Now that the Government’s Planning Practice Guidance has been confirmed by the Court of Appeal as having the same policy making status as the National Planning Policy Framework (see Mead Realisations Limited v Secretary of State (Court of Appeal, 30 January 2025), changes to the PPG might be seen as the MHCLG policy making equivalent of US Presidential executive orders in terms of immediacy. Last week’s PPG advice on grey belt might not have renamed the Gulf of Mexico but it does set some new firm boundary lines, effective from 27 February 2025.
In my 8 February 2025 blog post It Was The “Rushed And Incoherent” Jibe That Got Me I referred to the impact which the December 2024 NPPF has made by way of the introduction of the “grey belt” test, particularly in relation to decision making on planning applications and appeals. The flow of appeal decisions has continued and I refer to a couple of them later in this post, but since all of this (and indeed those decisions) we now have the government’s promised amendments to the PPG advice on the role of green belt in the planning system (27 February 2025) which will in my view serve to increase the number of proposals coming forward (given that its overall effect is to set the definitional boundary lines more clearly, largely to the benefit of promoters) whilst (to the extent that the advice is now more specific as to the way in which the grey belt tests should be applied) hopefully reducing the number of proposals that do actually have to go to appeal.
You will already have read Zack Simons’ 27 February 2025 blog post The “Grey Belt” has arrived but here is my brief take on some of the main points to note from the new guidance:
- The Government expects all local planning authorities reviewing green belt boundaries to identify where land is grey belt, dividing their green belt into separate assessment areas for the purpose of identifying grey belt. The same will apply in due course for strategic authorities carrying out spatial development strategies. To state the obvious, these assessments are going to be hugely important to landowners.
- Given that the core principle in relation to identifying green belt land as grey belt is an assessment as to the extent to which the land strongly contributes to green belt purposes (a), (b) and (d), there is helpful guidance as to the considerations to be applied in considering each of those judgements, setting out illustrative features in each case which might point to the contribution being strong, moderate or weak.“
- In relation to Purpose A – to check the unrestricted sprawl of large built up areas – ignore villages, which are not to be considered to be “large built up areas”. An example of a strong contribution would be where, if developed, it would “result in an incongruous pattern of development (such as an extended “finger” of development into the Green Belt)”.
- In relation to Purpose B – to prevent neighbouring towns merging into one another – a moderate (not strong) contribution would be “being able to be developed without the loss of visual separation between towns. This could be (but is not limited to) due to the presence or the close proximity of structures, natural landscape elements or topography that preserve visual separation”. A weak contribution: areas that “form part of a gap between towns, but only a very small part of this gap, without making a contribution to visual separation.”
- In relation to Purpose D – to preserve the setting and special character of historic towns – this relates to historic towns, not historic villages. Only moderate contribution if the areas “form part of the setting and/or contribute to the special character of a historic town but include one or more features that weaken their contribution to this purpose, such as (but not limited to):
- being separated to some extent from historic aspects of the town by existing development or topography
- containing existing development
- not having an important visual, physical, or experiential relationship to historic aspects of the town”
- Even if the area makes no strong contribution to purposes (a), (b) and (d), it needs to be shown that the application of the policies relating to the areas or assets in footnote 7 to the NPPF (other than green belt) would not provide a strong reason for refusing or restricting development. The PPG makes it clear that it may still be possible for authorities to provisionally identify land as grey belt in advance of more detailed specific proposals.
- Even if the area makes no strong contribution to purposes (a), (b) and (d) and even if footnote 7 is not a bar, its release or development must not “fundamentally undermine the purposes (taken together) of the remaining Green Belt across the plan area as whole.” This apparently means that “authorities should consider whether, or the extent to which, the release or development of Green Belt Land would affect the ability of all the remaining Green Belt across the area of the plan from serving all five of the Green Belt purposes in a meaningful way.”
- The final steps of determining whether the development would not be inappropriate development, even if it meets the above criteria, are considering:
- whether a development is sustainably located
- whether it would meet the ‘Golden Rules’ contributions (where applicable), and
- whether there is a demonstrable unmet need for the type of development proposed
For the purposes of the inter-relationship between the affordable housing provision “golden rule” and the application of viability testing, we of course still await the updated viability PPG.
I’m running out of time this morning, but briefly now to turn to the decision letters I mentioned.
First of all, the Carrington decision letter dated 17 February 2025 . This followed a written representations appeal against Trafford Council’s refusal of planning permission for a 35MW battery storage facility at Wild Fowl Farm, Carrington. The inspector works through the grey belt tests methodically and concisely and finds that they are all passed.
Secondly, the Beaconsfield decision letter dated 24 February 2025 mentioned in Zack’s blog post. This followed an inquiry in relation to Buckinghamshire Council’s refusal of planning permission for up to 120 dwellings at Broad Lane, Holtspur, Beaconsfield. Again, the inspector works through the various tests, but here finds in his planning judgment that the appeal site strongly contributes to purposes (a) and (b). Accordingly this was inappropriate development so the “very special circumstances test” was to be applied and despite a housing land supply position that was agreed to be “dismal”, the appeal was dismissed (the grounds including findings as to substantial harm to the character and appearance of the area as well as substantial harm to biodiversity).
I agree with Zack that the inspector’s conclusions in relation to purposes (a) and (b) in the Beaconsfield appeal decision are potentially inconsistent with the new advice in the PPG. The PPG is definitely going to move the dial further in favour of release of sites and approval of development proposals.
Let’s take a step back. None of this is theoretical. The whole point of this “grey belt” branding is to secure more development in the green belt, sooner rather than later, on those sites which are least sensitive from the perspective of the traditional purposes for designation of green belt in the first place. I don’t find the tests, particularly in the light of the PPG, particularly challenging to navigate (although, as with so much in relation to planning, ultimately decisions will depend upon the application of human judgement, albeit within the tramlines of the policy guidelines). That is not to say that I don’t have any sympathy for opposite views: for instance this cri de coeur from my Strategic Planning Group compatriot (NB report from our group anticipated this Spring, watch this space) Andrew Wood in his 27 February 2025 blog post Grey Belt: Anti-strategic and wildly over-complicated. But, mindful of that need for development on appropriate sites, sooner rather than later, I don’t agree, and in my experience decision-making in relation to release and development of green belt sites was more of a “black box” process before the introduction of the grey belt.
Simon Ricketts, 2 March 2025
Personal views, et cetera
SIMONICITY 