Planning and Infrastructure Bill

Baroness McIntosh of Pickering Excerpts

Report stage
Monday 27th October 2025 Lords Chamber

Moved by

[Baroness McIntosh of Pickering]

100: After Clause 52, insert the following new Clause—
“Local plans and planning applications: flooding(1) Local plans prepared by local authorities must apply a sequential, risk-based approach to the location of development, taking into account all sources of flood risk and the current and future impacts of climate change, so as to avoid, where possible, flood risk to people and property.(2) Local authorities must fulfil their obligations under subsection (1) by—(a) applying the sequential test and then, if necessary, the exception test under subsection (7);(b) safeguarding land from development that is required, or likely to be required, for current or future flood management;(c) using opportunities provided by new development and improvements in green and other infrastructure to reduce the causes and impacts of flooding, (making as much use as possible of natural flood management techniques as part of an integrated approach to flood risk management);(d) where climate change is expected to increase flood risk so that some existing development may not be sustainable in the long-term, seeking opportunities to relocate development, including housing, to more sustainable locations.(3) A sequential risk-based approach should also be taken to individual planning applications in areas known to be at risk now or in future from any form of flooding.(4) The sequential test must be used in areas known to be at risk now or in the future from any form of flooding, except in situations where a site-specific flood risk assessment demonstrates that no built development within the site boundary, including access or escape routes, land raising or other potentially vulnerable elements, would be located on an area that would be at risk of flooding from any source, now and in the future (having regard to potential changes in flood risk).(5) Applications for some minor development and changes of use should not be subject to the sequential test, nor the exception test, but should still meet the requirements for site-specific flood risk assessments.(6) Having applied the sequential test, if it is not possible for development to be located in areas with a lower risk of flooding (taking into account wider sustainable development objectives), the exception test may have to be applied.(7) To pass the exception test it should be demonstrated that—(a) the development would provide wider sustainability benefits to the community that outweigh the flood risk, and(b) the development will be safe for its lifetime taking account of the vulnerability of its users, without increasing flood risk elsewhere, and, where possible, will reduce flood risk overall.(8) Where planning applications come forward on sites allocated in the development plan through the sequential test, applicants need not apply the sequential test again, but the exception test may need to be reapplied if relevant aspects of the proposal had not been considered when the test was applied at the plan-making stage, or if more recent information about existing or potential flood risk should be taken into account.(9) When determining any planning applications, local planning authorities should ensure that flood risk is not increased elsewhere.(10) Development should only be allowed in areas at risk of flooding where, in the light of this assessment (and the sequential and exception tests, as applicable) it can be demonstrated that—(a) within the site, the most vulnerable development is located in areas of lowest flood risk, unless there are overriding reasons to prefer a different location;(b) the development is appropriately flood resistant and resilient such that, in the event of a flood, it could be quickly brought back into use without significant refurbishment;(c) it incorporates sustainable drainage systems, unless there is clear evidence that this would be inappropriate;(d) any residual risk can be safely managed;(e) safe access and escape routes are included where appropriate, as part of an agreed emergency plan.”Member’s explanatory statement
The Sequential and Exception Tests are planning tools that help (a) ensure new development is directed away from areas at the highest risk of flooding and (b) make development that is necessary in areas of flood risk safe throughout its lifetime, without increasing flood risk elsewhere. However, these tests are currently only guidance. A statutory basis would help ensure that Local Planning Authorities place due regard on them when preparing Local Plans and considering individual planning applications.

[Baroness McIntosh of Pickering (Con)]

I am grateful to have the opportunity to speak to Amendments 100 and 101. I thank the noble Baroness, Lady Willis of Summertown, for lending her support to Amendment 101.

Amendment 100 sets out a very simple request that the sequential and exception tests be recognised as planning tools that help to

“ensure new development is directed away from areas at the highest risk of flooding and … make development that is necessary in areas of flood risk safe throughout its lifetime, without increasing flood risk elsewhere”.

Currently, however, these tests are only guidance and are not always being carried out. A statutory basis would help to ensure that local planning authorities placed due regard on them when preparing local plans and considering individual planning applications.

In Amendment 100, I ask the Government to provide clearer statutory guidance on how and when to undertake the sequential and exception tests so that they can be applied by developers and local planning authorities more robustly. In particular, proposed new subsection (7) says:

“To pass the exception test it should be demonstrated that … the development would provide wider sustainability benefits to the community that outweigh the flood risk, and … the development will be safe for its lifetime taking account of the vulnerability of its users, without increasing flood risk elsewhere, and, where possible, will reduce flood risk overall”.


The reason for bringing this back on Report is very genially to prod the Minister a little bit further. We produced a number of bricks and mortar reports through the auspices of Westminster Sustainable Business Forum. The evidence we took in our third report was, very specifically, repeated accounts of developers providing unsatisfactory site-specific flood risk assessments, and sometimes not performing the sequential or exception tests at all. Therefore, I urge the Minister to ensure that the sequential and exception tests be placed on a statutory footing to make sure that they are carried out.

To give an anecdotal example, a planning application in Yatton, north Somerset, was recently refused by North Somerset Council on the basis that it had failed the sequential test. However, the application was later granted on appeal as the planning inspector concluded that the failure of the test was not a strong enough reason for refusing the application, citing local housing need. I argue to the Minister that there is a very clear and pressing need to place the guidance on a statutory footing.

Amendment 101 states specifically that local planning authorities should

“ensure that the maps included in their Strategic Flood Risk Assessments are based on the most up-to-date flood risk assessments provided by the Environment Agency”.

In 2007, when surface water flooding became an issue for the first time, it was generally considered and concluded by Sir Michael Pitt’s review in 2008 that there was insufficient mapping. There have been developments since then. In particular, I applaud the opening of the joint forecasting centre in Exeter—a joint venture, as I understand it, between the Met Office and the Environment Agency—but much more could be done and drilled down to local street level to assess and give a strategic flood risk as to where the flooding is likely to appear.

The Environmental Audit Committee’s report, Flood Resilience in England, of 13 October states in paragraph 14 that the Floods Resilience Taskforce should begin to implement, no later than 2026, a mechanism to provide

“strategic oversight across all sources of flood risk, fluvial, surface water, coastal, and groundwater, and set national priorities for risk management authorities”.

That is even more important now than before.

--- Later in debate ---

[Baroness Taylor of Stevenage (Lab)]

My Lords, Amendment 100 proposes placing the sequential and exception tests on a statutory footing. I thank the noble Baroness, Lady McIntosh, for her amendment. We share the view that these policies play a fundamental role in directing development away from areas at the highest risk of flooding, but it is equally fundamental that we retain our ability to adapt the position in response to emerging evidence and changing circumstances. National planning policy already plays a critical role in the planning system, being a framework which both plan-makers and decision-makers must have regard to. Enshrining these tests in statute would not only unnecessarily duplicate the policy but also make it harder to adapt and refine our approach over time. Our policy and guidance do not stand still. Guidance on the flood risk sequential test was updated only last month, and we have committed to publishing an even clearer set of national decision-making policies for consultation by the end of this year. This will include updated policies on flood risk.

Amendment 101, on strategic flood-risk assessment maps, would require local authorities to base their assessments on the most current data from the Environment Agency. As previously outlined to the House, this is already established practice. The Environment Agency updated the national flood risk assessment in 2024 and the flood map for planning in 2025, based on the latest national flood risk assessment data. For the first time, the flood map displays surface-water risk and information on how climate change may affect future flood risk from rivers and seas.

The new national flood risk assessment also allows for continuous improvement of data quality. The Environment Agency intends to update flood risk data quarterly and coastal erosion data annually, as well as refining its modelling to increase data and mapping coverage from 90% to 100%. The Environment Agency also has a long-term strategic partnership with the Met Office, called the Flood Forecasting Centre, which forecasts all natural forms of flooding, including from rivers, surface water, groundwater and the sea, to support national flood resilience in a changing climate. Local authorities must use the latest available data when preparing their assessments, and the Environment Agency routinely updates its flood-mapping tools.

Nevertheless, I wish to reassure the noble Baroness that these concerns are being listened to. The Government are committed to reviewing whether further changes are needed to better manage flood risk and coastal change through the planning system as part of the forthcoming consultation on wider planning reform later this year. I therefore kindly ask the noble Baroness to consider withdrawing her amendment.

[Baroness McIntosh of Pickering (Con)]

I am most grateful to all those who have spoken, especially the noble Baronesses, Lady Willis of Summertown and Lady Grender. I thank my noble friend Lady Scott for her support. I have some reassurance from what the Minister said, but I think she will accept my concern that a sequential test is not carried out in every case. That is why I would prefer a statutory footing, but I heard what she said.

The noble Baroness, Lady Willis, put her finger on it when she said that surface water is the most common source of flooding, yet it is underestimated. There is one question still on the table that I shall keep under review. If there is another water Bill coming down the road, we can return to this to make sure that local authorities have access to the best possible data— I think the Minister in her reply said they do—right down to street level. I welcomed the Flood Forecasting Centre; that has made a huge difference, and I hope that that the quarterly and annual reporting will make a difference. With those few remarks, I beg leave to withdraw my amendment.

Amendment 100 withdrawn.