Tom Brake
Main Page: Tom Brake (Liberal Democrat - Carshalton and Wallington)Department Debates - View all Tom Brake's debates with the Leader of the House
(9 years, 10 months ago)
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The Parliamentary Secretary, Office of the Leader of the House of Commons (Tom Brake)
I beg to move, That the clause be read a Second time.
Mr Speaker
With this it will be convenient to discuss Government new clause 25—Civil penalties for parking contraventions: enforcement.
Amendment 61, page 7, line 22, leave out clause 10, clause 11 and clause 12.
Government amendment 13.
Amendment 1, page 26, line 4, clause 35, leave out paragraphs (a) and (b) and insert “in paragraph (a) leave out from “if new and important evidence” to “discovered” and insert
“where secondary investigations have enabled more new, significant, or important evidence to become available, having particular regard to—
(i) enhancing and preserving the rights of those affected by a maritime accident to learn from the proceedings of such reinvestigations and conclusions drawn from them; and
(ii) future safety issues and measures.”.”
Government amendments 36 to 49, 51, 24 and 26.
Tom Brake
This group of amendments covers accident investigation, parking contravention, driving, and private hire vehicle licensing.
New clause 4 and amendment 24 deal with rail accidents and, specifically, tram investigations in Scotland. They will remove a prohibition in the Railways and Transport Safety Act 2003 that prevents the Rail Accident Investigation Branch from investigating tram accidents in Scotland. The prohibition was originally included at the explicit request of the Scottish Executive because operation and safety matters on tramways are a devolved matter. Until now, this has not been an issue as there were no tramways in Scotland, and in practice the power would never have been exercised. However, now that the Edinburgh tramway has entered public service, the prohibition is no longer appropriate. This is a devolved matter, so the consent of the Scottish Parliament is needed. Scottish Ministers will support the legislative consent motion required to remove the prohibition.
The RAIB is already a UK-wide organisation. Its inspectors investigate accidents and incidents on all mainline services, including in Scotland, and currently undertake investigations of tramway accidents in England and Wales. RAIB inspectors already have the required investigative expertise and the necessary powers to conduct a thorough investigation and make recommendations to ensure that lessons are learned. Should there be an accident or incident on the Edinburgh tramway, it is therefore appropriate that RAIB inspectors should be able to undertake an investigation.
If the prohibition on undertaking investigations of tramway accidents or incidents in Scotland were not removed, RAIB inspectors would have no statutory power to investigate, so the safety implications of any accident or incident might not be fully exposed, and there might be repeat incidents if the root causes are not addressed. Although the new clause is only small, the implications for the continued safety of our rail network of perpetuating the prohibition are significant.
The RAIB has already shown its considerable value in contributing to our having one of the safest rail networks in the world. I of course hope that it will never be necessary for RAIB inspectors to be deployed, but we must not be complacent. This is an opportunity to remove a small legislative anomaly, enabling RAIB inspectors to apply their considerable experience and expertise consistently across the whole of the United Kingdom.
Mr John Redwood (Wokingham) (Con)
What has the accident experience of tramways in England been over the past year, and will the power include the ability to investigate pedestrians and drivers of third vehicles or bicycles that get caught by trams?
Tom Brake
I am afraid that I do not have figures to hand on accidents relating to trams in England and Wales, but I will write to my right hon. Friend on that subject. I assume that any investigation of an accident would assess its causes—for instance, if it involved a vehicle driving on to the tramlines—and would make recommendations about how to deal with such issues.
Government new clause 25 relates to changes in the use of CCTV for issuing parking tickets by post. The Government are concerned that the use of CCTV for on-street parking is no longer proportionate, and that local councils over-employ it to deal with contraventions when it would be more appropriate and fair for such contraventions to be handled by a civil enforcement officer. We have therefore committed ourselves to ban the use of CCTV for on-street parking enforcement. That was announced in September and re-stated in December 2013 as part of a package of measures designed to support high streets.
Under existing measures, when a CCTV camera is used by a civil enforcement officer to identify a parking offence, a penalty charge notice can be issued to the offender by post. In practice, that means that drivers may receive a parking ticket through the post several weeks after an incident, which makes it difficult to challenge the alleged contravention.
The Government are concerned that a proliferation of CCTV cameras for offences such as parking may undermine public acceptance of their wider beneficial use. To introduce the change, we need to amend legislation to prevent local authorities from relying so heavily on CCTV for parking enforcement.
James Duddridge (Rochford and Southend East) (Con)
The right hon. Gentleman has made it clear that the new clause relates to parking, but will he confirm that CCTV cameras can still be used for issuing fines via the post for other offences, such as parking on zig-zag lines in front of schools?
Tom Brake
I will come on to that point in a few moments.
New clause 25 will amend part 6 of the Traffic Management Act 2004 to prevent the automatic issuing by post of fines for parking offences, and instead require that notification of penalty charges is given by a notice attached to the vehicle.
The new clause includes a wider power to cater for an outright ban on CCTV if that is considered necessary in future. However, the Government intend to protect the use of CCTV cameras where there is a strong safety argument for doing so. Their use will therefore be banned in all but the following limited circumstances: when stopped in restricted areas outside a school; when stopped where prohibited on a red route or clearway; when parked where prohibited in a bus lane; or when stopped on a restricted bus stop or stand.
Mr Jim Cunningham (Coventry South) (Lab)
What discussions has the right hon. Gentleman had with the Secretary of State for Communities and Local Government about his statement at the weekend that local authorities are not able to make a profit from CCTV cameras, and what does he think about that?
Tom Brake
I have not had any discussions with the Secretary of State for Communities and Local Government since his announcement at the weekend. It is very clear that local authorities cannot issue parking fines to raise funds for other purposes, but that they can use the money from parking fines to invest in transport and some environmental measures. The Government are concerned that the family of local authorities as a whole has a surplus of about £630 million in funds raised through parking tickets. We believe that we have taken a sensible and proportionate approach by ensuring the power has the ability to exempt key parts of the road network so that we reach the right balance of fair enforcement in the right places.
I now move on to amendment 61 on taxis and private hire vehicles.
James Duddridge
Before the Minister moves on, will he confirm when the power will come into effect, and what will happen to councils that perhaps have a longer-term contract with a provider that falls outside the period?
Tom Brake
I thank my hon. Friend for that intervention. It is a very good point, which I think it would be more appropriate to respond to in writing. Clearly, there may well be contractual issues. If local authorities have entered into contracts for, say, a five-year period, there may be implications, so rather than giving him an off-the-cuff response, I will write to him on that point.
Amendment 61 would remove from the Bill the three clauses that relate to taxis and private hire vehicles. That is not a course of action that the Government intend to adopt. On the contrary, we consider that the taxi and private hire vehicle clauses will have significant benefits, both in terms of cost savings for the trade and convenience for passengers, and we are determined to see those benefits realised.
Caroline Lucas (Brighton, Pavilion) (Green)
Will the Minister explain why he has not listened to what the travelling public want? There is huge concern about these clauses. He has not consulted the Local Government Association, nor has he listened to the public or the evidence, and as a result, he is going to put public safety at risk.
Tom Brake
I cannot agree with that at all. We are not putting public safety at risk, and I think the people who have concerns about safety do at least have London to consider, where, of course, all the measures apply, and I am not aware of significant issues being raised in relation to safety in London.
Clause 10 concerns the circumstances in which a private hire vehicle driver’s licence is required. Its purpose is to allow people who do not hold a private hire vehicle driver’s licence outside London and Plymouth to drive a licensed private hire vehicle when the vehicle is off duty. At a stroke, that will lift the burden that many families currently face of having to run a second car so that other family members can drive for domestic purposes. I have heard arguments to the effect that this will be unsafe and that the Government are being reckless in taking forward the policy, but I do not agree with that.
Fiona Mactaggart (Slough) (Lab)
There was a case in the local Slough magistrates court on these issues very recently, and those who were charged were found guilty and fined extensively. The comments from the magistracy are interesting. The court said that they regarded this as a very serious set of offences, putting the public at risk and depriving legitimate drivers of income. They were particularly concerned that the trigger incident involved a lone female being collected late at night from Wexham Park hospital. Is that not evidence that these sorts of changes are required?
Grahame M. Morris (Easington) (Lab)
On that point, does the Minister acknowledge the concerns of police and crime commissioners and organisations such as the Suzy Lamplugh Trust about rogue or unlicensed taxis? This deregulation is likely to compound that problem.
Tom Brake
I certainly agree with those organisations that we need to be concerned about rogue, unlicensed taxis, but I do not think that anything the Government are putting forward today will increase the likelihood of there being rogue, unlicensed taxi operators. For instance, a private hire operator passing on a job to another will be passing the job on to an operator who is, of course, licensed.
Tom Brake
I will make some progress.
Safeguards will be in place, the main one being that the law will continue to prohibit people who do not hold a PHV driver’s licence from acting as a PHV driver. It was with safety in mind that we decided to alter the position in London by introducing the reverse burden of proof: where a driver without a PHV licence is caught driving a licensed PHV with a passenger on board, the Bill places the onus on the driver to show that the vehicle was not being used as a hire vehicle at the time. We believe that that approach will make the job of enforcement more straightforward for local authorities.
Clause 11 will standardise the duration of taxi and private hire vehicle drivers’ licences at three years, and private hire operator licences at five years. Shorter licence durations will be permitted, but only according to the circumstances of a given case and not on a blanket basis. That will apply in England and Wales, but not in London or Plymouth. I have heard arguments about the adverse safety implications of clause 11, and about licensing authorities losing their ability to monitor drivers sufficiently. The three-year licence duration applies to more than 50,000 taxi and PHV drivers in London, and outside London just under half of licensing authorities set that duration for their drivers, so that measure is already common. We recognise that local authorities take their taxi licensing responsibilities seriously, which is commendable.
Julie Hilling (Bolton West) (Lab)
The National Association of Licensing and Enforcement Officers, the National Taxi Association, and the National Private Hire Association are totally opposed to these clauses. Why is the Minister not listening to those who have to enforce the regulations or who are part of the delivery of our taxi services?
Tom Brake
The Government have listened to and taken on board concerns expressed by a range of organisations, and have also heard support for the measures we are proposing. We think it important not to place a burden on private hire vehicle drivers that requires them to have a second vehicle in their family to enable them to get around. Safety is vital when licensing taxi and PHV drivers; that is why local authorities are allowed to take into account the criminal records of driver’s licence applicants. Best practice guidance advises licensing authorities to undertake formal criminal record checks every three years, and that facility will still be available. Moreover, the new Disclosure and Barring Service allows taxi and PHV drivers to sign up to an updating service that will allow licensing authorities to make inquiries about the drivers they licence, should they feel the need to do so.
Clause 12 allows private hire vehicle operators to subcontract bookings to operators licensed in a different district. It will apply in England and Wales, outside London and Plymouth. Once again, the clause has been opposed on safety grounds, with arguments that enforcement will be difficult. I stress that that measure already applies in London—I am not aware of any enforcement issues—and the principle of subcontracting, albeit to an operator in the same district, is already enshrined in provincial legislation. I cannot see how allowing PHV operators to subcontract journeys across borders will generate safety issues. Operators will be allowed to subcontract bookings only to other operators who are properly licensed, and those operators will have to fulfil their bookings using properly licensed drivers and vehicles.
Grahame M. Morris
The Minister says that he is not aware of any enforcement issues, but may I remind him that the real public safety concern is the number of bogus, unlicensed taxis that operate—particularly in London—and pose a threat to the welfare of women travelling home late in the evening? Last year there were 250 assaults and 56 rapes. Measures that will make that situation worse by making the system more difficult to enforce—that is what the Government propose—should surely concern the right hon. Gentleman and the whole House.
Tom Brake
Again, I agree that the Government, local authorities, the police and campaigning organisations should do everything they can to ensure that women and other users of private hire vehicles use only licensed vehicles, and that there is a strong clampdown on those who are operating illegally. Again, I do not think that anything the Government are proposing in these clauses will have the effect that the hon. Gentleman seems to be saying they will.
Graham Jones (Hyndburn) (Lab)
Will the right hon. Gentleman confirm that a local authority cannot take enforcement action against taxis that are licensed in another area, and that relaxing this policy will only add to that problem?
Tom Brake
As I have said, if, for instance, an operator cannot do a job in an outside area and passes on the responsibility to another licensed operator, that operator will be licensed, and there will be enforcement associated with that licence. Enforcement authorities will be able to check the operator’s records for any given booking to ensure that it has been undertaken lawfully.
To sum up, these are tried and tested measures. We believe there are adequate safeguards in place. We acknowledge, of course, that the Law Commission review is a significant landmark to those who have a keen or vested interest in the evolution of taxi licensing and regulation, but the key point is that that review will not deliver tangible change in the next year, whereas these measures will. They in no way undermine or nullify the Law Commission’s review; they are simply the first steps on a long deregulatory journey, which will continue when the Government find an opportunity to take forward the Bill that will arise from that review. The Government are firmly of the view that clauses 10 to 12 should remain part of the Bill, and that amendment 61 should be resisted.
Graham Jones
The Minister says these measures will be helpful, but Hyndburn borough council currently cannot take enforcement action against taxis from another authority, such as Rossendale, and his proposals will only aggravate the situation. Will he confirm that that is the case?
Tom Brake
At the risk of repeating myself, I do not think that any action the Government are taking will put people at risk.
Let me respond to a couple of earlier interventions. It was suggested, for instance, that we have not consulted. We have indeed consulted: we conducted a targeted consultation earlier this year and also tapped into the extensive consultation conducted by the Law Commission during its comprehensive review. Nor is it true that no one wants the measures we are proposing. For instance, the Private Hire Reform Campaign is highly supportive of all these measures, and after extensive consultation, the Law Commission recommended all three of them in its most recent comprehensive review of taxi legislation.
Tom Brake
I am afraid that I will move on now to Government amendments 13 and 51, which deal with the duration of driving licences granted to drivers with relevant or prospective disabilities. The Road Traffic Offenders Act 1988 provides that drivers with relevant or prospective medical conditions may be issued only with time-limited driving licences with a maximum duration of three years. That means that drivers with relevant medical conditions need to reapply for their licence at least once every three years. In many cases, where a medical condition is well controlled or progressing only slowly, a three-yearly review is unnecessary. Our amendments will enable the Driver and Vehicle Licensing Agency to issue licences with a duration of up to 10 years.
Every licence application will still be considered on a case-by-case basis, and licences will still be issued for shorter periods where that is appropriate. Only drivers with conditions that are considered low-risk and unlikely to progress quickly will get a licence of longer duration, so road safety will not be compromised. A driver will still have a legal duty to tell the DVLA of any condition that he or she has developed or that has deteriorated, and it is an offence to fail to do so. Doctors and other third parties, such as the police, can also notify the DVLA when patients or drivers who have a notifiable medical condition, or do not tell the DVLA about it, come to their attention.
When the DVLA consulted on this proposal, 81% of respondents said they supported it. Those expressing support included the Royal Society for the Prevention of Accidents, the Association of Chief Police Officers, the RAC Foundation, the Epilepsy Society, Diabetes UK, the Royal College of Physicians and the Freight Transport Association. Our amendments will ease the burden on motorists who currently need to make unnecessary applications every three years. They will also ease the burden on GPs, who have to complete the administrative work, and the DVLA, where applications are processed.
Let me turn to marine investigations and the Opposition’s amendment 1. Hon. Members have referred to the campaign—which was supported by the National Union of Rail, Maritime and Transport Workers—by the relatives of those lost in the sinking of the MV Derbyshire. I recognise that the amendment is intended to ensure that a future campaign of a similar type that uncovered new evidence would lead to the reopening of the formal investigation into the relevant accident. However, hard cases make bad law.
Dr Eilidh Whiteford (Banff and Buchan) (SNP)
A more general point about marine accidents is relevant here. All of us who represent marine communities know just how hard it is for bereaved families to come to terms with their loss in the event of marine accidents, and that is made all the harder when they do not know what happened, and when unanswered questions remain. Anything that makes it harder, more costly and more bureaucratic for the families to get the answers they need must be a retrograde step. I ask the Minister to look more carefully at not just this single instance, but at the framework, and to think again about how he takes forward the regulations on this issue. It is a huge comfort to bereaved families to find out what actually happened to their loved ones.
Tom Brake
Of course it is. I have just stated the parameters that will be used to establish whether it is appropriate to reopen an investigation. We would, of course, want to ensure that the families had the answers that they wanted and deserved, so that they could get closure. We are arguing only about whether there should be a mandatory requirement on the Secretary of State to reopen formal inquiries, irrespective of the value of any new evidence that comes forward, and however small it is.
John McDonnell (Hayes and Harlington) (Lab)
I hope to catch the Speaker’s eye later and contribute to the debate. The Minister may be convinced, but it is the seafarers and their families who need convincing, and they are not convinced. Will he clarify the process from here onwards? Will there be detailed regulation and consultation? If the legislation is agreed to today, how do we go forward towards implementation?
Tom Brake
I shall respond to that shortly, but let me restate that I do not believe that anything we are proposing would have got in the way of the MV Derbyshire inquiry. All the evidence surrounding that shows that under these proposals the Secretary of State would still have reopened the investigation. All we are talking about is whether there should be an automatic trigger, irrespective of the nature of the evidence that comes forward. That is the only point that is in dispute, and I am absolutely certain that if the current Secretary of State or any future Secretary of State felt that the evidence brought forward could, in any shape or form, lead to further safety improvements being identified, they would want to proceed with a formal inquiry. I think most Members would agree that if, 100 years from now, a formal investigation was automatically triggered under this legislation by something that happened today, that would not be likely to make a significant contribution to improving safety.
Amendments 36 to 49 make minor technical improvements to the drafting of schedule 2. Amendments 36, 37 and 39 make drafting changes to render the language more consistent. Amendments 40 and 43 relate to new section 128ZZA, which allows the registrar to cancel a requirement to undergo an emergency control assessment when it is appropriate to do so. The policy intention was to cover all ECAs, but cross-references were missed, so the Bill does not cover the ECAs that are required in relation to licences for trainee instructors. Amendments 40 and 43 simply extend the new section to cover ECAs in connection with licences.
Amendment 41 amends new section 133B(2A), which concerns the ability to retake failed ECAs. It inserts references to assessments required in relation to licences for trainee instructors, which will ensure that the ability to retake a failed assessment applies to all assessments, regardless of the stage at which they were originally ordered. New section 133B(5A) states that a person applying to undergo a further ECA cannot do so until after a further six months, or any other such period prescribed by regulations. Amendments 38 and 42 simply allow a person to retake an ECA before the end of the six-month period in cases in which that is appropriate. Amendments 44 to 49 make consequential amendments to the Road Traffic Offenders Act 1988 to reflect amendments made to the Act by schedule 2 to the Bill.
Let me now conclude my remarks—
John McDonnell
Will the Minister answer the question that I asked earlier, about the process involving marine investigations?
Mr Gordon Marsden (Blackpool South) (Lab)
I rise to speak briefly on Government new clause 25 and more specifically to our amendments 61 and 1, which relate to taxis and maritime issues respectively.
First, I shall comment on what the Minister said about the CCTV measure. The short notice of the introduction of the amendment—it appeared only at the end of last week—suggests that it was a political hot potato, passed between the Department for Transport and the Department for Communities and Local Government. There have long been rumours that the DCLG intended to scrap the use of CCTV even in sensitive areas, in contrast to the wishes of DFT Ministers. Over the weekend, press coverage of the issue was almost entirely dominated by the Secretary of State for Communities and Local Government. Perhaps the Minister will enlighten us on whether DFT Ministers decided to support what my hon. Friend the Member for Birmingham, Northfield (Richard Burden) has called a “pickled policy”, or whether this is simply an example of what the Government’s frequent use of the Alice in Wonderland principle of sentence first and trial afterwards.
It concerns us greatly that the measure was introduced so late in the day. It is at odds with the consultative approach adopted by the Department for Transport. A range of organisations, including Living Streets, the Local Government Association, the British Parking Association, the Freight Transport Association, Disabled Motorists UK, the Parliamentary Advisory Council for Transport Safety and Guide Dogs for the Blind, have made their concerns known, yet the Government published the new measure before seeing those responses.
There are of course legitimate concerns that councils have been using cameras as a routine means of parking enforcement; that is wrong. There have also been problems where stickers, such as resident permits and blue badges, have not been visible and drivers have wrongly been issued with tickets; that is an occurrence that we should make as infrequent as possible. It is understandable that drivers become frustrated when the first they hear of an infringement is a letter through the post, without the opportunity to discuss the circumstances with an enforcement officer. So we agree with the Select Committee on Transport that there should be greater oversight of the way in which local authorities use cameras to institute penalty charges, but that could be done through statutory and operational guidance, which is exactly what the groups I just mentioned would have liked.
CCTV remains vital for parking and for traffic and safety enforcement in certain areas where the use of parking officers is not practical: schools, bus stops, bus lanes, junctions and pedestrian crossings all come into that category. We hear from the Government response to their consultation that those areas are to be exempted and that CCTV could still be used in these circumstances, but that is not on the face of the Bill and we would welcome confirmation that this is the case and that plans will be put into practice.
Tom Brake
First, I wish to respond to the points made by the hon. Member for Blackpool South (Mr Marsden), who is not in his place. He started by discussing CCTV exemptions, which he wanted included in the Bill. I made it clear in my opening remarks precisely what the exemptions were, but to avoid doubt I will simply repeat them. CCTV cameras can still be used in relation to restricted areas outside a school; red routes or clearways; bus lanes, where parking is prohibited; and cases where a vehicle is stopped at a restricted bus stop or stand. That is very clear.
Richard Burden (Birmingham, Northfield) (Lab)
The Minister has indicated where he intends exemptions to be made, but he has not answered the questions my hon. Friend put to him. Where will those exemptions be listed? Where will they be codified? Under what regulations will they be introduced? When will those regulations be laid?
Tom Brake
I thank the hon. Gentleman for his intervention and I am sure we will shortly provide the clarity he seeks.
My hon. Friend the Member for Rochford and Southend East (James Duddridge) raised the issue of CCTV and parking, and asked when we would introduce regulations and commence the provision. Clearly we will do that as soon as is practicable after Royal Assent. He also suggested that we could restrict CCTV use through statutory guidance. There is a need to legislate; the difficulty at the moment is that local authorities are not supposed to use CCTV other than in exceptional circumstances, but its use is proliferating. We need to respond to that because CCTV is now being used routinely.
The hon. Member for Blackpool South, like other Opposition Members, made a number of comments about how we are putting passengers at risk and how that risk could be greatly increased, but they did not illustrate that with any examples. He attacked me for using London as an example—I believe he said I was praying it in aid—but London does have rather a big private hire vehicle market and so everything that he says is going transpire as a result of the measures we are introducing would have already happened in London. The evidence shows that it has not.
Grahame M. Morris
May I remind the Minister that there were 54 rapes and more than 200 assaults in London last year? Does he not think that should concern him and the whole House?
Tom Brake
I am going to make a bit more progress. The hon. Member for Blackpool South called on the Government to have a more comprehensive look at this issue, but the Bill provides an opportunity to introduce the three measures which, as he will have heard me say, the Law Commission supports. We are introducing those three measures. He will know, as will other Opposition Members, that Bills, unlike buses, do not come along in threes; Bills come forward relatively infrequently and if there is an opportunity to take small steps in relation to taxis, we should take them.
Mr Marsden
I am listening with care to what the Minister is saying, but so much of the thrust of the criticism that has been made has been about how the Government have put the cart before the House. When were these measures put into this Bill?
Tom Brake
I will address that shortly. The hon. Gentleman attempted a joke at the Government’s expense about whether the Department for Communities and Local Government and the Department for Transport had spoken about these matters. The consultation was issued jointly in December by both Departments, and the announcements that Members will have seen in the press at the weekend were supported by both Secretaries of State and both Departments. Clearly, Departments are working hand in hand on this issue, as they should be.
The hon. Gentleman has stated that we did not listen to the Law Commission, but it supports the three measures. He, like a number of Members, asked about enforcement, which will be dealt with in the usual way. For example, where journey bookings are subcontracted across licensing boundaries the operator that takes the initial booking will retain liability and licensing authorities can investigate any issues in the usual way, so local authorities retain their licensing duties.
Graham Jones
The Minister rightly says that the licence will be administered by the local authority, but the vehicle that turns up at the door may well not be licensed by the local authority, and neither may the driver. The operator might be, but the driver and the vehicle may well not be licensed by the local authority where the original booking is made.
Tom Brake
I will come to that matter shortly in response to another intervention, and I hope that the hon. Gentleman will be satisfied with my answer.
Moving on to the issue of marine safety, the hon. Member for Blackpool South suggested that I had used a bad example when I referred to something that had happened 100 years ago, although I think that he, or someone from his party, went on to do the same. The issue is that, under his suggested amendment, if a wreck were discovered 100 years from now, regardless of whether it represented substantial new information or had any impact on an investigation, there would be an automatic reopening of an inquiry. That is something for which we want to provide flexibility.
Mr Marsden
I hesitate to say that the Minister is misrepresenting the words of our amendment. I invite Members to look at its words. As I said, there will not be an automatic reopening of an inquiry, whether it is in 10, 20 or 100 years’ time.
Tom Brake
I am afraid that my advice says that the hon. Gentleman’s amendment widens the remit rather than closing it down. Perhaps he should go back and look at precisely what he is proposing. It is clear that the Secretary of State will still be required to reopen a formal investigation where there are grounds for suspecting a miscarriage of justice. It is also worth pointing out that what we are talking about has no impact on the work of the marine accident investigation branch; that is completely separate to this issue.
The hon. Member for Hayes and Harlington (John McDonnell) asked whether there would be regulations for marine investigations. The answer is no, there would not be regulations. That is something that would be implemented. We have set out the circumstances in which we would expect the Secretary of State formally to reopen an inquiry. We would of course consider any specific requests that were received from relatives or trade unions that were affected by that decision-making process. The measure would come into force two months after Royal Assent.
John McDonnell
The Minister should recognise that he is now taking the law back to what it was when it was completely ineffective. The Conservative Government had to amend the legislation, and the Derbyshire relatives had to campaign for 20 years to ensure that they got justice.
John McDonnell
The reason why the Conservative Government introduced the legislation was that the decision was at the discretion of the Minister. This measure returns it to the discretion of a Minister—it does not matter which party is in power—in whom the public no longer have confidence.
Tom Brake
As the hon. Gentleman will have heard me say in relation to miscarriages of justice, there is no flexibility. There will be an automatic reopening of the inquiry. I hope that he agrees that there must be some assessment of whether or not new evidence should trigger a formal reopening of an inquiry. Surely the evidence must pertain to the incident. It has to be of a nature that is likely to lead to safety improvements.
John McDonnell
That is precisely why I support the amendment. However, if the amendment is not suitably drafted, the usual process is that Government consult on the detail of regulation. People will be involved in that, and we can hopefully arrive at a consensus. Today the Minister is saying that there will be no regulation that will guide Minister and therefore no consultation. We are back where we were before 1995.
Tom Brake
I am repeating myself rather a lot, but I say again that we are not back where we were. I have made it clear that, under our proposals, the MV Derbyshire inquiry would have happened.
I thank my right hon. Friend the Member for Wokingham (Mr Redwood) for his support. I was not quite as surprised as he thought I might be in receiving support from him. He expressed the view that the Government had not gone far enough in relation to deregulation. The Opposition saying that we have gone too far and my right hon. Friend saying that we have not gone far enough probably means that the Government have got it about right.
My right hon. Friend went on to highlight other problems with parking, with which we, as Members of Parliament, are all too familiar. I apologise if I have not been brave enough to venture into the other areas that he would like to discuss in relation to parking, but, first, I would be ruled out of order, and, secondly, we all know that when it comes to parking issues, it is a lose-lose situation whatever decision is taken.
John Hemming (Birmingham, Yardley) (LD)
Does the Minister agree that one concern of citizens is the use of fines to raise funds? I checked Magna Carta 1297, which for these deregulatory purposes can be found in the volume of statutes from 1235 to 1770, and it is clause 14 that is, in part, being reinstated by this Bill.
Tom Brake
I did not know that Magna Carta touched on the matter of parking, but I am better informed as a result of my hon. Friend’s intervention.
Still on parking, my right hon. Friend the Member for Wokingham touched on complicated parking signs and rules. Local authorities should ensure that signs are appropriate for parking restrictions. If they are not, drivers may complain to their council. If they receive a ticket, they have a free appeal to the local council and then a free appeal to the adjudicator if the council decides against them. I am sure that he is aware of that and will have referred many a constituent to the adjudicator in relation to disputes over parking tickets. The Government announced over the weekend that local residents and local firms will be able to demand a review of parking in their areas, including charges and the use of yellow lines.
We then had a contribution from the hon. Member for Bolton West (Julie Hilling) who described a distressing incident involving a young constituent of hers. I am sure that we all wish to convey our sympathy to her constituent for what was clearly a very traumatic incident. I do not know whether she has pursued with her local authority its participation in the disclosure and barring service, which may have been able to identify a problem with that particular driver. The hon. Lady went on to say that what we propose in this Bill will make matters worse. Again, I dispute that. We have had many comments from the Opposition saying that the Government will make matters worse, but they have offered little to substantiate those allegations.
The hon. Lady referred to the risk of the public using an unlicensed taxi. The measures to allow off-duty use of private hire vehicles relates not to taxis but to PHVs or mini cabs. In London no issues have been reported to the Department by Transport for London. As I have stated on a number of occasions, the Law Commission recommended this measure. In fact, it may go further as it calls for off-duty use of taxis, too.
Bob Stewart (Beckenham) (Con)
Is it correct that a person who runs a licensed taxi company, for example, is responsible for everyone who drives for that company? If so, that person has the responsibility to ensure that his or her drivers act properly and are properly checked.
Graham Jones
The Minister says that there has been no safety issue in London. What assessment has he made outside London of police stop checks of taxi vehicles in local authorities that have less regulation than others? We are all aware that in some local authorities a high proportion of taxis stopped by the police are in breach of roadworthiness rules, and those vehicles must be repaired. What assessment has he made of vehicles’ roadworthiness?
Tom Brake
I personally have not made such an assessment, but I am sure that the hon. Gentleman, as a Member of Parliament, has regularly requested that sufficient enforcement action is taken and that suitable checks are made. I am sure that his local authority will want to pursue that actively and that the police and crime commissioner in his area will want to emphasise it as well. We expect those checks to be carried out now, irrespective of anything proposed in the Bill.
The hon. Member for Easington (Grahame M. Morris) dwelt on subcontracting, as did other Members, and talked about what would happen if people used the local reliable firm that they knew and liked, but the job was passed on to another operator. At the moment, if someone wants to use their local reliable firm and it cannot fulfil that job, they are simply told to find another operator, so the risks that he tried to highlight in the job being passed on to another operator are already there when the reliable firm says, “Sorry, we can’t do that job for you. Go and look in the phone book to find another operator.” What we propose would allow that local reliable firm, which one would expect to want to set up a business relationship with another reliable, not local firm, to work with it in partnership to fulfil those jobs appropriately. Irrespective of these arrangements, all firms must be licensed. That is the basis on which their reliability is confirmed.
Graham Jones
The Minister says that an individual who is unable to order a private hire vehicle from their favourite firm is in the same position if the company locates a private hire vehicle from another local authority. On many levels, that is wrong. When that individual flicks through the “Yellow Pages”, as the Minister describes it, they can choose to look for a company in their area. This proposal will allow the company to take charge, and that taxi could come from another area with different standards. The choice is therefore removed from the fare-paying customer. Does the Minister accept that the customer is in control when they look through the “Yellow Pages”, but not when the job is passed from one operator to another who locates a taxi from outside the area?
Tom Brake
Yes, when people use “Yellow Pages”, they may well be in control of their choice of private hire firm, but I thought the point that the hon. Gentleman and other hon. Members were making was that there was a risk in a job being passed on by a local reliable firm to another operator. I would suggest that the risk of simply going to the phone book is much greater than using a local reliable firm whose reputation relies on delivering a good service, whether it does so directly or by subcontracting to another firm in an area where it cannot operate. With our system, security is enhanced, rather than damaged in the way he suggests.
Grahame M. Morris
The Minister is being generous in giving way. Although he uses London as the example where these changes are already in place, does he acknowledge that the enforcement regime is rather different because of the unique arrangement between the Metropolitan police and Transport for London? That arrangement is not replicated elsewhere in the country.
Tom Brake
If, as the hon. Gentleman suggests, that is an issue—clearly, several Members have raised it during the debate—it is a prime case for the police and crime commissioner to get involved in, to try to ensure consistency across their patch.
The hon. Member for Brighton, Pavilion (Caroline Lucas) said that the Government have made no counter-argument in support of the proposals. Again, I simply refer her to the fact that the Law Commission supports our three proposals on taxis.
The hon. Member for Hayes and Harlington called for a comprehensive Bill. Of course we want the Law Commission to deliver a comprehensive Bill, and nothing that we have done in relation to these measures stops it doing so. He referred to marine investigation and MV Derbyshire. I have taken quite a lot of interventions from him on that issue. I simply say again that the Government are clear that if such an incident happened again, under our proposals the case would definitely be reopened.
The hon. Member for Luton North (Kelvin Hopkins) wants parking laws enforced properly; well, so do I, and so do the Government. Local authorities will be able to enforce them properly by using traffic wardens, and nothing that we are doing will stop them doing so. I hope he will agree that, as I stated in my opening remarks, the issue is that local authorities have generated a surplus of £635 million by issuing parking tickets.
Kelvin Hopkins
Does the Minister accept that, by reducing CCTV surveillance of parking, he will reduce the number of convictions and make it easier to get away with parking illegally?
Tom Brake
That depends on how local authorities respond. If they use traffic wardens, there is no reason why what the hon. Gentleman has suggested will happen. He suggested that a national register is needed. I do not know whether he has investigated that and can demonstrate that it would increase safety and what the associated price tag might be. Of course, the Bill is about deregulation, not, as he would like, more regulation.
The hon. Member for Hyndburn (Graham Jones) talked about our taxi policy opening the door to criminality, and I dispute that anything we are introducing would do so. He made that comment without backing it up with any evidence. He referred at some length to subcontracting, which we have dealt with. He wants taxis of a good standard; so do we, and that is what the licensing regime is for.
I think that I have dealt with all the points made, and I simply conclude my remarks by urging the Opposition not to press their amendments.
Question put and agreed to.
New clause 4 accordingly read a Second time, and added to the Bill.
New Clause 25
Civil penalties for parking contraventions: enforcement
‘(1) Part 6 of the Traffic Management Act 2004 (civil enforcement of traffic contraventions) is amended as follows.
(2) After section 78 (notification of penalty charge) insert—
“78A Notification of penalty charge: parking contraventions in England
(1) Regulations under section 78 must include provision requiring notification of a penalty charge to be given by a notice affixed to the vehicle where the charge is in respect of a parking contravention on a road in a civil enforcement area in England.
(2) The regulations may, however, provide that the requirement does not apply in circumstances specified in the regulations (which may be framed by reference to the type of contravention, the circumstances in which a contravention occurs or in any other way) and, where the regulations so provide, they may make any such alternative provision for notification as is authorised by section 78.”
(3) After section 87 insert—
“87A Power to prohibit use of devices etc: parking contraventions in England
(1) The Secretary of State may by regulations make provision to prohibit the use by civil enforcement officers of a device of a description specified in the regulations, or of records produced by such a device, in connection with the enforcement of parking contraventions on a road in a civil enforcement area in England.
(2) The prohibition may be—
(a) general, or
(b) limited to particular uses specified in the regulations.
(3) The regulations may provide that a general or limited prohibition does not apply in circumstances specified in the regulations (which may be framed by reference to the type of contravention, the circumstances in which a contravention occurs or in any other way).
(4) Regulations under this section may amend this Part or any provision made under it.”’—(Tom Brake.)
This new clause deals with the enforcement of parking contraventions in England under Part 6 of the Traffic Management Act 2004. It provides that, subject to certain exceptions, regulations under section 78 must provide for notification of a penalty charge to be given by a notice affixed to the vehicle (which means that a civil enforcement officer must be present to affix the notice). It also confers a power which would enable regulations to be made to restrict the use of CCTV or other devices in parking enforcement.
Brought up, read the First and Second time, and added to the Bill.
New Clause 15
Footpaths: provisions to stop up or divert due to privacy, safety or security
‘(1) The Highways Act 1980 is amended as follows.
(2) In section 118 (Stopping up of footpaths, birdleways and restricted byways), in subsection (1) after “on the ground that it is not needed for public use”, insert “or the public need could reasonably be provided by an alternative public right of way or highway nearby”.
(3) After subsection (1) insert—
“(1A) When making a determination under subsection (1A) the council and Secretary of State shall have regard to the presumption that footpaths should not pass through farmyards, gardens, commercial premises or other land where privacy, safety or security are an issue.”.
(4) In section 119 (Diversion of footpaths, bridleways and restricted byways), subsection (6A) after “a public right of way,”, insert “, and the presumption that paths should not pass through farmyards, commercial areas, gardens or other land where privacy, safety or security is an issue.”’—(Bill Wiggin.)
Brought up, and read the First time.
Bill Wiggin (North Herefordshire) (Con)
I beg to move, That the clause be read a Second time.
Mr Newmark
Yes, yes. I am totally sympathetic with what the hon. Lady says. I am not trying to change historic rights of way. My intention is to create more flexibility in the system to allow paths that go right past people’s front doors and their gardens to be moved slightly. I am not looking to stop people’s access to those ancient rights of way.
In order to solve these problems, the owner of the land in question must seek an order to divert or extinguish the right of way through a modification consent order or an application for public path order. This guidance applies where a public right of way passes through a garden which forms part of the curtilage of a residential dwelling, a working farmyard or forestry yard, or other operational business or working industrial premises. The interests of the landowner must be weighed against the overall impact on the public as a whole—a point that Opposition Members emphasised—and the privacy, security and safety of the landowner are all considerations to which due weight should be given. Furthermore, if the public right of way is extinguished, it should be diverted elsewhere in order to reduce inconvenience to the public.
Now that I have laid out at least some of the rationale for my new clauses, let me touch briefly on each new clause in turn. New clause 17, entitled “Presumed diversion of intrusive public rights of way in limited circumstances”, amends section 119 of the Highways Act 1980 and facilitates statutory guidance to allow for the diversion of rights of way that pass through domestic or business premises on the grounds of privacy, safety or security. New clause 18, entitled “Presumed extinguishment of intrusive public rights of way in limited circumstances”, amends section 118 of the 1980 Act and facilitates statutory guidance to allow for the extinguishment of rights of way that pass through domestic or business premises on the grounds of privacy, safety or security if a diversion is not possible as the right of way provides access to a vital local service or amenity not otherwise accessible. Finally, new clause 19, entitled “Presumed extinguishment of intrusive byways open to all traffic in limited circumstances”, is an amendment to section 116 of the Highways Act 1980 and creates a presumption that byways open to all traffic should be diverted so as not to pass through residential or business premises unless the byway does not impact on the privacy, safety or security of the premises or provides access to a vital local service or amenity not otherwise accessible.
I am sure that the Minister will agree that although it is essential that we respect the ancient rights provided by footpaths and byways that the hon. Member for Clwyd South (Susan Elan Jones) spoke about in her intervention, it is important that we also respect the privacy, safety and security of individuals and their property. That is the narrow path that I am trying to navigate. I hope the Minister will acknowledge that new clauses 17, 18 and 19 are drafted both to be reasonable to landowners and to respect the rights of individuals to have access to byways, especially if those byways provide access to a vital local service or amenity not otherwise accessible. In this spirit I look forward to his response to new clauses 17, 18 and 19 as well as to new clause 15, which is proposed by my hon. Friend the Member for North Herefordshire. I end by thanking my constituent Roger Duffin for raising this important issue and for his guidance in enabling me to draft a constructive solution to a sensitive problem.
Tom Brake
I thank my hon. Friends the Members for North Herefordshire (Bill Wiggin) and for Braintree (Mr Newmark) for tabling their new clauses and allowing us to discuss the important topic of rights of way and the impact that these can have.
We recognise that all four amendments seek to address the issue of intrusive public rights of way. The Government have been giving very careful consideration to this, in discussion with the rights of way stakeholder working group. The work done by the group has been invaluable in pulling together the potentially divergent views of landowners and ramblers.
The Government acknowledge that for householders, farmers and others, an intrusive footpath can have a substantial impact on their quality of life or on their ability to run a business. We understand that while this is not a widespread problem, where it occurs it can cause severe difficulties, and in a significant number of cases people have been put through years of considerable inconvenience and stress, as my hon. Friend the Member for North Herefordshire mentioned.
It is not clear to me whether my hon. Friend feels that his amendment would help prevent incidents involving dangerous cattle on footpaths, unless it is envisaged that the presumption that paths should not pass through other land where safety is an issue could be used to close or divert rights of way that run through fields where cattle are present. That would clearly be a radical and sweeping measure that could lead to the closure or diversion of innumerable rights of way with questionable justification. The issue of cattle attacks on public rights of way is being addressed separately by the Government, and there is no suggestion from any of the parties involved that primary legislation is required to sort out the problem to which my hon. Friend rightly referred. It is clear, however, that there has to be a change in the way in which both legislation and policy operate if people are to get a satisfactory hearing, and that is what the Government are doing in the Bill.
We very much sympathise with people’s genuine concerns about the problems that can arise from footpaths running through private gardens and farmyards and recognise that we need to find an acceptable solution, but we do not believe that these new clauses are the best way to go about this. Measures are already being developed that will make a significant difference to the way in which requests for diversions and extinguishments of rights of way will be dealt with by local authorities. We are working towards making effective the “right to apply” provisions in the Bill. That will enable a landowner to make a formal application for the diversion or extinguishment of a public right of way; with that will come the right to appeal to the Secretary of State if the authority rejects the application or fails to act on it, so local authorities will not be able simply to rebuff or ignore representations from a landowner, as they can at present. I hope that my hon. Friends will see that as a positive development.
Moreover, the right to apply will be supplemented by guidance that will effectively act as a presumption to divert or extinguish public rights of way that pass through the gardens of family homes, working farmyards or commercial premises where privacy, safety or security are a problem. That guidance has been developed in agreement with the rights of way stakeholder working group.
Mr Newmark
The Minister was actively listening and I appreciate his response, but I would ask him to be sensitive to the cost of appeal. Many of these people are not wealthy and it is important that we keep costs to an absolute minimum.
Tom Brake
Costs can be a significant issue, and the Government and local authorities will clearly want to ensure that they are kept to a minimum.
My hon. Friend the Member for North Herefordshire asked whether the guidance would be statutory. This is a deregulation Bill, the purpose of which is to minimise the statutory burden rather than increase it. We believe that the combined effect of the right to apply and the guidance will have the desired effect, and we should see how the measures work out in practice before seeking to add to the legislative burden.
A draft of the guidance has been deposited in the House Library. We recognise that it needs further refinement and it remains open for comment. The rights of way reforms will also give local authorities more scope to deal with objections themselves, rather than having to submit every opposed order to the Secretary of State as at present. We believe that the provisions will make a significant difference, and until we see how well the “right to apply” provisions work alongside the new guidance, making further legislation would be premature. The new clauses would create new regulation where it may prove to be unnecessary and create more problems than they resolve.
The issue of intrusive public rights of way is emotive. I can appreciate why it arouses strong feelings and why those affected feel so strongly that something needs to be done. While putting the terms of a presumption on the face of the Act might seem like a way of making sure something happens, it carries a high risk that the presumption will not work as intended and, unlike the guidance, it would not be possible readily to make changes in response to unforeseen circumstances or to take account of new developments.
As the draft guidance on diversions and extinguishments has been developed by the stakeholder working group, there is a strong consensus around it, which means that it is far more likely to be complied with. We welcome the fact that a new working group is likely to be set up through the Department for Environment, Food and Rural Affairs, which will look at some of the other complex issues, such as green lanes—another very difficult issue to which to find a consensual solution. We firmly believe that solutions arrived at in that way, based on agreement and mutual interest, will result in less conflict and less need for enforcement in the long run.
The proposed new clauses also do not strike the correct balance between public and private interests, which is critical to the agreement reached on the guidance by the stakeholder working group. Legislative solutions imposed without a consensus tend to result in more disputes and legal challenges and there is no stakeholder consensus around the legislative changes proposed here. The new clauses would be quite a fundamental change to the current legislative status quo, which should not be made in the absence of either public consultation or stakeholder agreement, so I regret that I must urge my hon. Friends not to press their amendments.
Bill Wiggin
I thank my right hon. Friend the Minister for his helpful and constructive comments; it is useful to know that the Government are looking at the risks. I also welcome the formation of a new working group. It does not come as a terribly big surprise that the Government are unwilling to accept new clause 15. However, on behalf of my hon. Friend the Member for Braintree (Mr Newmark), I thank the Minister for looking at our concerns seriously and promising to keep a watching brief on how things progress.
I say to the hon. Member for Newcastle upon Tyne Central (Chi Onwurah), who answered for the Labour party, that rights of way are of course emotive and vital, but keeping people alive is more important. Until Labour Members recognise that, they are not fit to be in government. I beg to ask leave to withdraw the clause.
Clause, by leave, withdrawn.
Clause 10
Private hire vehicles: circumstances in which driver’s licence required
Amendment proposed: 61, page 7, line 22, leave out clause 10, clause 11 and clause 12.—(Mr Marsden.)