Greater Manchester Spatial Framework

William Wragg Excerpts

Wednesday 14th December 2016 Westminster Hall

[William Wragg (Hazel Grove) (Con)]

I beg to move,

That this House has considered the Greater Manchester spatial framework.

It is a pleasure to serve under your chairmanship, Mr Howarth, and it is also a pleasure to be joined by colleagues from both sides of the House for this debate. The cross-party interest in this matter demonstrates the real concerns about the spatial framework that exist among residents right across Greater Manchester. I wish to highlight some of those concerns and draw them to the Minister’s attention today.

The Greater Manchester spatial framework is the product of the Greater Manchester combined authority. It represents the authority’s plans for the management of land for housing, commercial and industrial use for the next 20 years. The framework is currently in draft form and subject to a consultation; I gently remind colleagues and all interested parties that the consultation is open until 23 December.

[Mr David Nuttall (Bury North) (Con)]

I am grateful to my hon. Friend for giving way so early in his speech. I wonder whether he has had the same concerns expressed to him that I have had expressed to me about the fact that the consultation period has been so short and that the consultation has had so little publicity.

[William Wragg]

I have picked up on that concern and doubtless other right hon. and hon. Members will have heard similar concerns, so I thank my hon. Friend for that intervention.

I want to make it clear from the outset that I am not against building and development per se, nor am I against the concept of the framework itself; on the contrary.

[Simon Danczuk (Rochdale) (Ind)]

The hon. Member is supportive of house-building. How many houses does he think should be built in his constituency?

[William Wragg]

If the hon. Gentleman waits with bated breath, he will have the answer, later in my speech.

As I say, I am not against development per se and I think that a cross-regional approach for strategic housing allocation across Greater Manchester is to be welcomed. Of course we need to provide new developments to fill the housing shortage, but it must be done in a way that is sensitive to both the local environment and the wishes of local communities. Also, it should be provided only where there is a genuine need and where the infrastructure exists to support such developments.

[Chris Green (Bolton West) (Con)]

A vital part of the infrastructure that must be taken into account is public transport, such as railways. Should not any new housing developments be located on existing public transport routes?

[William Wragg]

My hon. Friend makes a very sensible point. If he, too, waits until later in my speech, I will refer to what he has just said in detail.

[Andrew Gwynne (Denton and Reddish) (Lab)]

Before he moves on, will the hon. Gentleman give way?

[William Wragg]

I will happily give way to the hon. Gentleman, my neighbour.

[Andrew Gwynne]

I am very grateful to the hon. Gentleman, but is he concerned, as I am, that there does not appear to be any joined-up thinking between different parts of the combined authority? We are currently in a consultation on the spatial framework, which is identifying whole tracts of land for future development, yet we have just finished a consultation on the Greater Manchester transport strategy 2040, under the guise of Transport for Greater Manchester, which bears no relationship to the spatial framework?

[William Wragg]

The hon. Gentleman makes a very important point about the need for greater “joined-up thinking”, a phrase that is perhaps over-used but rarely put into practice.

It is in this spirit—of building where there is genuine need—that I wish to raise some specific concerns about the methodology behind the framework. The draft framework proposes that 227,200 net additional dwellings will be needed by 2035 to home a projected population increase of almost 300,000 people. It also apportions this house-building target across the 10 Greater Manchester councils, and in the case of Stockport, the allotted target is 19,300 new homes.

I have concerns about how these figures have been arrived at. To estimate the population growth, the spatial framework considered information from the Office for National Statistics, the Department for Communities and Local Government, an economic forecasting model, the Experian credit-referencing agency and independent business consultants. In 2014, the combined authority produced a 165-page document, outlining and consulting on its methodology for calculating future housing needs. Dozens of tables and graphs later, we arrive at the magic prediction of 294,800 extra people by 2035, which translates into that figure of 227,200 new dwellings that I gave before.

Forecasting is a very difficult and complex task, and it is always subject to a degree of uncertainty. However, taking just the most recent three forecasts from the ONS—from 2008, 2010 and 2012—there is a variance of almost 200,000 people between the highest and lowest estimates for the population of Greater Manchester by 2032. This means that the framework’s magic number is two thirds within the margin of error of the three most recent ONS forecasts, and that is without even cross-examining the four other sources.

It is also curious to observe that 10 large housing developers all claimed that the authority’s objectively assessed need figure was too low, whereas the Campaign to Protect Rural England claimed it was “excessively high”. Faced with such wild variance in the estimates of population growth, it is difficult to have faith in the combined authority’s arithmetic. One wonders whether the projected need goes beyond the true need.

[Kate Green (Stretford and Urmston) (Lab)]

I congratulate the hon. Gentleman on securing this debate. My constituents are also concerned that an absolute number is meaningless if it does not take account of the mix of housing need, which must be matched to the population. They have particularly expressed concern about the need for family homes and affordable homes. Does he agree?

[William Wragg]

I agree with the hon. Lady, who raises an important point.

My second major area of concern about the draft framework is the proposal to release green-belt land for housing development. It proposes to build on 4,900 hectares of Greater Manchester’s green belt, representing a net loss of just over 8%. Locally, Stockport is set to lose some 9% of its green belt. Some 8,000 homes will be built on green belt in the constituency of my hon. Friend the Member for Cheadle (Mary Robinson), whereas in my constituency permission will be given to build a further 4,000 homes on fields around the village of High Lane, essentially doubling the village’s size. Those housing developments have been proposed with little regard for the burden of increased traffic on the road network or the increased pressure on public services, as my hon. Friend the Member for Bolton West (Chris Green) said.

[Barbara Keeley (Worsley and Eccles South) (Lab)]

Is the hon. Gentleman concerned, as I am—he sounds like he is—about the release of green-belt land? We understand from national guidance that green-belt land should be released in only the most exceptional or very special circumstances. In fact, I had a quick look at the planning practice guidance, which says:

“Unmet housing need…is unlikely to outweigh the harm to the Green Belt and other harm to constitute the ‘very special circumstances’ justifying…development on…the Green Belt.”

Does he agree?

[William Wragg]

The hon. Lady’s point is entirely correct. My concern is that the combined authority’s housing target will become an exceptional circumstance, as it appears to think.

[Graham Stringer (Blackley and Broughton) (Lab)]

Will the hon. Gentleman give way?

[William Wragg]

How can I resist?

[Graham Stringer]

The hon. Gentleman is being very generous. On the allocation of green-belt land for housing, does he agree that the figure is dependent on an assessment of the pipeline of brownfield sites, which has always been underestimated?

[William Wragg]

The hon. Gentleman is entirely correct. Again, he alludes to something that I will address in my remarks. He is spot on.

If the homes in Stockport are realised, they will account for only two thirds of Stockport’s overall target, so I fear this is likely to be the thin end of the wedge. Last night, my hon. Friends the Members for Cheadle and for Bury North (Mr Nuttall) presented petitions on behalf of thousands of our constituents who oppose the massive-scale development on the green belt and who want to prioritise building on brownfield land.

The voices not only from my constituency but from neighbouring constituencies, as evidenced by the attendance in Westminster Hall this afternoon, show a clear concern that the green belt should be protected. Green belt is easily the best loved and understood British planning policy, and it is hugely valued. It has been a long-standing commitment of Governments of all colours that redevelopment and reuse of land in urban areas—so-called brownfield sites—should take priority over greenfield sites, and rightly so for a number of reasons. First, it protects the countryside and provides the benefits of green spaces and access to nature and recreation.

On regeneration, we need to get people living in town centres again. Our cities are thriving, but medium and large towns are being neglected. Such depopulation leads to further decline and creates a vicious cycle, as I fear has been witnessed in Stockport. However, Manchester, to its credit, has made great strides. The green belt encourages the regeneration of our towns and the best use of our land.

[Liz McInnes (Heywood and Middleton) (Lab)]

The green belt also prevents urban sprawl. My constituents in the towns of Heywood and Middleton are extremely concerned about the erosion of the green belt, to the extent that they are worried that, eventually, the two towns will cease to exist, becoming something like Heyton or Midwood.

[William Wragg]

The hon. Lady possesses great powers of foresight, because my next paragraph is on green belt being a vital barrier to urban sprawl. In the case of Heywood and Middleton, the green belt is an important barrier between the two communities.

As a vital barrier to urban sprawl, the green belt encourages us to build upwards not outwards, to live nearer our places of work and not to commute or congest. Our local roads, infrastructure and transport capacity already struggle with existing demands. The proposals for massive developments in semi-rural areas will only make matters worse.

By contrast, developing vacant brownfield sites that have previously been used for other purposes is a more sensible approach to house building. Such sites are closer to urban centres, retain the countryside, boost regeneration and ease transport pressure yet, before many brownfield sites have been properly utilised, the framework seeks to release green-belt land that, once gone, can never be gotten back. Although building on greenfield sites is sometimes necessary, the release of green-belt land now, and on the scale proposed, is a huge disincentive to the proper use and regeneration of brownfield sites.

Most of our housing is now provided by volume house builders, which are essential to housing provision, but it is worth considering how they operate. Their business model favours large new greenfield developments. If we make sites on green belt available, the volume house builders will develop those sites first and will make the case that sites in our towns are unsuitable or, indeed, unprofitable. Once they have developed on the green-belt releases, they will come back for more before they even look at urban land. Therefore, the opportunity for real regeneration in Stockport and other Greater Manchester towns will be lost for a generation.

[Andrew Gwynne]

The hon. Gentleman is making an important point about the value of the green belt to people living in Stockport and Tameside. He will know that much of our green belt is also recreational space for those two boroughs. Is he concerned, as I am, that some of the sites that have been identified in the spatial framework are within the Tame valley? One site is at Hyde Hall farm in Denton, and there is also a large industrial proposal on the edge of Denton in his constituency. That is wrong, is it not?

[William Wragg]

It is wrong, and I know the hon. Gentleman had a battle on his hands with the threatened encroachment on Reddish Vale country park.

What will we do to ensure that brownfield developments are prioritised, that our towns are regenerated first and that green-belt land is released only when it is the last option? First, we need an accurate estimate of the amount of urban land available. According to the combined authority’s own figures, Greater Manchester has at least 1,000 hectares of undeveloped brownfield land that has not been earmarked for use. Taken together, the sites have enough space to build at least 55,000 homes—that is a very conservative estimate—which is almost a quarter of the entire Greater Manchester target, as set out in the framework. This is merely a pilot exercise, and I am confident that more sites can be found, as the hon. Member for Blackley and Broughton (Graham Stringer) mentioned. However, releasing green-belt land now would totally undermine the incentive for such developments.

Secondly, Greater Manchester combined authority needs to address the familiar issues that prevent development of urban land, such as split ownership, land banking, unrealistic expectations of land value, access, contamination and others.

Thirdly, to make housing in urban areas attractive to new owners and tenants, we need to make town centres places where people want to live, with pleasant, safe surroundings and the right facilities, amenities, public services, schools and healthcare. Those aims could perhaps be achieved by creating a development corporation or similar body with responsibility for regenerating Greater Manchester and with a remit to recycle land and to create fit places to live. That need not cost much, but it would create the proper planning that would stop Greater Manchester sprawling out unsustainably in all directions.

I have three questions for the Minister. Does he agree about the need to protect the green belt and to prioritise the redevelopment of brownfield land as an alternative? Does he agree that green-belt sites should be used only as a very last resort when all brownfield sites have been exhausted? Does he share my ideas for prioritising brownfield development, and what other steps are the Government taking to encourage it? Does he think that Greater Manchester combined authority is justified in its housing target and its desire to release green-belt land in the immediate future?

As I said at the outset, I and the thousands who signed local petitions are not against house building, but we believe in brownfield sites. Sites that have been developed previously should be prioritised for building homes, which not only protects the countryside but focuses development where regeneration is needed and where the necessary infrastructure already exists. The strength of local opinion is clear to see, and it is clear to see in the turnout of colleagues from Greater Manchester in Westminster Hall this afternoon. I thank all those who have supported the campaign.

--- Later in debate ---

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

It is a pleasure to serve under your chairmanship again, Mr Howarth I congratulate the hon. Member for Hazel Grove (William Wragg) on securing the debate. Members in all parts of the Chamber have spoken passionately for their areas, and we have clearly been discussing a huge local issue.

The Opposition do not have a particular problem with the concept of a spatial framework. Setting out a plan to deliver new homes and jobs up to 2035 is important, in particular to identify new infrastructure that will underpin such development—providing that happens, of course. The framework is also useful to sit alongside local plans, but it is not clear to me how those are being collected. On the consultation, there seem to be some issues to do with the timeframe and local views being taken on board.

The idea of the spatial framework therefore is good, but I am not absolutely convinced that in its current mode it is fit for purpose. Four areas seem to have been identified this afternoon: the inadequate evidence base for the green-belt proposals, and too much reliance on the green belt in the framework plan; the lack of protection for green space in the plan; the democratic deficit, given that we are not sure who will make the decisions about the plan; and the lack of ambition and imagination in relation to the area’s needs. I will deal briefly with those four points.

The national planning policy framework makes it clear:

“Green Belt boundaries should only be altered in exceptional circumstances, through the preparation or review of the Local Plan.”

Interestingly, the consultation on the Greater Manchester spatial framework stated:

“It is concluded that we have to consider Green Belt release to meet this need and that exceptional circumstances exist to amend the existing Green Belt boundaries, as set out in the background evidence papers”,

but the study to which that refers actually makes no comment at all on whether green-belt land should be released. There therefore seems to be a complete lack of an evidence base to enable councils to build on the green belt. Furthermore, they have not demonstrated clearly that brownfield development will not be enough, and that needs to be done in some detail, because the Government now require a brownfield register to be put together. We simply have not seen that, and it has certainly not been subject to enough scrutiny.

On green space, it would be helpful for all Members present to talk to their communities about designating under the NPPF any sites of real value to the local community. A green space designation gives a degree of protection. That needs to happen.

The councils together also need to address the issue of the democratic deficit. It is wrong for people to think that planning is done to them and that their voices are not heard. We should have a spatial framework that starts with a neighbourhood plan, listens to what local communities want and relates that to the local plan and then to a spatial plan. I hope that once my right hon. Friend the Member for Leigh (Andy Burnham) is elected Mayor, he will look at how to put together a better spatial framework that will enable local communities to plan for the future, because that is what they want. They want enough housing and jobs, and a good built and natural environment for people to live in.

[William Wragg]

For the record, may I point out that there is an excellent Conservative candidate for the mayoral election next year, Sean Anstee?

[Dr Blackman-Woods]

Will the Conservative candidate have good ideas about planning? That remains to be seen.

I suggest to the Minister—