Levelling-up and Regeneration Bill

Duke of Montrose Excerpts

Committee stage
Thursday 18th May 2023 Lords Chamber

[Lord Stunell (LD)]

My Lords, I will speak to my Amendment 372A in this group. Previous speakers have invested a huge amount of time in devising alternatives and improvements to the existing legislation, and I support their efforts very much. My amendment is much more basic and straightforward, and based less on research and more on intuition. It says that no new standards should be set lower than those in force at the time that the Bill comes into law. It is just a very basic, no-steps-backward amendment.

I am well aware that Clause 142 is, at least in essence, saying the same thing, except that it has a get-out clause, which has already been spoken to. It balances one sort of harm offset by another sort of good, all to be decided by a Secretary of State. That is not a no-steps-backward provision at all.

This kind of issue, the discretion being given to Secretaries of State, has come up on several previous days. We have had many earnest assurances from noble Lords on the Front Bench that there is every intention of maintaining, indeed increasing, the level of protection. It was said just this morning in relation to council houses; we are going to have more social provision, not less, as a result of the changes, and we are to trust them. Well, I am sorry to tell noble Lords that there is still a degree of uncertainty in the minds of many of us about how those promises will be delivered.

I have to say that Conservative Governments have proved quite transient things. We have had four Secretaries of State since this time last year and at least three fundamentally different approaches to housing targets and the levelling-up Bill. At least one key feature of the levelling-up mechanism set out in the White Paper was scrapped only this week—the regional levelling-up director posts—at, apparently, a saving of £144,000 a year for each of them.

There is a right royal battle under way, on and off stage, among senior Conservatives, aimed at setting our country free of all the enveloping red tape that stifles innovation and money-making. That is a paraphrase, but I hope not an unfair one. Mr Rees-Mogg, Mr Redwood and the Home Secretary are all hoping for a return to one or other of the alternative models of levelling up that Conservative Governments have played with over the last 12 months. Those versions have had lots and lots of levelling up, none at all or several mixtures in between.

So I ask noble Lords and the Front Bench Ministers opposite: what is the future of environmental outcomes reports? What guarantee is there that standards will not be allowed to drop, or perhaps even required to drop, in future, as red tape is cut and industry set free to make money and innovate? The current safeguarding guarantees are time-limited, fundamentally, to the assurances given by Ministers in Hansard. Based on the last 12 months, that level of protection is somewhat transient, and Clause 142 has its own get-out, as has already been pointed out.

If you look out of the window and see big clouds rolling in, you know that it is sensible to take your umbrella with you when you go out. That is common sense, not paranoia. If you look out the window and see big blue clouds rolling in from Bournemouth, or this weekend from Westminster, it makes even more sense to have your umbrella with you. My Amendment 372A is that umbrella. Yes, I want to see the other amendments in this group adopted, but surely we have to secure in the Bill the standards that we already have. That is why I have tabled Amendment 372A.

[The Duke of Montrose (Con)]

My Lords, I will speak to my Amendment, which has been coupled with this group. We are now moving on to Part 6 of the Bill, which involves Scotland. We have heard about all these doubts and areas that need to be cleared up, which are even more worrying for devolved Administrations.

My amendment is to Clause 143, “Requirements to consult devolved administrations”. I declare my family’s interest, as noted in the register, in that we own land in Scotland. We are fortunate; it is not a big area in Scottish terms, but it includes part of a national park, a nature reserve, a site of special scientific interest and special protection areas. As the Minister pointed out in an earlier debate, this is the section of the Bill that is most likely to affect devolved competencies. There can be no doubt that the Bill is causing much concern in the UK’s devolved Administrations, and we have just been hearing about the extent of the existing Henry VIII powers. Anyone who has spent any time in this Chamber knows that we are allergic to Henry VIII powers, and I hope that my noble friend can assuage us on the extent to which they will be included.

In the earlier debate on Clause 83, my noble friend rejected my proposed amendment. That issue only involved powers regarding planning data. Clause 143, as drafted, is a mirror of that text:

“The Secretary of State may only make EOR regulations which contain provision within Scottish devolved competence after consulting the Scottish Ministers”.


My Amendment 382 provides that, following the consultation, the Secretary of State must report the outcome and provide reasons. This is surely a necessary step for transparency and to maintain the trust between the parties on an ongoing basis. Consultation implies that all will put their cards on the table; agreement, as we all know, is harder to achieve. My noble friend may like to say that we would carry out these steps anyway. This amendment as drafted does not give any more power to devolved Assemblies but just gives them the comfort of knowing exactly where they stand.

It was further encouraging to hear my noble friend say, in his reply to an earlier debate, that

“the Government are continuing to work with the devolved Administrations to understand whether there is scope to extend the EOR powers to provide a shared framework of powers across the UK. Once those discussions have concluded, the Government will bring forward any necessary amendments to both Part 6 and Part 3 to reflect the agreed position between the UK Government and the devolved Administrations”.—[Official Report, 22/3/23; col. 1803.]

A shared framework of powers is precisely what this amendment is aiming to achieve. There is always the danger that, without achieving this framework, and with one party withholding consent, the outcome might go against any changes at all.

The Scottish Parliament’s legislative consent Motion for this measure was tabled on 27 July 2022. As I mentioned before, the main one of the three committees to give it consideration was the Net Zero, Energy and Transport Committee. In its report, brought out on 22 December, it could see some elements of the Bill that it welcomed. But, after taking evidence, it concluded that:

“Environmental Outcome Reports would lead to a significant change to environmental assessment in Scotland. However, the UK Government has not provided sufficient clarity around how they will operate in practice.”


Similar concerns were also highlighted by both the other committees in the Scottish Parliament. After consideration, all were still not prepared to grant approval.

The Government have introduced quite a raft of amendments to the Bill already. It would be interesting to know whether some of these are the fruits of their intergovernmental discussions, but we are still a long way short of achieving an agreed framework. Can my noble friend say whether that is still their aim?

[Baroness Bakewell of Hardington Mandeville (LD)]

My Lords, I wish to speak to Amendment 384, in the name of the noble Lord, Lord Randall of Uxbridge, and to which I, like the noble Baronesses, Lady Jones of Whitchurch and Lady Willis of Summertown, have added my name. It is a pleasure to see the noble Lord in his place once again. He has set out his case for this amendment extremely well, as always.

Environmental outcome reports are key to monitoring our environment and the effect that we, the population, are having on it. We have had debates during the passage of the REUL Bill on the habitats regulations and the importance of ensuring that the regulations surrounding habitats are protected and would not run foul of the sunset clause on 23 December 2023, which has now, mercifully, been removed.

--- Later in debate ---

[Lord Thurlow (CB)]

I thank the noble Lord, Lord Hodgson, for letting me add my name to his Amendment 471 concerning rights of way.

I have never been able to understand why the Government wanted to apply a guillotine to registering long forgotten and rediscovered public rights of way. The noble Baroness, Lady Scott of Needham Market, made a number of interesting points but one in particular stood out for me. No one is attempting the equivalent of a land grab here; there is no rights grab going on. There are no compulsory purchase order-type approaches over land. Rights of way are simply a public asset, and that really is the focus of my short remarks this afternoon.

The Government are keen to open up the countryside to the public. The noble Earl, Lord Clancarty, just used the wonderful phrase “taking nature to your doorstep”. Farmers are finding their subsidy linked to the greater good rather than acreage. Access to the countryside is increasingly and frequently cited as a provider of mental health benefits to urban dwellers, and rights of way are one of the very few means of rural access available nationwide. Rights of way have already been levelled up.

The Government have agreed to delay the cut-off date for registering public rights of way to 2031, a token extension, but there seems to be reticence to action their promise to repeal the deadline once and for all. The Bill offers the perfect opportunity for the Government to make good their promise. I would like to know who is prevailing upon the Government behind the scenes to create this anti-social interference with the existing rights of the public, and what entitles the Government to quash the revelation of former rights of way as they are brought to light. We are not requesting new rights of way, simply confirming those which may have existed for centuries. They may have disappeared from the record, but, if verified, have always been there. Surely it is the Government’s duty to protect these public rights.

The key to rediscovering ancient rights of way lies in long-forgotten archives or seldom-accessed archives belonging to public libraries, local authorities, the Church and similar institutions, and to folklore. In addition, they may be found on the ancient maps on the walls of estate offices on large estates. These important ancient rights will inevitably be revealed slowly as the evidence is discovered. Society should rejoice as the network quietly grows, granting greater public access to green spaces. Inevitably, this process of discovery will quietly continue over many years, indeed decades, and to close an ancient right of way is to remove a precious public asset. It is ironic that the Government should be in place to protect public rights, yet willing to abandon them.

As we have heard, there are already thousands of rights of way claims awaiting processing. Some have been in the works for years, and thousands of miles of unrecorded routes need further research. Why do the Government stand in the way of this public service, rather than welcome it? Lift the cut-off date, I urge the Minister, and make good the Government’s promises by supporting the amendment.

[The Duke of Montrose (Con)]

My Lords, I offer support to my noble friend Lord Randall on protected landscapes. We need to know where we are going on this. We are trampling through the devolved competencies. Luckily, Scotland is adopting green policies with even more enthusiasm than local authorities in England, but we always need to bear in mind that the original legislation was the National Parks and Access to the Countryside Act, and originally, and even today, some see the second part as more important, as we were hearing from the noble Baroness, Lady Bennett, and the noble Earl, Lord Clancarty.

I live in a national park in Scotland, and the Scottish Government are providing millions of pounds every year to staff it and provide facilities for the public. On my land, they have just provided £800,000 to improve a footpath. When we think of the value of national parks for nature, it is worth recalling that for a body called the International Union for Conservation of Nature, our park qualified only for level V, because the only limit they had in law was to preserve the topography. We need to make up our mind what level of nature conservation we desire.

A dedicated percentage of land for conservation and marine conservation areas was announced recently, and the Scottish Government have taken it up and announced a timetable for extension of their marine protected areas. This has brought a sense of desperation, particularly to the crofting counties on the west coast, because they see it as a hammer-blow to the crofting way of life, which requires buying livestock, cutting peat, fishing, weaving and crafts. This is a whole culture which could be lost. There are areas where we want to preserve the way of life, as well as nature. I hope that my noble friend Lord Randall’s efforts will point the way.

[Baroness Bakewell of Hardington Mandeville (LD)]

My Lords, I speak to Amendment 387 in the name of the noble Lord, Lord Randall of Uxbridge, to which I have added my name, and to Amendment 475 in my name, to which the noble Baroness, Lady Jones of Whitchurch, has added her name. As an aside, today seems to be the day when Conservative Peers take a pop at the Opposition Benches. Perhaps the recent election results are driving them.

However, I first address Amendment 475, which seeks to ensure that wild camping is included in open-air recreation. I tabled this amendment after hearing the news that Dartmoor National Park was banning wild camping on its land, and this ban had been upheld in the High Court—a win, apparently, for a hedge fund manager. That is a prime example of the wealthy preventing the less well off from enjoying the environment. I have since learned that, through crowdfunding, a judicial review of the decision has been mounted. I understand that the fact that a JR is in process does not prevent me from speaking on the subject.

For years, people have been enjoying outdoor activities on our national parks. In particular, Dartmoor has hosted—if that is the right word—the Ten Tors challenge each year, weather permitting. National parks are also the venue for thousands of young people embarking on their Duke of Edinburgh’s award. This is especially so at the bronze stage, when secondary children go out in groups to orienteer their way round the moors and experience at first hand the importance of working together as a team, witnessing the challenge and pleasure of wide-open spaces, often for the first time. The expedition is often the best part of the DoE award scheme for the young people. Young people involved also learn what nature is, how it behaves and how we interact with it. Hopefully, they learn that nature and the environment have not only to be appreciated but nurtured and looked after. This is something of a rite of passage for many young people, who may not otherwise have this kind of experience.

While national parks are a haven for plants and wildlife, they are also a tremendous tourist attraction, and some tourists bring their own challenges. Thoughtlessness has caused devastating wildfires on many of our heathlands and national parks. The litter left behind over a particularly sunny bank holiday weekend can be a real problem to clear up. However, there are measures that can be taken to raise awareness with the public of the dangers of barbecues, in particular, alongside notices encouraging visitors to take their waste home. That should be at the same time as providing sufficient bins for them to put their rubbish in—unlike in one of the country parks in my previous district council area, when, after one very hectic weekend, the rangers decided to remove the bins altogether. Not surprisingly, the result was even more widespread rubbish to clear up after the next sunny weekend.

Yes, there will be a lot of rubbish to clear up after a large influx of tourists, but this could be an opportunity for the community to come together to help clear it up. We were encouraged after the Coronation to take part to help out, and this included many communities going on mass litter picks. There are many ways both to alert tourists to ensure that their visit does not adversely impact others and make sure they leave the environment they have enjoyed in the same state they found it. Banning a section of them through preventing wild camping is neither helpful nor in line with the Government’s wish to see more people enjoying open spaces. I tabled the amendment in such a way as to ensure the action taken on Dartmoor does not spread to other national parks. Surely the motto should be “Use and respect”, not “Go home, we don’t want you”, which is the message being given out by some in Devon.

Returning to Amendment 387, the ethos of the amendment is straightforward. The national parks across the country, the Broads and AONBs should contribute to the country’s biodiversity targets. They are protected landscapes, and the amendments implement the key recommendations from the Glover review, which has so far not been given the prominence it deserves. I am particularly keen to see proposed new subsection (1)(e), in Amendment 387, implemented. This fits in with my comments on my Amendment 475.