Localism Bill

Lord Lucas Excerpts

Wednesday 12th October 2011 Lords Chamber

[Lord Berkeley]

I have some worries about the whole concept. Many noble Lords have talked about what should and should not be on this list. It is a very good list, and the noble Lord, Lord Greaves, certainly deserves a lot of credit for putting it together, if that is the right word. But there is not so much in it about development. There is lots about sustainability, which of course I love, but my slight worry is that—notwithstanding the debate going on at the moment about the presumption in favour of development, which I am sure we will talk about later—if there is to be development, it has to be done in an environmentally friendly way but must also be reasonably cost effective.

A Treasury report was produced by Infrastructure UK last year. It said that the civil engineering developments in this country are probably 60 per cent higher than they are in Germany, and goes on to say that the labour costs are much the same. The conclusion that one should probably draw from that is that the difference is to a large extent taken into account with the complexity of planning. Of course we need to have planning but, as my noble friend said just now, if we go too far down that road it will be a lawyers’ bonanza and take a very long time and nothing will get built. In the end, we are in the end going to be competing with other European and world countries about what we produce.

It is useful to have a definition. I think that we need more in it about the development side, so that is sustainable. But we must also recognise that one of the benefits of having something like this in the Bill, and possibly the national planning policy framework, is that it enables us and other people to help to hold the Government to account. Governments in the past 20 or so years, ever since John Major apparently invented the world “sustainability”, have all paid lip service to sustainability and a green environment until life got difficult. We have the 80 per cent carbon reduction target. The last Government made some attempt to go towards them, and this Government are also making some attempt, but if you look to where they have got to, in my view, many people will think, “Thank goodness that we will have retired and may even be dead by the time it comes into force in 40 years’ time—so it does not really matter”.

Yesterday the Department for Transport announced a trial of longer lorries. That is great for the environment, is it not, and great for road accidents and the quality of life? There is need for much more joined-up government right across these things, and some clauses like this would help us to hold the Government to account. I believe that we can get growth and development in a sustainable way, and this is a good contribution towards it—but possibly putting it in the national planning policy framework would be easier, and we could have a much better debate about what should be in it.

[Lord Lucas]

My Lords, I find myself very much siding with the noble Lord, Lord Howarth, on this. Sustainable development is rather like well-being; it is a concept that we think we know when we see it, and occasionally we will try to pin down what it means in definitions like the one we see before us. But actually it means different things in different times and different places, and should do so.

The development of a nuclear power station, looked at on a very local scale, is completely unsustainable, but on a national scale it may be sustainable. So scale is very important. Likewise, something which on a national scale may be an undesirable policy may be just what a village needs in order to flourish.

Again, when you set out a definition like this, even without including design or spirituality, you find that in every individual instance bits of the definition do not apply, or apply in very perverse ways. How does one apply great chunks of this definition to, say, the siting of a sewage farm? There are bits of it that do not seem to hang in there at all under those circumstances—

[Lord Jenkin of Roding]

An illustration of what my noble friend is talking about is that it is a developer who builds a new house in the forest, and an environmentalist who goes and lives in it.

[Lord Lucas]

That is a nice illustration. There are bits of wording; as my noble friend Lord Deben said, if we are going to put something in legislation, then we must produce something that works in the courts. An authority must know that it is complying with the law and other people must be able to judge whether it has complied with the law. There are bits in here which are frankly impossible from that point of view. The words “of all” appear several times, and completely remove the definition from reality when it comes to deciding the matter in a court. There are things about future generations, where we cannot know or even begin to imagine. We hardly know what is happening to the economy next week, let alone what will be the effects of a future development on future generations. We can do our best to assess that, but we cannot be held accountable for whether it does or does not; one just produces an immediate morass in the courts if one goes down that route.

There is a lack, as several noble Lords have said, of development, or the understanding of development. If you are going to assess a sustainable development you have to look at it as a whole, as a picture of everything that is happening, and not its individual bits; as a picture of what will happen over time, and not at any particular instant. There is no recognition of that at all in this definition. You could trip up a development just because it is doing a bit of harm to something, even though looked at as a whole it was doing good.

Indeed, many developments harm things but do good in other ways, and some developments compromise the ability of future generations to meet their own needs. Every time you take a bit of coal, gravel or gas out of the ground, that is not available to future generations. It is inevitable that we are living with compromise and fuzziness in this area. It is up to us to do our best by some well designed guiding lights, but we should not try to pin down a legal definition to something which is not suitable for it.

[Lord McKenzie of Luton]

I thank the noble Lord, Lord Greaves, for moving this amendment. We have added our names to it and give it our full support. On a point of detail, I wonder if the reference to the Planning Act in subsection (3) of the amendment should be 2008 rather than 2004. I particularly commend the spelling out of the guiding principles rather than the adoption of the usual shorthand of the 2005 principles.

The amendment adopts the formulation of promoting sustainable development rather than contributing to it or furthering it, which we discussed in Committee. As the noble Lord said, this amendment would enshrine in primary legislation the duty to promote sustainable development at every tier of the process, including the Secretary of State, although the duty imposed on the Secretary of State relates only to the functions concerning applications for development consent, and this would not appear to cover, for example, the Secretary of State’s engagement with promulgating a national planning policy framework. We might just reflect on that.

There has been a divide in part of our debate today between those who say that these definitions should not be in primary legislation, those who say that it should be in the national planning policy framework and those who say that we should not necessarily seek to spell these out at all. We believe that it is right for it to be in primary legislation. I agree with the noble Baroness, Lady Parminter, on that. A number of noble Lords, including the noble Lord, Lord Deben, and my noble friend Lord Howarth, queried whether doing so in a sense gives litigants a chance to challenge every decision whichever way it goes. I would argue a corollary: that not having a reasonably sophisticated framework in which these things can be judged equally, if not creating a greater opportunity for litigation, which is one of the key issues with the national planning policy framework as it stands, is a lawyer’s charter.

The noble Lord, Lord Lucas, said that we cannot possibly live every part of our life by this wording. He is right. There will always be a balance, a judgment, to be made about future generations and the current, and about local and national. To do that within the context that this wording creates gives us a real opportunity of achieving what we would broadly all sign up to.

When we discussed this matter in Committee, I understood that the Minister had indicated no change to the Labour Government’s position on the meaning of sustainable development. I think that we had one exchange and I thought that that was confirmed. If this is correct, it is very hard to see how this is reflected in the draft NPPF, which might be interpreted as giving primacy to economic development and be a view that the noble Lord, Lord Deben, may support.

A number of inclusions or omissions suggest a move away from the definition reflected in the amendment in the name of the noble Lord, Lord Greaves. The abandonment of brownfield first, the lack of content around social justice or equality and weaknesses around affordable housing proposals do not seem consistent with no change to the definition of sustainable development. If this debate does nothing else, it gives us the opportunity to hear directly from the Front Bench whether that definition is something to which it adheres, however it may be expressed in legislation or be the framework itself.

The right reverend Prelate raised spirituality and the extent to which that is included. One might argue that it is encompassed within ensuring a strong, healthy and just society, which may be the root to addressing the issues identified by the right reverend Prelate. The noble Lord, Lord Deben, referred to sustainability as being what conservatism was all about. I read these principles and say that it is a fairly good description of what socialism is all about. I am not quite sure what conclusion we might reach from that. It will never be an all-encompassing definition. Certainly, it seems to me to be not inappropriate, if we can get this in the Bill, to spell it out, to expand it and to meet the aspirations of my noble friend about including cultural in the definition. It seems to me that a strong strand from this debate is that there does not have to be a conflict between growth and the environment. The two can be encompassed. There will always be a balance in that judgment.

I was as interested as ever to hear from the noble Lord, Lord Jenkin, about his earlier experience and his historical references. He was there right at the start, although perhaps there is a competing claim that it was the noble Lord, Lord Deben, who produced, via John Major, the term “sustainability” first. I do not mind who produced it first but we should seek to make sure that we encompass it in these important planning changes before us in the most appropriate way.

We would sign up to the definition and to it being in the Bill. Given where we are in this process, it is very important that we have a clear position from the Government certainly no later than Third Reading. Whether we get partial satisfaction today on this remains to be seen but we certainly cannot let it drift beyond Third Reading. If the Government are not able to bring something forward by then, I urge the noble Lord, Lord Greaves, to revisit this—we would support him—and test the opinion of the House.

--- Later in debate ---

[Lord Deben]

My Lords, there is an issue here with which I hope the Minister will be very careful. Local authorities need to be reminded all the time, and we have had some difficulty in the past in concentrating the Government’s mind on the place of local authorities in carrying through the nitty-gritty of fighting climate change. Unless we make sure that they understand that they are on the front line and that what they do contributes a huge amount to the totality, we are going to be in difficulty. I do not think that it would matter so much had we not taken quite some time to get that into the whole run of things. This was a big issue in earlier Bills, and I hope that the Minister will understand that there is a real appetite for her to be pretty tough about this and to make sure that local authorities recognise their role.

[Lord Lucas]

My Lords, notwithstanding my noble friend’s strictures, I think that this is a daffy amendment due to its wording. How can development ever achieve a reduction in greenhouse gas emissions? Building a house emits greenhouse gases. The process of development necessarily involves the emission of greenhouse gases, and when you have created something at the end of that process, that continues to emit greenhouse gases, even if it emits far fewer than would have been emitted with a development done some years ago. Proposed new paragraph (b) at the end of the amendment would do great things for East Anglia. You would be allowed to build only off-shore windmills, waiting for the day when the place flooded.

[Lord Judd]

My Lords, my regard for the noble Lord, Lord Deben, and his commitment on climate change is second to no one. He has been one of the leading spokespeople, showing a good deal of courage on the importance of this issue. Because of my respect for him, I can say that I think that what he has just said in this debate illustrates a contradiction between what he said earlier on a previous amendment and his position here. On a previous amendment, he argued very strongly that he believed in a society in which people were not told what to do at a local level. He felt that there had to be co-operation and that one could only suggest what might be the responsibility of a local authority or the points that should be taken into account.

This issue illustrates a tension between national priorities and localism, to which there is no absolute answer. The Government may decide that in the interests of the survival of the British people it is necessary to have certain levels of activity in order to make our contribution on climate change. However, unless there are mechanisms for delivering those targets, they become part of the world of dreaming aspiration, as distinct from real, hard policy. I wish that in the deliberations on the Bill we were all more realistic that it will not be only on climate change but on quite a number of issues that we have to strike a balance between national priority and localism.