify numbers of affordable homes within large developments, they are not able to specify that these will be social homes. We absolutely support the provision of social homes in developments of mixed tenure; the best councils and developers are now building developments which in relation to quality of build and design are tenure blind, but this is far from universal. The introduction of a diversification strategy approach would ensure that the planning authority is able to consider whether the approach to affordable housing has taken adequate account of social housing. I beg to move.

[Baroness Bloomfield of Hinton Waldrist (Con)]

My Lords, I beg to move that the debate on this amendment be adjourned.

Debate on Amendment 261 adjourned.

House resumed.

House adjourned at 8.02 pm.