Growth and Infrastructure Bill

Debate between Lord Deben and Baroness Hanham

Monday 28th January 2013 Lords Chamber

[The Parliamentary Under-Secretary of State, Department for Communities and Local Government (Baroness Hanham)]

Clause 5 amends Section 62 of the Town and Country Planning Act 1990, just in case that had escaped noble Lords. The clause sets out limits to the general power, under Section 62(3) of the Act, of local authorities to request information in support of planning applications.

There has been some debate today about why the clause is necessary. The department published the consultation paper on 21 January—indeed noble Lords’ attention has been drawn to it—and I hope that provides some reassurance on this point. With regard to the other consultation paper that was concluded in September, the Government’s response was provided on 12 December, so a response has been made. The consultation paper demonstrates how the provisions in the Bill form a critically important part of a wider package of deregulatory measures brought forward with the purpose of simplifying the planning system. As well as ensuring a better alignment between the National Planning Policy Framework and the primary legislation that governs information requests by local authorities, the consultation emphasises the need to place limits on the broad power that currently exists in Section 62(3) of the Town and Country Planning Act. This is to address the impact of recent court decisions and ensure that applicants can access the planning appeals system where there is a dispute with the local authority regarding what information is necessary to validate a planning application.

The noble Baroness, Lady Young, asked about the interrelationship between the National Planning Policy Framework and this clause. While the NPPF sets out a clear expectation on local authorities through policy, it is alone insufficient to overcome the interpretation given by the courts to the current legislative framework. The clause also safeguards the position of a local authority in requesting information, where a justification exists on the basis that the matter will be a material consideration when it comes to determine the application in question. Overall, I believe this change will bring a more balanced state of affairs whereby applicants and local authorities will work together to establish the amount of information necessary to get a particular planning application validated. Alongside our wider package, the clause will deliver a better and more proportionate approach to information requests and reduce the scope for disputes that can lead to delays at the validation stage.

Amendments 52, 53 and 54 would all considerably weaken the purpose of the clause and the achievement of the objectives I have just set out. Amendment 53 would amend the objective test in Clause 5 of whether a matter will be a material consideration in the determination of the application to become a more subjective test where the primary role is with the local authority to determine whether this is the case. That would undermine our attempt to address the broad powers of local authorities that have been the source of criticism by the courts. Similarly, Amendment 52 would essentially return us to the position that currently exists and has been found problematic: a subjective test decided by the local authority. A local authority would merely have to have regard to the nature and scale of the development when making an information request.

The purpose of requiring such information requests to be reasonable is to ensure that a local authority can justify whatever information it is seeking and can respond, if pressed, as to why it considers applicants should have to go to the often considerable expense of providing it. Presumably, that is something which we all agree is sensible and appropriate. Amendment 54 would continue in a similar vein, by weakening the requirement for local authorities to justify information requests on the basis that it is reasonable to think that they will be material considerations in the determination of the application to a looser requirement that they would be likely to be. Although I can understand the intention behind the amendment, we need to ensure that local authorities are clear, consistent and certain in why they think that information is going to be relevant to the determination of the application in question. Changing the test to “likely” will weaken the effect of this important principle.

Amendment 55 seeks to respond to the criticism that there is no statutory definition of what is “reasonable” by suggesting one. The definition attempts to set out circumstances which could definitively be considered “reasonable”. These would include information requests made by a government department, government agency or statutory consultee. As I have already said, the purpose of including “reasonable” in the tests is to require a local authority to justify why it considers information is necessary for the application to be validated. The likely requirements of a statutory consultee would clearly be a relevant justification as long as they are warranted by the circumstances of an application.

However, a tick-box attitude to the local list—there are indeed local lists of what information would be required—without consideration of the relevance of any particular item for a particular application will not do. Attempting to draw up in primary legislation a definitive list of what is and is not reasonable is not likely to be helpful and could create confusion. The tests that apply are already clearly set out in the NPPF and the clause as it currently stands clearly emphasises this.

What we really want is for local authorities and applicants to think these matters through together and, where differences emerge at validation stage, to have a sensible discussion about what is reasonable in the individual circumstances of the case. The concern that has prompted this change is that the law as currently drafted allows local authorities to refuse to validate planning applications indefinitely and simply to impose information requirements unilaterally on applicants.

In summary, I fully understand and respect the need for us to safeguard the ability of local authorities to request information from the applicant where it is essential to the determination of a planning application. Clause 5 and the associated proposed changes to secondary legislation achieve this. No harm will be created by the requirement for such requests to be justified and, if necessary, enabling matters to proceed to appeal for a decision. Indeed, we consider that Clause 5 will encourage both applicants and local authorities to work more closely together to ensure that the likely impacts of development are fully appraised in the documentation submitted with the planning application in question.

[Lord Deben]

I assure my noble friend that many of us are very much in favour of this clause as it responds to a real need and an articulated concern. The Government have sometimes seemed to have felt that the planning system is a much more powerful deterrent to growth than many of us feel, but this change will be welcomed by those who feel that local authorities often have a standard list of things, whether it is applicable or not. I hope that my noble friend will be able to spread this approach to others, because many institutions, authorities and businesses constantly ask for a lot of information which is totally unnecessary but do it because they always have done. I hope she understands that there is great support for her position on this issue, although some of us are more unhappy about other parts of the Bill.

[Baroness Hanham]

My Lords, I am grateful to my noble friend for that contribution. I am not sure that I can commit other departments and other parts of government to doing anything, but I am glad of his support for what we are trying to do here. It is important that we get this right. I have been asked for the evidence on which the change is based. Not only have concerns been expressed on the part of the development industry about delays experienced at validation stage and the costs involved but this has been a long-standing issue and was a key theme in the Killian Pretty review, to which I am almost certain the noble Lord referred at Second Reading—somebody did anyway. That review, commissioned in 2008, was of the planning application process. Most recently, the department consulted on proposals to amend secondary legislation to streamline information requirements. It was clear from responses from the applicant community that they wanted us to go further and look at the primary legislative framework, which is what we have done.

The noble Lord, Lord Beecham, referred to the impact assessment. The savings predicted in the impact assessment are based on a reduction in costs generated by a shift in behaviour as a result of the clause and changes to secondary legislation. Both the clause itself and related changes to secondary legislation are necessary to introduce the ability for applicants to access the appeals system. If I am pressed—which I see the noble Lord is about to do—I will be happy to write to him on the detailed points made.

Growth and Infrastructure Bill

Debate between Lord Deben and Baroness Hanham

Tuesday 22nd January 2013 Lords Chamber

[Baroness Hanham]

My Lords, before they are designated, local authorities will have the opportunity to explain, first, their figures and, secondly, if necessary, the length of time that an application has taken due to specific reasons. That will be the case with either a formal or an informal planning application, but they will have to note that that is what it is so that they can use that as an explanation.

[Lord Deben]

Would it not be better if that were set out in the Bill? If the Bill said, first, that the issue is largely one of timing—that would make me much happier, because I am worried about other criteria—and, secondly, that the local authority would have a period of time, whatever it might be, to have a discussion about it, I think that many of us would not be so unhappy about not agreeing to these amendments. The amendments are designed to put in place exactly what my noble friend has put forward, so would it be possible to have that in the Bill? It seems to me that we would all be very much happier if it were.

[Baroness Hanham]

My noble friend has greater experience than I have of putting forward legislation, and he will know that not all measures are put into a Bill. Some are in secondary legislation and some are in planning guidance. I have no doubt at all that it will be made clear to local authorities how that designation is going to come about and what they will be able to do to ameliorate it. Therefore, I hope that the noble Lord will feel able to withdraw his amendment.

Local Government Finance Bill

Debate between Lord Deben and Baroness Hanham

Thursday 19th July 2012 Grand Committee

[Baroness Hanham]

My Lords, this short amendment specifies that in determining whether a property has been unfurnished for any period of six weeks or less during which it was furnished should also be disregarded. Clause 11 sets out that a dwelling is classified as long-term empty and subject to a premium if it has been unoccupied and substantially unfurnished for a continuous period of two years. Any period of six weeks or less during which the dwelling was occupied is disregarded. The amendment would add a second consideration of time to the application of the period by requiring a billing authority to take into account any periods during which the dwelling was furnished. This would add an unnecessary level of complication to the administration of the empty homes premium. It would potentially require billing authorities to monitor the interplay of periods of occupation and furnishing of a dwelling. Clear criteria for the scheme and ease of administration are highly desirable for billing authorities and, perhaps more importantly, council tax payers to know where they are.

[Lord Deben]

I am mystified about why the Government have not merely given local authorities the power to make these decisions as they wish. I do not understand why we still want to control them on these matters. If this would add complication, why do we not get rid of the complication that is here already and say that local authorities can make up their own minds?

[Baroness Hanham]

I think my noble friend was unfortunately not here during the earlier stages when we went through this point in some detail. I resisted those amendments. I hear what my noble friend says, but that is not the situation. I hope the noble Lord, Lord McKenzie of Luton, is willing to withdraw his amendment.

Localism Bill

Debate between Lord Deben and Baroness Hanham

Wednesday 12th October 2011 Lords Chamber

[Baroness Hanham]

My Lords, I, too, am guilty of the terrible solecism of not referring to the noble Lord as Lord Deben. I have known him so long as John Gummer that Gummer naturally slipped out. None the less, I apologise.

[Lord Deben]

Perhaps my noble friend will allow me to say that one remembers the name when one remembers that Suffolk is not flat. I look down over the River Deben, and it is quite a long way down.

[Baroness Hanham]

Well, I did not make the point that it was flat. Never mind, we shall get around that.

I must say at the outset that we are committed to promoting sustainable development through the duty to co-operate. I do not want to take a confetti approach to sustainable development in every single sentence—as the noble Lord, Lord Deben, suggests we are doing—but to some extent I am going to have to in reply to this amendment.

We looked at Clause 98 in Committee to see whether there was scope to give sustainable development even more emphasis. The noble Lords, Lord Deben and Lord Newton, are concerned about the localism aspect, but there are clearly times when it is important that local authorities and others work together to ensure that there is a proper plan.

We have gone on to consider this matter carefully during the months since Committee, and Amendments 203U and 203W provide me with an opportunity to explain why I do not think further amendments are necessary. There is already a duty to co-operate on councils preparing local plans, with the objective of contributing to the achievement of sustainable development. The duty is contained in Section 39 of the Planning and Compulsory Purchase Act 2004. It will also now apply to local and county councils and all the other bodies covered by the duty to co-operate as they plan for strategic cross-boundary matters in local plans. This is the important aspect—not to negate localism, but to make sure it can be carried out where strategic plans are being developed because the proper people have been consulted at the proper time.

Councils are already required to promote sustainable development through the duty to co-operate. We have also made it clear in the title of Clause 98 that the duty relates to the planning of sustainable development, and we have put sustainable development at the heart of the strategic matters on which we expect councils and other public bodies to co-operate in preparing local and marine plans.

I hope that my description of the duty to co-operate and its relationship to the wider duty in Section 39 of the 2004 Act illustrates why we do not need to amend this Bill. We believe this policy is a more appropriate way to emphasise the important role of the duty to co-operate in promoting sustainable development, and we will consider further, as part of the consultation responses on the National Planning Policy Framework, whether that is necessary. We shall also consider whether it would be helpful to emphasise the importance of sustainable development in any guidance that the Secretary of State issues on the duty.

I understand that Amendments 203X, 203Y and 203Z are intended to ensure that co-operation between councils and other public bodies is not limited to co-operation on sustainable—and I put that in inverted commas—development. The key issue here is that the duty applies to the preparation of local plans and where they relate to strategic cross-boundary matters. Local plans will set out policies for the sustainable development and use of land.

As I said earlier, councils and other bodies covered by the duty will already have to work jointly on local plans, with the objective of contributing to the achievement of sustainable development. Given these requirements, we do not consider that Amendments 203X, 203Y and 203Z are necessary. However, we shall consider whether this needs to be addressed in guidance issued subsequently on the duty to co-operate.