Public Bodies Bill [HL]

Lord Judd Excerpts

Monday 7th March 2011 Lords Chamber

Moved by

[Lord Judd]

70: Schedule 3, page 18, line 21, leave out “Broads Authority.”

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[Lord Judd]

My Lords, I am not quite sure what has happened to the noble Lord, Lord Greaves. I hope that nothing awful has happened to him at the hands of the hard men of the coalition.

[The Parliamentary Under-Secretary of State, Department for Environment, Food and Rural Affairs (Lord Henley)]

I assure the noble Lord that the hard men have done nothing. All I am advised is that he is ill.

[Lord Judd]

In the noble Lord’s absence, I beg leave to move this amendment and to speak to its group. I should perhaps remind the Committee of my interests: I am a vice-president of Campaign for National Parks and president of the Friends of the Lake District, an area that includes a very fine national park. At the outset, I shall say a word on why the parks matter, because this amendment is not free-standing but relates to their purpose. In our stressed society, many would argue that the parks have become more important than ever as a place for spiritual and physical renewal. They also have a tremendous contribution to make in the sphere of biodiversity and, potentially, a significant part to play in combating carbon pollution and all the rest.

We have yet to hear why the inclusion of national parks authorities and the Broads Authority in this Bill is either appropriate or necessary. The suggestion that their inclusion is to give them more flexibility in operating does not, frankly, sit comfortably with the extent of ministerial diktat that the Bill will provide. Most of the provisions are, in any case, unnecessary given the flexibility that already exists within the Local Government Acts and Part 8 of the Natural Environment and Rural Communities Act 2006—or NERC, as it is known—on administrative arrangements. National parks authorities and the Broads Authority are, as they were originally described, special-purpose local authorities, but this level of intrusion by the national Government of the day threatens to undermine their independence. This group of amendments would remove national parks authorities and the Broads Authority from the Bill and, I assure the Committee, therefore have widespread support.

Clause 3 appears to give Ministers the power to change many aspects of how national parks authorities work, including their name, their accountability to Ministers, their powers to employ staff, the number of members, the procedures for member appointment and, indeed, the appointment of the chair. The concern reflected in these amendments is about the extent of the power that would be given to Ministers to alter the composition of those authorities and the Broads Authority. Defra has linked this clause to the current consultation on the governance of national parks authorities, which aims to improve their local accountability. However, the consultation is based on six simple, open questions and, until we have a clear picture of the response to them, it is surely not possible to propose what, if any, constitutional changes might be right. Indeed, including such far-reaching provisions in the Bill to deliver outcomes that have not yet been established is, I suggest, obviously premature.

Schedule 3 does not seem necessary given the flexibility that already exists in Part 8 of the NERC Act 2006. If, as I gather Defra has suggested, the intention is to provide greater flexibility for amending the membership of the Broads Authority, only that authority should be mentioned and only in relation to the specific issue of membership, not the wide range of constitutional issues listed in Clause 3.

Clause 5 gives the Minister the power to transfer the national parks authorities’ functions to an eligible person or to modify those functions by order. In practice, that would mean that, if a national park authority or the Broads Authority upset the Minister of the day through its planning decisions, the Minister could order that authority to transfer its land-use planning functions to the department, to another local authority or to a company limited by guarantee and so on. This would mean that the authorities would be constantly living with the potential threat of having powers taken away in the event of an unpopular decision, but one that would be right in terms of the purposes of the parks. That would inevitably have consequences for their freedom to operate, their willingness to innovate and, potentially, the robustness of their decision-making.

At this point I should put a question to the Minister: how do the Government value the three provisions in relation to the functions of the national parks authorities and the Broads Authority—statutory functions, such as the land-use planning functions and other detailed matters such as the making of tree preservation orders, and any function, statutory or discretionary, that the authority might undertake to deliver its statutory purposes? Those purposes are set out in Section 5 of the National Parks and Access to the Countryside Act 1949. They are,

“conserving and enhancing the natural beauty, wildlife and cultural heritage”,

and,

“promoting opportunities for the understanding and enjoyment of the special qualities of those areas by the public”.

There is of course an additional purpose where the Broads are concerned, relating to navigation. I suggest that it is highly disturbing that under the terms of the Bill Ministers could change the purposes for which national parks and the Broads have been designated by order rather than through primary legislation. That is a significant and sweeping proposal.

Clause 6 gives the Minister the power to make provision by order to authorise the national park authority or the Broads Authority to delegate some or all of its functions to an eligible person, including another local authority, a company limited by guarantee or the Minister himself. While this does not explicitly relate to an authority’s planning function, it is rather hard to imagine what else it could be about. National parks authorities and the Broads Authority can currently choose to enter into agency agreements with other authorities on the delivery of their development control function, as is happening in the newly established South Downs National Park. This arrangement ensures that the authority remains ultimately responsible for the delivery of the development control function and that it is able to monitor and, where necessary, amend arrangements so that they do not prejudice the delivery of park purposes. Full delegation would not give it the same ability to monitor arrangements, as it would be delegating responsibility for them to another body. Significantly, the transfer parts of Schedule 5 and all of Schedule 6 can already be achieved using Part 8 of the NERC Act. Unlike under Clause 5(1)(b), a transfer could be done then only with the agreement of the authority.

Clause 8 requires Ministers to have regard to various objectives in considering whether to make an order under Sections 1 to 6. Surely, if we ever have this clause, it ought to require Ministers to be able to demonstrate that these objectives will be met, rather than merely having regard to them.

I have had all sorts of reassurances from Ministers about their intentions and their commitment to the parks and I genuinely believe that what they are saying is what they believe. I respect them for that, but I suggest that it is unfortunate that the parks and the Broads Authority were brought within the Bill, as they have an immensely important role to fulfil. I see some noble Lords present who from time to time have had quite acute criticisms of the parks, but those criticisms can be taken up with the park authorities as they stand and are established. I ask the Minister to consider seriously the intention of these amendments and I hope that what he says tonight will meet some of the concerns that I have expressed. I beg to move.

[Lord Maclennan of Rogart]

My Lords, my noble friend Lord Greaves, from his bed of sickness, asked me to intervene in this debate to make a few points. The noble Lord, Lord Judd, has made many of those points, which will inevitably shorten the remarks that I feel obliged to make. In a sense, I will underline the principles that he raised.

The first question that I put to the Minister is: how are we and those who care about the national parks to divine what the coalition Government seek to achieve by the inclusion of the national parks authorities in Schedules 3, 5 and 6? The coalition agreement indicated:

“We will review the governance arrangements of National Parks in order to increase local accountability”.

At the time, that was taken to mean considering the possibility of the direct election of the indirectly appointed council members of the national parks authorities, although that was not made explicit. However, that is what the authorities considered that it indicated.

The second issue, which was referred to by the noble Lord, Lord Judd, is about the Defra consultation. The consultation asked six questions, but those questions did not bring great clarity to what the Government had in mind by including them in the consultation. They were very open questions about whether the membership of the authorities should be changed and whether the process for selection could be improved. There was certainly no reference to direct election in place of indirect election from the local authorities. I understand that the consultation is now complete and the answers were submitted to the Government on 1 February. It would be of interest to know what the Government’s response to that process is and what conclusions they have drawn from the submissions that have been made.

The third issue is to discover which powers and functions of the national parks authorities the Government have in mind to alter and in what way. The national parks authorities are essentially hybrids: they are partly quangos but they have local authority functions, including particularly powerful functions in respect of planning and development, which could be and are exercised by local authorities in other parts of the country. This raises the question of how any change would have the effect of devolving more powers to the localities if what the Government seek is more influence over the direction of decision-making.

It may be thought that the powers already exist to provide for greater flexibility through the Natural Environment and Rural Communities Act 2006, which the noble Lord, Lord Judd, also referred to. The Act specifically provides for flexible administrative arrangements for designated bodies, including the national parks authorities. Consequently, it appears that the only reason why this measure might be considered necessary, and for including these authorities in the Bill, is that the approval of the Secretary of State is not sufficient under the 2006 Act. The proposals must be approved by the national parks authorities. On the face if it, this looks as though it is a direct transfer of authority to the Secretary of State. That may not be the intention, but we need to hear what the Government have in mind.

It is clear that there is already grave disquiet among the national parks authorities about the inclusion of this provision in the Bill. Many of the friends organisations, those who live in the national parks and some who are employed by the authorities are considerably concerned about it. If the Government are not able to give a precise indication of the purposes of this inclusion in terms of restructuring, I predict that there could be a considerable backlash from the public. I do not say that it will necessarily be on the scale of that aroused by the forestry provisions, but no one should underestimate the regard and affection felt by many people for the national parks, not only by those living in and depending on the organisation and management of the national parks but by those who see them as an important escape from the pressures of life. Those people are deeply concerned that the 9.3 per cent of our country that is included in the 10 national parks in England should be maintained with its heritage, beauty, natural conservation and many of the other fortunate happenings in these areas. I hope that the Minister will reply to these questions, which certainly exercise many people around the country.

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I hope that, with those explanations, the noble Lord will feel able, possibly after consulting the noble Lord, Lord Greaves, if he is in communication with him on his sickbed, to withdraw his amendment at this stage.

[Lord Judd]

My Lords, first, I thank everyone who has participated in this very interesting debate, not least the Minister for his reply. It has been good, in particular, to have the full-hearted support of those on my own Front Bench. I thank them very much for that.

I must say that if we wanted an indication of the quality and significance of the parks, to which noble Lords have already referred, it was epitomised by the noble Lord, Lord Cameron, when he talked about the coincidence between his arrival into the world and the creation of the parks. It is good to have him on side as well.

I am also very grateful to the noble Lord, Lord Maclennan, who referred to the strength of feeling among the public about the importance of the parks. Indeed, in every survey of public opinion, a very large majority of the population has said how much it believes the parks matter. That places a heavy responsibility on all of us.

The noble Lord, Lord Deben, introduced some very important points and did so very reasonably. Of course, ultimately, the Secretary of State has responsibilities for things that happen in his sphere, but the noble Lord also said that this should be decentralised as far as possible. That is the balance that has to be struck. As always in these things, this is not just about the words but about the driving energy behind it all. I ask the Minister to accept—I think he has recognised this—that there is a real anxiety that this could give an awful lot of power to Ministers with very few checks and balances. That issue still has to be addressed, and I really would be grateful if the Minister could come back on Report with more specific proposals on how that anxiety could be met.

[Lord Henley]

It might assist the noble Lord if I remind him of the timing of this Bill. I do not think that we will get to this bit of Report until after Easter. We will certainly have completed the consultation, and will therefore have made one or two noises, if I can put it in those terms, between this stage of the Bill and the next stage. That is on the understanding that we have the usual two weeks between stages, depending on when the Bill finishes. However many days we have on Report, I do not think, as I said, that we will get to this bit of the Bill much before or much after Easter.

[Lord Judd]

Those are encouraging words indeed from the Minister. Indeed, his noble friend, who has been leading on this Bill, has made similarly encouraging remarks to me outside the Chamber. We wait to see what happens, but the more that can specifically be said to meet the outcome of the consultation the better.

I was going to make the point that the parks authorities are in a sense trustees of this very special inheritance of the nation, and trustees should be independent and should feel able to be independent. They have the job of striking a balance between the communities who live in the parks and the national interest, because the parks are national parks for the enjoyment and regeneration of the population of the nation as a whole. It is a balance to be struck and the park authorities, in their independence as trustees, are well placed to do that. It is free of the hurly-burly of political considerations as they come up tactically, not least towards election times and things of this sort.

My anxiety is not that we will wake up one day and find that the parks have gone but that my grandsons may come to inherit a sort of rather nice home county as distinct from the national park as it should and could be. In my view, if we take the spiritual needs and the needs of a stressed and hard-working nation seriously, the national parks should be a place of contrast. The job of the trustees is to keep that contrast and not just to turn it into an extension of suburban Britain.

In thanking those who have participated, I should also say that it was good to have the special knowledge of my noble friend Lord Berkeley. I want to demonstrate to the noble Lord, Lord Deben, among others, how seriously I take this point. I am a great admirer of the national parks in the United States. They are very exciting, fine places, which have survived different administrations, but they are wildernesses. We have a much more difficult and delicate task because ours have living communities in them and the situation is not the same. I would argue therefore paradoxically that that is why trustees with independence in the form of the park authorities are so important so that they can make their judgments as objectively as possible.

I thank all those who have participated and the Minister for his response, which, I dare to say, was encouraging. I look forward to what he will be able to say at later stages when the consultation is complete. I beg leave to withdraw the amendment.

Amendment 70 withdrawn.