Planning and Development: Bedfordshire

Wednesday 23rd April 2025 Westminster Hall

11:00

[Blake Stephenson (Mid Bedfordshire) (Con) [R]]

I beg to move,

That this House has considered planning and development in Bedfordshire.

It is a pleasure to serve under your chairmanship, Sir Desmond. Mid Bedfordshire—indeed, all of Bedfordshire —has played its part in delivering new housing. My constituency was once home to the world’s largest brickworks at Stewartby. Our communities bear testament to our brickmaking history, with former clay pits now finding new life as lakes and homes for nature in the Marston Vale forest, and with former industrial sites, including the brickworks at Stewartby and Kempston Hardwick, set to be repurposed as places to deliver the homes and jobs of the future.

In the past month we have also had confirmation of the Luton airport expansion, the announcement of the new Universal UK theme park at Kempston Hardwick in my constituency, and the publication of the Planning and Infrastructure Bill. That comes on top of the recent announcement of East West Rail, work being done to develop local plans in all three of our council areas— I refer Members to my entry in the Register of Members’ Financial Interests as a Central Bedfordshire councillor—and the work of the Government’s new towns taskforce.

In this debate, I hope to highlight the ways in which the planning system can help shape the future of our communities in Bedfordshire, and some of the things that my constituents need assurance on from Government. I want to be clear at the start: I am not a nimby or a blocker, but if the Government are serious about building houses and critical infrastructure, we need to ensure that we do so in a way that is future-proof and resilient.

We need to turn blockers into builders, rather than create a new generation of blockers. In my experience, most of the people whom this Government have labelled as blockers are not ideological obsessives standing in front of the bulldozers of progress; they are people fed up with bad development. They are fed up of developers throwing up housing estates but not building communities, of soulless developments that could be found anywhere, and, most importantly, of developments that worsen quality of life.

[Jim Shannon (Strangford) (DUP)]

I commend the hon. Member for securing this debate. He has outlined some of the things being done in his constituency, such as using old industrial buildings for apartments. To add to his knowledge, in Northern Ireland we have been repurposing empty buildings in town centres, such as homes above shops—I said that to the Minister in a question just recently. Does the hon. Member agree that is something else that could be used to restore and build up our town centres while ensuring that we are not encroaching upon rural land, as so often happens across the whole United Kingdom?

[Blake Stephenson]

I absolutely agree. There is a lot of support for brownfield-first development, but also for gently densifying our towns and cities so that we have houses where people want to live within the existing infrastructure.

The Government have been elected with a clear mandate to build, build, build, and I accept that. But I hope that they will do the hard yards to plan, plan, plan, and ensure that the 1.5 million houses that they build are the right houses in the right places, as part of the right communities and with the right infrastructure. It is in that spirit that I bring forward this debate, because Bedfordshire is not a place that is standing still.

I congratulate the Government on completing the negotiations, begun by the previous Government, to secure the new Universal UK theme park at Kempston Hardwick. That will be a game changer for our local economy, and I will continue to support the Government, Universal and our councils as it progresses through the planning system, but to maximise its potential, it will be important to get the infrastructure right. That means we need to plan for the planes, trains, automobiles and accommodation. Through the planning system, we need to see work done to deliver the right accommodation that will be available in Bedfordshire for people to come and stay, hopefully to enjoy Universal and then stay a while in our towns and villages, spending their time and money enjoying everything that Bedfordshire has to offer.

As I noted earlier, I understand that Government have a mandate to “just get on and build”. I have some sympathy for their frustration with Members of Parliament like me who they see as trying to put the brakes on that ambition, but I hope the Minister will recognise that that is not my intention. I believe as fervently as he does that we need to deliver new homes for young people growing up right across Britain, but I believe we must do so in a way that is sensitive to our countryside and our communities, and that delivers the right homes in the right places with the right infrastructure.

The current planning system is not working for anyone. Too often, it blocks good development and allows bad development—development that erodes local character, that builds houses but divides communities, and that comes without the right infrastructure, leaving new residents and old alike frustrated and unwilling to accept the further houses the Government want to deliver in their communities. As this Government’s planning reforms progress, I hope they will take time to consider how the planning system can more effectively protect the character of our towns and villages, and how it can seek to disarm those blockers that the Government are concerned about by addressing the things they are concerned about, not by tying their arms behind their backs. That is a harder job, I accept, but is anything that is worth doing in politics easy?

In Bedfordshire, I would like to see the Government give us the tools through the planning system to protect everything that makes our communities such special places to live—protections for our historic character and our villages, protections for our beautiful and unique countryside against unending and unplanned urban sprawl, and protections for the great British pub; indeed, I would like to see more of them built as our communities expand.

In Mid Bedfordshire, we have always done the right thing and taken our fair share of housing—we have even taken Luton’s surplus housing need. We have done everything we were supposed to do, but our communities suffer the effects of bad development. Still, residents in Maulden see development crawling even further up the slope of the Greensand ridge, as their flood risk steadily worsens. Still, residents in Wixams find themselves fighting for a GP surgery that no one locally seems keen to take ownership of. Still, residents find themselves fighting developers who are keen to pocket the profits of development but less keen to deliver on their promises of well-maintained green spaces, proper flood protections and local amenities.

[Alistair Strathern (Hitchin) (Lab)]

As a fellow MP representing Central Bedfordshire, I know that while good people can have reasoned debates about the right locations for new housing, no one can defend the lack of infrastructure to keep pace with development that we have seen in parts of Central Bedfordshire. It is therefore all the more surprising that the council has one of the highest levels of unspent section 106 contributions in the country. Does the hon. Member agree that Central Bedfordshire owes it to its residents to ensure it is putting that money to good use, and that we owe it to the council to ensure we are removing all possible barriers to its providing the infrastructure that our residents are crying out for?

[Blake Stephenson]

Again, I must declare my interest as a Central Bedfordshire councillor. I learned recently of the sums that are held at Central Beds from section 106 contributions. The council is very good at collecting the sums but not necessarily at spending them, particularly in the right places and on the right things. Residents would be keener on development in their local communities if they knew that section 106 contributions would be spent there, not in some other part of the large unitary authority area. I welcome the hon. Gentleman’s intervention and thank him for it.

Worse still, these developers often put in planning applications for big developments, have those fights with the local community, make promises about local infrastructure, secure their planning permission, and then nothing happens. The community sits and waits while more and more other developments get planning permission around them, but the developers do not get on and build the things they have got permission for. Research by the Institute for Public Policy Research found that 1.1 million homes that were given planning permission between 2010 and 2020 were not built by 2024. That is 1.1 million homes that defied the Government’s blockers and got through the planning system but did not get built. So far, this Government seem to have failed to grasp that problem—there is nothing in the Planning and Infrastructure Bill that even acknowledges it. If the Government are determined to block the blockers and back the builders, perhaps they should take some action to stop the blocker builders that are failing to build out planning permissions that they have received, because they are having a real impact.

In Central Bedfordshire, planning inspectors have twice concluded that we cannot demonstrate a five-year land supply in recent months. That means that our countryside now stands virtually unprotected against speculative development, yet our communities have taken more than 20,000 new homes in the past 10 years. The Central Bedfordshire local plan sets out locations for thousands more, but despite its passage four years ago, key strategic sites in that plan sit without a single shovel having been put in the ground. This Government must hold the builders to account to get on and build things, and not put the blame for our broken planning system on my constituents’ desire to avoid flooded homes or see a GP.

Looking ahead, this Government are asking our communities in Bedfordshire to take tens of thousands of additional new homes. That future housing pressure will put our communities under huge additional strain. We need the Government to work with us to do more to ensure that developers deliver what they promise—and deliver it at the right point in development.

[Richard Fuller (North Bedfordshire) (Con)]

I am grateful to my hon. Friend for securing this debate. He has rightly pointed to the fact that Bedfordshire has been doing more than its fair share of growth for two decades. We are growing at two and a half times the national average, which has put pressure on public services, particularly GP services. Biggleswade in my constituency has been waiting years for a health hub to deal with the growing population. Does my hon. Friend, like me, want to hear a bit more clarity from the Minister today about new towns? The potential for new towns comes on top of the pressure we have from organic growth. Tempsford in my constituency has been highlighted for one of those new towns. We do not know whether the Government plan for that to be a community of 15,000 or 30,000; there are some reports of 250,000. We have no clue whether this Government are committed to infrastructure first, either. What are my hon. Friend’s thoughts on what the Government should be saying now about new towns such as the potential one in Tempsford?

[Blake Stephenson]

I thank my right hon. Friend—

[Richard Fuller]

Honourable.

[Blake Stephenson]

I thank my hon. Friend for that intervention—I forget which positions people have had over the years. I absolutely agree. I will discuss new towns later in my speech; it is important that the Government provide clarity, and clarity soon, on where those new towns will be built. In my constituency too, people want the infrastructure to be built at the right time—before people move into houses, not afterwards. Those promises need to be fulfilled much earlier in the development cycle. I mentioned some of those points just now.

I would like to see the Government either commit to requiring developers to deliver new infrastructure right at the start of development, or consider a programme of investment whereby the Government provide capital funding up front for councils to deliver the promised infrastructure, which they could then claim back directly from developers’ section 106 contributions.

I would like to see the Government go further on flooding, and commit to a ban in all circumstances on development on functional floodplains. New homes mean nothing if they flood. Rivers and valleys have been here longer than we have, and the water that flows through them will not simply get out of the way because of the size of the Government’s mandate. We must ensure that our housing policy keeps houses out of the way and restricts floodplain to amenity and recreational land as part of proper local placemaking strategies.

We must also ensure that the sustainable drainage infrastructure that gets installed with housing is effective and properly maintained. Too often, we see and hear of sustainable drainage systems that are nothing more than overgrown and sometimes blocked ditches, which offer no protection when the rain starts falling. We need a proper strategy to manage them, for example with ownership devolved to properly funded internal drainage boards that can provide expert maintenance. We need to embrace nature-based solutions to flooding—an opportunity presented by the Government’s proposed environmental delivery plans if they are strengthened to include a duty to consider such solutions.

I would like to see the Government commit to properly funding and empowering planners in urban areas with high housing targets to identify and release appropriate sites for urban densification—a point made by the hon. Member for Strangford (Jim Shannon). For too long, urban authorities have been able to restrict land supply and the duty to co-operate to foist urban sprawl on neighbouring rural communities. Development that builds dormitories on our countryside rather than densification in our towns and cities is development that fails us all.

We must end the easy fixes and see a focused strategy to densify our urban areas. In rural Bedfordshire, without such a fix we face a real and significant risk that our villages will be forced under the duty to co-operate to take thousands more homes for Luton in addition to the thousands of homes we took last time. Sticking-plaster planning politics where housing targets mean nothing because they are consistently and repeatedly delivered elsewhere does nothing to resolve the housing crisis and nothing to appease the Government’s blockers, who rightly wonder how it can be fair that they must continue to pay the price for failures in urban areas to deliver targets.

11:16

[The Minister for Housing and Planning (Matthew Pennycook)]

It is a pleasure to serve with you in the Chair, Sir Desmond. I congratulate the hon. Member for Mid Bedfordshire (Blake Stephenson) on securing this debate and on so clearly setting out his case and his concerns about the type of development and infrastructure provision he wants to see in his constituency.

Sustained economic growth is the only route to delivering the improved prosperity our country needs and the higher living standards that working people deserve. That is why it is this Government’s No. 1 mission and why our plan for change commits us to build 1.5 million new homes and fast-track 150 planning decisions on major infrastructure projects in this Parliament.

To support the achievement of those milestones, the Government are progressing an ambitious planning reform agenda. In our first six months in office we overhauled the national planning policy framework to reverse the anti-supply changes made by the previous Government in December 2023 and to introduce a range of new pro-growth measures. Our landmark Planning and Infrastructure Bill, which will speed up and streamline the delivery of new homes and critical infrastructure, had its Second Reading on 24 March and begins its Commons Committee stage tomorrow. We have made a series of other changes, including taking steps to implement a new plan-making system that will help to facilitate sustainable growth, and we intend to announce, and in many cases consult on, further changes to the planning system over the coming weeks and months.

The hon. Member for Mid Bedfordshire raises a wide range of distinct issues, and I intend to cover as many points I can in the time available. However, he will forgive me if I set out at the start that, as I know he will appreciate, due to the quasi-judicial nature of the planning process and the potential decision-making role of the Deputy Prime Minister, I will not be able to comment on individual local development plans or individual planning applications, or for that matter on how individual local planning authorities may interpret national planning policy.

We believe in a plan-led system. As I never fail to say, it is primarily through local development plans that communities can shape decisions about how to deliver the housing and wider development that their areas need, and those plans must remain the cornerstone of our planning system. However, we are clear that local decisions must be about how to meet housing need, not whether to do so at all. As the hon. Gentleman is aware, through the revised national planning policy framework, published on 12 December last year, the Government implemented a new standard method for addressing housing needs to increase supply and better direct new homes to the areas where they are currently least affordable and therefore most needed. I certainly recognise—it is a point well made—the contribution that his constituency and neighbouring constituencies have made to housing supply over recent years.

The revised standard method is now the mandatory starting point for planning for homes. Local planning authorities, including those in the hon. Gentleman’s constituency, are expected to use it, although as I am sure he will be aware, they can seek to justify a lower housing requirement on the basis of local constraints on land availability, development and other relevant matters such as national landscapes, protected habitats and flood-risk areas. We expect local planning authorities to explore all the options to deliver the homes their communities need, including by maximising brownfield land—he will know that we have set out proposals for a brownfield passport to prioritise and accelerate the development of such land—and also by working with neighbouring authorities on cross-boundary housing growth and, where necessary, reviewing green belt.

It is probably worth touching very briefly on the specific areas the hon. Gentleman highlighted about villages and rural areas. The Government are committed to supporting rural communities to build new homes for local people and, in particular, to boost the supply of rural affordable housing. It cannot be right that young people in particular are often unable to remain in the villages they grew up in. That harms not only them and their families, but the vibrancy and long-term viability of those rural communities. That is why national policy promotes sustainable development in rural areas and why we want to see more affordable housing in them. That will also contribute to our wider ambition to deliver the biggest increase in social and affordable house building in a generation.

National policy makes it clear that local authorities should ensure that their planning policies and decisions respond to local circumstances and support housing that reflects local needs. That includes promoting sustainable development in local areas and ensuring that housing is located in areas where it will maintain and enhance the vitality of rural communities.

We also want more affordable housing in rural areas, and have already taken steps to support the delivery of that. For example, our golden rules for green development will ensure an affordable housing contribution 15 percentage points above the highest existing affordable housing requirement that would otherwise apply to the development, subject to a cap of 50%. That will unlock new affordable housing provision in a range of rural locations. Other measures, such as rural exception sites, can also make an important contribution. As I am sure the hon. Gentleman is aware, they allow local authorities to address the housing needs of rural communities by creating sites where local residents and others with a strong family or employment connection can live in affordable homes in perpetuity.

We recognise the strong support for those measures and the potential for strengthening policy in this area. That is why we made clear in our response to the consultation on the revised NPPF that we are giving further consideration to how we can better support rural affordable housing, including through the use of exception sites. That will include consideration of how we can drive greater uptake of rural exception sites and introduce a more streamlined approach. I will set out further details about our thinking on that matter in due course.

The hon. Gentleman and others rightly spoke about the need for up-front infrastructure for development. We recognise the importance of ensuring that new housing development is supported with appropriate infrastructure. He was wrong to say that we have taken no action in this area to date. The revised NPPF, published last year, includes changes designed to improve the provision and modernisation of various types of public infrastructure. He was absolutely right that we need to strengthen the existing system of developer contributions to ensure that new developments provide the necessary infrastructure that communities expect.

[Richard Fuller]

I am very grateful for the Minister’s thoughtful speech. One of the problems with the provision of public services in Bedfordshire—and, I am sure, some other high-growth areas—is that we are dealing with a backlog, due to the fact that for many years the population has grown too fast for us to provide the additional services. If the Government come forward with a new town in Tempsford, it is important that the Minister addresses the legacy issue—the backlog—as well as the provision for the additional houses that will come with the new town.

[Matthew Pennycook]

I thank the hon. Gentleman for that point, which is well made. I will certainly note that. We have had discussions about the matter previously.

In general terms, I will make a couple of points about infrastructure provision. First, local development plans should address needs and opportunities in relation to infrastructure, and identify what infrastructure is required and how it can be funded and brought forward. When a local plan is being prepared, practice guidance recommends that local authorities use available evidence about infrastructure requirements to prepare an infrastructure funding statement. I have mentioned some of the other changes that we have made in terms of the NPPF, and hon. Members know that the Government also provide financial support for essential infrastructure in areas of the greatest housing demand through land and infrastructure funding programmes, such as the housing infrastructure fund.

I want to be clear that what we have announced so far is just a first step. We recognise that there is more to do in this area across Government and with the sector to ensure that the right infrastructure gets built. I say gently to Conservative Members that the previous Government did not manage to find a solution to this thorny problem in 14 years. There is no simple and straightforward answer, but we are cognisant of the need to do more in this area, not least to ensure that we get more buy-in from communities for the development we need.

I agree that there is too much bad development, which unhelpfully plays into the yimby/nimby debate— I have never engaged in it because I find it reductive in many ways. Although there is a group of people in the country who want no development whatever anywhere near them—we will happily take them on—there is a far larger group that wants good development, with good amenities and infrastructure. We must therefore ensure that exemplary development is the norm, not the exception, as it is now.

I want to quickly touch on green belt, because the hon. Member for Mid Bedfordshire mentioned urban sprawl. The manifesto on which the Government were elected is clear that the green belt has an important role to play, and that a number of the intentions behind it, including preventing urban sprawl, have served our towns and cities very well over many decades. We will always look to brownfield first. Ours is a brownfield-first approach, as was the previous Government’s, and as I said, we took measures in the NPPF last year to strengthen that approach to brownfield land. We are also consulting on brownfield passports.

However, we have also been clear that there is not enough brownfield land in the country on brownfield registers, let alone in locations that are viable and that can be brought forward, to meet housing demand and need in full. We therefore need to look for a more strategic and smart way to release the right parts of the green belt—primarily and in the first instance low-quality, grey-belt land. Then, because of the value that the public attach to the green belt, we need a clear quid pro quo in terms of golden rules to ensure that sufficient rates of affordable housing and infrastructure come forward.

In the time left to me, I will cover a couple of the other issues raised by the hon. Member for Mid Bedfordshire: the environment, new towns and Universal Studios, although I am limited in what I can say on that final point. He will know that when it comes to development and the environment, we are absolutely convinced that we can do better than the status quo, which too often means both sustainable house building and nature recovery stalling. Instead of seeing environmental protections as a barrier to growth, we want to unlock a win-win for the economy and nature. As he will know, the Planning and Infrastructure Bill will introduce a new nature restoration fund, which will unlock and accelerate development while going beyond neutrality to unlock the positive impact that development can have in driving nature recovery. He has submitted many written questions to me on this point, so he is familiar with our approach, but I look forward to his engagement as the Bill progresses.

[Blake Stephenson]

Will the Minister take this opportunity to talk about building on flood plains? He may be coming on to this matter, but it is close to the hearts of my constituents and, particularly, constituents in North Bedfordshire. It is important that we do not build houses in areas that are going to flood.

[Matthew Pennycook]

I will turn to that point briefly in a moment.

On Universal Studios, the Secretary of State for Housing, Communities and Local Government has agreed in principle to consider any proposal. I am sure that the hon. Gentleman will appreciate that, given that the proposals remain subject to a planning decision, I cannot comment on any proposal, because to do so could prejudice the position of the Deputy Prime Minister. However, should the Department receive such a request, it will carry out a proper and impartial consideration of the planning merits of the proposed development.

The hon. Gentleman asked me to address flooding. We are clear that all local plans should be based on the best available flood risk data. The revised NPPF, which we published last year, makes it clear that developments of all sizes should use sustainable drainage techniques where the development could have drainage impacts, and should have appropriate maintenance arrangements in place. These changes will mean that sustainable drainage technologies are taken up more widely in new developments, but I can assure the hon. Gentleman that we continue to explore what further changes might be necessary. On a related matter, to avoid the issue of existing sewers not being able to adequately cope with new developments—we had an extensive debate just a few weeks ago about the investment cycle around the water sector being somewhat out of line with the planning cycle—there is more we can do in this area, and we are giving due consideration to that.

Finally, hon. Members are aware that the Government are committed to bringing forward the next generation of new towns. This Government’s new towns programme will include large-scale stand-alone new communities, as well as a large number of urban extensions and urban regeneration schemes, which will work with the grain of development in a given area. The unifying principle will be that each of the new settlements will contain at least 10,000 homes, although we expect a number to be far larger. Collectively, we expect that they could provide hundreds of thousands more homes in the decades to come.

As I have said in relation to development more generally, we want exemplary development to be the norm, not the exception. The next generation of new towns must be well connected, well designed, sustainable and attractive places where people want to live, and must have all the infrastructure, amenities and services necessary to sustain thriving communities. The new towns code will ensure that they deliver to the highest standards and help to meet housing need by targeting rates of 40% affordable housing, with a focus on genuinely affordable social rented homes.

As hon. Members are aware, last year we established the independent new towns taskforce, which is chaired by Sir Michael Lyons, to support this mission. It will submit its final report, including its final shortlist of recommended sites—I do not have that shortlist to hand, so I cannot tell the hon. Member for North Bedfordshire (Richard Fuller) whether Tempsford or any other site in the country will be the location of a new town—this summer, and then Ministers will select from the recommendations. There will be local buy-in where appropriate, but we are clear that we will make the decisions in the national interest where we need to do so.

[Blake Stephenson]

Will the Minister confirm whether new towns will contribute to current house building targets or be in addition to them?

[Matthew Pennycook]

I think I have answered a written question on this matter, but I put it on the record again, because I understand the need for clarity in this area. The Government have been clear, not least because the new towns will begin construction only towards the end of the Parliament, that new towns will deliver over and above the targets produced by the standard method. We will keep under review how the taskforce’s forthcoming recommendations on new towns interact with housing targets across the country.

To conclude, I congratulate the hon. Member for Mid Bedfordshire once again on securing the debate. I thank him for outlining his views on planning and development in his constituency. The Government are committed to establishing a planning system that delivers the homes—

Motion lapsed (Standing Order No. 10(6)).

11:30

Sitting suspended.