Earl Attlee
My Lords, I thank my noble friend Lady Wilcox for her concise and cogent introduction to her Bill; the House would expect nothing less. I also thank all noble Lords who have taken part in its Second Reading today. The Bill covers a variety of issues affecting maritime activity, but all are focused on giving responsible organisations greater freedom to act to maintain and enhance safe and efficient operations.
I recognise that some noble Lords have concerns about the potential impact of one or two clauses in the Bill. It is right that we should give careful consideration to those concerns. My noble friend Lord Selsdon made one of his usual fascinating speeches; they are not to be missed and are essential reading and viewing.
The noble Lord, Lord Berkeley, asked why the Prince of Wales’s consent was not required for this Bill. The House authorities confirmed to parliamentary counsel that the Prince of Wales’s consent was not required for this Bill, so it was not sought. The Prince’s consent was required for the previous Bill because it made provision about lighthouse authorities and therefore directly affected the Duchy as the local lighthouse authority for the Isles of Scilly. That provision is not part of this Bill. As the noble Lord acknowledged, the Bill does not impose measures on harbour or local lighthouse authorities; it enables them to seek changes to their powers if they choose.
Pilotage is a profession that emerged in the earliest days of maritime trade, in recognition of the need to provide valuable ships and their cargo with safe passage into harbours or through dangerous waters. The Rolls of Oleron—a code of sea laws first promulgated by Eleanor of Aquitaine in the 12th Century and introduced in England during the reign of King Richard I—exacted severe penalties on any pilot who lost a ship in his care. He was to be beheaded. Whether this draconian punishment served to improve standards of pilotage, I could not possibly say. I can say, however, that it forms no part of our current pilotage legislation—the Pilotage Act 1987. Although this may be an extreme example of an earlier legal provision now deemed redundant, it is reflective of the tides of change and the need to modernise legislation on occasion. This Bill contains such modernising legislation.
The 1987 Act gave the function of managing pilotage services to individual Competent Harbour Authorities, which are best placed to understand the potential dangers to shipping in their own waters. This Bill would give the CHA greater control over Pilotage Exemption Certificates, the PEC mechanism. My noble friend Lord Caithness talked about some of the worries that people had when he introduced that legislation.
My noble friend Lady Wilcox eloquently explained the purpose of PECs and I only wish to add that we in the Government consider that PECs are a proven, sensible and safe mechanism that forms an important element of pilotage provision in the waters of a CHA. Nothing in this Bill reduces the standards by which a PEC applicant is to be assessed. It concerns only eligibility.
The evidence from the Chamber of Shipping is that this measure could provide great encouragement to ambitious deck officers in the UK ferry industry. Opening up the path of progression, subject to careful examination, rewards both dedication and hard work and helps the ferry industry to prepare the next generation of senior officers.
The noble Lord, Lord Chidgey, suggested potential pilotage problems on the Humber. In making his argument against Clause 2, I did not recall him explaining why the CHA would issue a PEC to an incompetent person. As I said before, the clause concerns only eligibility. Further it is not clear to me why an officer can be first mate on one ship and have a PEC for a particular ship and harbour but if, for some reason, he becomes second mate on a similar ship, plying to the same harbour, he cannot have a PEC. The law, as it stands, also means that you can have only two PEC holders on any ship.
The noble Lords, Lord Berkeley and Lord Greenway, touched on the problem of the shipping industry being under intense commercial pressure and we know they are quite right. Like the noble Lord, Lord Chidgey, the noble Lord, Lord Berkeley, does not explain why Clause 2 in my noble friend’s Bill requires a CHA to lower the standards of pilots. The clause concerns only eligibility. The noble Lord also questioned whether a second mate on a dredger would have the necessary qualifications. The answer is that the CHA will not grant a PEC if the officer is not competent of piloting that ship in that harbour.
My noble friend Lord Caithness talked about the definition of a deck officer. Many years ago I came across the term “deck officer” and I have no difficulty at all in understanding what we mean by it. I am sure that my noble friend Lady Wilcox will take comfort from the support of my noble friend who, as he pointed out, is a former shipping Minister with considerable experience. My noble friend teased the noble Lord, Lord Berkeley, on the effect of the passage of the Bill if we did not include Clause 2. I thought I heard the noble Lord, Lord Berkeley, say that he hoped that the Bill will indeed pass.
I turn to harbour directions. Since 2000, the Department for Transport has encouraged harbour authorities to secure powers of general direction to support the effective management of vessels in their harbour waters. This recommendation has always been a prominent feature in the Port Marine Safety Code, the non-statutory guidance produced by the department and Maritime and Coastguard Agency in association with representatives from the ports industry, trades unions, and other maritime experts. Given that ports have long been advised to seek this power in order to manage risk effectively, it is very welcome that this Bill seeks to provide a straightforward mechanism to do so.
The Royal Yachting Association has been doing sterling work with the ports associations and the Chamber of Shipping to develop non-statutory safeguards. A code of conduct on harbour directions is envisaged and a draft version is already well advanced. At their most recent meeting on Monday 14 January, discussion focused on a few drafting tweaks that are still required and I expect it will be possible to report further progress at Committee stage. This is a perfect illustration of how the mature maritime sector can be trusted to get on with the job without requiring government interference.
The noble Lord, Lord Berkeley, talked about problems of the Port of Dundee applying directions to recreational users on passage plans. The Port of Dundee confirms that it is its intention that this direction will apply to work boats and not to recreational users. Full consultation took place and changes to directions were made where necessary.
The General Lighthouse Authorities—the GLAs—are three distinguished organisations with proud histories of serving all those who navigate around these islands. The safety of mariners is their raison d’être and this goes beyond their statutory duty of providing aids to navigation. Just last autumn, a Northern Lighthouse Board ship passing St Andrews spotted red flares sent up from a fishing vessel taking on water. The incident ended happily, thanks to the alertness and presence of mind shown by the GLA crew.
The three clauses relating to the GLAs would confirm operational practices of benefit to the modern mariner and allow the GLAs to undertake additional commercial work. In doing so, it would enable the generation of additional income to pay for the GLAs’ essential role in providing marine aids to navigation around Great Britain and Ireland. I am grateful to the noble Lord, Lord MacKenzie of Culkein for giving us a more detailed insight into this activity.
I am always grateful to have the noble Lord, Lord Greenway, on my side, but we are fortunate to have several experts available in your Lordships' House. The noble Lord pointed out that GLAs’ commercial operations have to show a profit. I also point out that the Department for Transport improves significant contracts so matters cannot get out of control with large loss-making contracts undercutting commercial operations. That simply would not happen.
The noble Lord, Lord Rosser, talked about the potential for PEC holders on a ferry, perhaps, losing experience because there were several PEC holders on the given ship. My understanding is that the PEC holders are reassessed by the competent harbour authority every 12 months. If they started to get rusty, they would experience difficulties in renewing their PEC.
I trust that I have provided some reassurance to noble Lords that the Bill would protect and enhance marine safety and that there are real safeguards to ensure that the powers of harbour direction are used appropriately. I join my noble friend Lady Wilcox in commending it to the House.