My Lords, I would like to thank all noble Lords for their consideration of the National Networks National Policy Statement. I would particularly like to thank the noble Lord, Lord Berkeley, for securing the debate; he is well known for his contribution to transport policy, not least in the area of rail freight.
Our road and rail networks are essential parts of our transport system. They connect people and communities and enable the effective movement of freight. They are fundamental to our economy and our way of life. Therefore, we need to maintain and enhance these national networks. The Government set out their ambition in the 2020 national infrastructure strategy to make the infrastructure consenting process better, faster and greener. The cross-government action plan for nationally significant infrastructure projects sets out the reforms to the planning regime that will ensure the system can support our future infrastructure needs. The action plan underlines the importance of having clear and up-to-date national policy statements in order to set the strategic direction for future infrastructure schemes.
The National Networks National Policy Statement—or NNNPS, as I will abbreviate it—sets out the planning framework for taking decisions on large-scale road,
rail and strategic rail freight interchange projects in England. It sets out the need for development of infra- structure, and the impacts that the proposed development must address. The NNNPS provides planning guidance for promoters of schemes on the national road and rail networks, and is the basis for the examination by the examining authority and decisions by the Secretary of State. The current NNNPS was designated in 2015; at that point there was no net-zero target, transport decarbonisation plan or biodiversity net gain requirement. The NNNPS has been reviewed to bring it up to date, so that it properly reflects the legislative requirements and policy context of today.
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Having an up-to-date planning policy framework is essential. It is helpful for communities to know the standards that applications will be held to. It means that applicants know what information they need to provide with their application. This can prevent the need for further information later in the process, which can cause delay. It also gives the Secretary of State clearer guidance on the approach to impacts and reduces the need to interpret and balance sometimes competing policy positions.
In undertaking the review, we have sought to ensure that the infrastructure we deliver is compatible with our environmental targets—not just net zero but areas such as air quality and biodiversity. We think the revised NNNPS strikes the right balance.
On net zero, the steps we are taking through the transport decarbonisation plan mean that we can continue to invest in the road network. While the transition to net zero will bring changes to the way we travel, the road network will remain at the heart of our transport system and a major enabler of growth. The revised NNNPS provides a clearer framework for assessing carbon impacts, so that decision-makers can more readily consider nationally significant infrastructure project schemes within the context of the Government’s legally binding carbon targets and net zero.
With that, I will turn my attention to points raised during the debate. The noble Lord, Lord Berkeley, and the noble Baronesses, Lady Jones of Moulsecoomb and Lady Young of Old Scone, raised issues regarding the transport decarbonisation plan, which we published in 2021. This sets out how we will achieve net zero across all modes of transport by 2050; the plan covers all modes of transport and was the first of its kind in the world. Since then, significant delivery progress has been made, with some actions exceeding the plan’s commitments. Successive publications, including the net zero strategy in October 2021 and the Carbon Budget Delivery Plan in March 2023, build on the commitments made in the plan.
We are considering the recent judgment against the CBDP carefully. However, it is important to note that the judgment contains no criticism about the Government’s policies to meet the ambitious carbon budgets we have set in law. We do not believe that completion of the NNNPS review needs to be paused as a consequence of the judgment. The NNNPS itself is not an investment strategy and does not list specific schemes; it sets out the planning framework for consenting major schemes, but not the quantum of schemes coming
forward. We are currently working to prepare the third road investment strategy. At the point that decisions are made on the final balance of the scheme portfolio, Ministers will consider all impacts of those schemes, including carbon.
The noble Lords, Lord Tunnicliffe, Lord Berkeley and Lord Goddard of Stockport, raised the Climate Change Committee report. This Government do not believe that it is necessary to review or pause the roads programme in light of environmental goals, as recommended by the Climate Change Committee. It is also important to remember that carbon emissions from construction and operation of the strategic road network represent a small proportion of overall UK domestic emissions. However, emissions from the transport sector were responsible for 28% of domestic emissions in 2022, with 90% of those coming from road vehicles. The right way to tackle decarbonisation of the road network is not to nibble away at the edges by blocking new schemes but to decarbonise the vehicle fleet, which we are getting on with.
The noble Lord, Lord Berkeley, raised issues regarding the NNNPS and the natural environment. All nationally significant infrastructure projects need to consider environmental commitments. Legislation is part of the process of seeking development consent. The NNNPS sets out the principles on which individual projects should be assessed, including the environmental impacts of a proposed scheme. The revised NNNPS has been updated to reflect recent environmental policy and legislation, such as biodiversity net gain requirements and other Environment Act 2021 targets and policies.
On air quality, which the noble Lord, Lord Berkeley, raised, air pollution has reduced significantly since 2010, with nitrogen oxides falling by 32%—they are at their lowest level since records began. The Government have legally binding targets to reduce emissions of five key air pollutants.
Biodiversity was alluded to by the noble Lord, Lord Berkeley, and the noble Baroness, Lady Jones of Moulsecoomb. The environmental improvement plan, published in January 2023, is the central pillar of government policy to help nature thrive in England. It is based on a framework of long-term and interim targets, including to increase species abundance and tree cover. The landmark Environment Act 2021 put in place targets and requirements to help us restore natural habitats and increase biodiversity across the nation. It introduced a requirement for nationally significant infrastructure projects seeking consent to deliver a minimum of 10% biodiversity net gain from November 2025.
On an issue raised by the noble Baroness, Lady Jones, the NNNPS is not a transport strategy; it sets the framework for consenting nationally significant infrastructure projects. This is a category of very large projects, defined under the Planning Act 2008. It does not include walking and cycling projects, or public transport other than some rail schemes. That is not illustrative of their relative importance; it simply reflects the different planning regimes in place for different sizes of scheme. The NNNPS should not be considered as a statement of the Government’s entire transport policy; that is not what it is for.
My noble friend Lord Banner talked of reform of the planning process for nationally significant infra- structure projects. We must have a planning system fit to deliver them while keeping communities and the environment at the heart of our decision-making. My department is contributing to an active government reform programme to improve the planning system for major infrastructure. It includes reviewing national policy statements and ensuring that transport infra- structure consenting routes are proportionate. The NNNPS review was undertaken in line with the existing NPS guidance owned by the Department for Levelling-Up, Housing and Communities and is consistent with the structure and process adopted in existing national policy statements.
On decarbonisation in general, which was raised by the noble Baronesses, Lady Jones and Lady Young of Old Scone, the UK has decarbonised faster than any other major economy, more than halving emissions since 1990. Our credible cross-cutting plan to decarbonise all transport is at the heart of our ambition, a plan that works for transport users, the economy and the climate, leading the charge internationally. Domestic transport emissions are down 11% from 2019, and growth is up. Our zero-emission vehicle mandate delivers the most ambitious national-level regulation of its kind, supporting decarbonising our roads in line with net zero by 2050 while unlocking billions in investment across our automotive and charge point sectors.
On the NNNPS and net zero, which the noble Baronesses, Lady Jones and Lady Young of Old Scone, raised, the NNNPS provides a clear framework for assessing carbon impacts so that decision-makers can more readily consider nationally significant infrastructure project schemes within the context of the Government’s legally binding carbon targets and net zero. The NNNPS makes clearer the requirements on scheme promoters and decision-making Ministers in respect of net zero. Applicants are expected to provide a carbon management plan for new schemes coming forward under the NNNPS. These carbon management plans have to include a whole-life carbon assessment of the project setting out the expected greenhouse gas emissions at every stage of the proposed development and must show that emissions have been reduced as much as possible.
The noble Lord, Lord Goddard of Stockport, raised the NNNPS and the Levelling- up and Regeneration Act. The Levelling-up and Regeneration Act received Royal Assent in October 2023 after the completion of the public consultation into the draft revised NNNPS. We worked with all relevant government departments during the process of the review to ensure that the revised NNNPS is as future-proofed as possible. While we were unable to signpost legislation that had not completed its parliamentary process, we have sought to reflect the emerging direction of travel in the NNNPS, where appropriate. Emerging changes to environmental assessment are one example. The NNNPS includes provision for review at least every five years.
The noble Lord, Lord Goddard, talked about government investment in rail. The Government are redirecting £36 billion of funding from HS2 into hundreds of transport projects across the country to drive better connectivity across the north and the Midlands with faster journey times, increased capacity and more
frequent, reliable services across rail, buses and roads: £19.8 billion will go to the north, £9.6 billion will go to the Midlands, and £6.5 billion will go to other national projects and schemes. They will be delivered at various times over the next decade and beyond with some already under way, such as improved support for bus services and pothole repairs.
The noble Lord, Lord Goddard of Stockport, also posed the question, “Who is going to get a grip on it?”. I can tell the noble Lord that we have a clear plan for the transport system that we have articulated in a range of publications covering specific modes of transport and cross-cutting policy areas. These are backed up with clear aims and objectives and are guided by our strategic aims to grow and level up the economy, improve transport for the user and reduce environmental impacts. We engage closely with a range of stakeholders in developing these policies and strategies.
The Government recognise the need for timely infrastructure delivery and an updated NNNPS is a critical element in ensuring our consenting regime for nationally significant infrastructure projects functions as effectively as possible. The NNNPS has been subject to a thorough review process. We are very grateful to all those who provided comments during the public consultation and to the Transport Select Committee for its careful consideration of the issues. The revised NNNPS reflects the latest legislation and policy. It strikes the right balance between enabling the delivery of infrastructure and protecting the environment and provides much clearer guidance to all those involved in the consenting process. I am sure that noble Lords will agree that the revised NNNPS delivers on its purpose.