Neighbourhood Planning Bill

Debate between Lord Shinkwin and Baroness Andrews

Committee: 2nd sitting (Hansard): House of Lords
Thursday 2nd February 2017 Grand Committee

[Baroness Andrews]

I would quite like to speak to the other amendments, if I may, and welcome the Minister in the name of my noble friend. What we are looking at in these amendments is something rather more radical than somebody tacking on to the development plans some fundamental issues such as housing affordability and so on. It invites us to revisit the local development plans. The point about the elements that have been identified, including flood protection, which is more and more of an issue, is that they are exactly the elements that should inform and drive the shape of the local development plan. They are not accidental outcomes—they should be shaping the quality and priorities and the relationship between the local development plan and the local economic plan, led by the LEP. So those additions, as identified, would give us a better opportunity to imagine the sort of communities that we want and give us proper inputs to create a more robust as well as more creative local development plan, which at the moment is very remote from most people. So the only people who tend to get involved in this protracted and complicated process tend to be those who already know the process and have something specific that they want to say.

I turn to Amendment 19 in the name of the noble Lord, Lord Bourne, to say how much I welcome it and say a few more things, if the Committee will bear with me. This is a really important step forward, but I have some concerns about it, which I want to raise with the Minister. I may be wrong, and I would be happy to be corrected, but this is the first time when the challenges of ageing in terms of housing needs for elderly and disabled people have been recognised in primary legislation. Many of us have been working to that end for quite some years, and seeing it in this Bill is extremely welcome. I look forward very much to following it through with the noble Lord. I would be interested to know why it is felt to be the right move at this time.

My concern is whether it will meet the challenges of an ageing society. I am anticipating much of what the Minister may say, I suspect, but my caveats start here. One of the most predictable things in policy-making is demography; we have known about the demography of the ageing society for 30 or 40 years and known about the impacts. What we have done essentially is to fail to plan for it, because it is in the “too difficult” box—and now it has caught up with us and it is pretty monstrous. We were told in evidence to our Select Committee on the National Policy for the Built Environment that in 20 years’ time, by 2037,

“the number aged between 70 and 80 will grow from 4.5 million to 7.5 million”.

That is another 3 million elderly people. This winter we have seen just in the past three or four months the impact of winter on A&E and the health service in general, and it is clear to me and to many others that we have a model for funding and organisation of the health service that is unsustainable.

The resources that we have, and the conversations that must lead to action, are the ones for housing. What we are debating here is essentially not about housing but about the front line of the health service, and how and where and under what conditions elderly and disabled people live is becoming a prime order question for healthcare and social care policy and not just about finding a housing solution. In another context, we know that 60% of total household growth in England up to 2033 is expected to come from households headed by someone aged 65 or over, and many of them will have disabilities that come with age. Most people want to age in place and live and die at home—and that is part of the responsibility of government. Only 2% of the country’s housing stock is in retirement housing.

In addition, the amendment reflects the responsibility that the Government feel that they have to provide for children, as well as adults with disability; it recognises those needs. But it is really beyond time. We were told in our Select Committee—I keep quoting it; I am conscious of that—that,

“only 4% of the current housing stock met basic accessibility criteria”.

That is a shockingly low figure.

In the context of the amendment and what I have just said, does the guidance recognise that changes are required not only in the amount of specific and specialised accommodation across the range of healthcare and housing needs for elderly people, but also in relation to the need to plan for the housing of elderly people as a whole in housing supply policy? I would argue that we are not providing niche market housing. We should be planning as a whole for an elderly and ageing society. That is the only way to build in foresight and anticipate the needs of the future, and it is the only way to create a national housing policy.

Can the Minister therefore ensure that the guidance that he is planning will make explicit the economic and social argument across health and social care? Local authorities have to know that this is an urgent need, but that it would also help them to hit their other policy objectives. They need to know that it is not only economically efficient but also socially efficient, in terms of health and social care. Frankly, if I were in charge of all this, I would prioritise the handyman services, so that you could get the adaptations—in the homes that need them—that keep people out of hospital or get them home more safely and quickly.

Will he also recommend—and this is in the guidance—that all new homes are built to lifetime home standards, so that everyone has the chance to stay where they are? We were working, in 2008, towards a mandatory standard. I understand the political changes that have driven a more deregulatory agenda, but we now have optional standards. However, since 2004 places such as London have adopted a universal lifetime home standard that has been extremely successful. It is compulsory and has led to a significant increase in provision, and there seems to be no evidence that it is a deterrent because of extra costs.

My second set of questions—I will try to be brief—is also about the context of this amendment. In relation to the NPPF and local development and neighbourhood plans, I feel that this is putting the cart before the horse. Although the cart is very welcome, I would like to see the horse involved. My fundamental question is whether we can count on this planning guidance to achieve the changes that we need in what local authorities are going to plan for and secure. Current planning policy requires authorities to plan for housing for older people. McCarthy and Stone—with which the Minister will be familiar, and one of the biggest builders of retirement housing in the country—told a CLG Select Committee on housing in 2014 that 65% of planning applications for buildings for older people are rejected first time round by councils, and went on to say that measures around the need for local authorities to plan for demographic change were neither clear enough nor likely to be powerfully enforced in their current form.

I am sorry that the noble Lord, Lord Best, is not in his place because he has been a great inspiration behind this. We put forward a recommendation by the All-Party Group on Housing and Care some time ago—I think it would be welcomed by local authorities and providers—that the NPPF itself be strengthened and made clearer in relation to planning for an ageing society. That would be wise, because the references in the NPPF are rather vague and insubstantial. It says, in paragraphs 50 and 159, that local planning authorities should,

“plan for a mix of housing based on current and future demographic trends, market trends and the needs of different groups in the community (such as, but not limited to, families with children, older people, people with disabilities, service families and people wishing to build their own homes)”.

I do not think that that is enough in the light of what we are facing and need to do. The Minister has an opportunity to do it because the NPPF is under review. Can he tell us whether the issue has surfaced in the review and the consultations; whether the DCLG is looking at strengthening those sections of the NPPF; and, if not, whether he will commit to looking at how it might be done? There will be no better opportunity.

I have a final comment on the next stage, the local development plan. In relation to the earlier amendments and the identification of things that might go into local development plans, which I support, the point is that this is guidance. It would be entirely logical for it to be in the development plan, so that the guidance had some attachments to it: for example, to set ambitions for lifetime homes. Would the Minister be prepared to meet me, with his officials, to talk about whether this is a possibility and how it might be done?

Turning to the guidance, I have some specific questions. Can the Minister give me some examples of the tone and nature of the guidance, and the degree of detail that we might expect? For example, would he include guidance on how best local authorities might assess our present and future needs, and the range of those needs? Will there be a specific requirement to plan within the housing supply targets at local and neighbourhood level? Will there be specific guidance on how to assess the financial viability of, and benefits from, investments in lifetime homes standards? Where will local authorities go to get the best advice? Will there be advice on how best to link planning with social care and health, and achieve genuine collaboration on setting targets? What provision will there be for consultation with older people about getting a home that they say is the right size for them—usually a smaller home—since “right sizing” is a better term than “downsizing”? Will the Minister ensure that the guidance goes to those dealing with both local and neighbourhood planning? And how will he ensure that this guidance is followed and implemented, which is the only question that really counts? Will he take advice from agencies such as Age Concern, as well as from Habinteg, FirstStop, Berkeley homes and McCarthy & Stone? There are lots of people who know about how to deliver this properly.

I have gone on quite long enough and I think that the Minister will get the message. I look forward very much to seeing the guidance, and I wonder when we will have it. I presume that in the housing White Paper, which we are looking forward to so much and on which the Minister has already given many hostages to fortune, we will have something on this as well.

[Lord Shinkwin (Con)]

My Lords, I too want to speak in support of Amendment 19, which I welcome enthusiastically for two reasons. First, I believe that it signals important progress for the Government to propose their own amendment specifying that the Secretary of State must issue guidance which requires local planning authorities to,

“address housing needs that result from old age or disability”.

This is surely common sense. On the one hand, as the noble Baroness, Lady Andrews, has already argued very persuasively, demographics show that we are an increasingly ageing society. On the other hand, thanks to the Disability Discrimination Act 1995 and subsequent disability rights legislation passed by your Lordships’ House, disabled people increasingly, and rightly, want and expect to be able to live independently. The supply of more accessible housing is essential to them realising that goal.

Therefore, it makes sense to plan for the future now, in the present. This amendment simply reflects that reality. However, in my view, it does more than that, which is my second reason for welcoming it. It also has real symbolic—even radical, as the noble Baroness said—significance because it underlines the importance of inclusion not just on paper but in practice and, crucially, on an anticipatory basis.