Growth and Infrastructure Bill

Lord Greaves Excerpts

Wednesday 30th January 2013 Lords Chamber

[Lord Greaves]

My Lords, I have some amendments in this group. In view of the discussions that are likely to take place today, I think I should add some interests to those I declared at the beginning of the Committee: namely, as a patron of the Friends of the Lake District and of the British Mountaineering Council, of whose access and environment committee I am a member, and as a vice-president of the Open Spaces Society.

I have tabled amendments to remove or leave out subsections (2), (3), (4), (6) and (7), really to draw attention to the particular protected areas that this clause is aimed at, and where it weakens that protection in the case of communications equipment. It does that by amending the National Parks and Access to the Countryside Act 1949, in the case of English and Welsh national parks. It refers to conservation and amenity lands in Northern Ireland, of which I know very little but I am sure they are important, the Norfolk and Suffolk Broads Act 1988—the broads are a national park in all but name—and the similar protection given to areas of outstanding natural beauty in the Countryside and Rights of Way Act 2000 and to national parks in Scotland in the National Parks (Scotland) Act 2000. It is slightly odd that we are legislating here about cabinets and overhead wires in Scotland in view of the existence of the Scottish Parliament and the Scottish Government, but it is just one of the anomalies of the devolution settlement.

I shall concentrate on national parks in England and Wales because they are the most important as far as England and Wales are concerned—clearly, national parks in Scotland are of equal importance—without in any way saying that other areas are not very important, and I shall look at what the proposed changes to the legislation do and whether they are necessary for developing broadband or for what the Government want to do. It is not clear to me that the sort of in-principle amendment to the national parks Act that the Government want to carry through will prevent them doing most of what they want to do in the electronic communications code and in the matters they refer to in their consultation document, which I read for the first time this morning.

Clause 8 amends Section 109 of the Communications Act, which is headed, “Restrictions and conditions subject to which code applies”. The Government want to add to Section 109(2),

“the need to promote economic growth in the United Kingdom”,

which is very different from all the others. They are constraints and this is an encouragement, so I am not sure that it belongs here, but I am not arguing about that particular aspect. I do not really mind it being added; the problem is what the Government are doing as a result.

Section 109(2) states:

“In exercising his power to make regulations under this section it shall be the duty of the Secretary of State to have regard to each of the following”,

and subsection (2)(b) refers to,

“the need to protect the environment and, in particular, to conserve the natural beauty and amenity of the countryside”.

As I understand it, that is not being changed and applies to all applications, not just to these special areas. In a sense, the Government will say that that remains. Section 109(2)(da) states that they have to have regard to,

“the need to ensure that restrictions and conditions are objectively justifiable and proportionate to what they are intended to achieve”.

That qualification seems to remain and will allow the broadband position to go ahead.

I am never sure whether I live in a rural area or an urban area, because when I look out of the back window I see the town, and when I look out of the front window I see the countryside. I live in an old industrial village on the edge of the town, and the sooner fast broadband comes, the better, because we are in an area where on Saturday night and Sunday night, when lots of our neighbours are watching movies on broadband, our broadband just closes down completely, so roll it on. I think everybody is of this view, but the question is whether this legislation is necessary to achieve that, particularly in protected areas.

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[Baroness Hanham]

My Lords, I am grateful for that and I apologise to the noble Baroness for not realising that. However, that gives me greater justification for doing what I am doing, which is to answer immediately what would have been the clause stand part debate. I think that we will all benefit in the end.

The more rural and remote areas, including protected areas, are some of the places where an infrastructure upgrade for broadband is needed the most. Without action, it is likely that these rural and quite remote areas will be left even further behind. I think that noble Lords have acknowledged that people who live in these areas want broadband and that there is a strong rationale for it. There are 700,000 households and businesses in national parks and areas of outstanding natural beauty, and most of these will not be served by the market alone. In England, 25% of premises in these areas currently get less than 2 megabytes per second. We estimate that, in total, potentially 4 million more people and nearly 2 million households could have access to superfast broadband as a result of Clause 8.

Without the rollout of broadband, businesses in these areas would suffer, including those in the tourism service sector, which increasingly find that visitors demand greater connectivity when they come and stay at guest houses, bed and breakfast establishments and hotels, and these businesses are frustrated by the lack of broadband to offer their customers. National parks authorities, along with many other rural areas in England, have cited insufficient broadband provision as a particular barrier to growth.

We are trying to tackle this disparity in the provision of superfast broadband and it is a key priority for the Government. We are spending nearly £700 million to stimulate the market to improve broadband connectivity and we are taking action to ensure that the barriers to deployment are removed. These actions are designed specifically to close the rural-urban broadband divide and promote economic growth. The broadband support package, which the Government announced on 7 September, is key to delivering that.

The consultation paper, Proposed Changes to Siting Requirements for Broadband Cabinets and Overhead Lines to Facilitate the Deployment of Superfast Broadband Networks—succinct as that is—published yesterday by the Secretary of State for Culture, Media and Sport, to whom we have been talking, brings forward proposals for two changes to the Electronic Communications Code (Conditions and Restrictions) Regulations 2003.

Perhaps I can take a few moments to set out what the consultation covers. The consultation’s first proposal is that we remove of the requirement to underground telecommunications apparatus. This is the only restriction that stops communication providers deploying overhead infrastructure. It does not say that they cannot provide underground structures. They can. If they want to share a gully or a trench with some other provider, they can do it in a way that is satisfactory to them. There is nothing to stop that. All this does is to say that it is not a requirement. If you cannot do it for some reason—

[Lord Greaves]

This is a crucial point. It is clear that they can still put them underground if they wish to, although there will be the removal of the statutory power of the local planning authority, which is usually the national park authority, to require it, and there will be less time for consultation. If I have understood it correctly, the consultation period will be 28 days and not 58 days in future. It would be helpful to have that confirmed. Do the Government have an estimate of the proportion of the lines in, for example, national parks in England and Wales which, in future, would be put underground compared with the present situation?

[Baroness Hanham]

I cannot answer the noble Lord’s question. He probably does not really expect me to answer it here. The consultation process will begin to throw up some of that information if we do not have it. If we do have the information, I shall see that noble Lords receive it.

The second proposal removes the prior approval requirements for broadband cabinets in protected areas. Of course, the cabinets have to be there, otherwise you cannot have broadband. They have to be at certain spaces and there are all sorts of things about broadband cabinets that require them to be placed in a specific location. We are bringing forward Clause 8 to enable us to make these amendments to the communications code through secondary legislation.

Let me be clear that the removal of prior approval will be temporary, as noble Lords have seen in the consultation which sets out a period of five years. By limiting the window to five years, this will also ensure that the operators have an incentive to get on with the rollout of that business and community need.

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[Baroness Hanham]

My Lords, I was citing the reason for the process in conservation areas taking up to two- and-a-half years. Under the measures on which we are consulting, local authorities will still be involved.

[Lord Greaves]

As I understand it, there are no proposed changes in this legislation to conservation areas. I declare an interest as living in not one conservation area but two—they overlap. Are there proposals for changes to the rules in conservation areas?

[Baroness Hanham]

I am citing conservation areas that in many cases are in urban areas and have held up some of these decisions. I accept that we are talking about rural areas. I was asked why some of this was necessary. Part of the reason for the decision is the delays caused by conservation areas.

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[Lord Greaves]

I wonder whether the Minister would write to me on that, as she does not have the answer. I asked a specific question about whether the rules in conservation areas were to be changed.

[Baroness Hanham]

My Lords, as I understand it, the rules in conservation areas are not to be changed.

Under the measures on which we are consulting, local authorities will still be involved and will have more of an opportunity to put forward their views on the siting of poles and boxes, and on their appearance. The existing regulations require, and will continue to require, consultation with local authorities. In addition, providers will work to a new code of best practice on the siting of infrastructure. This will contain an agreed set of overall principles on sensitive siting, together with specific requirements for consultation with local communities about new overhead line deployment. My noble friend Lord King asked whether these measures were related to fixed broadband. As I said in my Second Reading speech, these measures cover fixed broadband—poles and boxes.

We will outline the main principles of the code of practice by Report, and the code will be agreed before changes are brought into effect by regulations. We expect broadband operators to adhere to the code that they will be involved in drawing up. We believe that the sector should have responsibility for its own code. I can confirm that the English National Park Authorities Association will be invited to join the group that is drafting the code of practice.

Importantly, local authorities will also be able to influence how new broadband services are deployed when procuring projects under the Broadband Delivery UK programme—including, for example, determining whether lines should be run overground or underground. As I said, the underground aspect is not being removed. This will be balanced against how much coverage can be provided.

I turn now to the specific amendments. I do not agree that there is a need to place conditions on the Clause 8 enabling power.

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[Baroness Hanham]

My Lords, I apologise for overlooking that. The proposal is that the code should not be statutory. It should be a code of guidance but not backed up by statute.

[Lord Greaves]

My Lords, perhaps I could ask again: if everything goes well with a particular proposal and notification, is the difference in timing between the present system and what is proposed just 28 days as it seems to be? In other words, does the 56-day prior approval system disappear but the 28-day period still exist for the local planning authority to comment? Can the Minister say, either now or perhaps in writing, what will happen and what is available to people, particularly the local planning authority, under the proposed new system if there is a difference of view that cannot be resolved? If a proposal is put forward and the planning authority has comments—not necessarily on whether the proposal should be there at all but on the two key issues of siting and appearance—and if that dispute between the local planning authority and the broadband provider cannot be resolved, does the provider simply go ahead and do it or is there some other procedure? I am a bit mystified about where the county court comes in but perhaps everybody else understands that.

We have been told that the number of such cases that have been refused is very few indeed—it is a handful. But the fact that there was a handful means that there will be some cases where the local planning authority believes that what is being proposed is unacceptable. So under those circumstances will it be possible now for the proposal to go through?

Finally, with regard to the issue I was talking about before, Section 11A of the National Parks and Access to the Countryside Act is a general section that refers to everything. We are told that subsection (2) has to be put aside for this specific purpose because when the decisions are being made or the Secretary of State is issuing guidance and regulations under the Electronic Communications Act, if the national parks Act provision remains, there will not be a level playing field and the different considerations that the Secretary of State has to take into account will not be given equal weighting. Since Section 11A of the national parks Act is a general provision on everything that happens in national parks that authorities have to take account of, surely that is the case with all sorts of other things as well, yet all this other legislation that it must apply to—all these other powers of the Secretary of State and other authorities—does not appear to be invalidated by this section of the national parks Act. This is a fairly esoteric legal point but it would be very helpful to have clear legal guidance from the Government as to why they think this particular provision is necessary.

[Baroness Hanham]

My Lords, with regard to the latter point made by the noble Lord, Lord Greaves, this was a discussion that we had last night with the noble Baroness, Lady Parminter, and I said earlier that the strong legal advice is that it has to be done in the way that has been proposed at the moment. I said that I was happy to go back and have that checked but I expected that I would come back with exactly the same outcome because that is the legal process, but I am happy to give that undertaking to come back on it.

If all else failed and the providers could not get anywhere with the local authority and the planning committee, ultimately, yes, they could go ahead and provide the facilities where they need to. We do not expect that to happen. The whole purpose of this legislation is to ensure that there is good consultation and a clear understanding of where broadband is going to be placed, and that it should be done as quickly as possible so that we can move on.

Operators will have to adhere to the code. They are going to be involved in drawing it up, and we believe that they should have responsibility for their own code. I am sure that if we did not think that was going to happen properly we might consider taking a backstop power to ensure that the code is placed on a statutory footing, but I would like to come back to that on Report.

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[Lord Smith of Leigh]

My Lords, I must follow the noble Lord’s compliments to Greater Manchester by speaking at this point. I need to declare my interests, which I repeat from Second Reading, particularly to mention that I am the chair of the Greater Manchester Combined Authority. I therefore support this amendment, which gets to the heart of the Bill’s Title—it is what the Bill should be about.

I took part in the negotiations with the Government over the city deal. It was a very interesting process. Obviously, we developed ideas on our own and in conjunction. The noble Lord, Lord Jenkin, is absolutely right that it needs to involve not just local authorities but the local business community. It takes a very special skill for many businesspeople to rise above their day-to-day work to have that comprehension of local economic policy, but in Greater Manchester we are fortunate to have many people who can do that. We rely on them and other partners such as universities, which are very important, too. On the key partners, we need to remind the Government that this is not a financial issue for local authorities. We are actually asking for devolution—not necessarily for more money but to have the money spent at a local level, where many of us believe it will be spent more effectively. In some cases, no money is involved at all; it simply gives us permission to do what we currently have to do.

The city deals work. They can harness the strengths of local partners and build on local knowledge, and they can be addressed to the local circumstances. I am sure that the city deal for Greater Manchester is different from the city deal for Newcastle, because the issues are clearly different. We will have some similar issues. No doubt skills are a very important part but, for us, transport was a key issue. As the noble Lord, Lord Jenkin, rightly said, this amendment mirrors the report of the noble Lord, Lord Heseltine. It is really beginning to address this point about freedom. At a meeting of the Greater Manchester Combined Authority on Friday, we were pleased that we were beginning directly to fund local businesses to take on new workers and expand, so the measure is working practically on the ground. It is not a theoretical thing, and I will be very glad to see the rolled-out programme.

Like the noble Lord, Lord Shipley, I am a bit concerned about the wording of the amendment because I would not like every local authority to have to have its own deal with the Government. That is not what the spirit of this measure is about. What we did very carefully in Greater Manchester was to think about the functional economics. What is an economic area that makes sense? As important and lovely as the great city of Manchester is, its geography is a very odd shape. It is very long and thin. It is not a functioning economic area. The centre of Manchester and the centre of Salford are very close together, so we need to go over local authority boundaries. I hope that in passing some version of this amendment, we can encourage local authorities to be co-operative, as the noble Lord, Lord Shipley, said, to work together to think about what is in the interests of their communities and to make sure that we start to deliver what all noble Lords want, which is more growth, more employment and more opportunities in the country.

[Lord Greaves]

My Lords, I am pleased to follow the noble Lord, Lord Smith of Leigh, because outside Greater London, Greater Manchester is probably the best example of a classic city region in this country. City regions suddenly became all the rage a few years ago under the Labour Government, and they are perhaps making a bit of a comeback now.

The problem is that when people get new ideas, they tend to regard them as a template that applies everywhere. There is no doubt that city regions can be very powerful places in democracy and growth, but the geography of this country is not the same everywhere. Even within England, there are places which it is difficult sensibly to allocate to a city region. The temptation is for people to look at the model and try to impose it everywhere, instead of asking about the geography of this country, which is very different in different places, and about the appropriate model given the geography of a region or sub-region.

A classic example is the towns of west Cumbria—Barrow, Whitehaven and Workington—and their local authorities, Allerdale, Copeland and Barrow. It is very difficult to say which city region they can be part of. Newcastle upon Tyne might have imperialist designs on them and pretend they are part of it, but they are clearly not, and they are equally clearly not part of the Greater Manchester city region, Merseyside or whatever. They are different. The largest places in those areas, including Carlisle, are smaller than the largest places in west Yorkshire or Greater Manchester, obviously, so the system that is used ought to take account of the geography of those areas. That is not to say that they should not have the kind of powers which are set out in this amendment, the powers that existing city deals have, which will, I hope, go on to get more; it is to say that central government has to get out of the mindset of trying to fit everybody into the same size bottle and accept powers have to be devolved to some smaller places because that is the nature of the economic geography and the economic regions in those areas.

It will not surprise noble Lords to learn that I think that east Lancashire is another area, not quite as extreme an example as west Cumbria, that is very difficult to fit sensibly into any particular city region. If we were forced into a big city region, it would be Greater Manchester, but we would always be peripheral and far too far out. Despite the wishes of some people in Preston, it is very difficult to claim that Lancashire is in any way geographically a city region with Blackpool out on the coast, Blackburn and Burnley, former county boroughs, further inland, Lancaster further to the north and then all the other places.

If this is going to be successful, it has to be accepted that it is not just the major metropolitan centres, such as Manchester, Leeds and Newcastle, and smaller but equally important ones such as Norwich, that are going to be the engines of growth in this country. They are probably the main engines of growth because of geographical factors, but the rest of the country needs a fair deal as well, and we do not want to be looking forward to a country where some areas are growing: the south-east and Greater London, obviously, but also those cities that have been remarkably successful in recent years, of which Leeds and Manchester are perhaps the leading examples. Those of us who live out in the sticks need a decent standard of life, a decent level of growth and a decent level of local services, just the same as everywhere else.

My final point is that it is more difficult institutionally where there is two-tier local government. In some areas, the districts are not important. District councils vary hugely across the country. There are some areas where shire districts are not really important within the economic development sphere, never have been and are never going to be. Some of them are quite weak rural authorities in that sense. There are other areas where they are the motors of economic development and the places were inspiration, motivation, ideas and people from the public sector and the private sector come from. I suggest that west Cumbria and east Lancashire are classic examples of this there the county councils traditionally have not had a very strong economic development role.

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[Lord Beecham]

Liverpool was in many minds at that time. The noble Lord and I perhaps shared a view about Liverpool, but we were not alone in that.

The principle of looking across government departments and local authority functions embodied in a small way in those arrangements was returned to under the previous Government with the concept of Total Place. As I think I have said before in debates in your Lordships’ House, that has, I believe, been rebranded as community budgets, but it is consistently compatible with the thrust of the Government’s policy on city deals and the thrust of the amendments, which, of course, I support. The noble Lord, Lord Jenkin, was quite right to refer to the powers and resources that are required to invigorate local economies. That involves, by definition, a wide range of public organisations, including government departments. One thinks of BIS, the Department for Transport, the Department for Work and Pensions, the Department for Education, the DCLG, Defra and the Department of Energy and Climate Change. All potentially have a role to play with not only their policies but sometimes with their resources in individual areas. I hope that the Government can look at reinforcing the concept of the city deal by connecting it to the concept of community budgeting or Total Place, so that one looks at the sum of government-directed public expenditure in an area and sees how it can fit into and be applied to the issues of economic growth and regeneration.

Of course, the city deals that have been announced are welcome. Newcastle has benefited; I think that the figure is roughly £80 million. Liverpool got a little more at £110 million. That is not necessarily cash coming from the Government. It is the value of some of the freedoms that have been given, including, for example, tax-increment financing. Tax-increment financing is the permission effectively to borrow against the anticipated business rate income, which will generated by development. It has been deployed effectively for some years in the United States. There is reason to hope that it will help us here.

It is not, then, a question of the Government passing resources to the local authority, but of borrowing. Useful and impressive though those schemes and those amounts of money to invest will be, however derived, they have to be contrasted with the loss of financial resources to the very same authorities as a result of the local government finance settlement, exceeding on an annual basis in the cases of both Liverpool and Newcastle—and perhaps the others, I cannot say for certain—the value of the city deal and its financial implications. That is ultimately money taken out of the local economy, which is likely to have a deleterious effect on that local economy, employment and business. It is a curious inconsistency, which the Government have to address. They have to align their local government finance policies with the ambitions, which we share in local government, across the parties, of the city deal programme.

Finally, I entirely agree with the noble Lord, Lord Shipley, and my noble friend Lord Smith on the need for local authorities to co-operate and not to be seen to be competing with one another, at least in the same sort of area. There will no doubt be competition —healthy, I hope—between different parts of the country, offering different attractions for investment from within this country or overseas; that is a healthy process. However, it would be a great mistake if, within regions—or, to use the current governmental phrase, sub-national areas—there were to be cut-throat competition between more-or-less neighbouring authorities.

It was striking in those dark days of the 1980s—which the noble Lord, Lord Jenkin, did his best to brighten in Newcastle—that the region of the north-east came together in two ways. First, it came together—I have to say, at my suggestion—to create a Northern Regional Councils Association, which included Cumbria in those days, as it rather looked to the east than to the south. It also came together to facilitate the hugely important Nissan development in Sunderland. There was no competition between authorities as to who should get that. We came together and worked with business in the region and the Government of the day on behalf of the region as a whole. It is effectively a functional economic area, to use the jargon. That spirit of co-operation certainly needs to be driven, and I hope that the Government will incentivise it as these proposals go forward. I hope that—with the slightly cautionary words of the noble Lord, Lord Greaves, about not conferring significant powers and functions on unviably small groups of authorities on their own terms, with which I agree—

Have I misunderstood the noble Lord?

[Lord Greaves]

My Lords, that was not my point at all. My point is that people who live in big cities think that these places are functionally unviable because they are smaller than where they come from. My point is that they are not necessary functionally unviable just because they are smaller. They are big towns, small cities and areas with an urban nucleus which can actually do the job themselves, even though their population might be only 500,000 rather than 8 million.

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[Lord Ahmad of Wimbledon]

Dare I say it? HS2 may well also assist.

[Lord Greaves]

It did not reach Newcastle.

[Lord Ahmad of Wimbledon]

I am glad that the city deal has. I was concerned by the suggestion of the noble Lord, Lord Greaves, about the expansion of areas and Manchester connecting with Newcastle. As a Liverpool fan, for football reasons alone, that is something that we would want to park.

Coming to noble Lords’ points, I first reassure your Lordships on where we are on city deals. As the noble Lord, Lord Greaves, said, it is not a one-size-fits-all proposal. City deals are about bespoke solutions unlocking local growth and trialling different and innovative approaches. Perhaps it would not be appropriate for every single trial to be rolled out wholesale to every single council across the country. That said, the Government have a strong record of commitment to the localist agenda and are working directly with local authorities to provide the powers and support that they need. Where local models and city models make sense, I say to my noble friend Lord Jenkin that we will seek to make them more widely available.

On what we have already done with local authorities, we have given them greater control over their own budgets. First, an estimated 70% of income will be raised locally, compared to 50% to 60% under the current formula grant system. Secondly, from next April, councils will retain nearly £11 billion of business rates. Thirdly, the Government intend to devolve a greater proportion of future growth-related spending, based on the recommendations to which many noble Lords have alluded, as detailed in my noble friend Lord Heseltine’s recent, excellent review. My noble friend Lord Jenkin quoted my noble friend Lord Heseltine. We agree with him that local leaders and businesses are best placed to set the strategic direction of the area. He made a powerful case for increased devolution, and the Government agree with that.

Local people and businesses are better placed to take greater economic powers from central government, particularly in terms of funding and responsibilities, as the LEPs have. They can act as a stronger voice for local people, incorporating the local private sector. As several noble Lords have acknowledged, we have allocated funding. The Chancellor announced an additional £250,000 of capacity on top of the £625,000 core funding announced in September. So steps have already been taken, and I am pleased that noble Lords have acknowledged that.

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[Baroness Hanham]

My Lords, that was rather a quick ending. I am grateful for this short debate, which I thought might take a bit longer.

The amendment tabled by my noble friends Lord Tope and Lord Shipley, and Amendment 71A in the name of the noble Lord, Lord McKenzie, have the admirable aim of giving local authorities the power to decide how to adapt nationally set permitted development rights to their own local circumstances. I am pleased to say that that power is already there. Where local authorities have concerns about the impact of permitted development rights locally, they are able to consult their local communities on removing those rights via Article 4 directions. I know that my noble friend Lord Shipley said that that process is complicated, but it is really up to local authorities how complicated it is and how long it takes. It is in a local authority’s hands; it has to consult for 28 days, but after that it can decide whether to confirm an Article 4 direction. Because there are concerns regarding potential compensation issues, local authorities can, if they give 12 months’ notice that they are going to consult on an Article 4 direction, always manage to avoid compensation requirements.

Where the aim is to extend permitted development rights locally, local development orders provide a quick and simple way to do this. After a slow start, the number of local development orders being put in place across the country is increasing. Local authorities are recognising the benefits of this flexible provision, which can be put in place through a simple and streamlined procedure. More than 30 local development orders have now been put in place in enterprise zones, and local development orders are contributing to growth by helping to speed up everything from small domestic alterations to major industrial development. Rather than being a cumbersome process, as suggested, local development orders work quite well.

Amendments 60B and 60C, tabled by the noble Lords, Lord Tope and Lord Shipley, are intended to make the local development order process even more straightforward. The amendments seek to remove the Secretary of State’s role in the local development order process and remove the requirement for local authorities to report on local development orders, with the aim of reducing burdens further. The Secretary of State only exceptionally exercises his powers to intervene in local development orders. In many cases, local authorities can proceed to adoption within a few days of submitting local development orders to the Secretary of State. However, that does not mean that we should not constantly be seeking to improve and simplify the processes under which development takes place.

Officials have already begun discussions with the Local Government Association with the aim of learning from the experience of local authorities about the best way of using local development orders. That experience is growing rapidly, and it is important to capture it in deciding whether and how local development orders can be improved, including in the ways that my noble friends have suggested. Given my assurance that local development orders are a perfectly reasonable way forward, I hope that my noble friends are willing to withdraw or not move these amendments. I have also given an explanation of how the Article 4 direction plays, or could play, a particularly big role in the control by local authorities.

I turn now to Amendment 71, tabled by my noble friends Lord True and Lord Tope—I am sorry they are unable to be here—and the noble Lord, Lord McKenzie, who has spoken to it. I appreciate the noble Lords’ wish to make sure that local authorities are able to take their particular circumstances into account when considering the operation of national permitted development rights. This is indeed a vital safeguard, because nationally determined rights will of course have different effects in different local areas. As I have already outlined, local authorities have this power now through the use of Article 4 directions, which they can implement themselves. However, I remind noble Lords that every time permitted development rights are removed, local people are deprived of the benefits that they offer and become subject again to the additional work and costs of putting in a planning application.

Extending development rights will reduce the bureaucracy and delays that home owners face when they want to carry out what remain, even with these revised proposals, small extensions. That applies to businesses also. This amendment would deny people those benefits on a much wider scale. It would fundamentally undermine the well established and popular system of permitted development rights, which allows home owners the freedom and flexibility to make the best use of their homes without getting bogged down in red tape. However, I hear noble Lords’ concerns and I am sure that we will return to this issue at a later stage, when perhaps other noble Lords who tabled amendments in the group are here.

The noble Lord, Lord McKenzie, asked about the consultation. It ended on 24 December and is being considered at the moment. I hope that we will have some indication of the response in due course. There is no fixed date for the announcement of the response, but I hope, given my explanations, that noble Lords will withdraw or not move their amendments.

[Lord Greaves]

My Lords, the Minister used the word “small” in reference to extensions. Does she understand and agree that what is or is not small depends to some extent on the size of the existing house and, particularly if it is an extension into a back yard, the existing size of that back yard?

[Baroness Hanham]

My Lords, I appreciate that proposals and applications for extensions will always be different because it will depend on the nature of the property—for example, whether it is terraced or detached. Permitted development rights are being removed for small-scale and reasonably small-scale developments.

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Moved by

[Lord Greaves]

60D: After Clause 12, insert the following new Clause—
“Notification of Parish Councils
(1) After section 261 of the Town and Country Planning Act 1990 insert—
“261A Notification of parish councils
(1) Where an order is made under this Part by any authority or person for the stopping up, diversion or creation of any highway, the extinguishment of any rights over a highway, or for any work in relation to a highway, a copy of the order shall be sent to each parish council that the highway crosses or serves.
(2) “Highway” in this section includes a footpath, bridleway or other right of way.”
(2) After section 129F of the Highways Act 1980 insert—
“129FA Notification of parish councils
Where an order is made under this Part by any authority or person for the stopping up, diversion or creation of any highway, of the extinguishment of any rights over a highway, or for any work in relation to a highway, a copy of the order shall be sent to each parish council that the highway crosses or serves.” (3) In section 15 of the Commons Act 2006 (registration of greens) after subsection (9) insert—
“(9A) Where an application is made under this section to register land as a town or village green, a notice of the application must be sent to any parish council whose area includes the land that is the subject of the application or any part thereof.””

[Lord Greaves]

My Lords, the amendment would add a new clause after Clause 12, headed “Notification of Parish Councils”. I apologise that the amendment was circulated a day late but it took me some time to track down the bits of legislation that I need to amend. The genesis of this came from the National Association of Local Councils, which knew what it wanted to do but relied on me to find out how to do it.

The amendment is about three different matters which are conveniently lumped together. It would amend parts of different Acts to make sure that when certain proposals or orders are made by what I might call higher authorities, parish councils are notified. The amendment goes no further than saying that they have to be notified but, clearly, notification is the first stage in reaching a view and perhaps putting it forward.

The amendment follows the procedure on planning applications whereby parish and town councils have, under the Town and Country Planning Act 1990, the right to be notified about planning applications. The first provision amends that Act and would secure that when,

“an order is made … by any authority or person for the stopping up, diversion or creation of any highway, the extinguishment of any rights over a highway, or for any work in relation to a highway, a copy of the order shall be sent to each parish council that the highway crosses or serves”.

The second part would make a similar amendment to the Highways Act 1980. The wording is very similar but, in practice, it refers to rights of way orders. It really refers to lower-order highways—bridleways, footpaths and similar routes. The third part refers to Section 15 of the Commons Act 2006 concerning the registration of greens, and we will be moving on to that shortly. This part of the amendment would make a provision that, where an application is made to register land as a town or village green—that is, the beginning of the registration process—the parish council that includes the green or part of it should be informed.

So far as concerns the second part of the amendment, I am aware that the practice guidance notes on rights of way orders—that is, in relation to footpaths, bridleways and so on—issued by the Rights of Way Review Committee, include consultation with various local bodies, including parish councils. However, I am informed by the NALC that that does not always happen and it would much prefer to have such a requirement in primary legislation. With regard to both the other matters, I am informed that they have caused difficulties for parish councils over the years and that these fairly simple provisions would make life a lot easier for them. I beg to move.

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[Lord Ahmad of Wimbledon]

My Lords, I am sure that there are instances where that is the case. For completeness, it may be appropriate if I write to the noble Earl on that specific point. However, I assume that appeals procedures are available to parish councils to take forward where orders are not adhered to.

[Lord Greaves]

My Lords, I thank the Minister for his reply and should be grateful to receive a copy of his letter to the noble Earl. It may be that what is now required is for the NALC to circulate to its member councils the fact that there is a need and a requirement for them to start to demand their rights from higher authorities. However, I am very grateful for the Minister’s care in setting out the details and, on that basis, I beg leave to withdraw the amendment.

Amendment 60D withdrawn.

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Moved by

[Lord Greaves]

61: Clause 13, page 15, line 26, after “must” insert—
“(a) ”

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[Lord Greaves]

My Lords, I shall speak also to Amendments 62 and 63. This group also contains a couple of amendments in the name of the noble Lord, Lord McKenzie. I shall refer to them in passing, although I shall wait for him to speak to them.

Clauses 13, 14 and 15 take us on to a new area in the Bill: the registration of town and village greens. These clauses refer to Section 15 of the Commons Act 2006, and some of us have fond memories of the passage of that legislation through your Lordships’ House.

Clause 13 inserts new Sections 15A and 15B into the Commons Act. Section 15 refers to the registration of town and village greens which exist—or which people claim exist—but which are not yet registered. It sets out the procedure for registration and that takes place through the commons registration regulations by commons registration authorities, which are local authorities in two-tier areas—now county councils.

Before we can understand any of these amendments or clauses we need to understand town and village greens and their registration. They are areas of land that may or may not be registered—most of them are now registered—in the commons register, and they confer on local people the right to informal recreation on that land. They are also open spaces. That common law right was codified in the Commons Registration Act 1965 and again in the Commons Act 2006.

Clause 13 brings in a new right for a landowner to bring to an end a period in which people have had rights to take part in informal recreation on that land. A piece of land can be registered as a town or village green under certain conditions: first, if people have used it for 20 years—usually continuously, but, basically, for 20 years; and secondly, if they have used it for lawful sports and pastimes—in other words, informal recreation—as of right as opposed to by right. That sounds legalistic and obscure but “as of right” means that they have not been stopped from using it; they have not used force; they have not used it secretly, having sneaked on there at two o’clock in the morning and kicked a ball about and left before anyone saw them; and they have not had permission. All those matters are crucial. If the owner of the land gives people permission by putting a sign up saying, “Ball games allowed”, that negates the ability to register it as a green. It is an ancient right and it is closely prescribed by those requirements.

If a piece of land has been used in that way without any of those conditions applying for 20 years or more, it can be registered as a green. It is very important to understand that if that happens, it is not being created as a green; it is simply recognising the legal fact that, under the old common law and under the Commons Act, where it has been codified, it is a green. It is a matter of fact. It is quite different from planning permission, which is a matter of saying, “Given the circumstances of that land and given all the planning laws and regulations, is it a good idea for that planning permission to be given?”. For example, it is very different from a designation as a piece of new green space under the new designation in the NPPF, where it is a matter of opinion as to whether that is a good idea or not. Either it is a green or it is not a green. That is why the process of registration often seems fairly bureaucratic, legalistic and long-winded.

Within the 20-year period, an owner can simply prevent the area ever being registered as a green by stopping people or by giving permission to people, whichever he wants to do. Clause 13 brings in a new right for a landowner to bring to an end the possibility of it being registered as a green—in other words, to bring to an end the period in which lawful pastimes can take place on it—by making a statement to a commons registration authority. In future, even if it has been used for more than 20 years or since the 15th century, it cannot be registered as a green.

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[Baroness Hanham]

My Lords, in responding to the noble Lords, Lord Greaves and Lord McKenzie, it may be helpful if I briefly set out why we are reforming the system for registering town and village greens. This explanation will take us through to the next group of amendments. In short, the reforms are needed to prevent the greens registration scheme being used to stop or delay planned development decided through the democratically accountable planning system. The changes will also protect the ability of local communities to promote or support development in their areas through consultation and decision-taking on planning applications and local and neighbourhood plans. Another aim is to reduce the financial burden on local authorities in considering green applications, and the costs to landowners whose land is affected by these applications.

Clause 13 inserts new Section 15A into the Commons Act 2006 which allows a landowner in England to deposit a statement and map with the commons registration authority, the effect of which is to bring to an end any period of use “as of right” for lawful sports and pastimes on that land. The noble Lord, Lord Greaves, very expertly went through what lies behind this clause. I will briefly say that under the current system, if landowners want to protect their land from town or village green registration, they may erect fences and/or notices to physically prevent access to the land. However, the courts have ruled that even taking such steps does not necessarily bring to an end any use “as of right”, in particular where fences or notices are not maintained in the event of damage or removal. Clause 13 will allow landowners to achieve the aim of ending use “as of right” through the submission of a statement. We hope that this reform will encourage landowners to allow recreational use of their land, safe in the knowledge that they can prevent the registration of their land as a green. That will then be of benefit to those who use the land, as well as to landowners.

The noble Lord, Lord Greaves, tabled Amendments 61, 62 and 63. As he explained, their intention is to ensure that, where a landowner makes a statement, notice is given to local people and other interested parties so that they are aware that the clock is ticking on the time that is available for making a town or village green application. Amendments 63A and 63B, tabled by the noble Lord, Lord McKenzie, would require that publicising the deposit of a statement should be mandatory.

In line with the statements made by the honourable Member for Sevenoaks in the other place, I offer the Committee the reassurance that we intend that, where a landowner statement is deposited with a commons registration authority, the authority will be required to publicise it. This will ensure that local people and other interested parties are made aware of the fact that a statement has been deposited. We intend to use the power to make regulations, set out in subsection (6) of new Section 15A, to make publication of the statement one of the steps that an authority must take when the statement has been deposited.

It is our view that the specific publicity requirements are best set out in regulations; it is not necessary to include such detail in the Bill. However, my officials will draw up those regulations in close consultation with key interested parties, including the Open Spaces Society and the Association of Commons Registration Authorities. The regulations will require that commons registration authorities take appropriate steps to ensure that local people and other interested parties are made aware of the fact that a landowner statement has been deposited.

Amendment 63 would ensure that a landowner statement under this clause cannot be made until regulations prescribing the detail of the process under subsection (6) have come into effect. However, there is already provision for Clause 13 and those regulations to come into effect at the same time. The commencement provisions in Clause 31 provide that the Government can commence Clause 13 at an appointed time, and I reassure the Committee that the reason that the clause will be commenced in this way rather than on a set date is to ensure that these provisions are not commenced until regulations are finalised. I hope that, with those reassurances, noble Lords will not press their amendments.

[Lord Greaves]

My Lords, I am grateful for that detailed response and for the Minister’s comments. I am also grateful to her for referring to Amendment 63, which I forgot to speak to. I thought that I had spoken long enough—and I am sure that the Committee did, too. That is my excuse, anyway. What the Minister said is exactly what my amendment would do, so I am very happy not to press it.

On the publishing of information when a statement is deposited with a commons registration authority, I think that the Minister’s response fitted the bill and that her assurance was okay. We will look at the regulations when they come out and, if they do not say what the Minister has just said, she will have to explain why—but I am sure that they will.

The only point I will make is that it is very important that the publishing of the fact that a statement has been made should be sufficiently local. Some commons registration authorities are big unitary authorities such as Northumberland or Cornwall, or big counties such as North Yorkshire or Lancashire. Simply publishing statements centrally or on a website will not get to the people who are using a piece of land in a village or town. It is very important that publication is sufficiently local so that somebody will pick it up and pass it on. With that comment, I am pleased to beg leave to withdraw the amendment.

Amendment 61 withdrawn.