Viscount Goschen
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Viscount Goschen
My Lords, there are a great many planning experts in this House, many of whom demonstrated their great skills and experience during proceedings on the Localism Bill over many days. Many of its amendments and debates focus on areas that are closely related to the current consultation on the national policy planning framework. We have heard an impassioned speech from the noble Lord, Lord Rooker, who invited the Minister to choose the middle ground between two extremes. My view would be exactly the same. While I agree with some of his detailed points on conversion of buildings in rural areas and so forth, I have one principal point to make today, which is one of balance.
I certainly welcome the Government’s focus on streamlining planning regulations. The current morass of regulations is certainly overcomplex. When there is overcomplexity in government policy, it leads to that policy perhaps not being given the degree of respect that it requires. The Government should therefore be commended in attempting to make sense out of the situation, to make the system more comprehensible, and thus better respected by those it affects.
It is certainly also true that the current system is unduly cumbersome, particularly with regard to the delivery of major infrastructure projects. There are many to look at, but one has only to look at the length of the planning inquiry into terminal 5 to realise that there is too great a gap for companies and the Government to be able to plan major infrastructure developments in this country. It just takes too long.
However, like many others, I am concerned about the nature of some of the proposals set out in the consultation document that we are considering. In my judgment, the way in which the document is phrased is very one-sided. It states one objective, which is promoting development. I cannot recall seeing a statement of government policy addressing sensitive and complex issues which takes such—one might say “definitive”—an approach.
Throughout the document, from the very beginning, the Government set out their stall with admirable clarity. Paragraph 9 states boldly:
“The purpose of the planning system is to contribute to the achievement of sustainable development”.
I am not at all sure that this is the case; or, at least, not without qualification and the exclusion of other priorities. For someone who is very definitely not one of the planning experts that I mentioned at the beginning of my remarks, it could be argued that the purpose of the planning system is quite the opposite; that is, to act as a check and balance against an unrestrained charge for development. The authors of the document take comfort behind the term “sustainable” to qualify development. I was interested in the debate that took place yesterday, and would certainly agree that the term has been so overused as to lose any meaningful impact, as we have heard in recent debates. What is “sustainable development”? Today’s definition of “sustainable” may well not be tomorrow’s.
I was struck by the force of the Government's determination to support one side of this debate, particularly with regard to housing. The consultation paper is packed with strong statements to remind the reader of the Government’s one-dimensional view. Paragraph 14 states:
“At the heart of the planning system is a presumption in favour of sustainable development, which should be seen as a golden thread running through both plan making and decision taking. Local planning authorities should plan positively for new development, and approve all individual proposals wherever possible”.
That strikes me as an exceptionally bold statement, which could have been drafted in the dreams of those who might seek to benefit from the conversion of muddy fields into sparkling new dormitory towns. I urge the Government to think carefully about the balance between development—a great deal of development could be sustainable and very welcome—and conservation, the requirements of the rural economy, the preservation of open spaces, the importance of farming and biodiversity, principles which have led and guided the planning process for so long.
In paragraph 28 the document directs that local planning authorities should plan for the scale of housing supply necessary to meet demand. I question whether that is not a naive aspiration. The demand for housing is not quite infinite but it is certainly very large indeed. In my submission, an attempt to satisfy this demand would lead to housebuilding on an unprecedented scale, which would fundamentally alter the fabric of the country. I certainly understand the motivation behind this policy. We want to arrive at a balanced state of affairs whereby planning does not act as an unreasonable check and hindrance to development and boosts the economic capability of this country, for example, through industry. The Government are looking for any means of unlocking growth. However, I suggest that to put the emphasis so much on the need for development, as the consultation does, and attempting to promote development wherever possible is not going to achieve that. I am also interested to know where the funding is going to come from for all this proposed new housing stock. Debt financing is, of course, the answer. I wonder whether there is a need for a new mountain of borrowing.
If a country with extensive tropical rainforest assets had put forward a planning document suggesting that logging should take priority over all other considerations wherever possible, I suggest that environmentalists, and perhaps policy-makers in the developed world, would be up in arms about that. I think that there is a comparison to be drawn with what is proposed in this document. No doubt I will get “roughed up” by the noble Lord, Lord Rooker, but in fact I agree with a lot of what he said about the need for balanced, sensible and well considered development. However, whatever we say at this stage, there is the law of unintended consequences. If this becomes the policy framework, those who are keen to sponsor large-scale housing development in large and, in my view, unsustainable dormitory-type schemes will have those schemes approved over and over again. I urge my noble friend to take account of the voices raised to counterbalance the gung-ho attitude of the Government.
Lord Beecham
My Lords, I do not know whether I am the first to do so, but I congratulate the noble Baroness, Lady Stowell, on her appointment and welcome her to the Front Bench. I should also like to congratulate, as other noble Lords have done, the noble Lord, Lord Rooker, who has occasioned this debate and introduced it with his customary brio. He will not be entirely surprised to know that I do not agree with everything he said. In fact, I think he would have been rather disappointed if I had.
In my more charitable moments, and oddly enough I have a few, I am tempted to feel sorry for Ministers, assailed as they have been by the leftist leader writers of the Telegraph, the closet revolutionaries of CPRE and the naysayers of the National Trust—or the national trots as I understand they have been referred to occasionally by Ministers. The case against them has been overdone, although there are serious reservations about aspects of the framework that we need to address.
I am particularly glad that the noble Lords, Lord Rogers and Lord Hart—as formidable a duo in this context as their namesakes in the realm of musical comedy—have demolished the myth that somehow planning has been responsible for the failure of the national economy, the low number of houses being built and the rest of it. That is not the case. Indeed, I heard recently the director of a major building company which develops a number of properties in urban areas agree about that. Some 80 per cent of planning applications are agreed and, as we have heard, substantial permissions are extant but without development occurring. Perhaps that is a matter that the Government need to address, possibly by levying taxes on undeveloped land as an incentive to those who own it and have planning permission to get on and develop.
However, one of the problems with the framework—it is not a particular problem with this document—is that there is no national context. There is no plan for England into which this framework would fit and which would provide a context for planning decisions about such crucial matters as economic growth reflecting the demographic change, the challenge of climate change and the rest of it. This is a framework that addresses individual decision-making but there is no national concept about dealing with infrastructural or overall needs and demands. That is something that the previous Government did not get round to doing and I hope that the present one will look to that.
The difficulty is compounded because there is no longer any regional strategy either, as the noble Lord, Lord Howarth, made clear. For that matter, there is no sub-regional strategy. These create difficulties for those working in planning.
One of the issues that has been touched on and may reflect problems with the system is the lack of capacity in the planning world in terms of planning officers. That was mentioned by the noble Lord, Lord Howarth. In that context, it is perhaps unfortunate that the Government have abolished the planning development grant which encouraged capacity within the profession and within local government. At some point, that might be worth revisiting.
One of the difficulties with the framework is the lack of definition about what sustainable development really means. The emphasis seems to be entirely on economic growth, although there is actually no definition of that either. Presumably, a petrol station or out-of-town shopping centre could constitute economic growth. That lack of context is worrying. As the noble Lord, Lord Tope, suggested, we need get to back to the 2005 code for sustainable development and use that as the basis. We also need to ensure that we reflect adequately the issues around the need to respond to climate change—the mitigation and adaptation—and to promote green development, including, the noble Lord, Lord Reay, will be very disappointed to hear, renewables, as part of the combating of climate change, but also, possibly, as an engine itself of the economic growth that we all want to see and which the framework clearly seeks to promote.
However, sustainability is not simply a matter of sustainability in one area. You cannot look at sustainability in one local authority area, any more than you could develop, as Stalin hoped to do, socialism in one country; you have to look at the impact of development in an urban area on its rural neighbour, and vice versa. Sustainability needs to be seen in a somewhat broader context. Many of your Lordships have referred to the need in particular—this is a relevant aspect of the point I have just made—to be very clear about the question of brownfield sites. The Minister did refer to this last night although it does not seem to be in the document. Perhaps, as a result of the consultation, a clearer and greater emphasis could be made on that aspect, as well as on the issue of town centre first, as mentioned by the noble Baroness, Lady Andrews.
In planning development, one has to look beyond housing development, for which, contrary to the views of the noble Viscount, Lord Goschen, there is a clear need. It is not just a question of housing demand; there is palpable housing need, not least in rural areas, although not for large-scale development.
Viscount Goschen
I am not sure I said there was no need for housing development. I said I felt there was an almost infinite demand and that to try to meet that substantial demand was probably optimistic.
Lord Beecham
That is possibly right, which is why I want to refer to need as the basis of a housing programme. There is also the question of the duty to co-operate, which some of your Lordships have mentioned, and which I entirely endorse. However, there is no actual mechanism, either in the framework or elsewhere, to secure that. I refer, yet again, to what is the planning equivalent of the Schleswig-Holstein question, which is the Stevenage question—an authority wanting, or even needing, to house some of its people outside its boundaries and finding no accommodation with the adjoining authority. In the absence of a regional spatial strategy, there does not seem to be a mechanism to secure that; so that, again, needs to be looked at.
There are significant issues about the presumption in favour of development, in particular where there is no local development plan. As we know, there are no local development plans in a number of areas—that is unfortunate, but it is the case—and we need to look at how we cope with the transition. The noble Lord, Lord Greaves, referred to this and he is absolutely right. We will no doubt touch on this further as the Localism Bill goes forward but if the Minister could give an indication of some direction on the question of transition, that would be helpful. There needs to be a general presumption in favour of development, but in favour of planned development. That has been the case until now, and that does seem to be the right way to take matters forward rather than have a simple carte blanche for any sort of development.
The debate today has been an interesting one and we have heard a number of views. A better balance has been struck here in your Lordships’ House than has been struck in some of the media. Nevertheless, there are genuine concerns, particularly—but not exclusively—in the countryside, about the potential impact of the thrust of the new framework. I hope that after the consultation process has ended the Government will be able to reassure people in the countryside that it is not a question of threatening the viability and attractiveness of the countryside but of strengthening rural communities alongside those of urban areas. We have to be careful about the industry, which is always prone to finding someone to blame for its problems and always prone to taking the line of least resistance in terms of where it seeks to develop. We have to incentivise development where it is most needed. Some of that will be to meet the needs of rural areas and communities, particularly in terms of housing for younger people. Much of it must be within the urban core, where, as your Lordships will be aware, the number of people seeking housing, particularly to rent, is growing significantly. As I said yesterday, we have to look in terms of affordable housing; not only in terms of owner-occupation—which of course is very desirable—but also affordable rental housing, whether social or otherwise, for the large numbers of people who are living in unsatisfactory conditions and for whom this national planning framework does not, at the moment, seem to do enough.