r
^ D O C U M E N T IS T H E P R O P E R T Y O F H E R B R I T A N N I C M A J E S T Y S G O V E R N M E N T )
COPY NO.
C ( 6 7 ) 106
15th J u n e ,
196?
CABINET
TOWN AND COUNTRY PLANNING:
DRAFT WHITE
PAPER
M e m o r a n d u m b y t h e S e c r e t a r y of S t a t e f o r S c o t l a n d ,
t h e M i n i s t e r of H o u s i n g a n d -Local G o v e r n m e n t a n d
t h e S e c r e t a r y of S t a t e f o r W a l e s
W e c i r c u l a t e , f o r t h e c o n s i d e i a t i o n of o u r c o l l e a g u e s , t h e d r a f t
of a W h i t e P a p e r o n t o w n a n d c o u n t r y p l a n n i n g w h i c h h a s b e e n a p p r o v e d
by the H o m e Affairs C o m m i t t e e ,
T h e p u r p o s e of t h e W h i t e P a p e r i s t o
a n n o u n c e t h e s u b s t a n c e of l e g i s l a t i o n t o b e i n t r o d u c e d i n t h e 1 9 6 7 - 6 8
S e s s i o n for E n g l a n d and W a l e s , and in the I96&-69 S e s s i o n for S c o t l a n d .
2.
A s w e e x p l a i n in t h e W h i t e P a p e r , we w a n t to m o d e r n i s e t h e m a i n
b o d y of p l a n n i n g l e g i s l a t i o n w h i c h , i n i t s e s s e n t i a l s , g o e s b a c k t o t h e
e a r l y p o s t - w a r y e a r s a n d o w e s s o m u c h t o t h e c a r e a n d f o r e s i g h t of
Lewis Silkin,
T h e r e is now an u r g e n t need to s t r e a m l i n e p r o c e d u r e s
a n d c u t d o w n d e l a y s w h i c h h a v e b e c o m e a s o u r c e of j u s t i f i e d c r i t i c i s m ;
to e n s u r e wider public p a r t i c i p a t i o n in planning p a r t i c u l a r l y when s c h e m e s
a r e s t i l l a t t h e f o r m a t i v e s t a g e ; a n d to a d a p t the p l a n n i n g p r o c e s s to
m a t c h the a d v a n c e s in planning t e c h n i q u e s and the e c o n o m i c and s o c i a l
c h a n g e s t h a t h a v e t a k e n p l a c e o v e r t h e l a s t 20 y e a r s .
3.
T h e t w o m o s t i m p o r t a n t a l t e r a t i o n s v/e p r o p o s e c o n c e r n t h e
h a n d l i n g of a p p e a l s a g a i n s t d e c i s i o n s m a d e b y l o c a l p l a n n i n g a u t h o r i t i e s ,
a n d t h e c o n t e n t a n d p r o c e d u r e f o r a p p r o v a l of t h e d e v e l o p m e n t p l a n s
they p r e p a r e .
At p r e s e n t , all planning appeals a r e decided in the n a m e
of t h e M i n i s t e r o r t h e S e c r e t a r y of S t a t e .
The p r o p o s a l ( p a r a g r a p h s
3 0 - 4 1 of t h e W h i t e P a p e r ) , w h i c h f o l l o w s t h e r e c o m m e n d a t i o n of t h e
C o m m i t t e e o n T r i b u n a l s a n d E n q u i r i e s , i s t h a t p o w e r s h o u l d be t a k e n
to a u t h o r i s e s e l e c t e d i n s p e c t o r s to d e c i d e m i n o r c a s e s that do not
i n v o k e i s s u e s of p o l i c y .
This would greatly simplify the handling
of t h o u s a n d s of c a s e s e a c h y e a r a n d s h o u l d l e a d t o a g r e a t i m p r o v e m e n t
i n s p e e d of d e c i s i o n .
We b e l i e v e too t h a t m o s t p e o p l e would w e l c o m e
t h e f a c t t h a t t h e i r a p p e a l w a s b e i n g d e c i d e d by t h e m a n who h e a r d t h e i r
a r g u m e n t s and inspected the site,
4.
W e p r o p o s e ( p a r a g r a p h s 1 5 - 2 0 ) t h a t t h e c o n t e n t of d e v e l o p m e n t
p l a n s s h o u l d b e b r o a d e n e d t o t a k e i n n o t m e r e l y m a t t e r s of l a n d u s e b u t
t h e w h o l e r a n g e of c o n s i d e r a t i o n s t h a t s h o u l d d e t e r m i n e t h e f u t u r e
s t r u c t u r e of o u r t o w n s a n d t h e p o l i c i e s f o r t h e c o u n t r y s i d e .
In
p a r t i c u l a r , this m e a n s ensuring that traffic, t r a n s p o r t and i n v e s t m e n t
p o l i c i e s a r e p r o p e r l y r e f l e c t e d in t h e s e p l a n s .
At the s a m e t i m e , we
p r o p o s e that only t h e s e s t r u c t u r a l e l e m e n t s should n o r m a l l y r e q u i r e
M i n i s t e r i a l a p p r o v a l s i n c e o n e of t h e m a i n c a u s e s of d e l a y i n p l a n n i n g
i n r e c e n t y e a r s h a s b e e n t h e p r e o c c u p a t i o n of c e n t r a l g o v e r n m e n t w i t h
the highly d e t a i l e d p r o p o s a l s for land u s e that m a k e up the g r e a t e r p a r t
of t h e c u r r e n t p l a n s .
T h e s e d e t a i l e d m a t t e r s would be d e a l t with in
l o c a l p l a n s w h i c h would, in the o r d i n a r y w a y , be left for s e t t l e m e n t
by the local planning authority,
5,
In c o n s i d e r i n g t h e s e p r o p o s a l s for d e v e l o p m e n t p l a n s , t h e H o m e
A f f a i r s C o m m i t t e e paid s p e c i a l a t t e n t i o n to the m e a s u r e s n e e d e d to
safeguard objectors rights where planning authorities a r e approving
t h e i r own l o c a l p l a n s and we p r o p o s e to r e t a i n p o w e r s to i n t e r v e n e in
t h e h a n d l i n g of a n y l o c a l p l a n a t a n y s t a g e s h o u l d c i r c u m s t a n c e s d e m a n d
t h i s a n d to p r o v i d e p r o c e d u r e s w h i c h e n s u r e t h a t p l a n n i n g a u t h o r i t i e s
d e a l o p e n l y a n d f a i r l y with t h o s e who o b j e c t to t h e i r p r o p o s a l s .
These
a r e s e t but in the A n n e x to the White P a p e r ,
1
s
6.
W e n o w s e e k t h e a g r e e m e n t of o u r c o l l e a g u e s t o t h e p u b l i c a t i o n
of t h e W h i t e P a p e r a t a n e a r l y d a t e , s o t h a t P a r l i a m e n t a n d t h e p u b l i c
m a y b e a b l e t o c o n s i d e r t h e b r o a d o u t l i n e of o u r p r o p o s a l s a n d s o t h a t
v/e m a y d i s c u s s t h e m w i t h t h e l o c a l a u t h o r i t y a s s o c i a t i o n s a n d t h e
C o u n c i l on T r i b u n a l s b e f o r e t h e l e g i s l a t i o n i s i n t r o d u c e d .
W.R.
A.C.
C. K,
S c o t t i s h Office,
15th J u n e ,
1967
S.W.1,
TOWN AND COUNTRY PLANNING: 1.
Town and c o u n t r y p l a n n i n g s h a p e s t h e c o n d i t i o n s i n which we
live together.
P l a n n i n g d e c i s i o n s d e t e r m i n e where and how new
"buildings may h e b u i l t and w h e t h e r e x i s t i n g u s e s of l a n d and
b u i l d i n g s may h e c h a n g e d .
In the broader sense, they l a r g e l y
d e t e r m i n e t h e e n v i r o n m e n t i n w h i c h we s h a l l l i v e - w h e t h e r o u r
towns w i l l b e p l e a s a n t p l a c e s t o l i v e i n , a n d w h e t h e r o u r homes,
s h o p s , f a c t o r i e s , o f f i c e s and p l a c e s of l e i s u r e and e n t e r t a i n m e n t
w i l l b e i n t h e r i g h t p l a c e s , and w i t h e a s y f l o w i n g c o m m u n i c a t i o n s
between t h e m . They d e t e r m i n e w h e t h e r t h e c o u n t r y s i d e v a i l b e p r o ­
t e c t e d f o r farming, f o r e s t r y and r e c r e a t i o n , whether i t s b e a u t y
w i l l be e n h a n c e d , and w h e t h e r t h e f i n e b u i l d i n g s of t h e p a s t w i l l
be p r e s e r v e d a g a i n s t d e c a y and w a n t o n d e s t r u c t i o n .
They p r o v i d e a
framework w i t h i n which t h o u s a n d s of m i l l i o n s of p o u n d s a r e s p e n t
every y e a r on b u i l d i n g s a n d r o a d s .
2.
I t m a t t e r s t o e v e r y b o d y t h a t we s h o u l d h a v e an u p - t o - d a t e
and e f f e c t i v e town and c o u n t r y p l a n n i n g s y s t e m w h i c h can h e l p t o
bring these things about.
I t m a t t e r s , t o o , t h a t t h e system s h o u l d
be such t h a t p e o p l e can know a b o u t i m p o r t a n t c h a n g e s b e f o r e t h e y
t a k e p l a c e and i n f l u e n c e t h e d e c i s i o n s which may a f f e c t them.
3.
B r i t a i n i s f o r t u n a t e i n h a v i n g h a d , f o r many y e a r s , t h e
p l a n n i n g s y s t e m e s t a b l i s h e d by t h e Town a n d C o u n t r y P l a n n i n g Act of
19^7* and t h e Town and C o u n t r y P l a n n i n g ( S c o t l a n d ) Act of t h e same
year.
I t was t h e n , t h a n k s t o t h e c a r e a n d f o r e s i g h t of
L o r d S i l k i n , t h e most a d v a n c e d and c o m p l e t e s y s t e m of l a n d u s e
planning i n the world.
I t d i d much t o h e l p i n t h e r e c o n s t r u c t i o n
of our w a r - d a m a g e d c i t i e s and i t p r o t e c t e d t h e c o u n t r y s i d e from a
r e s u m p t i o n of t h e u n c o n t r o l l e d u r b a n s p r a w l of t h e ' t h i r t i e s .
But t h e t i m e h a s now come t o p r o f i t from t w e n t y y e a r s ' e x p e r i e n c e
and t o make t h e c h a n g e s r e q u i r e d b y new c i r c u m s t a n c e s , new
p o l i c i e s a n d new a d v a n c e s i n p l a n n i n g t e c h n i q u e s .
U.
T h r e e major d e f e c t s h a v e now a p p e a r e d i n t h e p r e s e n t
s y s t e m . F i r s t , i t h a s become o v e r l o a d e d and s u b j e c t t o d e l a y s and
cumbersone p r o c e d u r e s .
Second, t h e r e has been i n a d e q u a t e
p a r t i c i p a t i o n by t h e i n d i v i d u a l c i t i z e n i n t h e p l a n n i n g p r o c e s s ,
and i n s u f f i c i e n t r e g a r d t o h i s i n t e r e s t s .
T h i r d , the system has
been b e t t e r a s a n e g a t i v e c o n t r o l on u n d e s i r a b l e d e v e l o p m e n t t h a n
as a p o s i t i v e s t i m u l u s t o t h e c r e a t i o n of a good e n v i r o n m e n t .
5.
These a r e t h e main d e f e c t s which t h e r e v i s i o n of t h e s y s t e m
must t a c k l e and t h e G-overnment p r o p o s e t o remedy t h e m . To combine
t h e s a f e g u a r d i n g of i n d i v i d u a l i n t e r e s t s w i t h q u i c k e r d e c i s i o n s
means s t r e a m l i n i n g ;
to emphasise the p o s i t i v e environmental
a p p r o a c h r e q u i r e s a c o n c e n t r a t i o n of e f f o r t on what i s v i t a l , a n d
l e s s c e n t r a l c o n t r o l over d e t a i l , '
and, i n c o n s i d e r i n g t h e c h a n g e s
n e c e s s a r y , we must r e c o g n i s e t h a t p l a n n i n g now i s o p e r a t i n g i n a
v e r y d i f f e r e n t c o n t e x t from t h a t i m m e d i a t e l y a f t e r t h e War.
A Hew C o n t e x t f o r
Planning
6.
When t h e A c t s w e r e b e i n g p r e p a r e d , p l a n n i n g w a s b a s e d on t h e
b e l i e f t h a t o u r p o p u l a t i o n was l i k e l y t o r e m a i n s t a b l e and t h e r e
was l i t t l e a p p r e c i a t i o n a t t h a t tin? e of t h e l i k e l y growth i n t h e
volume of motor t r a f f i c - and s t i l l l e s s of t h e i m p a c t t h a t t h i s
would h a v e on t h e s t r u c t u r e of our towns and on t h e c o u n t r y s i d e .
No?/, t h e b e s t w o r k i n g a s s u m p t i o n on p o p u l a t i o n i s -that we may have t o
/provide
Now c o n s o l i d a t e d i n t h e Town and C o u n t r y P l a n n i n g Act 1962
p r o v i d e homes f o r p e r h a p s Mi m i l l i o n e x t r a p e o p l e i n G r e a t B r i t a i n
"by t h e end of t h e c e n t u r y - an i n c r e a s e of n e a r l y a t h i r d .
As w e l l
as b u i l d i n g homes f o r a g r o w i n g p o p u l a t i o n , we must r e p l a c e t h o s e
h o u s e s which h a v e come t o t h e end of t h e i r u s e f u l l i f e .
While
t h i s i s a c o n t i n u i n g p r o c e s s , t h e r e a l r e a d y e x i s t s a need f o r about 3 m i l l i o n h o u s e s t o r e p l a c e slums and o t h e r old h o u s e s which a r e n o t w o r t h r e h a b i l i t a t i n g .
Not o n l y must t h e o c c u p i e r s be- g i v e n new homes, b u t t h e c l e a r e d s i t e s s h o u l d be p u t t o
good u s e .
7.
M e a n w h i l e , t r a f f i c p r o b l e m s w i l l b e m o u n t i n g . -The number of
m o t o r c a r s on t h e r o a d ( a l r e a d y 9 i m i l l i o n i n 1966) i s e x p e c t e d t o
exceed 18 m i l l i o n i n 1975? w i t h e v e n b i g g e r i n c r e a s e s t o f o l l o w .
The r e v i s e d p l a n n i n g s y s t e m must b e a b l e t o cope j u s t l y , f l e x i b l y ,
and s w i f t l y w i t h a l l t h i s .
8.
A new f a c t o r h a s "been i n t r o d u c e d i n t o p l a n n i n g h y t h e
G o v e r n m e n t s r e g i o n a l p o l i c i e s and b y t h e s e t t i n g u p of t h e
Economic P l a n n i n g C o u n c i l s i n t h e r e g i o n s a n d i n S c o t l a n d a n d V a l e s .
Some of t h e s e C o u n c i l s have b e e n p u b l i s h i n g r e g i o n a l s t u d i e s which
s h o u l d h e l p t o s h a p e p h y s i c a l and e c o n o m i c d e v e l o p m e n t i n t h e
regions.
The new p l a n n i n g p r o c e s s must t a k e a c c o u n t of t h e s e
evolving regional p o l i c i e s .
9.
The p l a n s drawn u p must a l s o h e r e a l i s t i c i n f i n a n c i a l t e r m s
and t h e demands t h e y make on t h e m a i n c a p i t a l e x p e n d i t u r e
programmes must b e r e a s o n a b l e i n amount and i n t i m i n g .
However
a d m i r a b l e t h e y may b e , p l a n s which c a n n o t b e r e a l i s e d a r e
p o s i t i v e l y harmful.
They s t a n d i n t h e way of more r e a l i s t i c
p l a n s , and c a u s e n e e d l e s s w o r r i e s t o p e o p l e who f e a r t h a t t h e i r
i n t e r e s t s may b e a f f e c t e d .
10.
P e o p l e must be a b l e t o p a r t i c i p a t e f u l l y i n t h e p l a n n i n g
p r o c e s s , and t h e i r r i g h t s must b e s a f e g u a r d e d .
Many c h a n g e s have
a l r e a d y b e e n made i n p l a n n i n g p r o c e d u r e s f o l l o w i n g t h e r e p o r t of
the Committee on A d m i n i s t r a t i v e T r i b u n a l s * i n 1957 and. t h e
s u b s e q u e n t s e t t i n g up of t h e C o u n c i l on T r i b u n a l s .
One of t h e
G o v e r n m e n t ' s main aims i n t h e p r e s e n t r e v i e w of" p l a n n i n g l e g i s l a t i o n
is to ensure t h a t t h e r e are g r e a t e r o p p o r t u n i t i e s for the d i s c u s s i o n
of i m p o r t a n t c h a n g e s w h i l e t h e y a r e s t i l l a t t h e f o r m a t i v e s t a g e
and can b e i n f l u e n c e d b y t h e p e o p l e whose l i v e s t h e y w i l l a f f e c t .
They i n t e n d a l s o t o m a i n t a i n t h e r i g h t s of o b j e c t o r s - w h e t h e r t h e y
are i n d i v i d u a l s or o r g a n i s a t i o n s - to argue t h e i r case a t t h e
formal s t a g e s .
11.
The p r o b l e m i s t h a t s a f e g u a r d s b u i l t i n t o t h e p l a n n i n g
procedure a u t o m a t i c a l l y slow i t u p . P r o c e d u r a l s a f e g u a r d s , v i t a l
though t h e y a r e , slow t h e p r o g r e s s t o w a r d s d e c i s i o n , and t h e r e
i s g r o w i n g i m p a t i e n c e a t p r e s e n t d e l a y s . T h e s e d e l a y s may h o l d up
d e v e l o p m e n t t h a t m a t t e r s g r e a t l y t o t h e p e o p l e c o n c e r n e d , and may
be of economic i m p o r t a n c e f o r t h e c o u n t r y a s a w h o l e . While t h e
p r e s e r v a t i o n of p r o p e r r i g h t s of r e p r e s e n t a t i o n i s of o v e r r i d i n g
i m p o r t a n c e , some s t r e a m l i n i n g of t h e s y s t e m i s e s s e n t i a l i f
u n f a i r n e s s t o t h o s e who w i s h t o d e v e l o p i s t o be a v o i d e d .
12.
There a r e t h e r e f o r e c o n f l i c t i n g b u t b a s i c r e q u i r e m e n t s t o be
reconciled.
On t h e one hand t h e r e i s t h e d e s i r e f o r more c o n s u l t a ­
t i o n and w i d e r a s s o c i a t i o n of t h e p u b l i c w i t h p l a n n i n g ;
on t h e
other, t h e r e i s the need f o r q u i c k e r d e c i s i o n s .
The Government
b e l i e v e t h a t t h e way t o s a t i s f y t h e s e r e q u i r e m e n t s l i e s i n
/devolution
Cmnd.
218
H.M.S.O.
8s.
net
d e v o l u t i o n of r e s p o n s i b i l i t y f o r some p l a n n i n g d e c i s i o n s , and i n
s i m p l i f i c a t i o n of p r o c e d u r e s . W i t h t h e s e a i m s i n mind, t h e
Government h a v e d e c i d e d t o i n t r o d u c e l e g i s l a t i o n t o improve and
modernise t h e town and c o u n t r y p l a n n i n g s y s t e m ;
and t h i s p a p e r
d e s c r i b e s what t h e y p r o p o s e . .
OUTLINE OF PROPOSALS
13.
Two m a i n t h r e a d s r u n t h r o u g h t h e p r e s e n t
( 1 )
system:­
d e v e l o p m e n t p l a n s p r e p a r e d and r e v i e w e d p e r i o d i c a l l y
b y t h e l o c a l p l a n n i n g a u t h o r i t i e s - and r e q u i r i n g t h e
Minister s** approval;
and
1
( 2 )
1k.
development c o n t r o l e x e r c i s e d by the l o c a l p l a n n i n g
a u t h o r i t i e s o v e r new b u i l d i n g a n d c h a n g e s i n t h e u s e
of l a n d and b u i l d i n g s .
T h e r e i s a r i g h t of a p p e a l t o
t h e M i n i s t e r a g a i n s t development c o n t r o l d e c i s i o n s
made b y t h e p l a n n i n g a u t h o r i t i e s ;
and, where
u n a u t h o r i s e d development t a k e s p l a c e , p l a n n i n g c o n t r o l
i s e n f o r c e d by means of n o t i c e s i s s u e d b y t h e p l a n n i n g
a u t h o r i t i e s , which may a l s o b e t h e s u b j e c t of a p p e a l
to the Minister.
Briefly,
t h e Government now p r o p o s e
to
i n t r o d u c e 1­
( 1 )
a new k i n d of d e v e l o p m e n t
plan;
( 2 )
a new method of h a n d l i n g some p l a n n i n g a p p e a l s w h i c h
w i l l allow d e c i s i o n s to be r e a c h e d sooner;
( 3 )
more e f f e c t i v e means of d e a l i n g w i t h i n f r i n g e m e n t s
planning control;
(4)
improved p r o c e d u r e s f o r t h e p r e s e r v a t i o n and maintenance
of b u i l d i n g s of h i s t o r i c o r a r c h i t e c t u r a l i m p o r t a n c e :
and
( 5 )
m i s c e l l a n e o u s i m p r o v e m e n t s t o p l a n n i n g l a w and
procedures.
of
DEVELOPMENT PLANS
15.
The p r e s e n t d e v e l o p m e n t p l a n s a r e f a i l i n g t o meet c u r r e n t
n e e d s . P a r t of t h e t r o u b l e i s t h a t t h e a r e a s t h e y c o v e r a r e t o o
small;
t h e p l a n - m a k i n g p r o c e s s i s b a s e d upon l o c a l g o v e r n m e n t
boundaries which d i v i d e a r e a s w i t h competing and complementary
needs and r e s o u r c e s a n d , i n d e e d , c r e a t e p l a n n i n g p r o b l e m s b y
a r t i f i c i a l l y s e p a r a t i n g town from c o u n t r y a t t h e p o i n t w h e r e
p r e s s u r e f o r change i s g r e a t e s t .
The s t r u c t u r e of l o c a l
government and t h e s i z e of t h e p l a n n i n g u n i t s r e q u i r e d t o meet
modern n e e d s a r e b e i n g e x a m i n e d b y t h e R o y a l Commissions on L o c a l
Government i n E n g l a n d and i n S c o t l a n d and by t h e S e c r e t a r y of S t a t e
16.
I t i s not only the a d m i n i s t r a t i v e b o u n d a r i e s t h a t a r e out
of d a t e : t h e d e v e l o p m e n t p l a n i t s e l f h a s become a n i n a d e q u a t e
/instrument,
*
C o u n t i e s a n d c o u n t y b o r o u g h s i n E n g l a n d and W a l e s ;
c o u n t i e s and l a r g e b u r g h s i n S c o t l a n d .
-
**
I n t h i s p a p e r , r e f e r e n c e s t o t h e M i n i s t e r s h o u l d be u n d e r ­
s t o o d a s r e f e r e n c e s t o t h e M i n i s t e r of H o u s i n g and L o c a l
Government i n E n g l a n d , and t o t h e S e c r e t a r y of S t a t e i n
S c o t l a n d and i n W a l e s .
i n s t r u m e n t , b o t h i n i t s c o n t e n t and i n i t s p r o c e d u r e s .
The p l a n
c o n c e n t r a t e s on l a n d u s e , and d o e s so i n e x c e s s i v e d e t a i l .
Planning
i s n o t j u s t a m a t t e r of p r e s c r i b i n g p e r m i s s i b l e l a n d u s e s , and
making s u r e t h a t i n c o m p a t i b l e u s e s a r e k e p t away from e a c h o t h e r .
What m a t t e r s f a r more - c e r t a i n l y when i t comes t o c e n t r a l government
l e v e l - i s whether t h e p h y s i c a l environment as a whole i s b e i n g
p r o p e r l y s h a p e d t o meet e v o l v i n g s o c i a l a n d e c o n o m i c n e e d s , w i t h
r e a l i s t i c r e g a r d t o i n v e s t m e n t programmes and p r i o r i t i e s .
In
p a r t i c u l a r , p l a n n i n g must b e c o n c e r n e d w i t h t h e c r i t i c a l p r o b l e m s
of movement t h a t a r i s e from t h e c o n t i n u i n g g r o w t h of t r a f f i c
g e n e r a t e d by e x i s t i n g d e v e l o p m e n t , by r e d e v e l o p m e n t and b y new
development.
P l a n n i n g of l a n d u s e , of t r a n s p o r t , a n d of i n v e s t m e n t
needs t o b e i n t e g r a t e d - i n order t o meet our economic aid social objectives.
17.
The p r e s e n t c o n c e n t r a t i o n on t h e z o n i n g of l a n d f o r p a r t i c u ­
l a r p u r p o s e s b r i n g s b e f o r e t h e M i n i s t e r f o r h i s a p p r o v a l a mass of
detailed material.
S i n c e so much d e t a i l i s c o n t a i n e d i n t h e p l a n s
s u b m i t t e d f o r m i n i s t e r i a l a p p r o v a l , i t i s n o t uncommon f o r h u n d r e d s
of o b j e c t i o n s t o be l o d g e d , f o r l o c a l i n q u i r i e s i n t o them t o l a s t
many d a y s and w e e k s ;
and d e a l i n g w i t h t h e o b j e c t i o n s and o t h e r
m a t t e r s a r i s i n g from t h e p l a n i n e v i t a b l y t a k e s a g r e a t d e a l of
time.
F u r t h e r , t h e p r o c e d u r e s i n t r o d u c e d a f t e r t h e r e p o r t of t h e
Committee on A d m i n i s t r a t i v e T r i b u n a l s and I n q u i r i e s may o c c a s i o n a
second l o c a l i n q u i r y .
O f t e n a p p r o v a l of t h e s t a t u t o r y map f o r a
town t a k e s 3 t o k y e a r s ; u r g e n t p r o p o s a l s f o r c o m p r e h s i v e
r e d e v e l o p m e n t may w a i t 2 y e a r s f o r d e c i s i o n .
This concentration
on a mass of d e t a i l h a s b e e n a t t h e e x p e n s e of t r e a t i n g t h e
development p l a n a s a p o s i t i v e b a s i s f o r e n v i r o n m e n t a l p l a n n i n g .
The P l a n n i n g A d v i s o r y Group
18.
A P l a n n i n g A d v i s o r y Group ( P . A . G . ) c o m p r i s i n g o f f i c e r s of
l o c a l g o v e r n m e n t , t h e p r o f e s s i o n s and D e p a r t m e n t s c o n c e r n e d was
appointed i n 1964.
I t s r e p o r t , "The F u t u r e of Development P l a n s " ,
^-published t h e f o l l o w i n g y e a r s e t o u t i n d e t a i l t h e d e f e c t s of t h e
p r e s e n t t y p e of d e v e l o p m e n t p l a n .
I t recommended a new form of
plan c o n s i s t i n g of:­
( 1 )
a "structure plan" submitted for m i n i s t e r i a l approval:
t h i s would be p r i m a r i l y a w r i t t e n s t a t e m e n t of p o l i c y ,
a c c o m p a n i e d by a d i a g r a m m a t i c s t r u c t u r e map f o r
c o u n t i e s and m a j o r t o w n s o n l y , d e s i g n e d t o e x p o s e
c l e a r l y t h e b r o a d b a s i c p a t t e r n of d e v e l o p m e n t a n d t h e
t r a n s p o r t system.
T h e s e s t r u c t u r e p l a n s would form t h e
main l i n k b e t w e e n p o l i c i e s on a n a t i o n a l and r e g i o n a l
l e v e l and l o c a l p l a n n i n g .
They would i n d i c a t e " a c t i o n
a r e a s " , i . e . , a r e a s where c o m p r e h e n s i v e t r e a t m e n t
( d e v e l o p m e n t , r e d e v e l o p m e n t , improvement o r a m i x t u r e )
was e n v i s a g e d i n t h e e n s u i n g t e n y e a r s ;
( 2 )
" a c t i o n a r e a p l a n s " t o b e a d o p t e d l o c a l l y , showing
t h e s h a p e of d e v e l o p m e n t i n t h o s e a r e a s ;
and
( 3 )
o t h e r " l o c a l p l a n s " , t o meet l o c a l n e e d s ,
adopted l o c a l l y ;
again to be
The Group a l s o recommended more s t r a i g h t f o r w a r d p o w e r s of
compulsory a c q u i s i t i o n f o r p l a n n i n g p u r p o s e s .
Proposals for
Legislation
19.
The Government b e l i e v e t h a t a s y s t e m f o l l o w i n g t h e s e
recommendations i s n e e d e d t o i m p r o v e t h e q u a l i t y and e f f e c t i v e n e s s
of p l a n n i n g .
I t would make p l a n n i n g more r e l e v a n t and more
/flexible.
*
H.M.S.O.
10s. net
CONFIDENTIAL
flexible.
I t w o u l d s p e e d up m i n i s t e r i a l a p p r o v a l b y c o n c e n t r a t i n g
on t h e main i s s u e s of p o l i c y and removing from Government
D e p a r t m e n t s d e t a i l e d work which r a i s e s no i s s u e s of c e n t r a l
government p o l i c y ;
and I t would improve p r o c e d u r e s which now
cause c o m p l i c a t i o n a n d d e l a y .
20.
The Government t h e r e f o r e i n t e n d t o i n t r o d u c e l e g i s l a t i o n t o
modify d e v e l o p m e n t p l a n s b r o a d l y on t h e s e l i n e s .
I t w i l l take into
a c c o u n t two i m p o r t a n t q u e s t i o n s r a i s e d i n t h e comments a b o u t t h e
G r o u p ' s r e p o r t by t h e l o c a l a u t h o r i t y a s s o c i a t i o n s a n d t h e p u b l i c
and p r o f e s s i o n a l b o d i e s c o n c e r n e d .
These q u e s t i o n s w e r e : ­
( 1 )
whether the present l o c a l planning a u t h o r i t i e s a r e
a b l e t o u n d e r t a k e t h i s new and more s o p h i s t i c a t e d t y p e
of p l a n n i n g ;
and
( 2 )
whether the procedures w i l l ensure f a i r
t h o s e a f f e c t e d by p l a n n i n g p r o p o s a l s .
treatment
of
T r a n s i t i o n to.,jthe^Jjfew^ j ^ s t ^
21.
Some l o c a l p l a n n i n g a u t h o r i t i e s l a c k t h e r e s o u r c e s t o make
an i m m e d i a t e s t a r t on t h e new s y s t e m , and some w e l l - o r g a n i s e d
a u t h o r i t i e s a d m i n i s t e r a r e a s which make i t d i f f i c u l t f o r them t o
draw up a s a t i s f a c t o r y s t r u c t u r e p l a n of t h e new t y p e . But o t h e r s
are a n x i o u s t o make a s t a r t , a r e f u l l y a b l e t o do s o , and a r e b e i n g
held b a c k by t h e r i g i d i t y of t h e p r e s e n t s t a t u t o r y p r o v i s i o n s .
It
is wrong t h a t t h e p l a n n i n g of a number of i m p o r t a n t c i t i e s a n d
c o u n t i e s s h o u l d be so c o n s t r a i n e d .
The Government t h e r e f o r e p r o p o s e
to p r o v i d e f o r t h e g r a d u a l i n t r o d u c t i o n of t h e new s y s t e m i n t o
t h o s e p a r t s of t h e c o u n t r y where i t can u s e f u l l y b e o p e r a t e d
in a d v a n c e of i t s g e n e r a l i n t r o d u c t i o n when l o c a l government i s
reorganised.
The t r a n s i t i o n t o t h e new s y s t e m w i l l b e a g r a d u a l
one, c o n t r o l l e d b y t h e M i n i s t e r u n d e r p o w e r s which w i l l b e e x e r c i s e d
a f t e r c o n s u l t a t i o n w i t h the l o c a l p l a n n i n g a u t h o r i t i e s concerned.
Arrangements w i l l b e made f o r a d a p t i n g t h e new s y s t e m t o t h e
s p e c i a l c i r c u m s t a n c e s of London,
Planning
Staffs
22,
The Government r e c o g n i s e t h a t however good t h e s t a t u t o r y a n d
p r o c e d u r a l f r a m e w o r k , s u c c e s s w i l l depend l a r g e l y on t h e a v a i l a b i l i t y
and t h e c o r r e c t u s e of p r o f e s s i o n a l s t a f f i n t h e p l a n n i n g f i e l d ­
p l a n n e r s , a r c h i t e c t s , e n g i n e e r s and s u r v e y o r s .
23.
The number of p l a n n e r s b e i n g t r a i n e d b y u n i v e r s i t i e s and
further education establishments i s being increased with the help
and e n c o u r a g e m e n t of t h e Government, Bat, though t h e s i t u a t i o n w i l l
improve, t h e r e i s a t p r e s e n t a s h o r t a g e and t h i s w i l l c o n t i n u e f o r
some y e a r s .
The a u t h o r i t i e s c h o s e n f o r e a r l y t r a n s i t i o n t o t h e new
system must t h e r e f o r e show t h a t t h e y have t h e n e c e s s a r y n u c l e u s of
p r o f e s s i o n a l s t a f f p r o p e r l y o r g a n i s e d and d e p l o y e d , and t h a t t h e y
a r e r e a d y where n e c e s s a r y t o s u p p l e m e n t them b y a f f o r d i n g opportu^­
n i t i e s f o r t r a i n i n g and by u s i n g p r o f e s s i o n a l s k i l l s from o u t s i d e .
Procedures
2h,
The d e v o l u t i o n of r e s p o n s i b i l i t y which i s a c a r d i n a l f e a t u r e
of t h e s e p r o p o s a l s means t h a t many m a t t e r s of d e t a i l w i l l no l o n g e r
tie s u b m i t t e d f o r m i n i s t e r i a l a p p r o v a l a s a m a t t e r of c o u r s e .
It
f o l l o w s t h a t t h e r e must be f u l l s a f e g u a r d s f o r t h o s e a f f e c t e d b y
l o c a l p l a n s ( i n c l u d i n g a c t i o n a r e a p l a n s ) and p r o p e r o p p o r t u n i t y
for t h e h e a r i n g of o b j e c t i o n s w h e t h e r t h e s e a r e made b y I n d i v i d u a l s
or by l o c a l or n a t i o n a l o r g a n i s a t i o n s .
These s a f e g u a r d s w i l l b e
p r o v i d e d and t h e y a r e o u t l i n e d , i n t h e Annex t o t h i s p a p e r ,
/25o
25.
B o t h l o c a l p l a n s and s t r u c t u r e p l a n s must h e drawn up w i t h
proper r e g a r d t o Government p o l i c i e s , a n d l o c a l p l a n n i n g a u t h o r i t i e s
w i l l "be e x p e c t e d t o c o n s u l t f u l l y , d u r i n g t h e p r o c e s s of p r e p a r i n g
p l a n s , w i t h Government D e p a r t m e n t s whose i n t e r e s t s may b e a f f e c t e d .
Which t h e s e a r e w i l l d e p e n d on t h e s u b j e c t m a t t e r of t h e p l a n and
the a r e a c o v e r e d by i t ;
but they might, in a p a r t i c u l a r case,
i n c l u d e , f o r e x a m p l e , t h e M i n i s t r y of A g r i c u l t u r e , F i s h e r i e s and
Pood, t h e M i n i s t r y of T r a n s p o r t and t h e B o a r d of T r a d e , a s w e l l a s
the p l a n n i n g D e p a r t m e n t s .
In f r a m i n g s t r u c t u r e p l a n s l o c a l
planning a u t h o r i t i e s should a l s o m a i n t a i n c l o s e l i a i s o n with the
r e g i o n a l p l a n n i n g m a c h i n e r y so t h a t a c c o u n t c a n h e t a k e n , a t t h e
f o r m a t i v e s t a g e , of r e g i o n a l p o l i c y .
26.
The e x i s t i n g p o w e r s of l o c a l p l a n n i n g a u t h o r i t i e s t o a c q u i r e
land c o m p u l s o r i l y f o r p l a n n i n g p u r p o s e s n e e d c h a n g i n g .
The
requirement t h a t l a n d subject to compulsory p u r c h a s e should be
" d e s i g n a t e d " i n a d v a n c e w i l l h e done avray w i t h ;
experience has
shown t h a t i t adds p r o c e d u r a l c o m p l i c a t i o n s w i t h o u t c o m p e n s a t i n g
b e n e f i t s f o r a n y b o d y . C o n s e q u e n t c h a n g e s w i l l b e made t o t h e
p r o c e d u r e s f o r c o m p u l s o r y p u r c h a s e by t h e M i n i s t e r of P u b l i c
B u i l d i n g and Works a n d t h e P o s t m a s t e r - G e n e r a l ;
and t h e o p p o r t u n i t y
w i l l b e t a k e n t o implement t h e u n d e r t a k i n g g i v e n i n t h e White P a p e r
on t h e Land Commission^ t o e n a h l e a l l p u b l i c a u t h o r i t i e s t o u s e t h e
v e s t i n g p r o c e d u r e a v a i l a b l e t o t h e Land Commission.
The p r e s e n t
r i g h t of o b j e c t i o n t o c o m p u l s o r y p u r c h a s e o r d e r s w i l l , of c o u r s e ,
be m a i n t a i n e d .
DEVELOPMENT CONTROL
The s y s t e m of d e v e l o p m e n t c o n t r o l i n t r o d u c e d by t h e A c t s of
27.
1947 h a s , on t h e w h o l e , worked w e l l and t h e Government do n o t
b e l i e v e t h a t t h e r e need b e any g r e a t c h a n g e . The c h i e f c o m p l a i n t
is t h a t d e c i s i o n s t a k e a l o n g t i m e .
Sometimes t h i s i s u n a v o i d a b l e ,
if t h e p r o p o s a l i s c o n t r o v e r s i a l o r d i f f i c u l t , and i f p r o p e r
opportunity i s to be given to those a f f e c t e d to e x p r e s s t h e i r views.
But p r e s e n t p e r f o r m a n c e c a n be improved a n d , w i t h t h e c o - o p e r a t i o n
of t h e l o c a l a u t h o r i t y a s s o c i a t i o n s , a management s t u d y of d e v e l o p ­
ment c o n t r o l a t l o c a l l e v e l i s b e i n g u n d e r t a k e n .
The r e s u l t s of
t h i s s h o u l d be a v a i l a b l e d u r i n g t h e summer, and r e c o m m e n d a t i o n s
a r i s i n g from i t which would r e q u i r e l e g i s l a t i o n w i l l be examined
then.
28.
The methods of c o n t r o l l i n g d e v e l o p m e n t t o h e c a r r i e d o u t by
s t a t u t o r y u n d e r t a k e r s a r e a l s o being examined.
29
T h e r e a r e t h r e e a s p e c t s of d e v e l o p m e n t c o n t r o l which urgently require
legislative a c t i o n .
These a r e t h e a r r a n g e m e n t s f o r a s a u n g w i t h
a p p e a l s from d e c i s i o n s of l o c a l p l a n n i n g a u t h o r i t i e s , t h e e n f o r c e ­
ment of p l a n n i n g c o n t r o l , and t h e p r e s e r v a t i o n of b u i l d i n g s of
a r c h i t e c t u r a l or h i s t o r i c importance.
v
Planning Appeals
30.
The number of p l a n n i n g a p p e a l s made t o t h e M i n i s t e r i n
England and Wales u n d e r s e c t i o n 23 of t h e Town and C o u n t r y P l a n n i n g
Act 1962 h a s b e e n r u n n i n g a t a h i g h l e v e l f o r s e v e r a l y e a r s .
It
reached a p e a k of o v e r 1k,000 i n 196h, f a l l i n g t o j u s t u n d e r
12,000 i n 1 9 6 6 . More t h a n h a l f of t h e a p p e a l s d e c i d e d a r e t h e
subject of a l o c a l i n q u i r y ;
a l m o s t a l l of t h e r e m a i n d e r a r e s e t t l e d
a f t e r an i n f o r m a l v i s i t t o t h e s i t e and an e x c h a n g e of c o r r e s p o n d e n c e
("the w r i t t e n r e p r e s e n t a t i o n s p r o c e d u r e " ) .
Cmnd. 2771 H.M.S.O.
is.
3d.
31,
T h e r e i s no r e a s o n t o e x p e c t any s u b s t a n t i a l r e d u c t i o n i n
t h e f l o w of a p p e a l s , a n d t h e h a n d l i n g of t h e s e v a s t numbers i s a
major p r o b l e m .
As e a r l y a s 1957* when t h e r e were f a r f e w e r , t h e
Committee on A d m i n i s t r a t i v e T r i b u n a l s and I n q u i r i e s s a i d t h a t t h e y
" d i d n o t r e g a r d i t a s s a t i s f a c t o r y t h a t a Government D e p a r t m e n t
s h o u l d be o c c u p i e d w i t h a p p e a l work of t h i s v o l u m e , p a r t i c u l a r l y
a s many of t h e a p p e a l s r e l a t e t o minor and p u r e l y l o c a l m a t t e r s
i n which l i t t l e o r no d e p a r t m e n t a l p o l i c y e n t e r e d . "
This
c r i t i c i s m i s b o r n e o u t by a n a n a l y s i s of t h e s u b j e c t m a t t e r of
a p p e a l s . About 60% c o n c e r n d e v e l o p m e n t on a s m a l l s c a l e ;
and
many of t h e s e , t h o u g h of v i t a l c o n c e r n t o t h e a p p e l l a n t , r a i s e
i s s u e s of p u r e l y l o c a l s i g n i f i c a n c e .
They i n c l u d e , f o r e x a m p l e ,
minor r e s i d e n t i a l d e v e l o p m e n t , s m a l l g r o u p s of s h o p s , s m a l l
c a r a v a n s i t e s , b e t t i n g s h o p s , g a r a g e s and minor c h a n g e s of u s e .
Of a l l a p p e a l s , b i g and
About 25-30% r e l a t e t o s i n g l e h o u s e s .
s m a l l , t h a t h a v e b e e n t h e s u b j e c t of l o c a l i n q u i r i e s o v e r t h e l a s t
f i v e y e a r s , 9 7 . 5 % were d e c i d e d a s t h e i n s p e c t o r recommended.
32.
One p a r t i c u l a r l y u n s a t i s f a c t o r y f e a t u r e of t h e p r e s e n t
system i s the time r e q u i r e d t o d e a l w i t h an a p p e a l .
I t has been
t a k i n g , on a v e r a g e , a b o u t n i n e months t o i s s u e d e c i s i o n s on
p l a n n i n g a p p e a l s which go t o i n q u i r y i n E n g l a n d .
P a r t of t h e t i m e
i s t a k e n up i n w a i t i n g f o r t h e l o c a l i n q u i r y - b e c a u s e of t h e
p r e s s u r e on t h e i n s p e c t o r a t e t h e a v e r a g e w a i t i n g p e r i o d h a s a t
t i m e s b e e n a s l o n g a s s i x months - and p a r t w h i l e t h e i n s p e c t o r
p r e p a r e s a l e n g t h y a n d d e t a i l e d r e p o r t of t h e i n q u i r y , a n d w h i l e
that report is considered.
Although t h e d e l a y s have a l r e a d y b e e n
reduced, i t i s c l e a r t h a t r a d i c a l changes i n the system a r e needed
i f t h e r e i s t o b e a r e a l and l a s t i n g i m p r o v e m e n t .
The p r e o c c u p a ­
t i o n of c e n t r a l g o v e r n m e n t w i t h m a t t e r s t h a t do n o t i n v o l v e
government p o l i c y must b e r e d u c e d ;
and t h e p r o c e s s of h a n d l i n g
a p p e a l s must b e s i m p l i f i e d , ,
33.
The Government have c o n s i d e r e d w h e t h e r i t would b e r i g h t t o
s e t up l o c a l t r i b u n a l s t o d e a l w i t h c e r t a i n p l a n n i n g a p p e a l s .
On
t h e a s s u m p t i o n t h a t t h r e e - m a n t r i b u n a l s w o u l d b e r e q u i r e d and t h a t
t h e n e c e s s a r y p r o f e s s i o n a l e l e m e n t would b e p r o v i d e d b y a n
i n s p e c t o r s i t t i n g a s a member of t h e t r i b u n a l s s e v e r a l h u n d r e d
l a y members would b e r e q u i r e d .
This would be d i f f i c u l t .
Many of
t h e p e o p l e b e s t a b l e t o u n d e r t a k e s u c h work c o u l d n o t s p a r e t h e
t i m e , and o t h e r s would a l r e a d y b e a s s o c i a t e d w i t h p l a n n i n g o r
development i n t h e i r p r o f e s s i o n a l c a p a c i t y , or i n l o c a l government,
to s u c h an e x t e n t t h a t t h e y s h o u l d n o t t a k e p a r t of t h e work o f
t r i b u n a l s n e a r t h e i r home.
I t w o u l d a l s o be d i f f i c u l t t o g e t a n
even q u a l i t y of d e c i s i o n s i n d i f f e r e n t p a r t s of t h e c o u n t r y .
Lay
t r i b u n a l s c o u l d n o t b e e x p e c t e d t o h a v e d e t a i l e d k n o w l e d g e of
planning p o l i c i e s .
I f t h e r e were i n c o n s i s t e n c y i n t h e i r d e c i s i o n s ,
a p p e l l a n t s and p l a n n i n g a u t h o r i t i e s would b e r i g h t l y a g g r i e v e d .
For t h e s e r e a s o n s t h i s p r o p o s a l h a s n o t b e e n a d o p t e d .
Proposed D e l e g a t i o n t o
Inspectors
3h*
The Government p r o p o s e i n s t e a d t o amend t h e l a w so a s t o
enable the M i n i s t e r t o delegate to s e l e c t e d i n s p e c t o r s the
r e s p o n s i b i l i t y for d e c i d i n g c e r t a i n p l a n n i n g a p p e a l s i n England
and W a l e s .
T h i s s o l u t i o n was recommended by t h e C o m m i t t e e on
T r i b u n a l s and I n q u i r i e s ( p a r a g r a p h 392 of t h e i r r e p o r t ) .
They h a d
a l s o c o n s i d e r e d and r e j e c t e d t h e i d e a of l o c a l t r i b u n a l s .
35.
The t y p e s of c a s e t o b e d e a l t w i t h i n t h i s new way w i l l be
d e f i n e d by s t a t u t o r y i n s t r u m e n t , vi/hich c a n b e amended a s a r e s u l t
of e x p e r i e n c e and n e e d .
The c a t e g o r i e s which seem s u i t a b l e f o r
t h i s t r e a t m e n t a t t h e o u t s e t i n c l u d e s i n g l e h o u s e s and r e s i d e n t i a l
development on s m a l l s i t e s , s m a l l g r o u p s of s h o p s , c a r a v a n s i t e s of
l e s s t h a n one a c r e , and o t h e r m i n o r f o r m s of d e v e l o p m e n t .
Where t h e
/power
power t o d e c i d e i s d e l e g a t e d , t h e d e c i s i o n w i l l b e t h e
i n s p e c t o r ' s and n o t t h e M i n i s t e r ' s , w h e t h e r i t f o l l o w s a l o c a l
i n q u i r y o r an e x c h a n g e of w r i t t e n r e p r e s e n t a t i o n s .
The M i n i s t e r
would, h o w e v e r , be a n s w e r a b l e i n P a r l i a m e n t f o r t h e g e n e r a l
o p e r a t i o n of t h e s y s t e m and f o r t h e p l a n n i n g p o l i c i e s w i t h i n which
the i n s p e c t o r s would c o n t i n u e t o o p e r a t e ;
and t h e P a r l i a m e n t a r y
Commissioner f o r A d m i n i s t r a t i o n w i l l h a v e t h e same powers of
i n v e s t i g a t i o n as a t p r e s e n t .
I n s p e c t o r s ' d e c i s i o n s w i l l be
s u b j e c t t o t h e c o n t r o l of t h e c o u r t s , s h o u l d t h e r e b e an e r r o r of
law or p r o c e d u r e , j u s t a s t h e M i n i s t e r ' s d e c i s i o n s now a r e ;
and
the c o n d u c t of a p p e a l s would r e m a i n s u b j e c t t o s u p e r v i s i o n b y t h e
Council on T r i b u n a l s a s a t p r e s e n t .
36.
The a d v a n t a g e w i l l b e t h a t t h e i n s p e c t o r who h a s v i s i t e d
the s i t e a n d h e a r d t h e a r g u m e n t s of t h e p a r t i e s w i l l i m m e d i a t e l y
take t h e d e c i s i o n .
He w i l l n o t h a v e t o w r i t e a d e t a i l e d r e p o r t f o r
consideration by o t h e r s .
He w i l l b e a b l e i n s t e a d t o p r e p a r e and
d e s p a t c h , on h i s own a u t h o r i t y , a l e t t e r s e t t i n g o u t b r i e f l y b u t
c l e a r l y t h e r e l e v a n t f a c t s , t h e m a i n a r g u m e n t s on b o t h s i d e s , and
the r e a s o n s f o r h i s d e c i s i o n .
I n c a s e s d e a l t w i t h by i n q u i r y , t h e
aim w i l l b e f o r t h e i n s p e c t o r t o s e n d t h e d e c i s i o n l e t t e r t o t h e
p a r t i e s v / i t h i n too t o t h r e e weeks w h e r e a s u n d e r t h e p r e s e n t s y s t e m
it t a k e s t h r e e months o r more t o i s s u e a d e c i s i o n a f t e r an i n q u i r y .
The new p r o c e d u r e w i l l s h o r t e n t h e t i m e t a k e n a f t e r t h e i n q u i r y t o
decide a p p e a l s w h i c h a r e s u i t a b l e f o r d e l e g a t i o n ;
i t will also
help i n d - i r e c t l y b y r e d u c i n g t h e b u r d e n of r e p o r t - w r i t i n g on t h e
inspectorate.
It should a l s o lead to a useful reduction in the
waiting p e r i o d for i n q u i r i e s .
37.
The w r i t t e n r e p r e s e n t a t i o n s p r o c e d u r e " , now u s e d f o r
nearly h a l f t h e p l a n n i n g appeals d e c i d e d , i s s u i t a b l e f o r c a s e s
where t h e i s s u e s a r e p r i m a r i l y l o c a l and t h e r e i s no i m p o r t a n t
third-party i n t e r e s t .
Many c a s e s s u i t a b l e f o r s e t t l e m e n t b y
i n s p e c t o r s s h o u l d t h e r e f o r e b e h a n d l e d by t h i s m e t h o d .
The p r o ­
cedure h a s t h e v i r t u e s of s a v i n g t i m e t r o u b l e a n d e x p e n s e t o t h e
p a r t i e s and i t s u s e w i l l b e e n c o u r a g e d .
; ,
5
38.
Within the c a t e g o r i e s proposed for d e l e g a t i o n , cases w i l l
s t i l l a r i s e which r e q u i r e m i n i s t e r i a l d e c i s i o n b e c a u s e t h e y r a i s e
q u e s t i o n s of p o l i c y , a r e of e x c e p t i o n a l p u b l i c i m p o r t a n c e , or a r e
unusually complex.
The Government p r o p o s e t h a t t h e M i n i s t e r s h o u l d
have power t o d i r e c t t h a t p a r t i c u l a r c a s e s o r k i n d s of c a s e s h o u l d
he d e c i d e d by h i m , n o t w i t h s t a n d i n g t h a t t h e y f a l l w i t h i n one of t h e
prescribed categories for d e l e g a t i o n .
These c a s e s would t h e n be
handled i n a c c o r d a n c e w i t h e x i s t i n g a r r a n g e m e n t s .
I t would a l s o b e
open t o a n i n s p e c t o r t o d e c l i n e t o d e c i d e a n a p p e a l i f m a t t e r s
arose ( f o r e x a m p l e , u n f o r e s e e n i s s u e s of p o l i c y ) which he c o n s i d e r e d
should b e r e f e r r e d t o t h e M i n i s t e r .
In these cases the inspector
would make t h i s known t o t h e p a r t i e s a n d would r e p o r t t o t h e
M i n i s t e r i n s t e a d of i s s u i n g h i s own d e c i s i o n l e t t e r .
39.
T h i s new p r o c e d u r e w i l l mean t h a t a l t h o u g h f o r some a p p e a l s ,
a p p e l l a n t s and l o c a l p l a n n i n g a u t h o r i t i e s w i l l no l o n g e r r e c e i v e a
ministerial decision, they w i l l receive a n - e a r l i e r decision
and t h e y w i l l have t h e s a t i s f a c t i o n of knowing t h a t i t h a s
heen beaten b y an i n s p e c t o r w i t h f i r s t - h a n d knowledge of t h e s i t e
who h a s h i m s e l f l i s t e n e d t o t h e a r g u m e n t s p u t f o r w a r d .
^0.
The Government i n t e n d t o l i m i t d e l e g a t i o n i n t h e f i r s t p l a c e
to a p p e a l s a g a i n s t p l a n n i n g d e c i s i o n s of l o c a l p l a n n i n g a u t h o r i t i e s
( s e c t i o n s 23 and 2h, of t h e Act of 1962) r e l a t i n g t o d e v e l o p m e n t on
a c o m p a r a t i v e l y s m a l l s c a l e ( s e e p a r a g r a p h 35 a b o v e ) .
But
p r o v i s i o n would b e made f o r o t h e r t y p e s of a p p e a l t o b e d e l e g a t e d
hy s t a t u t o r y i n s t r u m e n t a s and when t h i s p r o v e s u s e f u l and
desirable.
k1.
In S c o t l a n d p r o p o r t i o n a t e l y f a r fewer a p p e a l s are lodged;
t h e r e were o n l y 302 I n 1966, of which 168 were w i t h d r a w n .
I n q u i r i e s a r e t a k e n n o t "by s a l a r i e d i n s p e c t o r s b u t b y i n d e p e n d e n t
r e p o r t e r s who a r e s e l d o m q u a l i f i e d p l a n n e r s .
T h e r e i s n o t t h e same
p r o p o r t i o n of c a s e s which w o u l d b e s u s c e p t i b l e of d e l e g a t i o n even
if q u a l i f i e d i n s p e c t o r s were a p p o i n t e d t o t a k e i n q u i r i e s .
Also,
b e c a u s e of t h e much s m a l l e r number of c a s e s , i m p r o v e m e n t s i n
management l e a d i n g , f o r e x a m p l e , t o t h e q u i c k e r s u b m i s s i o n b y
l o c a l p l a n n i n g a u t h o r i t i e s of o b s e r v a t i o n s on a p p e a l s , c o u l d h a v e
a relatively greater effect.
S t i l l , g r o w i n g p r e s s u r e on l a n d i n
S c o t l a n d may g r e a t l y i n c r e a s e t h e number of a p p e a l s .
The
S e c r e t a r y of S t a t e t h e r e f o r e i n t e n d s t o t a k e t h e p o w e r s of
d e l e g a t i o n o u t l i n e d i n p a r a g r a p h s 3k t o kO, b u t , b e f o r e e x e r c i s i n g
them he w i l l e x p l o r e new ways of e x p e d i t i n g t h e h a n d l i n g of c a s e s
through the present machinery.
Enforcement
of JPl^anning. C o n t r o l
U2.
The e n f o r c e m e n t of p l a n n i n g c o n t r o l u n d e r t h e Act of 1962 i s
slow and c o m p l i c a t e d , and some e l e m e n t s of t h e law a s i t s t a n d s
favour the c o n t r a v e n e r .
Enforcement action can only be t a k e n w i t h i n
f o u r y e a r s of t h e c o n t r a v e n t i o n ;
a f t e r four years, unauthorised
d e v e l o p m e n t becomes e s t a b l i s h e d and immune from e n f o r c e m e n t .
An
e n f o r c e m e n t n o t i c e i s s t a y e d i f an a p p e a l i s made t o t h e M i n i s t e r ,
and i t i s t h u s i n t h e i n t e r e s t of t h e c o n t r a v e n e r t o spin o u t
proceedings as long as p o s s i b l e .
U3.
The Government i n t e n d t o a b o l i s h t h e " f o u r - y e a r r u l e " , so
t h a t i t w i l l not i n f u t u r e be p o s s i b l e for u n a u t h o r i s e d develop­
ment t o become immune from e n f o r c e m e n t a c t i o n by t h e mere p a s s a g e
of t i m e . F u r t h e r , l o c a l p l a n n i n g a u t h o r i t i e s w i l l b e empowered t o
s e r v e a n o t i c e r e q u i r i n g t h e i m m e d i a t e s t o p p i n g of any o p e r a t i o n s
which a r e t h e s u b j e c t of an e n f o r c e m e n t n o t i c e .
I f p r o c e e d i n g s on
t h e r e l e v a n t e n f o r c e m e n t n o t i c e show t h a t p e r m i s s i o n was n o t
r e q u i r e d , t h e p l a n n i n g a u t h o r i t y would b e l i a b l e t o p a y
c o m p e n s a t i o n f o r l o s s o r damage r e s u l t i n g f r o m , t h e c e s s a t i o n of
o p e r a t i o n s "brought a b o u t b y t h e s t o p n o t i c e .
Uk.
Present enforcement p r o v i s i o n s i n Scotland d i f f e r s l i g h t l y
i n d e t a i l , h u t t h e same d i f f i c u l t i e s e x i s t and t h e same b a s i c
a p p r o a c h w i l l be a d o p t e d .
P r e s e r v a t i on
k5.
The Government
Civic Amenities B i l l
p r o p o s e a l s o t o make
afforded to b u i l d i n g s
interest.
h a v e welcomed t h e c h a n g e s t o b e made by t h e
at p r e s e n t before Parliament, but they
some f u r t h e r i m p r o v e m e n t s i n t h e p r o t e c t i o n
of s p e c i a l h i s t o r i c o r a r c h i t e c t u r a l
OTrlHR IJATTBRS
k6
The o p p o r t u n i t y w i l l a l s o h e t a k e n t o make a number of
o t h e r i m p r o v e m e n t s and s i m p l i f i c a t i o n s i n t h e law, and t o d e a l
w i t h c e r t a i n p r a c t i c a l d i f f i c u l t i e s which h a v e a r i s e n i n i t s
operation. Consideration i s being given to the question whether
long s t a n d i n g p l a n n i n g p e r m i s s i o n s which have not been e x e r c i s e d
should r e m a i n v a l i d i n d e f i n i t e l y . -, I m p r o v e m e n t s w i l l be p r o p o s e d ­
i n t h e p r e s e n t p o w e r s t o s t o p up or d i v e r t h i g h w a y s ;
a t prG^enj.,."
t h e s e a r e i n a d e q u a t e f o r t h e i m p l e m e n t a t i o n ' of-$planning p o l i c i e s ,
p a r t i c u l a r l y in r e l a t i o n t o urban renewal.
L o c a l new s t r e e t
bye l a w s , w h i c h i n many r e s p e c t s d u p l i c a t e p l a n n i n g c o n t r o l , w i l l . , .
be a b o l i s h e d . ,
;;!eh
/CONCLUS"
.
The Town a n d C o u n t r y P l a n n i n g A c t s o f 19U7 gave B r i t a i n
a s y s t e m of l a n d u s e p l a n n i n g w h i c h h a s s e r v e d w e l l ; h u t t h e
time h a s now come t o m o d e r n i s e i t .
I t must h e s p e e d e d u p ,
so t h a t g r o w t h i s n o t d e l a y e d or f r u s t r a t e d ;
i t must h e
b r o a d e n e d , b o t h t o t a k e a d v a n t a g e of new a d v a n c e s i n t e c h n i q u e
and t o s e t p r o b l e m s of l a n d u s e i n t h e w i d e r c o n t e x t of
t r a f f i c , t r a n s p o r t and i n v e s t m e n t p o l i c i e s .
The s a f e g u a r d s
f o r t h e i n d i v i d u a l which form "part of t h e s y s t e m must b e
r e t a i n e d and s t r e n g t h e n e d .
The G o v e r n m e n t s p r o p o s a l s p r o v i d e
for t h i s .
The new f o r m s of p l a n s and t h e p r o c e d u r e s a s s o c i a t e d
w i t h them w i l l g i v e e v e r y o n e a c l e a r e r g r a s p of c h a n g e s t h a t
may a f f e c t them, and w i l l g i v e them f u l l o p p o r t u n i t y t o e x p r e s s
t h e i r views.
The d e v o l u t i o n of r e s p o n s i b i l i t y t o l o c a l p l a n n i n g
a u t h o r i t i e s t o d e c i d e t h e i r cwn l o c a l p l a n s , and t h e d e l e g a t i o n
of c e r t a i n a p p e a l d e c i s i o n s t o i n s p e c t o r s , w i l l h e l p t o s i m p l i f y
and s h o r t e n p l a n n i n g p r o c e s s e s .
k&.
These h a v e b e e n t h e G o v e r n m e n t s a i m s i n r e v i e w i n g t h e
lav/. They a r e now a n x i o u s t o r e c e i v e t h e v i e w s of i n t e j ^ e s t e d
organisations (including the l o c a l a u t h o r i t y associations
and t h e C o u n c i l on T r i b u n a l s ) on how t h e s e - aims can b e s t b e ;
a c h i e v e d , w i t h i n t h e framework p r o p o s e d in t h i s White P a p e r .
15th J u n e ,
1967
AMjEX
PROPOSE!: NEW PROCEDURES FOR DEVELOPMENT PLANS
Structure
Flans
1.
The M i n i s t e r w i l l a p p r o v e s t r u c t u r e p l a n s w h i c h w i l l h e
p r e p a r e d f o r c o u n t i e s , c o u n t y b o r o u g n s and o t h e r towns of o v e r ­
50,000 p o p u l a t i o n (and c o r r e s p o n d i n g l o c a l g o v e r n m e n t a r e a s i n
S c o t l a n d ) a n d , on t h e M i n i s t e r ' s d i r e c t i o n , f o r o t h e r t o w n s w i t h
significant planning problems. Structure plans w i l l follow a
procedure very s i m i l a r to t h a t adopted for the c u r r e n t development
p l a n s . They w i l l be p l a c e d on d e p o s i t , a n o p p o r t u n i t y f o r
o b j e c t i o n s w i l l b e g i v e n a n d a l o c a l i n q u i r y w i l l be h e l d i n t o t h e
o b j e c t i o n s . The M i n i s t e r w i l l i s s u e h i s d e c i s i o n on t h e s t r u c t u r e
plan a f t e r c o n s i d e r i n g h i s i n s p e c t o r ' s r e p o r t .
The d e c i s i o n w i l l
take t h e form of a l e t t e r commenting o n , and e x p r e s s i n g a p p r o v a l o r
d i s a p p r o v a l of, t h e main p o l i c i e s and p r o p o s a l s p r e s e n t e d by t h e
local planning a u t h o r i t y in t h e i r s t r u c t u r e plan.
Local P l a n s
2.
L o c a l p l a n s w i l l b e p r e p a r e d w i t h i n t h e framework of t h e
p o l i c i e s approved in the s t r u c t u r e p l a n .
They w i l l i n t h e n o r m a l
c o u r s e of e v e n t s be a d o p t e d b y t h e l o c a l p l a n n i n g a u t h o r i t y a f t e r
f o l l o w i n g p r e s c r i b e d p r o c e d u r e s , and w i l l n o t r e q u i r e t h e M i n i s t e r ' s
a p p r o v a l . The p l a n n i n g a u t h o r i t y w i l l be r e q u i r e d t o c o n s u l t w i t h
local i n t e r e s t s during the plan-making p r o c e s s , before r e s o l v i n g
to d e p o s i t a p l a n f o r m a l l y f o r p u b l i c o b j e c t i o n .
The a u t h o r i t y
w i l l b e r e q u i r e d t o c o n s i d e r o b j e c t i o n s a n d r e p r e s e n t a t i o n s and t o
a f f o r d a h e a r i n g t o any o b j e c t o r who so d e s i r e s ;
t h e r e p o r t of
any h e a r i n g o r i n q u i r y w i l l be p u b l i s h e d .
They w i l l b e r e q u i r e d t o
give n o t i c e of i n t e n d e d m o d i f i c a t i o n s t o t h e d e p o s i t e d p l a n and
time w i l l be a l l o w e d f o r t h e l o d g i n g of o b j e c t i o n s t o t h o s e
m o d i f i c a t i o n s by p e r s o n s a f f e c t e d .
H a v i n g c o n s i d e r e d any s u c h
further objections the authority will resolve provisionally to
adopt a p l a n , s u b j e c t t o s p e c i f i e d m o d i f i c a t i o n s , and a f t e r t h e
l a p s e of n o t l e s s t h a n 28 d a y s , w i l l be a b l e t o c o n f i r m t h a t
r e s o l u t i o n , t h e p l a n t h u s a d o p t e d t h e n b e c o m i n g p a r t of t h e
development p l a n f o r t h e a r e a .
3.
Some l o c a l p l a n s s h o u l d be s u b j e c t t o f u r t h e r s a f e g u a r d s .
These w i l l be c o m p r i s e d I n powers f o r t h e M i n i s t e r : ­
(1 )
t o c a l l - i n any l o c a l p l a n and d e c i d e i t h i m s e l f , j u s t
a s h e may a t p r e s e n t c a l l i n any p l a n n i n g a p p l i c a t i o n .
Where a l o c a l p l a n comes t o t h e M i n i s t e r u n d e r t h i s
p r o c e d u r e i t "will b e h a n d l e d i n t h e same way a s a
s t r u c t u r e p l a n and w i l l go t h r o u g h t h e n o r m a l p r o c e s s
of o b j e c t i o n a n d p u b l i c i n q u i r y . T h i s p r o c e d u r e w i l l
be a p p r o p r i a t e i n c a s e s of n a t i o n a l i m p o r t a n c e , of v e r y
g r e a t c o n t r o v e r s y , o r of u n u s u a l t e c h n i c a l c o m p l e x i t y ;
(2)
t o r e q u i r e a l o c a l plainning a u t h o r i t y t o a r r a n g e a
p u b l i c l o c a l i n q u i r y conducted, b y a p e r s o n a p p o i n t e d b y
the Minister,
The r e p o r t of t h e i n q u i r y w i l l b e made t o
t h e p l a n n i n g a u t h o r i t y . The a u t h o r i t y w i l l b e r e q u i r e d
t o p u b l i s h i t a n d t o r e s o l v e on e a c h of t h e i n s p e c t o r ' s
recommendations s e v e r a l l y before a d o p t i n g the p l a n .
This
p r o c e d u r e w i l l be s u i t a b l e where t h e i s s u e s a r e n o t of
n a t i o n a l s i g n i f i c a n c e , b u t r a i s e a c u t e l y t h e q u e s t i o n of
f a i r n e s s b e t w e e n t h e c i t i z e n and h i s l o c a l a u t h o r i t y ,
e . g . , a c o n t r o v e r s i a l p o l i c y t o e r e c t new o f f i c e s f o r t h e
authority;
il.
The combined e f f e c t
(1)
of t h e s e p r o p o s a l s i s
that:­
when t h e M i n i s t e r i s d e a l i n g w i t h a p l a n , e x i s t i n g
p r o c e d u r e s w i l l be v i r t u a l l y u n c h a n g e d ; b u t , s i n c e
t h e number of p l a n s r e q u i r i n g m i n i s t e r i a l a p p r o v a l w i l l
b e r e d u c e d and t h e i r c o n t e n t w i l l be f a r l e s s d e t a i l e d ,
a s u b s t a n t i a l s p e e d i n g up i n t h e p r o c e s s of a p p r o v a l
should be a c h i e v e d ;
(2) w h e r e a p l a n i s l e f t f o r l o c a l a p p r o v a l , o b j e c t o r s w i l l
h a v e t h e same r i g h t s of b e i n g h e a r d b e f o r e t h e l o c a l
a u t h o r i t y as they have a t p r e s e n t b e f o r e the M i n i s t e r ;
a n d , where c i r c u m s t a n c e s j u s t i f y t h i s c o u r s e , t h e
h e a r i n g w i l l be b e f o r e an i n s p e c t o r a p p o i n t e d b y t h e
M i n i s t e r who w i l l r e p o r t t o t h e l o c a l p l a n n i n g a u t h o r i t y ;
(3)
t h e M i n i s t e r w i l l h a v e p o w e r s which w i l l e n a b l e him t o
d e a l w i t h any l o c a l p l a n i f a t any s t a g e I t a p p e a r s t o
him t h a t i t s h o u l d n o t be l e f t f o r l o c a l s e t t l e m e n t .