National Planning Policy Framework

Roberta Blackman-Woods Excerpts

Thursday 26th April 2012 Commons Chamber

[Roberta Blackman-Woods (City of Durham) (Lab)]

On behalf of the Opposition, I echo the Minister’s sentiments about Councillor Mark Worrall. It is deeply sad news and this is a sad day for local government.

It is unfortunate that the debate on the national planning policy framework was squeezed by parliamentary business on Tuesday and is being squeezed again today. A number of Members who wished to be in the Chamber to contribute to this debate have not been able to make it because of the short notice. Although I am grateful that the Government found time to hold this debate in the House, two hours is not sufficient to do justice to this major change in planning policy. That should be noted.

On Tuesday night, the Minister sought to sell the NPPF in his usual erudite way. However, surely even he does not believe that everything is rosy in the NPPF garden. A number of challenges remain for the planning system, despite the many amendments to the draft framework. It is hardly surprising that changes were made, given the huge outcry following its publication from a range of individuals and organisations, such as the Campaign to Protect Rural England, the Town and Country Planning Association and the National Trust. Like us, those organisations are all concerned with the quality of our built environment and the need to protect our countryside. They fought an outstanding campaign to have important changes made to the draft, and we acknowledge that the Minister listened to the concerns and that the final document was an improvement on the ill-thought-through first version.

Despite the changes, however, the question today is whether the NPPF, as a blueprint for planning policy, is truly fit for purpose. The answer is definitely not. I will outline for the Minister some weaknesses that remain in the document. Given the immense criticism of his first attempt, the significant redrafting that followed and the remaining weaknesses, it is clear that the process of reform, taken as a whole, was shambolic even by the Government’s standards of incompetence.

First, the Minister has made much of strengthening the definition of sustainable development, and indeed the more comprehensive definition that we and many others argued for has now been incorporated in the NPPF along with five principles of sustainable development. However, it is not clear how local authorities will apply that definition in practice when they determine planning applications. Paragraphs 8 and 10 of the NPPF are rather woolly, even by the Minister’s standards.

Secondly, much has also been made of the strengthening in the final version of the requirement for development to happen on brownfield land first. Since its publication, however, many have described the assurances on the subject as “paper-thin”. The NPPF only expects authorities to “encourage” development on brownfield land first. That is significantly weaker than the Labour policy of development being prioritised on brownfield sites. Nor is it clear what will happen if authorities do not encourage the development of brownfield land first, or whether they will have to apply any sequential tests or produce any evidence in that regard.

Thirdly, the existence of transitional arrangements is welcome, but two major issues remain. The first is that most commentators do not consider one year long enough for local authorities to get their plans up to speed. The second is that the announcement on guidance has created more of the unwelcome confusion that has characterised the whole review of planning policy. The Minister announced that all guidance in planning policy guidance notes and planning policy statements was being abolished, then he said it was not, and now he says it is being reviewed. Which is it? I would appreciate an answer from him. Further clarity on the status of the guidance would be most welcome.

Now for the key question that the Select Committee on Communities and Local Government posed in its excellent report on the NPPF. I am very pleased that my hon. Friend the Member for Sheffield South East (Mr Betts), the Chair of the Committee, is in the Chamber. That question was whether the brevity of the NPPF had created greater clarity. The Minister must accept that the answer of planners is a resounding no. A recent survey of town planners revealed that 86% believed the NPPF would lead to more appeals because of the lack of certainty in the planning system and the vagueness of much of its language. No wonder that many are calling it a planning lawyer’s dream.

[Nicky Morgan (Loughborough) (Con)]

Perhaps the hon. Lady will come on to this, but the planning system is in place not just for planners but for the people and residents. I am sorry that I was late for the debate, Madam Deputy Speaker, but I was trying to read some planning policy guidance and having difficulty with some of the language in it. Having simple language in a 52-page document will allow residents of all our constituencies to understand the planning system in much more detail than under the old, complicated system, so that they can make their case.

[Roberta Blackman-Woods]

The hon. Lady is right that the guidance must be interpreted by local communities as well as planners. We are saying that brevity should have led to clear language, but it has often led to obscure language, which will make it equally difficult for local communities and planners to argue a clear case.

[Brandon Lewis (Great Yarmouth) (Con)]

Will the hon. Lady give examples of that obscure language? One thing that struck me and the parish councils to which I have spoken is the simple, clear and normal English language used in the document. They applaud that because it is in stark contrast to some of the Dickensian language used in most planning and other legislation in the past.

[Roberta Blackman-Woods]

Many commentators have written about how vague a lot of the language in the NPPF is and we have rehearsed it many times in previous discussions. My point is that far from increasing the power of communities, which has been much championed by the Minister, the NPPF could lead to even more decisions being made by the Planning Inspectorate, which is removed from local communities.

On local communities, the principle of encouraging more neighbourhood planning is one that all hon. Members share. The Minister was right on Tuesday to point out that I am very much in support of neighbourhood planning—I am encouraging local groups in Durham to get involved—but he should acknowledge that neighbourhood planning is not new, because parish councils have been undertaking it for a number of years. Indeed, I have been involved in drawing up local plans in Durham with local groups for many years.

[Mr Marcus Jones (Nuneaton) (Con)]

I am heartened by the hon. Lady’s and the Labour party’s enthusiasm for neighbourhood planning and for encouraging councils and communities to take it on. Will she therefore send a message to Labour-controlled Nuneaton and Bedworth borough council and ask her Labour councillors to engage with the local community in Nuneaton and allow it to take up neighbourhood planning?

[Roberta Blackman-Woods]

The hon. Gentleman has made that plea very well himself.

Neighbourhood planning is something that all hon. Members support, but if the Minister wills the end, he must also will the means. Neighbourhood planning is labour intensive, and, if undertaken correctly, will place considerable demands on local authorities, as the hon. Member for Nuneaton (Mr Jones) pointed out. If neighbourhood planning is to work beyond affluent neighbourhoods, it will need to be properly supported. What plans does the Minister have to resource local authorities and other organisations such as Locality and Planning Aid in the long term to make neighbourhood planning a reality in all communities, including disadvantaged ones?

[Mr Barry Sheerman (Huddersfield) (Lab/Co-op)]

Are we going to be consistent? All hon. Members want genuine, positive neighbourhood engagement in planning, but the trouble is that historically, too often, such engagement has been dressed up nimbyism. The worst case of dressed up nimbyism that I know of concerns Conservative councillors on Kirklees council in Huddersfield, who switch and swap all over the place only for political advantage, not for the good of the community or good planning.

[Roberta Blackman-Woods]

I hope the local community in my hon. Friend’s constituency has heard that point on Conservative councillors.

I am making a plea to the Minister to ensure that neighbourhood planning can be a reality in all areas and for all communities.

Lastly, I come to the duty to co-operate. As the Minister will be well aware, there is growing concern that England does not have a national spatial plan, and that planning beyond the local authority level will be very difficult. Yet strategic issues, such as housing, transport, waste and energy, often need to be taken beyond that level. The Minister will claim that the duty to co-operate addresses this issue, but it is totally unclear what will happen if the co-operation fails or never takes place.

When taken together, all of the above shows that despite the changes made to the NPPF there are still a number of concerns—and the above list is by no means exhaustive. I could continue with examples, such as how, despite the Minister’s reinstatement of Labour’s successful “town centre first” policy, the lack of guidance continues, or the changes to the assessment of housing need, for which the definition has been improved but the method of implementation is again absent.

We will continue to monitor what is happening in practice. If the NPPF is stalling the growth in jobs and housing that we so desperately need, and failing to protect the environment that we all love, we will say so. Cutting pages from our planning guidance is no substitute for a proper economic policy focused on growth, and that is what we need the NPPF to deliver.

--- Later in debate ---

[Dr Daniel Poulter (Central Suffolk and North Ipswich) (Con)]

I rise to speak in support of the Government’s national planning policy framework. I want to put on record my constituents’ gratitude to the Government for listening to some real concerns about the need to protect greenfield sites and for the presumption to be in favour of brownfield development.

Before I make my substantive points—I know that we have only a brief time available—let me address some of the points made by the hon. Member for Stoke-on-Trent Central (Tristram Hunt). He made a good speech, but it appears to me that Labour is trying to rewrite history now that it is in opposition. He made some good points, as did the hon. Member for City of Durham (Roberta Blackman-Woods), about the previous Government’s laudable and commendable intention to prioritise brownfield development over greenfield development, which is absolutely right. There is a difference, however, between rhetoric and reality, which this Government have recognised in the planning policy framework. In north Ipswich, thanks to the previous Government’s centrally driven housing targets, 15,000 new homes were to be built against the wishes of my constituents by Labour-run Ipswich borough council. The plan is still to develop them, and the decision was made because of the previous Government’s planning policies and decisions. That is not protecting greenfield sites; it is ensuring that they are developed. The hon. Member for Stoke-on-Trent Central quite rightly said that he wanted that to be avoided, and I want the same. We must ensure that when we can develop brownfield sites, as we can in the centre of Ipswich, they are developed effectively and in a way that provides family homes and affordable homes so that young people can get on to the housing ladder.

[Roberta Blackman-Woods]

I hope that the hon. Gentleman would accept that the percentage of development that occurred on brownfield sites was massively improved during the period of Labour Government.

[Dr Poulter]

I thank the hon. Lady for her intervention. My key point is that of course it is important to develop brownfield sites, and the previous Government did that, but unfortunately, as some of my colleagues have highlighted, flats were built on those brownfield sites rather than affordable family homes. My constituents in north Ipswich and many of my colleagues’ constituents want affordable family homes so that people who live locally can stay living locally and so that we can help young families on to the housing ladder. That is key. The previous Government’s intentions were laudable, but the practicalities did not work.

I want to make three points in support of the framework. First, it is a good document because it simplifies the planning system. It is clearly better to have 50 pages of guidance than to have about 1,000 pages. It is better and easier for my constituents to understand how the planning system works, it is easier for developers to understand it, and it is much easier for local authorities, when they are discussing planning issues with residents, to communicate those issues when there are 50 pages of national policy guidance.

Secondly, there is a clear presumption and protection that as Conservatives we prioritise, and have always prioritised, brownfield development over greenfield development. In many parts of the country, including central Suffolk, we have valuable farming land that would suffer directly as a result of greenfield development. We in Suffolk value farming and agriculture and the amenity that the green fields around Ipswich, for example, provide for local communities. People can take their families out at the weekend and enjoy the countryside. If we continue with Ipswich borough council’s policy of pushing for greenfield development on those sites, we will lose valuable agricultural land as well as valuable community land that is enjoyed by local people from Ipswich.

Finally, I come to sustainable development. The document contains a much clearer definition of sustainable development, which is a good thing. We need development where there are infrastructure and jobs, and to make sure that we bring affordable housing on stream. The best way to do that is to tie development to key infrastructure projects, as we shall see in the green enterprise zone in East Anglia at Great Yarmouth and Waveney. We accept that in that area there will be houses, which go hand in hand with jobs, key road and rail infrastructure and the broadband infrastructure that the Government are giving us, as well as money for schools and local hospitals. That is good sustainable development. My constituents support the Government in what they are trying to do, not least the protection against the development by Ipswich borough council of the northern fringe of Ipswich.

--- Later in debate ---

[Iain Stewart (Milton Keynes South) (Con)]

I, too, congratulate the Government on their revisions to the NPPF; they have genuinely listened to the real concerns that I and a good number of my hon. Friends put to the Minister. In particular, I thank him personally for the gracious way he listened to our concerns and for giving them a lot of time. I am pleased that he has taken them on board. I think that the document now strikes a good balance between the need to speed up the house building process and the need to protect our green spaces, which is what we all want to see.

Together with the other elements of the Localism Act 2011, the measures are very welcome in my area of Milton Keynes. We want to grow. There is no nimbyism in Milton Keynes, but we want to be in charge of our own destiny. Instead of having the top-down targets that were imposed on us before, which led to the wrong type of development, as other hon. Members have said, we can now shape our future and our destiny and build the new city we want to see.

I would like to challenge one of the comments the hon. Member for City of Durham (Roberta Blackman-Woods) made on the abolition of regional and national targets, which was that that somehow meant that local areas cannot co-operate with each other to develop infrastructure plans. I draw the House’s attention to an example in my constituency: the building of the east-west rail link. That involves co-operation between many local authorities on not only the railway line itself, but housing and economic growth projects. We are all working together exceptionally hard on that, so I reject her assertion.

[Roberta Blackman-Woods]

Will the hon. Gentleman give way?

[Iain Stewart]

If the hon. Lady will forgive me, I will not take any interventions, in order to leave time for other hon. Friends who wish to speak.

My one specific point, picking up on the good point my hon. Friend the Member for Loughborough (Nicky Morgan) made, is on the time scale for abolishing the regional spatial strategies. For reasons I will not go into, we all welcome that, but there is an issue in Milton Keynes about the timing of abolition. Our core strategy will be examined in July, and there is concern that, if the RSS is still in place during that examination, it might undermine the progress we are seeing on the localism agenda. I simply urge my right hon. Friend the Minister to do all he can to get the RSS finally abolished as quickly as we can. Apart from that small, specific point, I repeat my congratulations for what the Government have achieved. They have listened and had a genuine consultation, and I heartily support the new document.