Employment Rights Bill

Baroness Lawlor Excerpts

Committee stage
Thursday 8th May 2025 Lords Chamber

There is a clear solution here. As currently written, the Bill offers some scope for exemptions to the duty to offer guaranteed hours, such as in seasonal work. However, I plead that that is, certainly at the moment, a vague provision, and we need explicit regulation to define full-time students as a category of workers who are exempt from this duty. The regulation could specify that students on zero-hours or low-hours contracts are excluded from the obligation to be offered guaranteed hours, thus ensuring that universities, student unions and seasonal employers are not burdened by requirements that simply do not fit into the nature of student employment. This would ensure that employers can continue to offer flexible work to students without the threat of penalties or unnecessary costs, and it would also allow students to continue working in a manner that fits their academic schedules and personal needs, rather than forcing them into fixed hours that they cannot meet. I beg to move.

[Baroness Lawlor (Con)]

My Lords, I strongly support this amendment in the name of my noble friend. I am an employer, and I have declared my interest in the register. I founded and was the executive director of a think tank for over the best part of a quarter of a century, and now I am research director there. We continue to employ students on a flexible basis. As your Lordships know, many universities have changed their timetables. Some are taking much shorter summer breaks, some have started working more flexibly and many work remotely for certain classes. Postgraduate and undergraduate students welcome the opportunity to train, get a foothold in the world of work and understand what happens there. They learn disciplines. They learn the discipline of work, timetabling and deadlines. But we have to be flexible. Terms can be busy. There can be things such as essay crises, or a postgraduate student may have an extra schedule to fit in, and of course we will accommodate that.

We have devised a good work programme. I am speaking only to give the Committee an example of the damage this will do, particularly to the students. We devise a work programme so they can work remotely and do research when they have free time. They want to earn money, and both parties are flexible. I, particularly as a former academic, recognise that their work in the university, their teaching and their essays come first. This suits all parties. We have had full-time staff who have come to us with good degrees, stayed three or four years and then gone on to do a professional training course, perhaps in law or accountancy. They, too, want to come back and continue with the work that they have brought to a high level, and they will be paid accordingly. There is no exploitation in this market; rather it is mutual gain.

It is a great pleasure for me to see young people. I have had students from inner London universities whose family had no habit of third-level or even second-level education, who came from families from abroad, who used to ask for time off during their time to take their granny to the hospital in order to interpret for her. We gave them opportunities, and it is a great pleasure to see that they have done very well as a result. Some of the work placements are organised directly with the university, and for others students write in themselves. I beg the Government to listen to this amendment and take heed, because the Bill will do untold damage to the life chances of students and their capacity to earn and keep afloat when they are paying for their studies.

[Lord Jackson of Peterborough (Con)]

My Lords, this debate takes me back to my own student days and the work that I did as a student. It was not very glamorous, I have to say. I did the overnight shift shelf-stacking at Gateway, which set me up, obviously, to be a Peer in your Lordships’ House. I also did a stint at McDonald’s. That was valuable experience in terms of socialising, learning life skills and the important opportunity to meet different sorts of people.

I believe that this Government are fair-minded and decent in the way they wish to protect the interests of working families who want the certainty of being able to put food on the table and earn a decent wage. I think we all believe that that is very important as an imperative. However, the mark of a good piece of legislation is the ability to answer the question, “What problem is this solving?” Another mark of good legislation is the ability to be flexible in carving out some parts of a Bill where the effect of the Bill will be disadvantageous to a group. I think that this is one such example and that the very important points made by my noble friend Lord Hunt of Wirral should be taken on board by the Government.

Remember that this is a student generation that has lived through the trauma of Covid. Many students and graduates have had to start their working career not being able to socialise in an office or a factory or out on site but at their kitchen table with their laptop. My problem is that employers who, broadly speaking, are not wicked and rapacious but want good people to join their business, make money for them and grow themselves as people and individuals and workers, will not take a risk with this legislation. This goes through the whole of this legislation. Employers are going to be significantly more risk-averse if they are going to be compelled to offer guaranteed hours to certain groups, including students. I think Ministers should give that consideration.

The reason that this is a good amendment is that it recognises that we have a very complex, fast-moving labour market and that young people are making decisions and value judgments about their work, employment, training, skills, knowledge and experience that I did not take 30 years ago and my parents certainly did not take, as you were generally in the same job for the whole of your working life, but—I would not use the word “promiscuous” necessarily, but I cannot think of a better word—younger people now are a bit more promiscuous in the decisions they take, and therefore they value that ability to enter into a flexible contract. In my time, I would not have expected a guaranteed hours contract. I would for someone aged, say, 35 or 40 who had a family and had to provide for them, but I think my noble friends have made a good point that this amendment would allow the Government to carve out this particular group. I do not think there is anything in the Explanatory Notes or the impact assessment that definitively makes the case for keeping students in this group, and for that reason I would like the Minister to give active consideration to this amendment. It is a sensible amendment. It is not a wrecking amendment. It is designed to improve the Bill. It recognises the real-life consequences and issues that may arise from the Bill: in other words, fewer young people having the opportunity to work and fewer long-term employment opportunities. For that reason, I am pleased to support my noble friend’s very good amendment.

--- Later in debate ---

[Lord Goddard of Stockport (LD)]

My Lords, I will speak to my Amendment 29 and support my noble friend Lord Fox’s Amendment 27. My amendment probes the Government’s intended meaning for the phrase “reasonably believed”, which relates to short-notice cancellation of shifts. This phrase may seem innocuous at first glance, but it carries considerable weight in determining whether workers—particularly those in insecure or temporary arrangements—are entitled to compensation when a shift is cancelled, shortened or otherwise fails to materialise. Without a clear understanding of what constitutes a reasonable belief in this context, we risk leaving both worker and employer in an uncertain and potentially contentious position. A test that lacks definition can quickly become a source of dispute rather than a resolution.

To be clear, my intention is not to impose overly prescriptive language on the Government, but rather to seek clarity on how this standard is to be understood and applied. For example, it is not enough for an employee to assert that they are expecting a shift to proceed even when the hirer has not provided written confirmation. What factors should we consider in assessing what is reasonable? Should they include previous patterns of communication, the urgency of the situation or a reliance on verbal assurances? Clarity is not a luxury that employment law has—it is a necessity. Vague thresholds serve no one, least of all those trying to navigate an already precarious labour market. I hope the Minister will take this opportunity to provide reassurance that the Government’s use of this term is underpinned by clear guidance, sound reasoning and a fair balance between the interests of workers and agencies alike.

[Baroness Lawlor (Con)]

My Lords, I speak in favour of Amendment 22, which would allow the duty to provide reasonable notice not to apply in certain cases, and Amendment 24, which would do likewise for the duty to provide compensation under new Section 27BP(1). The Bill’s approach is likely to damage the effective working of the labour market, for which any sensible law needs to take account of the delicate balance between the needs of a business, which needs a workforce, and those of a workforce, which depends on a business succeeding to provide work and income for the future.

If a Bill does not account for exceptional circumstances, it becomes a straitjacket on all parties. In the case of this Bill, in providing for exceptions to guaranteed-hours, reasonable notice and compensation obligations, it should take account of the difficulties businesses have to navigate to keep afloat and continue to make a success of things, as well as contribute to the whole economy and the country’s overall welfare, provide jobs for the labour market, and offer opportunities for people to work, earn and, sometimes, get their first job on the jobs ladder.

We understand that businesses have both quiet periods and busy periods—such as hospitality events—where they need extra hands. A business must allow for periods of extra business as a matter of course—some of these are predictable, others not. Businesses know there are times when cover is needed with no notice, such as when a team member is off sick or at a funeral, but by the same token they need to be able to avoid adding to their problems and costs when they are a victim of circumstances that unexpectedly change. Yet the Bill requires the employer to give notice of changes and make provision for compensation if a shift is cancelled, moved or shortened without sufficient notice.

These amendments simply ask that a Government can make regulations so that the duties under new Sections 27BI and 27BJ need not apply. That would give power to a responsible Government to ensure that there can be exceptions, so that businesses are not burdened with the costs and time involved in the tribunal process and potential compensation payments in cases where, due to unlikely and unforeseen circumstances, the guaranteed-hours work was not available at short notice.

We have already heard examples, but no business is exempt from the difficult changing circumstances with which they contend. Given the burden that the business sector will face under the guaranteed-hours clause, a Government will have few tools at their disposal to tackle what could be an unfair obligation—one that might be mitigated by circumstances in the normal course of events—to exempt the reasonable notice required for changes or cancellations that have an impact on the business, and the compensation obligation, which will add unfair costs to a business.

I will take three sectors—each very different—to illustrate a potential example. The first is the retail sector, where extra help is needed to deal with a delivery and prepare it for the shelves overnight. What if the delivery van does not arrive, or the motorway is closed due to an accident or roadworks? The business has little or no notice of the failure, yet it will lose custom and income on lost sales. None the less, there is no provision in the Bill to allow for it to give less than what, under the measure, will be reasonable notice, or to protect it from paying compensation.

In the care sector, extra hours may be needed to help with certain residents needing extra support, or someone due to arrive on a given day. What happens if the person dies or the resident falls ill, has a heart attack and must go to hospital right away? There is no notice of that, and the extra work does not materialise. The care home will lose income on its empty room and overhead, yet payment will be expected. Where is the money to come from—the local authority, the care recipient, or the estate if it is a death? What will the care home do to tide over an income shortfall when having to pay its suppliers for everything from food and cooking to linen, room cleaning and care?

The CEO of the Carers Trust explains that social care providers are often forced to rely on zero-hours contracts because of a “lack of funding” from local authorities. She says:

“If zero-hours contracts are banned”—


or, I would add, made more difficult or costly—

“social care providers must be given the funding to afford the increased costs that brings”.

The CEO of the National Care Forum says that

“these measures must be accompanied by the financial and wider support necessary for providers to implement them, as well as interim measures to boost care worker pay”.

These changes must be reflected in its funding so that it can continue to do its vital work. So are the Government prepared to make a commitment to cover the costs that will be incurred if these clauses go through unamended?

Another example would be a conference organiser where the IT system fails. Despite a service contract in place to repair it instantly, nothing can be fixed because the failure lies elsewhere: a cyberattack or an energy blackout. This can happen overnight. The business loses its data, it loses customers, who are unable to pay an entry price, and it loses an overhead. Depending on how long it is before the system can be got back to normal, it may lose so badly that, ultimately, if the problem recurs, it may have to curtail operations and overheads. Without the amendments allowing the Government to provide for exemptions from the clause, there will be higher costs that may ultimately lead to the failure of the business.

There are enough uncertainties and costs for employers without making these worse, but the obligations of the Bill and these clauses could add significantly to costs and complications. Who will pay these extra costs? We know that this Government have been in the habit of saddling the taxpayer with additional costs in respect of workers in the public sector but not for businesses or charitable trusts, or indeed independent schools in the case of imposing VAT. What about the care homes taking local authority work? What about the costs of the uncertainties of the Bill itself? Although the compensation clause stipulates that compensation will not exceed pay for the lost shift, we do not yet know what the amount will be, what “short notice” is supposed to mean and what is meant by “qualifying shift”. We have to wait for regulations.

There are good reasons for these amendments. If we want businesses and the labour market to flourish, and to enable businesses to navigate the unwelcome outcomes of unexpected problems preventing expected workloads without adding to their costs, there are good reasons for the Government to accept them and for the regulations to respect the spirit in which they have been made.

[Baroness Noakes (Con)]

My Lords, I will comment briefly on my noble friend Lord Sharpe of Epsom’s Amendment 28, which replaces the test of reasonable belief with that of formal confirmation. I mentioned earlier the work done by the Low Pay Commission on zero-hours contracts when it reported in 2018. It also examined the issue of compensation for short-notice cancellation of shifts. It emphasised in its report that there would need to be fairly rigorous record-keeping. It said that both employers and employees would need

“proof a shift had been offered”.

That speaks to the content of Amendment 28. It does not seem to me to be sensible to have something that rests solely on reasonable belief, because that is impossible to prove and would result in difficult questions being put to an employment tribunal. Although I am obviously not in favour of imposing bureaucratic requirements on employers, this is one area where the legislation should point towards there being some formality of record-keeping so that there can be no dispute about whether shifts have been offered or cancelled.