Levelling-up and Regeneration Bill (Seventeenth sitting)
Debate between Marcus Jones and Alex NorrisTuesday 19th July 2022
(1 year, 11 months ago)
Public Bill CommitteesRead Full debate Levelling-up and Regeneration Act 2023 View all Levelling-up and Regeneration Act 2023 Debates Read Hansard Text Read Debate Ministerial Extracts Amendment Paper: Public Bill Committee Amendments as at 19 July 2022 - (19 Jul 2022)
Alex Norris (Nottingham North) (Lab/Co-op)
I beg to move amendment 64, in clause 92, page 97, line 31, leave out “desirability” and insert “duty”.
This amendment would clarify that the planning authority has a duty to have special regard in planning permission decisions for preserving or enhancing heritage assets or their settings.
It is a pleasure to serve with you in the Chair, Sir Mark. We have now reached chapter 3 of part 3 of the Bill, which relates to heritage. Britain’s incredible heritage is one of our best assets, and is loved universally by our constituents. The debate is well-timed, as this year the world celebrates the 50th anniversary of the UNESCO world heritage convention, the most significant feature of which is the linking together in one place of the concepts of nature, conservation and the preservation of cultural properties. This is the international convention under which sites of outstanding universal value to all people are inscribed as world heritage sites. Parliament ratified the convention in 1984, so I think it is widely believed by the public that our 30 sites in Britain that are inscribed on the world heritage list have strong statutory protection, meaning they cannot be harmed and that there must be engagement to actively conserve them so that they can be better enjoyed and understood. However, this is not quite so.
It is a shame that the draft Heritage Protection Bill in 2010 never got further than it did; its progress was impeded and it was never replaced, leaving gaps and weaknesses in the preservation of world heritage sites. As a result, the historic environment has remained a subsidiary consideration in the planning rules and regulations that govern development work, which can so often impinge on our irreplaceable cultural heritage sites. The protection of archaeological sites with no current designation continues to hang in the balance, not to mention the buried historic environment, which has no designation and includes the vast majority of prehistoric to early medieval archaeology in this country.
While it is mainly professional archaeologists who are aware of and interested in the irretrievable loss of such buried heritage, the consequences of the lack of specific heritage protection for standing buildings and monuments is immediately visible to all. We have some relatable and understandable examples in this country: UNESCO has made clear that the Stonehenge, Avebury and associated sites, which were originally inscribed in 1986, could face delisting in the face of the plans for development around that site; and we have seen in Liverpool that when development is not sympathetic to a heritage site it can lead to delisting. Local authorities need the tools to make sure they develop their areas sympathetically.
Having engaged with the heritage profession, I know it welcomes the enhanced protection that clause 92 will introduce, although thinks that the categories could be wider, as we will discuss in subsequent amendments. However, there is concern among heritage professionals, such as those on the RESCUE Council at the British Archaeological Trust, that the use of the word “desirability” in clause 92 does not sufficiently reflect a duty on planning decision makers to have special regard to preserving or enhancing heritage sites and monuments, or their settings. The word “desirability” suggests that that duty would be a conditional or subjective judgment based on balances of other features of development. This could lead to a situation where developers argue that conservation is inconvenient or too challenging, and that their own interests ought to take precedence, as they do under current legal arrangements. That is what has happened in the case of the Liverpool site.
I am keen to test this with the Minister. I am largely aiming to probe with this amendment, but it is arguable that the current wording would not give protection to, for example, Stonehenge, whose delisting would be a real problem for all of us. I hope to hear from the Minister that the fear is misplaced and that the Government’s understanding is that the language in the Bill will have the same effect as I am seeking. Amendment 64 is simple: it swaps the word “desirability” to “duty” to strengthen the wording in the Bill and to take away some ambiguity. I hope that the Minister can establish that and is minded to agree on at least the substance, if not on the granular point.
The Minister of State, Department for Levelling Up, Housing and Communities (Mr Marcus Jones)
It is a pleasure to serve under your chairmanship once again, Sir Mark.
The purpose of clause 92 is to introduce a similar legislative duty for other types of heritage asset to the one that already exists for listed buildings and conservation areas. Amendment 64 would replace “desirability” with “duty”. The specific wording used in the clause is not new; it is taken directly from the existing duties for listed buildings and conservation areas in sections 66(1) and 72(1) of the Planning (Listed Buildings and Conservation Areas) Act 1990.
Those duties have been in place for many years, and are well established and well understood. The courts have confirmed that those duties to have special regard provide important protections. They require decision makers to give considerable importance and weight to the desirability of preserving or enhancing heritage assets. The intention behind clause 92 is to put other types of heritage asset in a similar position. I hope that the hon. Member takes that into account. In my considered view, the amendment is not required and we do not need to change the duty that has worked well to date. I hope I have provided sufficient reassurance for him to withdraw his amendment.
Alex Norris
I congratulate my hon. Friend the Member for York Central on amendment 128. It is very thoughtful, as was the case that she made for it. In the next group we are going to talk a bit more about the importance of social history, so I will save a few points for later, but I do want to reflect on the point about significance and developing significance.
We know, as I said on opening in the previous group, that our constituents and people in this country generally feel strongly about their culture and their heritage assets. They want our generation and all subsequent generations to be custodians of those assets. We have a duty to bring them to the fore, develop them and to have them in the way that they can be best enjoyed because they are a core part of our identity, our culture and our history—both the easy and the less easy bits to talk about. They are such an integral part of our story that people feel strongly about them. There is a duty to enhance the significance of a particular asset, so that those jewels—diamonds in the rough, perhaps—are not laid there and just ignored for generations and generations, getting harder to bring to the fore. It would only be a good thing to put that in the Bill.
Mr Jones
Clause 92 introduces a new statutory duty for
“the local planning authority or (as the case may be) the Secretary of State”
to
“have special regard to the desirability of preserving or enhancing”
scheduled monuments, protected wreck sites, registered parks and gardens, registered battlefields, world heritage sites, and their settings when considering whether to grant planning permission or permission in principle for the development of land in England which affects them. Clause 92 provides that
“preserving or enhancing a relevant asset or its setting includes preserving or enhancing any feature, quality or characteristic of the asset or setting that contributes to the significance of the asset.”
The significance of each asset is set out in the Bill, so the hon. Member for York Central should be reassured that the consideration of the significance of our heritage assets forms part of this new duty.
While I appreciate that the concept of significance is crucial to the protection of designated heritage assets within the national planning policy framework, the amendment is not necessary, as the issue of significance is already addressed in the legislation. For those reasons, we cannot accept the amendment, and I hope that on the basis of my explanation the hon. Member will withdraw it.
Alex Norris
It is a pleasure to speak to these two thoughtful and very good amendments. I do not think anywhere has a richer social history than Nottingham, so amendment 136 feels very close to home.
In 1642, at the beginning of the civil war, Charles I raised his standard in Nottingham, at what is now called Standard hill. That was not met with an awful lot of enthusiasm from the people of Nottingham, so when the civil war had finished the castle that he had sought to make his base was torn down. It was rebuilt a little later, and was then burned down 200 years after that during the riots relating to the second Reform Bill and the failure of Parliament to pass legislation that extended the franchise. Now we are about 200 years later than that, so I hope we are not due for that castle to once again meet an untimely demise, because we have put an awful lot of money into it through a heritage lottery fund bid.
That tells a big story about our city, as do the cheese riots, which took place because people were upset about the price of cheese—the Lord Mayor was bowled over by a big rolling cheese, according to legend. The luddite movement has its roots in Nottingham, and the first Chartist MP came from our city. Those rich and rebellious streaks are characteristic of our city’s community and social history, and they are an important part of the fabric of our memories about ourselves and those who came before us.
The point is true across the country, particularly in relation to the industrial revolution, which birthed the trade union movement and women’s movements. Those collective acts of thousands and thousands of ordinary people may not have big buildings, palaces or castles as obvious monuments and heritage, but they had sites that are just as important: the meeting rooms above taverns, houses, public spaces and parks where those events took place.
It is important that we understand that those places are as much a part of Britain and Britishness as the really huge and obvious monuments. The Bill should prioritise such places because they are more easily lost—it is much easier to lose the meeting room above a pub as part of a development than it is to lose a palace. We would not wish to lose either one more than the other, so including a sort of equivalence in the Bill would be a good thing.
Amendment 138 is a good idea. The hon. Member for Westmorland and Lonsdale is in good company because, as he said, UNESCO has already designated the Lake district a world heritage site. Putting the Bill on the same footing would give it strength and send a clear signal to developers, planners and all those interested in heritage that we consider such places to be clear and obvious assets. They may not be as obvious as a single building in a single place, but they ought to be treated just as well. I commend the amendments and the Members who tabled them.
Mr Jones
Clause 92 provides additional legislative protection in the planning system to the list of designated heritage assets that have previously been afforded protection through the national planning policy framework.
Sites of significant social history are important to our nation’s history. Many of them are already afforded protections in the planning process, either as designated or non-designated heritage assets. Manchester’s Free Trade Hall, for example, is a site of significant social history due to its role in the repealing of the corn laws, and it is a listed building.
The heritage assets set out in the table in the clause are all recognised historic environment designations. Amendment 136 would add a new category that is not clearly recognised as a heritage designation. There is no national list of sites of significant social history, which would, in practice, lead to arguments and legal challenges if the status of a site—whether it falls within the definition and should benefit from protection—is disputed.
Amendment 138 would add national parks and areas of outstanding natural beauty to the clause. Although I agree that those are a vital part of our nation’s environment and landscapes, the amendment would result in environmental designations that are already protected elsewhere being added to the list of protected heritage assets. They are already well protected under the Countryside and Rights of Way Act 2000, and as environmental designations in the planning system. Different regimes with conflicting protections relating to the same assets would cause confusion.
We also already have a strong set of environmental protections in the national planning policy framework. It sets out that areas of outstanding national beauty, national parks and the broads have the highest status of protection. Under our broader reforms to the planning system, the conservation and enhancement of wildlife and cultural heritage should be given great weight in development plans and planning decisions. Major development should be refused other than in exceptional circumstances. Areas of outstanding national beauty are also exempt from the presumption in favour of sustainable development.
In response to the landscapes review, the Government set out their intention to strengthen the statutory purposes of national parks and areas of outstanding natural beauty to create a clear objective to ensure that those areas deliver more for nature and are accessible to everyone. We propose to create a single set of statutory purposes for areas of outstanding natural beauty teams and national park authorities, providing a more consistent and unified statutory framework for all protected landscapes.
Alex Norris
I beg to move amendment 69, in clause 92, page 99, line 29, at end insert—
“(5) The Secretary of State must, within one year of the day on which this section comes into force, publish a report of a review of the efficacy of Local Heritage Lists and the resources local authorities have to produce them.
(6) The Secretary of State must, on the day on which this section comes into force, publish the results of the 2018 review of the non-statutory guidance on Assets of Community Value.”
The amendment proposes two new subsections to the clause, which I will deal with in turn. First, proposed new subsection (5) concerns local heritage lists, which identify heritage assets that are not protected by statutory listing designation but are of local interest. They provide a consistent and accountable way of highlighting the existence of those important assets and affording them a layer of extra protection against unwanted development. Those sites may not be the sort that bring someone from one place to visit another, but for those who live in the community, they are an integral part of the fabric of their daily lives: community centres, libraries, old town halls or pubs.
At the moment, local planning authorities have discretion on whether to develop local heritage lists, although they have very much been encouraged to do so by the Government and by bodies such as Historic England and Civic Voice. More recently, the national planning policy framework stated that local listing should be taken into account in the consideration of relevant planning applications. Additionally, some planning authorities include in their local plans policies that recognise the importance of non-designated heritage assets, so that status will be a material consideration if and when planning applications are lodged. On the face of it, the lists are a really powerful and important way of balancing the planning system and protecting the assets that communities know and love.
We welcome the fact that, in February last year, the Government announced funding of £1.5 million to support local authorities in improving, extending or updating their local heritage lists or preparing their first lists. Twenty-two areas put in successful bids. We are pleased for those areas, but this comes back to what we discussed in relation to previous clauses: another beauty parade where some authorities succeed and others do not, and in the end all are worse off because of cuts to council budgets. Given the universal importance of the local heritage lists, we want them to be put on a properly funded basis.
There is a lot in that to be optimistic about. However—and herein lies the rub, and the purpose of this element of my amendment—it is believed that only around 50% of planning authorities have a local heritage list. That means that citizens in neighbouring boroughs and districts can experience very different standards of recognition and protection of their local heritage assets. Amendment 69 would require the Government to research the extent to which local heritage lists have been developed, the quality and effectiveness of the lists, the reasons for any disparities between local authorities and some of the resource issues that underlie heritage list production.
The provision is relatively basic. It requires the Government to understand what practical effect previous legislation has had, and what practical effect the funding that they put in place is having. It would ensure a proper evaluation of local heritage lists, so that—and this is my goal—they are promoted and properly used by local communities to protect important assets, and that all people have the protection of those heritage lists in law, as they ought to. It is a problem that we do not know how many local heritage lists there are, their quality or how well they are used. This is supposed to be an important provision—where used properly, it has been—but we do not have a good sense of it. The amendment would make that much better, so I hope that the Minister is minded to agree to it.
Proposed new subsection (6) relates to assets of community value. The Localism Act 2011 enables community groups to ask local authorities to register properties of local importance as assets of community value. Many valued premises—the subsection has pubs in mind—have been successfully nominated. That is in no small part thanks to the work and activism of members of the Campaign for Real Ale who, around the country, have made great efforts to ensure that important assets have been registered as assets of community value, because that gives a distinct importance and protection to local communities.
If the owner of an ACV listed property wishes to sell it, in normal circumstances the community group can lodge a bid, triggering a six-month moratorium during which no other sale can take place. That gives them a right to bid and has no doubt been a factor in the growth of community-owned pubs, up from 56 in 2017 to 179 today and rising. We can do much better than that. Colleagues may have seen announcements in recent days from the Opposition about how we will do that in future, although we are likely to need a general election rather than pass primary legislation to make that the case.
The 2011 Act was accompanied by non-statutory guidance from the then Department of Housing, Communities and Local Government to local authorities on the implementation of the ACV process, in particular how they should deal with nominations. It soon became apparent that parts of that guidance were unclear or ambiguous, which has led to significant disparities in the way in which authorities consider nominations. In many areas, local groups find it difficult to get their nominations accepted because of the restricted ways or lack of focus with which their local authority interprets the Act and the guidance.
The Government recognised that, because in 2018 they instituted a review of the guidance and invited interested parties to make suggestions for improving or clarifying the content. The Government have not said how many responses they received, but I know that the Campaign for Real Ale made a detailed submission highlighting some of the pitfalls. It has a good view because it works with local authorities all over the country, so were able to tell the Government the different ways in which the process operated with regards to definitions, the nomination process and the procedure for appeals.
All that is very good, but the problem is the resounding silence in the four years since. There is no indication if or when there will be action on improving the guidance and whether it will be made public. Subsection (6) is a relatively minimal ask. It just says that on the day that the measure comes into force, the Government ought to publish the results of the review. They have had them for four years. It is hard to believe that they are not ready to go. I am not sure whether the Minister was in the Department at that point, but he may recall that.
If the Minister is not minded to accept that provision in the Bill, would he give a commitment on whether the consultation is coming out or whether too much has elapsed over the last four years and it is no longer active? People put a lot of effort into the submissions to the consultation, and they deserve the finality of knowing one way or the other.
If the answer is no, the Government should want to find a way to establish assets of community value in a similar way to the local heritage list: why the system works in the way that it does, with a sober and honest assessment of whether it reflects what they were minded to do in the 2011 Act. I argue that it does not at the moment, and has created disparities, not in the form that is genuine localism, which we support, but in the form where some communities have the protection of local heritage lists and assets of community value registers and others do not. We should want to get to the bottom of that, if such provisions are to be effective.
Mr Jones
The Government recognise the need to protect historic buildings and other assets that are valued by local communities, but the national listed buildings regime protects our most special buildings. We recognise that there are many other buildings and assets which local people cherish. Planning practice guidance already encourages local planning authorities to prepare local lists of non-designated heritage assets. Those assets are protected through national planning policy, which states that the effect of an application on the significance of a non-designated heritage asset should be taken into account when determining the application.
Mr Jones
We are committed to protecting and enhancing our historic environment, which is an irreplaceable asset. Any planning decisions that impact on it should be given the utmost consideration. Generally, we consider the current planning framework for the historic environment to work well. However, through our work with stakeholders, we have identified areas in which it can be improved.
One such issue is the lack of statutory underpinning for key designated heritage assets within the planning system. The national planning policy framework defines designated heritage assets and sets policies related to their conservation and enhancement. However, planning legislation currently stipulates only that decision makers shall have special regard to the desirability of preserving listed buildings and preserving or enhancing conservation areas when exercising the planning functions specified. Clause 92 creates a similar legislative planning duty to have special regard to the preservation or enhancement of scheduled monuments, registered parks and gardens, protected wrecks, registered battlefields and world heritage sites when granting planning permissions or permission in principle.
Additionally, the existing legislation provides only for special regard to be given to the desirability of preserving listed buildings when granting planning permission or permission in principle. Clause 92 extends that to include the desirability of preserving or enhancing a listed building. Creating a statutory duty to have special regard to the desirability of preserving or enhancing these heritage assets aims to streamline the decision-making process and provide consistency between the legislative heritage planning framework and national planning policy framework.
On clause 93, under the Town and Country Planning Act 1990, local planning authorities have the power to issue temporary stop notices. The notices are a powerful tool that can be used by authorities to require that development or an activity is stopped if the planning authority thinks that there has been a breach of planning control and that it is expedient for that activity to be stopped immediately. They can use the time to investigate the suspected breach and decide what, if any, further enforcement action to take.
However, there is not an equivalent provision in the Planning (Listed Buildings and Conservation Areas) Act 1990 for unauthorised works to listed buildings in England. That means that where there are suspected unauthorised works to a listed building in England the local planning authority’s only options are to issue an enforcement notice—which will not immediately stop the works—or apply to the court for an injunction to stop the works, which is often costly. The clause creates a new power for local planning authorities to issue temporary stop notices in relation to unauthorised works to listed buildings in England if, having regard to the effect of the works on the character of the buildings as one of special architectural or historic interest, they consider it expedient that the works, or part of them, be stopped immediately. That power will allow works to be paused for up to 56 days while the facts of the case are established and the local authority decides what, if any, further action to take.
Failure to comply with a notice will be an offence with a maximum penalty of an unlimited fine. There are circumstances where compensation may be payable for any loss or damage directly attributable to the effect of the notice. Addressing the gap in local authorities’ enforcement powers in relation to listed buildings will help to protect irreplaceable assets for generations to come. I therefore commend the clause to the Committee.
Alex Norris
I am grateful to the Minister for his explanation of the clauses that complete the heritage part of the Bill. It is clear from the amendments and the debates that we have had about them that this is something that interests hon. Members and their constituents, and I believe there is broad support for this part of the Bill—the entirety of part 3 up to chapter 3. However, I want to ask the Minister a couple of questions. I will not make any further points about clause 92 because we have covered them in a previous debate.
On clause 93, we support the idea of stop notices, which would allow work to be paused for up to 56 days in order for an investigation to take place. I wonder why the Minister chose that duration. Why 56 days? What would be the effect of that? Has he or his officials spoken to the Local Government Association about whether it feels that that would be effective? The developer is entitled to compensation for delay, which will be interesting when we get to clause 95. Will the Minister tell us how that will work in practice and what local government colleagues have said about that?
On clause 94 and empty dwellings, we were not able to persuade the Minister to adopt the Welsh Government’s approach, but we are delighted to see in the clause that that is exactly what the Government have done. It will allow urgent works take place where a building is at risk from the weather, vandalism or any other neglect. That will be a good thing. It is welcome that that measure has been replicated here in England.
Finally, clause 95 governs building preservation notices. Currently, a council can add a BPN to an unlisted building that is at risk of demolition or alteration and which a council considers of special architectural or historic interest. The notices last for six months and must be accompanied by an application to Historic England for listing. The Secretary of State then has six months to decide whether to accept that, and the building is essentially listed during that period to protect it. It is a very good provision. Can the Minister say how frequently that has been used to give us a sense of the scale of the challenge ?
The clause removes compensation, but in clause 93 that is not the case. The conversation continues there. There has certainly been some interesting written evidence and direct contact with members of the Committee from different organisations from both sides, both the preservation side and the development side, saying that it is unfair that that is not the case. We can read that argument either way. I am comfortable either way, but I am interested that the Government have chosen different ways in different parts of the Bill. They are different things, so I can understand it to an extent, but they are not so different that that lack of consistency will not raise a few eyebrows. I am interested in why the Minister chose that approach.
Mr Jones
I thank the hon. Member for Nottingham North for his questions. I will first address his question on the serving of notices. As he knows, building preservation notices protect a building for up to six months while it is being considered for designation as a listed building. BPNs achieve targeted and time-limited intervention to protect buildings of such interest that are under threat, rather than the blanket protection placed on all buildings being considered for listing during that interim period, regardless of whether they are under threat. BPNs are considered an appropriate stopgap mechanism for the interim period before longer-term protections are applied, while balancing the rights of owners and property rights.
Alex Norris
The Minister has made a compelling case for clause 95—he has certainly persuaded me—but it also reads across to clause 93, so why would those measures not apply in this case?
Mr Jones
As I read it, clause 93 requires the works to stop for up to 56 days, which demonstrates consistency across both clauses. On that basis, I commend the clauses to the Committee.
Question put and agreed to.
Clause 92 accordingly ordered to stand part of the Bill.
Clauses 93 to 95 ordered to stand part of the Bill.
Clause 96
Street votes
Question proposed, That the clause stand part of the Bill.
Levelling-up and Regeneration Bill (Seventeenth sitting)
Debate between Marcus Jones and Alex NorrisTuesday 19th July 2022
(1 year, 11 months ago)
Public Bill CommitteesRead Full debate Levelling-up and Regeneration Act 2023 View all Levelling-up and Regeneration Act 2023 Debates Read Hansard Text Amendment Paper: Public Bill Committee Amendments as at 19 July 2022 - (19 Jul 2022)
Alex Norris (Nottingham North) (Lab/Co-op)
I beg to move amendment 64, in clause 92, page 97, line 31, leave out “desirability” and insert “duty”.
This amendment would clarify that the planning authority has a duty to have special regard in planning permission decisions for preserving or enhancing heritage assets or their settings.
It is a pleasure to serve with you in the Chair, Sir Mark. We have now reached chapter 3 of part 3 of the Bill, which relates to heritage. Britain’s incredible heritage is one of our best assets, and is loved universally by our constituents. The debate is well-timed, as this year the world celebrates the 50th anniversary of the UNESCO world heritage convention, the most significant feature of which is the linking together in one place of the concepts of nature, conservation and the preservation of cultural properties. This is the international convention under which sites of outstanding universal value to all people are inscribed as world heritage sites. Parliament ratified the convention in 1984, so I think it is widely believed by the public that our 30 sites in Britain that are inscribed on the world heritage list have strong statutory protection, meaning they cannot be harmed and that there must be engagement to actively conserve them so that they can be better enjoyed and understood. However, this is not quite so.
It is a shame that the draft Heritage Protection Bill in 2010 never got further than it did; its progress was impeded and it was never replaced, leaving gaps and weaknesses in the preservation of world heritage sites. As a result, the historic environment has remained a subsidiary consideration in the planning rules and regulations that govern development work, which can so often impinge on our irreplaceable cultural heritage sites. The protection of archaeological sites with no current designation continues to hang in the balance, not to mention the buried historic environment, which has no designation and includes the vast majority of prehistoric to early medieval archaeology in this country.
While it is mainly professional archaeologists who are aware of and interested in the irretrievable loss of such buried heritage, the consequences of the lack of specific heritage protection for standing buildings and monuments is immediately visible to all. We have some relatable and understandable examples in this country: UNESCO has made clear that the Stonehenge, Avebury and associated sites, which were originally inscribed in 1986, could face delisting in the face of the plans for development around that site; and we have seen in Liverpool that when development is not sympathetic to a heritage site it can lead to delisting. Local authorities need the tools to make sure they develop their areas sympathetically.
Having engaged with the heritage profession, I know it welcomes the enhanced protection that clause 92 will introduce, although thinks that the categories could be wider, as we will discuss in subsequent amendments. However, there is concern among heritage professionals, such as those on the RESCUE Council at the British Archaeological Trust, that the use of the word “desirability” in clause 92 does not sufficiently reflect a duty on planning decision makers to have special regard to preserving or enhancing heritage sites and monuments, or their settings. The word “desirability” suggests that that duty would be a conditional or subjective judgment based on balances of other features of development. This could lead to a situation where developers argue that conservation is inconvenient or too challenging, and that their own interests ought to take precedence, as they do under current legal arrangements. That is what has happened in the case of the Liverpool site.
I am keen to test this with the Minister. I am largely aiming to probe with this amendment, but it is arguable that the current wording would not give protection to, for example, Stonehenge, whose delisting would be a real problem for all of us. I hope to hear from the Minister that the fear is misplaced and that the Government’s understanding is that the language in the Bill will have the same effect as I am seeking. Amendment 64 is simple: it swaps the word “desirability” to “duty” to strengthen the wording in the Bill and to take away some ambiguity. I hope that the Minister can establish that and is minded to agree on at least the substance, if not on the granular point.
The Minister of State, Department for Levelling Up, Housing and Communities (Mr Marcus Jones)
It is a pleasure to serve under your chairmanship once again, Sir Mark.
The purpose of clause 92 is to introduce a similar legislative duty for other types of heritage asset to the one that already exists for listed buildings and conservation areas. Amendment 64 would replace “desirability” with “duty”. The specific wording used in the clause is not new; it is taken directly from the existing duties for listed buildings and conservation areas in sections 66(1) and 72(1) of the Planning (Listed Buildings and Conservation Areas) Act 1990.
Those duties have been in place for many years, and are well established and well understood. The courts have confirmed that those duties to have special regard provide important protections. They require decision makers to give considerable importance and weight to the desirability of preserving or enhancing heritage assets. The intention behind clause 92 is to put other types of heritage asset in a similar position. I hope that the hon. Member takes that into account. In my considered view, the amendment is not required and we do not need to change the duty that has worked well to date. I hope I have provided sufficient reassurance for him to withdraw his amendment.
Alex Norris
I congratulate my hon. Friend the Member for York Central on amendment 128. It is very thoughtful, as was the case that she made for it. In the next group we are going to talk a bit more about the importance of social history, so I will save a few points for later, but I do want to reflect on the point about significance and developing significance.
We know, as I said on opening in the previous group, that our constituents and people in this country generally feel strongly about their culture and their heritage assets. They want our generation and all subsequent generations to be custodians of those assets. We have a duty to bring them to the fore, develop them and to have them in the way that they can be best enjoyed because they are a core part of our identity, our culture and our history—both the easy and the less easy bits to talk about. They are such an integral part of our story that people feel strongly about them. There is a duty to enhance the significance of a particular asset, so that those jewels—diamonds in the rough, perhaps—are not laid there and just ignored for generations and generations, getting harder to bring to the fore. It would only be a good thing to put that in the Bill.
Mr Jones
Clause 92 introduces a new statutory duty for
“the local planning authority or (as the case may be) the Secretary of State”
to
“have special regard to the desirability of preserving or enhancing”
scheduled monuments, protected wreck sites, registered parks and gardens, registered battlefields, world heritage sites, and their settings when considering whether to grant planning permission or permission in principle for the development of land in England which affects them. Clause 92 provides that
“preserving or enhancing a relevant asset or its setting includes preserving or enhancing any feature, quality or characteristic of the asset or setting that contributes to the significance of the asset.”
The significance of each asset is set out in the Bill, so the hon. Member for York Central should be reassured that the consideration of the significance of our heritage assets forms part of this new duty.
While I appreciate that the concept of significance is crucial to the protection of designated heritage assets within the national planning policy framework, the amendment is not necessary, as the issue of significance is already addressed in the legislation. For those reasons, we cannot accept the amendment, and I hope that on the basis of my explanation the hon. Member will withdraw it.
Alex Norris
It is a pleasure to speak to these two thoughtful and very good amendments. I do not think anywhere has a richer social history than Nottingham, so amendment 136 feels very close to home.
In 1642, at the beginning of the civil war, Charles I raised his standard in Nottingham, at what is now called Standard hill. That was not met with an awful lot of enthusiasm from the people of Nottingham, so when the civil war had finished the castle that he had sought to make his base was torn down. It was rebuilt a little later, and was then burned down 200 years after that during the riots relating to the second Reform Bill and the failure of Parliament to pass legislation that extended the franchise. Now we are about 200 years later than that, so I hope we are not due for that castle to once again meet an untimely demise, because we have put an awful lot of money into it through a heritage lottery fund bid.
That tells a big story about our city, as do the cheese riots, which took place because people were upset about the price of cheese—the Lord Mayor was bowled over by a big rolling cheese, according to legend. The luddite movement has its roots in Nottingham, and the first Chartist MP came from our city. Those rich and rebellious streaks are characteristic of our city’s community and social history, and they are an important part of the fabric of our memories about ourselves and those who came before us.
The point is true across the country, particularly in relation to the industrial revolution, which birthed the trade union movement and women’s movements. Those collective acts of thousands and thousands of ordinary people may not have big buildings, palaces or castles as obvious monuments and heritage, but they had sites that are just as important: the meeting rooms above taverns, houses, public spaces and parks where those events took place.
It is important that we understand that those places are as much a part of Britain and Britishness as the really huge and obvious monuments. The Bill should prioritise such places because they are more easily lost—it is much easier to lose the meeting room above a pub as part of a development than it is to lose a palace. We would not wish to lose either one more than the other, so including a sort of equivalence in the Bill would be a good thing.
Amendment 138 is a good idea. The hon. Member for Westmorland and Lonsdale is in good company because, as he said, UNESCO has already designated the Lake district a world heritage site. Putting the Bill on the same footing would give it strength and send a clear signal to developers, planners and all those interested in heritage that we consider such places to be clear and obvious assets. They may not be as obvious as a single building in a single place, but they ought to be treated just as well. I commend the amendments and the Members who tabled them.
Mr Jones
Clause 92 provides additional legislative protection in the planning system to the list of designated heritage assets that have previously been afforded protection through the national planning policy framework.
Sites of significant social history are important to our nation’s history. Many of them are already afforded protections in the planning process, either as designated or non-designated heritage assets. Manchester’s Free Trade Hall, for example, is a site of significant social history due to its role in the repealing of the corn laws, and it is a listed building.
The heritage assets set out in the table in the clause are all recognised historic environment designations. Amendment 136 would add a new category that is not clearly recognised as a heritage designation. There is no national list of sites of significant social history, which would, in practice, lead to arguments and legal challenges if the status of a site—whether it falls within the definition and should benefit from protection—is disputed.
Amendment 138 would add national parks and areas of outstanding natural beauty to the clause. Although I agree that those are a vital part of our nation’s environment and landscapes, the amendment would result in environmental designations that are already protected elsewhere being added to the list of protected heritage assets. They are already well protected under the Countryside and Rights of Way Act 2000, and as environmental designations in the planning system. Different regimes with conflicting protections relating to the same assets would cause confusion.
We also already have a strong set of environmental protections in the national planning policy framework. It sets out that areas of outstanding national beauty, national parks and the broads have the highest status of protection. Under our broader reforms to the planning system, the conservation and enhancement of wildlife and cultural heritage should be given great weight in development plans and planning decisions. Major development should be refused other than in exceptional circumstances. Areas of outstanding national beauty are also exempt from the presumption in favour of sustainable development.
In response to the landscapes review, the Government set out their intention to strengthen the statutory purposes of national parks and areas of outstanding natural beauty to create a clear objective to ensure that those areas deliver more for nature and are accessible to everyone. We propose to create a single set of statutory purposes for areas of outstanding natural beauty teams and national park authorities, providing a more consistent and unified statutory framework for all protected landscapes.
Alex Norris
I beg to move amendment 69, in clause 92, page 99, line 29, at end insert—
“(5) The Secretary of State must, within one year of the day on which this section comes into force, publish a report of a review of the efficacy of Local Heritage Lists and the resources local authorities have to produce them.
(6) The Secretary of State must, on the day on which this section comes into force, publish the results of the 2018 review of the non-statutory guidance on Assets of Community Value.”
The amendment proposes two new subsections to the clause, which I will deal with in turn. First, proposed new subsection (5) concerns local heritage lists, which identify heritage assets that are not protected by statutory listing designation but are of local interest. They provide a consistent and accountable way of highlighting the existence of those important assets and affording them a layer of extra protection against unwanted development. Those sites may not be the sort that bring someone from one place to visit another, but for those who live in the community, they are an integral part of the fabric of their daily lives: community centres, libraries, old town halls or pubs.
At the moment, local planning authorities have discretion on whether to develop local heritage lists, although they have very much been encouraged to do so by the Government and by bodies such as Historic England and Civic Voice. More recently, the national planning policy framework stated that local listing should be taken into account in the consideration of relevant planning applications. Additionally, some planning authorities include in their local plans policies that recognise the importance of non-designated heritage assets, so that status will be a material consideration if and when planning applications are lodged. On the face of it, the lists are a really powerful and important way of balancing the planning system and protecting the assets that communities know and love.
We welcome the fact that, in February last year, the Government announced funding of £1.5 million to support local authorities in improving, extending or updating their local heritage lists or preparing their first lists. Twenty-two areas put in successful bids. We are pleased for those areas, but this comes back to what we discussed in relation to previous clauses: another beauty parade where some authorities succeed and others do not, and in the end all are worse off because of cuts to council budgets. Given the universal importance of the local heritage lists, we want them to be put on a properly funded basis.
There is a lot in that to be optimistic about. However—and herein lies the rub, and the purpose of this element of my amendment—it is believed that only around 50% of planning authorities have a local heritage list. That means that citizens in neighbouring boroughs and districts can experience very different standards of recognition and protection of their local heritage assets. Amendment 69 would require the Government to research the extent to which local heritage lists have been developed, the quality and effectiveness of the lists, the reasons for any disparities between local authorities and some of the resource issues that underlie heritage list production.
The provision is relatively basic. It requires the Government to understand what practical effect previous legislation has had, and what practical effect the funding that they put in place is having. It would ensure a proper evaluation of local heritage lists, so that—and this is my goal—they are promoted and properly used by local communities to protect important assets, and that all people have the protection of those heritage lists in law, as they ought to. It is a problem that we do not know how many local heritage lists there are, their quality or how well they are used. This is supposed to be an important provision—where used properly, it has been—but we do not have a good sense of it. The amendment would make that much better, so I hope that the Minister is minded to agree to it.
Proposed new subsection (6) relates to assets of community value. The Localism Act 2011 enables community groups to ask local authorities to register properties of local importance as assets of community value. Many valued premises—the subsection has pubs in mind—have been successfully nominated. That is in no small part thanks to the work and activism of members of the Campaign for Real Ale who, around the country, have made great efforts to ensure that important assets have been registered as assets of community value, because that gives a distinct importance and protection to local communities.
If the owner of an ACV listed property wishes to sell it, in normal circumstances the community group can lodge a bid, triggering a six-month moratorium during which no other sale can take place. That gives them a right to bid and has no doubt been a factor in the growth of community-owned pubs, up from 56 in 2017 to 179 today and rising. We can do much better than that. Colleagues may have seen announcements in recent days from the Opposition about how we will do that in future, although we are likely to need a general election rather than pass primary legislation to make that the case.
The 2011 Act was accompanied by non-statutory guidance from the then Department of Housing, Communities and Local Government to local authorities on the implementation of the ACV process, in particular how they should deal with nominations. It soon became apparent that parts of that guidance were unclear or ambiguous, which has led to significant disparities in the way in which authorities consider nominations. In many areas, local groups find it difficult to get their nominations accepted because of the restricted ways or lack of focus with which their local authority interprets the Act and the guidance.
The Government recognised that, because in 2018 they instituted a review of the guidance and invited interested parties to make suggestions for improving or clarifying the content. The Government have not said how many responses they received, but I know that the Campaign for Real Ale made a detailed submission highlighting some of the pitfalls. It has a good view because it works with local authorities all over the country, so were able to tell the Government the different ways in which the process operated with regards to definitions, the nomination process and the procedure for appeals.
All that is very good, but the problem is the resounding silence in the four years since. There is no indication if or when there will be action on improving the guidance and whether it will be made public. Subsection (6) is a relatively minimal ask. It just says that on the day that the measure comes into force, the Government ought to publish the results of the review. They have had them for four years. It is hard to believe that they are not ready to go. I am not sure whether the Minister was in the Department at that point, but he may recall that.
If the Minister is not minded to accept that provision in the Bill, would he give a commitment on whether the consultation is coming out or whether too much has elapsed over the last four years and it is no longer active? People put a lot of effort into the submissions to the consultation, and they deserve the finality of knowing one way or the other.
If the answer is no, the Government should want to find a way to establish assets of community value in a similar way to the local heritage list: why the system works in the way that it does, with a sober and honest assessment of whether it reflects what they were minded to do in the 2011 Act. I argue that it does not at the moment, and has created disparities, not in the form that is genuine localism, which we support, but in the form where some communities have the protection of local heritage lists and assets of community value registers and others do not. We should want to get to the bottom of that, if such provisions are to be effective.
Mr Jones
The Government recognise the need to protect historic buildings and other assets that are valued by local communities, but the national listed buildings regime protects our most special buildings. We recognise that there are many other buildings and assets which local people cherish. Planning practice guidance already encourages local planning authorities to prepare local lists of non-designated heritage assets. Those assets are protected through national planning policy, which states that the effect of an application on the significance of a non-designated heritage asset should be taken into account when determining the application.
Mr Jones
We are committed to protecting and enhancing our historic environment, which is an irreplaceable asset. Any planning decisions that impact on it should be given the utmost consideration. Generally, we consider the current planning framework for the historic environment to work well. However, through our work with stakeholders, we have identified areas in which it can be improved.
One such issue is the lack of statutory underpinning for key designated heritage assets within the planning system. The national planning policy framework defines designated heritage assets and sets policies related to their conservation and enhancement. However, planning legislation currently stipulates only that decision makers shall have special regard to the desirability of preserving listed buildings and preserving or enhancing conservation areas when exercising the planning functions specified. Clause 92 creates a similar legislative planning duty to have special regard to the preservation or enhancement of scheduled monuments, registered parks and gardens, protected wrecks, registered battlefields and world heritage sites when granting planning permissions or permission in principle.
Additionally, the existing legislation provides only for special regard to be given to the desirability of preserving listed buildings when granting planning permission or permission in principle. Clause 92 extends that to include the desirability of preserving or enhancing a listed building. Creating a statutory duty to have special regard to the desirability of preserving or enhancing these heritage assets aims to streamline the decision-making process and provide consistency between the legislative heritage planning framework and national planning policy framework.
On clause 93, under the Town and Country Planning Act 1990, local planning authorities have the power to issue temporary stop notices. The notices are a powerful tool that can be used by authorities to require that development or an activity is stopped if the planning authority thinks that there has been a breach of planning control and that it is expedient for that activity to be stopped immediately. They can use the time to investigate the suspected breach and decide what, if any, further enforcement action to take.
However, there is not an equivalent provision in the Planning (Listed Buildings and Conservation Areas) Act 1990 for unauthorised works to listed buildings in England. That means that where there are suspected unauthorised works to a listed building in England the local planning authority’s only options are to issue an enforcement notice—which will not immediately stop the works—or apply to the court for an injunction to stop the works, which is often costly. The clause creates a new power for local planning authorities to issue temporary stop notices in relation to unauthorised works to listed buildings in England if, having regard to the effect of the works on the character of the buildings as one of special architectural or historic interest, they consider it expedient that the works, or part of them, be stopped immediately. That power will allow works to be paused for up to 56 days while the facts of the case are established and the local authority decides what, if any, further action to take.
Failure to comply with a notice will be an offence with a maximum penalty of an unlimited fine. There are circumstances where compensation may be payable for any loss or damage directly attributable to the effect of the notice. Addressing the gap in local authorities’ enforcement powers in relation to listed buildings will help to protect irreplaceable assets for generations to come. I therefore commend the clause to the Committee.
Alex Norris
I am grateful to the Minister for his explanation of the clauses that complete the heritage part of the Bill. It is clear from the amendments and the debates that we have had about them that this is something that interests hon. Members and their constituents, and I believe there is broad support for this part of the Bill—the entirety of part 3 up to chapter 3. However, I want to ask the Minister a couple of questions. I will not make any further points about clause 92 because we have covered them in a previous debate.
On clause 93, we support the idea of stop notices, which would allow work to be paused for up to 56 days in order for an investigation to take place. I wonder why the Minister chose that duration. Why 56 days? What would be the effect of that? Has he or his officials spoken to the Local Government Association about whether it feels that that would be effective? The developer is entitled to compensation for delay, which will be interesting when we get to clause 95. Will the Minister tell us how that will work in practice and what local government colleagues have said about that?
On clause 94 and empty dwellings, we were not able to persuade the Minister to adopt the Welsh Government’s approach, but we are delighted to see in the clause that that is exactly what the Government have done. It will allow urgent works take place where a building is at risk from the weather, vandalism or any other neglect. That will be a good thing. It is welcome that that measure has been replicated here in England.
Finally, clause 95 governs building preservation notices. Currently, a council can add a BPN to an unlisted building that is at risk of demolition or alteration and which a council considers of special architectural or historic interest. The notices last for six months and must be accompanied by an application to Historic England for listing. The Secretary of State then has six months to decide whether to accept that, and the building is essentially listed during that period to protect it. It is a very good provision. Can the Minister say how frequently that has been used to give us a sense of the scale of the challenge ?
The clause removes compensation, but in clause 93 that is not the case. The conversation continues there. There has certainly been some interesting written evidence and direct contact with members of the Committee from different organisations from both sides, both the preservation side and the development side, saying that it is unfair that that is not the case. We can read that argument either way. I am comfortable either way, but I am interested that the Government have chosen different ways in different parts of the Bill. They are different things, so I can understand it to an extent, but they are not so different that that lack of consistency will not raise a few eyebrows. I am interested in why the Minister chose that approach.
Mr Jones
I thank the hon. Member for Nottingham North for his questions. I will first address his question on the serving of notices. As he knows, building preservation notices protect a building for up to six months while it is being considered for designation as a listed building. BPNs achieve targeted and time-limited intervention to protect buildings of such interest that are under threat, rather than the blanket protection placed on all buildings being considered for listing during that interim period, regardless of whether they are under threat. BPNs are considered an appropriate stopgap mechanism for the interim period before longer-term protections are applied, while balancing the rights of owners and property rights.
Alex Norris
The Minister has made a compelling case for clause 95—he has certainly persuaded me—but it also reads across to clause 93, so why would those measures not apply in this case?
Mr Jones
As I read it, clause 93 requires the works to stop for up to 56 days, which demonstrates consistency across both clauses. On that basis, I commend the clauses to the Committee.
Question put and agreed to.
Clause 92 accordingly ordered to stand part of the Bill.
Clauses 93 to 95 ordered to stand part of the Bill.
Clause 96
Street votes
Question proposed, That the clause stand part of the Bill.
Levelling-up and Regeneration Bill (Twelfth sitting)
Debate between Marcus Jones and Alex NorrisTuesday 12th July 2022
(1 year, 11 months ago)
Public Bill CommitteesRead Full debate Levelling-up and Regeneration Act 2023 View all Levelling-up and Regeneration Act 2023 Debates Read Hansard Text Read Debate Ministerial Extracts Amendment Paper: Public Bill Committee Amendments as at 12 July 2022 - (12 Jul 2022)
The Minister of State, Department for Levelling Up, Housing and Communities (Mr Marcus Jones)
It is a pleasure to serve under your chairmanship, Mr Hollobone. I would like to pay tribute to my right hon. Friend the Member for Surrey Heath (Michael Gove) and our predecessors on the Committee, my right hon. Friend the Member for Pudsey (Stuart Andrew) and my hon. Friend the Member for Harborough (Neil O’Brien), all of whom did a huge job to bring the Bill to where it is today. Through their diligent work, we are debating a Bill which will help to level up across the country.
Committee Members will be familiar with the challenge in many areas, whereby homes are left empty while local families are struggling to find a home close to their jobs or families, due to the pressures on local housing supply. It cannot be right that there are families left without an affordable home when there are owners not doing their best to bring their properties back into productive use for the benefit of the community. The Government are taking action to encourage those empty properties back into use. The longer a property is empty, the more likely it is to deteriorate and attract antisocial behaviour such as vandalism or squatting, which can reduce the value of properties and drive away the local communities. That is why we have introduced powers for councils to charge extra council tax on homes left empty for more than two years.
In 2018, we introduced a stepped approach so that councils can increase the premium depending on the length of time the property has been empty. Councils now have the power to charge up to four times the amount of the standard council tax bill when a home has been empty for more than 10 years. Nearly every council already makes use of the empty homes premium. I welcome the creative ways in which some councils use these powers to stimulate better use of the housing stock in their areas—for example, by providing refurbishment grants to bring empty homes to the standard for renting out, or conversion grants to help pay for converting a large empty home into smaller units. Why should councils wait two years before they have the power to take action to bring empty homes back into use? Through the Bill, we will give councils the power to apply the 100% premium on properties left empty after one year, rather than the current two years.
Clause 72 makes a simple change to section 11B of the Local Government Finance Act 1992. It will change the definition of “long-term empty dwelling” from meaning a dwelling that has been unoccupied, and substantially unfurnished, for more than two years, to one that has been unoccupied, and substantially unfurnished, for at least 12 months. To ensure that the change is implemented rapidly, but also provides sufficient opportunity for homeowners who may be affected to take steps to avoid the charge, subsection (2) provides that the amended definition has effect for financial years beginning on or after 1 April 2024. The clause will strengthen the powers for local councils to take action to incentivise owners to bring empty properties back into use, address the impacts of empty homes and help to increase the supply of affordable housing where it is needed. I commend the clause to the Committee.
Alex Norris (Nottingham North) (Lab/Co-op)
It is a pleasure to serve with you in the Chair, Mr Hollobone, and to serve with new members of the Committee. Perhaps it should be of concern that your predecessor, the hon. Member for Wellingborough (Mr Bone), sat in the Chair for a number of our sessions, but the idea of just one more seemed less preferable than entering Government. That may be a sign of what is to come between now and the end of September. In all seriousness, we welcome the Ministers to their place and we look forward to working with them.
I thank the hon. Member for Harborough and the right hon. Member for Pudsey for their efforts and communications with the shadow ministerial team inside and outside Committee. They worked very collegiately, which we appreciated, and I think that has been reflected in the quality of the debate so far, and the good spirits. We are here to disagree on points of substance, but are able to do so in good humour, and I know that that will continue with the new Ministers. I also thank the Whip, the hon. Member for Derbyshire Dales (Miss Dines), for enabling us to work together. I am sad that the new Ministers have missed out on those weeks of debate, which were largely composed of speeches from me. I am happy to start again if they wish—or perhaps not; those who have heard them seem to be moving further and further away, so perhaps I should take that as my cue to move on.
I am glad that the Minister is choosing to address the clause stand part debate, because it is an important part of the legislative process. When law is put on to the statute book, Ministers ought to make a case for it, so we appreciate his contribution. Given today’s development, I hope that the Minister may be able to offer one more. The continued absence of an impact assessment needs to be addressed. According to the Minister’s own words, the Bill is an important piece of legislation that will help to level up the country. At the moment, we do not have much of a base to build that case on, so we would be keen to see the impact assessment. I hope that the Minister will respond to that point.
Clause 72 is important because we are currently in a severe housing crisis, with a lack of supply of affordable homes for young people and no opportunities for families to get on the property ladder. Coupled with that, long-term empty dwellings are sat idly by, serving no purpose. It is right that the Government want to act, and we support the clause. However, we feel that it is a missed opportunity and that even the Bill will not give local authorities sufficient tools to get a grip of the situation and protect their local communities. We should have gone further with a power to levy a greater empty homes premium and to close the loophole through which properties are pushed into the business rates category—or slid into it—to avoid council tax. The Government should revisit that issue. I know that the Minister will have a full inbox, so he does not need to look far for inspiration. The Welsh Government seem streets ahead of the UK Government with their current policies. It is not a matter on which to divide the Committee, but I hope that the Minister will revisit the issue at a later stage, because we certainly will.
Tim Farron (Westmorland and Lonsdale) (LD)
It is a great pleasure to serve under your oversight and chairmanship, Mr Hollobone, and I offer a huge welcome to the new Ministers. I also pay tribute to the right hon. Member for Pudsey and the hon. Member for Harborough. The debate in Committee has indeed been consensual, collegiate and courteous, and I am sure that is how it will continue. It is a privilege to be on the Opposition side of the room and to join in the important endeavour of scrutinising this important Bill.
When it comes to communities like mine, it is worth bearing in mind that long-term empty dwellings—properties that are not used at all—are a challenge. In my district of South Lakeland, we have something in the region of 900 to 1,000 of such properties at any given time. It is likely that there are between seven and 10 times as many properties not lived in, but classified as second homes. If the Government are committed to retrieving properties that are out of permanent usage, and which are effectively displacing local people and the local workforce, empty homes are important, but not nearly as important as tackling the excessive second home ownership problem in communities such as the lakes and the dales. We look forward to discussing those issues when we consider later amendments today.
Mr Jones
Clause 73 contains a power for councils to introduce a council tax premium on second homes. We recognise that second homes can benefit local economies and the tourism sector. Second homes can also provide flexibility to enable people to work in and contribute to the local community, while being able to return to a family home in another part of the country on a regular basis. However, the Government understand the concerns that large numbers of second homes, particularly where they are concentrated in a small area, can have a negative effect on the vitality and viability of local communities.
A large number of second homes impacts on the size of the permanent population who help to generate the demand needed for their local services the year round. It creates a hollowing-out effect. The local schools have insufficient pupils to remain open. The local buses do not have enough passengers to maintain the service. The village pubs and post offices do not have the customers to sustain them through the year. These are all arguments that many Members are familiar with and have made to the Government.
The risk is clear that, without action, some communities will become increasingly unviable as local services close due to a lack of a permanent year-round population. The Government are not prepared to stand by and watch that happen. We are investing £11.5 billion in the affordable homes programme, which will deliver up to 180,000 affordable homes.
We have introduced a higher level of stamp duty on the purchase of second homes. The clause supports that by providing new powers for councils to apply a premium of up to 100% extra council tax on second homes. The use of that premium will be discretionary, and it will be for councils to exercise their own judgment as to whether to apply a premium and at what level—up to a maximum of 100%. The premium will provide councils with the flexibility to access additional revenue. It will be for councils to decide how best to use this funding. For example, councils may choose to support the local shop or village pub, or they may invest it in new affordable housing for local families, so they can help maintain the lifeblood of their community.
We are clear that second home owners should be given sufficient notice of the introduction of a premium. The clause will require each council introducing a premium to have a minimum period of 12 months between making its first determination and the financial year in which it takes effect. That will give second home owners plenty of time to make plans for how to respond to the forthcoming premium. Of course, there may be circumstances where it is not appropriate to apply a premium. Proposed new section 11D(1) provides a power for the Secretary of State to make regulations prescribing categories of dwelling in relation to which the council tax premium on second homes cannot be charged. We will consult on such categories.
Proposed new section 11D(3) includes a power for the Secretary of State to vary the maximum council tax premium that can be charged on second homes. It is clearly sensible to maintain a degree of flexibility for the future. If circumstances suggest that consideration should be given to adjusting the level, any consequent regulations will be made through the affirmative resolution procedure and will require approval of this House. The power contained in the clause will enable every council to decide whether to apply a premium at a level that is suitable for their own circumstances. It will enable them to generate additional revenue, and they will be able to use it to mitigate the impact of high levels of second homes in their areas. I commend the clause to the Committee.
Alex Norris
We have covered much of the debate through the very good amendments, so I do not intend to detain the Committee for long, but I want to clarify one point with the Minister. As he has said, the clause inserts proposed new sections 11C and 11D in the Local Government Finance Act 1992. Proposed new section 11D(1) states:
“The Secretary of State may by regulations prescribe one or more classes of dwelling in relation to which a billing authority may not make a determination under section 11C.”
It basically says that the powers we have debated and all the very good reasons for them actually do not apply if the Secretary of State decides they do not want them to. That is a concern we have had in previous debates: this is localism, but only where local communities get the answer right.
It is welcome that the Minister has said the measures will be consulted on before being used, but the Government must have a sense of what properties they have in mind, otherwise there would not be much of a case to reserve the power. I am keen to know how that power will be used or certainly what the Minister had in mind when asking for it. I do not think it is enough for us to detain the Committee because we think the clause is important in general, but that specific point needs to be addressed. There is not much of a case for the provision if it is a power that can only be filled out by consultation. I wonder then: why ask for it at all?
Rachael Maskell
I beg to move amendment 85, in clause 74, page 83, line 23, at end insert—
“and it has considered the historical, cultural or archaeological significance of a name change”.
This amendment requires cultural, historical and archaeological factors to be considered before making a name change.
We are considering many things in the Bill, and we come now to a clause that deals with street names. Needless to say, the issue of street names is one of much interest not only to the population of York at large but to archaeologists and historians, whom I meet regularly in our city. It is probably obvious why that is the case: we are clearly a proud city and there is much history to be debated.
A lot of streets in York have changed their name over time. A case could be made to change some of them back to their original names. In York, the streets are named gates, the gates are called bars, and the bars are called pubs. Our language is slightly different from that used in other places. Many of the names have been changed for good, sensitive reasons. What was Beggargate, for instance, is now called Nunnery Lane, and some names were far worse. Our approach to the naming of streets evolves. We have many layers of history, and there are areas of Roman, Viking and medieval significance in places such as York.
Names could be changed at the stroke of a vote, but it is important to put in place checks and balances, including a consultation process and engagement with the wider community stakeholders and residents, to ensure that streets have appropriate names.
There are examples of those who were once heroes but are now fallen individuals. We may have seen a darker side of them or of our colonial past. The street name can tell a different story and therefore the changing of a name is not only a process but can be a historical or political act in itself. It may be desirable, but to understand the past is important. Therefore, to explain the name rather than change it may be the action to take to reflect that on a newer estate. Perhaps we will look at the industrial past of an area or some event or place of significance, or perhaps point to a new age and opportunity.
There are countless reasons why a street name vote may be sought. However, recognising the significance of a name or a former name could help define a street or an area, as well as the historical, cultural or archaeological significance of a place. My amendment will simply ensure that the history and archaeological understanding of a place is not lost. I am seeking assurances from the Minister that that understanding will form part of a consultation around the name change and the process set out in clause 74.
Alex Norris
This is the third time in part 2 that we have addressed names. We addressed alternative names for Mayors and alternative names for combined county authorities. My view on street names is the same as in those cases. My experience in Nottingham is that if we seek to do anything daft with names, the public pretty soon sniff it out and have a good way of correcting it, whether at the ballot box or through more informal means. I have a lot of confidence in our communities to make the right and sensible decisions given the right framework in law.
We are interested in the clause. I may make some more arguments in the next amendments. It is important that the important historical and archaeological factors are not lost. This is probably a de minimis provision and only asks for consideration. It is no greater fetter than that. I hope the Minister is minded to that.
Mr Jones
The amendment would add additional criteria for local authorities when considering the renaming of a street. I understand the importance of history, archaeology and culture in this process. However, the Government strongly believe that local people should have the final say on changes affecting street names. We would expect those local views to reflect the historical or cultural associations of the names concerned, and the importance that communities place on them. It is not clear that a freestanding additional requirement to consider heritage is necessary, or how it would work. It could, for example, make it harder to secure name changes that have local support but where new considerations, such as the need to honour a local person or event, take precedence over an archaeological interest. For instance, some Olympians had streets named after them following the 2012 Olympics.
We recently consulted on the prospective secondary legislation and guidance to deliver those changes. Respondents were overwhelmingly positive about our proposals, with 91% agreeing that the regulations and statutory guidance should set out how local authorities should seek consent when changing a street name. In view of that support, and the fact that heritage and cultural significance are matters that communities will weigh up, I hope the hon. Member will withdraw her amendment.
Mr Jones
The Government are strongly of the belief that people should have the final say on the character of the area in which they live. That must include protecting their local heritage. In this context, I agree with the underlying intent behind the amendments. There should be clear processes for making sure that local views on proposed street name changes are taken into account. It is, however, important that we do this in the right way, so that the processes are robust, but can be adjusted if required.
The Government recently consulted on the prospective secondary legislation and guidance to deliver the reform to street naming set out in the Bill. Respondents were overwhelmingly in favour of the proposals set out in the consultation, with 91% agreeing that regulations or statutory guidance should set out how local authorities should seek consent when changing a street name.
The amendments would remove the Government’s ability to do that and replace it with less specific requirements than we intend. I reassure the hon. Member for Nottingham North that we will be setting out clear, transparent and robust arrangements in secondary legislation. As I said, a significant number of respondents to the consultation want a proper say, and we can understand why. If the name of a residential street was changed, for example, individuals in any particular property would face significant costs from amending the title of their property or the addresses on their car logbook, bank accounts, utility bills, driving licence, and a number of other things that we could all reel off. Such things are important considerations, and that is why we are setting out down our chosen path.
By setting out the detail for how consultation on street naming will work in regulations and guidance, we will maintain flexibility to update processes in line with changes in circumstances, such as new technology. With that explanation, and those assurances, I hope the hon. Member will be willing to withdraw the amendment.
Alex Norris
I am grateful for colleagues’ contributions to the debate. My hon. Friend the Member for York Central brought up the good example of Boaty McBoatface. That shows, as always, the brilliant sense of humour of the British people—I have an awful lot of confidence in that—but also how in such cases it is rarely the answer that is daft; perhaps the question was less wise. The key thing, which goes to the point of the clause, is that people with a stake ought to have a say. When people have a stake in things, they take them seriously. I am certain that there will be no Boaty McBoatface Avenues. People would much more likely take a slightly different and perhaps more moderated view for their own street. That is why it is important that, as the Minister said, local questions about the character of a community are addressed.
I agree with the Minister that local residents should have the final say on the character of an area, but that can work in a number of different ways. We have a representative democracy, and change in the character of an area could be about a decision to cut back a tree, or to put bins in collective storage, leave them in the back ginnel or put them outside the house. Every day, there is a combination of hundreds of small actions that are seemingly unimportant until someone gets excited about them, but in aggregate they are substantial to people’s lives. We do not put them to daily referendums with turnout thresholds—we could not operate like that—so we have representatives who are accountable to their communities, and if they do not seem to be doing their job, they are changed for others.
I am not sure that the Minister’s stated aim is measured by what is in the Bill. He said that amendments 70 to 72 would weaken the Government’s ability to meet what was wanted in the consultation. I am afraid that I do not accept that, because 91% of people wanted to have a proper say and to have that set out. I completely agree with them—I am surprised that 9% did not agree—that the worst situation would be one where a local authority could make merely the narrowest compliance effort and not really listen. There is not much evidence of risk there. Again, the Minister could not make the case as to why, in general, there is a problem to be solved—and, absent the impact assessment, there is no case for that. The experts in the field say that there is no problem to be solved. I hope that he will reflect on that. My amendments would in no way restrict the ability to ensure that those 91% of people got what they wanted: a proper say. However, the Minister has gone a step further in prescribing how that looks, which is a disproportionate approach that will not serve.
The Minister has committed to further consultation and engagement. I hope that he will engage with colleagues in the Local Government Association and listen to them about the practical realities. If he has not already had a chance to do so, he should engage with their research about what is really going on and how we might achieve the aims without putting something onerous in the Bill. They will be willing to have those conversations.
I hope that this might be an ongoing part of the conversation as we move through the Bill’s stages, and that the Minister will at least carry this issue away and find a bit more detail. We will not detain the Committee by dividing it, so I beg to ask leave to withdraw the amendment.
Amendment, by leave, withdrawn.
Question proposed, That the clause stand part of the Bill.
The Chair
With this it will be convenient to discuss that schedule 5 be the Fifth schedule to the Bill.
Alex Norris
I will not repeat any of the arguments I have made. We agree on the substance of allowing people to decide their street name, but we are troubled by the process and its rigidity. I hope the Minister will keep reflecting on that in the following stages.
I am labouring a point I made the last time I rose, but this is the last time I will make it today—I promise, Mr Hollobone. This is the end of part 2 of the Bill. The Minister made a welcome commitment that we will see the impact assessment before the end of Bill Committee, but I gently say that it will not be much use for parts 1 and 2. Frankly, there be no impact on part 1, because that was a plan to make a plan, but part 2 will make combined county authorities, which presumably are supposed to be quite impactful. It is a problem that we have not been able to argue those in the round.
The next part of the Bill, which is on planning, includes really significant decisions that will shape communities. I am not sure that colleagues on the Government Benches, never mind the Opposition Benches, should be comfortable making those decisions without an impact assessment. I hope to prevail on the Minister that if the impact assessment is not going to appear before part 3 of the Bill today, we may at least have it before the summer recess so that we can have it for our discussion about the remaining clauses.
Mr Jones
I thank the hon. Member for Nottingham North for his comments, which I will look at carefully and consider, and see what more can be done to expedite the impact assessment.
Question put and agreed to.
Clause 74 accordingly ordered to stand part of the Bill.
Schedule 5 agreed to.
Ordered, That further consideration be now adjourned. —(Gareth Johnson.)
Levelling-up and Regeneration Bill (Thirteenth sitting)
Debate between Marcus Jones and Alex NorrisTuesday 12th July 2022
(1 year, 11 months ago)
Public Bill CommitteesRead Full debate Levelling-up and Regeneration Act 2023 View all Levelling-up and Regeneration Act 2023 Debates Read Hansard Text Read Debate Ministerial Extracts Amendment Paper: Public Bill Committee Amendments as at 12 July 2022 - (12 Jul 2022)
Alex Norris (Nottingham North) (Lab/Co-op)
It’s another leadership video, isn’t it? [Laughter.]
Mr Jones
I reiterate the point that I made with respect to amendment 98. For the reasons I mentioned then, national development management policies will be nationally important policies, and like those for the green belt and flood protection, it remains important that they are not duplicated, so that we restrict the chances of conflict occurring in the first place, especially where the plans have not been kept up to date. My hon. Friend the Member for Buckingham in particular mentioned a number of situations in which planning decisions had been made and overturned, and clearly policies conflicting can quite often be the reason why that happens. It is therefore extremely important that we try to restrict the chances of such conflicts. With that, I commend clause 83 to the Committee.
Question put and agreed to.
Clause 83 accordingly ordered to stand part of the Bill.
Schedule 6 agreed to.
Ordered, That further consideration be now adjourned. —(Gareth Johnson.)