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But the commitment to raising councils' borrowing caps by £300m at least gives local authorities some wiggle room when it comes to new development.
As part of this, ministers may remove the cap on councils' borrowing power, so they can build more affordable homes, as well as bringing in "use it or lose it" planning permission for developers.
Even though the government has lifted the cap on councils' borrowing to build new homes and pledged a new generation of council houses, the lack of direct subsidies from central government means few will actually be built.
Existing towns and cities should be expanded and the cap on some councils' borrowing lifted to allow more homes to be built, according to the man responsible for overhauling Labour's housing policy to ease the chronic shortage.
"The outdated control of councils' borrowing limits is contributing to this problem.
He suggests removing the cap on councils' borrowing to build and setting up a London Housing bank, backed by pension funds, to "motivate"' the private rented sector.
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It would let councils borrow more money to build social homes on their own land, and possibly subsidise their construction.
10 Let councils borrow to build For the first time since the 1980s, councils are now allowed to build housing again.
Scottish and Welsh houses need another £3 billion.If the councils borrowed the money to pay these bills, the consequent rise in public-sector borrowing would limit the government's ability to borrow money for other public services.
John Healey, the shadow housing minister, said: "It is absurd that out-of-date rules let councils borrow to build or buy commercial property, but not to invest in affordable housing.
She pointed to a 22-year commitment from the Welsh government to help councils borrow money for roads maintenance.
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