Seafarers' Wages Bill [ Lords ] (First sitting)
Tuesday 17th January 2023
(1 year, 10 months ago)
Public Bill CommitteesRead Full debate Seafarers’ Wages Act 2023 Read Hansard Text Read Debate Ministerial Extracts Amendment Paper: Public Bill Committee Amendments as at 17 January 2023 - (17 Jan 2023)
The Committee divided: - Ayes: 10 / Noes: 7 - Question accordingly agreed to.
The Committee divided: - Ayes: 7 / Noes: 10 - Question accordingly negatived.
The Chair
We are now sitting in public, and the proceedings are being broadcast. Before we begin, I have a couple of preliminary announcements. Hansard colleagues will be grateful if Members could email their speaking notes to hansardnotes@parliament.uk. Please switch electronic devices to silent. Tea and coffee are not allowed during sittings.
We will first consider the programme motion on the amendment paper, and then a motion to enable the reporting of written evidence for publication. I hope that we can take these matters formally.
Ordered,
That—
(1) the Committee shall (in addition to its first meeting at 9.25 am on Tuesday 17 January) meet at 2.00pm on Tuesday 17 January;
(2) the proceedings shall (so far as not previously concluded) be brought to a conclusion at 5.00 pm on Tuesday 17 January.— (Mr Holden.)
Resolved,
That, subject to the discretion of the Chair, any written evidence received by the Committee shall be reported to the House for publication.—(Mr Holden.)
The Chair
Copies of written evidence that the Committee receives will be made available in the Committee Room and will be circulated to Members by email.
We will now begin line-by-line consideration of the Bill. The selection and groupings list for today’s sittings is available in the room. It shows how the clauses and selected amendments have been grouped together for debate. Amendments grouped together are generally on the same or a similar issue. Please note that decisions on amendments do not take place in the order in which they are debated, but in the order in which they appear on the amendment paper. The selection and groupings list shows the order of debates.
Decisions on each amendment, and on whether each clause should stand part of the Bill, are taken when we come to the relevant clause. A Member who has put their name to the lead amendment in a group is called first; other Members are then free to catch my eye to speak on all or any of the amendments in that group. I ask Members to stand in the normal way if they want to speak on a particular amendment, including the SNP spokesman as well—that would be really helpful. A Member may speak more than once in a single debate.
At the end of a debate on a group of amendments, I shall call the Member who moved the lead amendment again. Before they sit down, they will need to indicate if they wish to withdraw the amendment or seek a decision. If any Member wishes to press any other amendment in a group to a vote, they will need to let me know in advance.
Clause 1
Services to which this Act applies
Gavin Newlands (Paisley and Renfrewshire North) (SNP)
I beg to move amendment 42, in clause 1, page 1, line 10, leave out “any kind” and insert “every description”.
This amendment would bring the definition of ship into line with that under the Merchant Shipping Act 1995.
The Chair
With this it will be convenient to discuss the following:
Amendment 67, in clause 1, page 1, line 11, at end insert—
‘“place in the United Kingdom” includes energy installations within the UK Exclusive Economic Zone.’
Clause 1 stand part.
Amendment 43, in clause 2, page 1, line 14, leave out paragraphs (a) and (b) and insert—
‘(a) who is employed or engaged in any capacity on board any ship providing a service to which this Act applies,
(b) whose employment or engagement on board the ship is carried out in relation to the provision of the service, and’.
This amendment would bring the definition of seafarer into line with the definition of “seaman” under the Merchant Shipping Act 1995.
Clause 2 stand part.
Amendment 48, in clause 4, page 3, line 18, leave out “or its territorial waters” and insert
‘, its territorial waters, or within the Renewable Energy Zone as specified by The Renewable Energy Zone (Designation of Area) Order 2004.’
This amendment would ensure that seafarers engaged in work supporting offshore wind installations are covered by Act.
Gavin Newlands
It is a pleasure to see you in the Chair, Mr Davies, and to lead this worthy but anaemic debate. On that basis, I hope that the Minister will be generous when discussing the amendments before us. The amendments are in my name and that of my hon. Friend the Member for Glasgow East.
A couple of these amendments are straightforward. Amendment 42 would change the definition of a ship or vessel, and amendment 43 would ensure consistency in the definition of a seaman. The amendments are intended to ensure that the legislation aligns with existing definitions of both “seaman” and “ships” in the Merchant Shipping Act 1995. I thank the Law Society of Scotland for highlighting these issues.
Having differing definitions in law between the Bill and existing legislation for no apparent good reason—although we will hear what the Minister says—does not seem to be a particularly efficient route to go down. After all, the workers that the Bill is intended to cover are already seamen under current definitions and, on the face of it, the Bill does not aim to change that.
Similarly, if there is already a legal definition of a ship in statute, it seems useful to maintain that definition here. Indeed, when the Bill was in the House of Lords, Baroness Vere made a similar point in relation to the definition of a harbour, pointing to the existence of the Harbours Act 1964. Therefore there should be no reason why a similar principle cannot apply in this case. If there are good reasons why a new definition specifically relating to the provisions in the Bill is needed, I will be happy to hear it, but logic would suggest that using the existing definitions would be far simpler.
Amendments 67 and 48 are designed to deal with the fact that workers operating in the renewables industry, which will be increasing exponentially in the coming years, are currently excluded from the Bill. There are two methods of dealing with that under the amendments. They relate to the UK exclusive economic zone and to the renewable energy zone. The exclusive economic zone almost entirely matches the renewable energy zone, save for an area just under 200 miles north-west of Cape Wrath and more than 100 miles north of North Rona. Because our proposal is aimed particularly at protecting those seafarers engaged in work supporting renewables installations in UK waters, it seemed more appropriate to try to use the renewable energy zone rather than the EEZ, but we have given both a try. If the Minister wants to accept either, I will be perfectly happy with whichever one he chooses.
At the moment, the Bill’s extent is limited to the UK and its territorial waters—that is, the 12 nautical mile limit. That excludes the EEZ and REZ, which go to 200 miles. Our proposal would simply ensure that ships and seafarers engaged in work to support renewables installations were not inadvertently omitted from enjoying legislative protection simply because those zones are not listed in the Bill while territorial waters are referred to.
I note that the Minister in the Lords, Baroness Vere, had to correct the record after incorrectly stating that these workers were already covered by national minimum wage legislation. Workers in the oil and gas industries are entitled to national minimum wage protection. It would be ludicrous if their colleagues doing the same difficult and dangerous job, but supporting renewable industries, were denied the right to protections and to national minimum wage equivalence. This is, on the face of it, a fairly minor proposal. However, it would help to protect thousands of workers—a number that we hope will grow hugely over coming years—and would ensure that renewables were not just better for the planet but better for our workers.
Grahame Morris (Easington) (Lab)
Would it be convenient to discuss amendment 67 at this point, Mr Davies?
Grahame Morris
Thank you, Mr Davies. It is a pleasure to serve under your chairmanship.
I welcome the fact that the Government have introduced some measures to address the appalling injustice experienced by the P&O seafarers, 800 of whom were summarily sacked by Zoom on 17 March in the most appalling fashion. However, I cannot help reflecting on the fact that this is something of a missed opportunity. I understand that the terms of the Bill are, by their very nature, narrow. Nevertheless, it is complicated legislation and it does throw up a number of anomalies, which I hope the Government will recognise and address during Committee or perhaps at Third Reading. Given the overall situation that we face with the reduction in the number of UK-based seafarers, this is a golden opportunity.
Two former Shipping Ministers are members of the Committee. With the right hon. Member for South Holland and The Deepings, we have had previously a discussion about the opportunities, given the huge public investment in offshore wind and offshore renewables more generally as part of the zero-carbon strategy, to provide employment opportunities, particularly in coastal towns such as mine. Sadly, that opportunity has been missed.
Sir John Hayes (South Holland and The Deepings) (Con)
As the hon. Gentleman has cited me, I ought to be driven to action, so let me say this. He will remember that, as Minister, I commissioned the “Maritime Growth Study”, and part of that study was a consideration of exactly the matters that he is describing. We need to recruit, to skill and to retain more UK seafarers. That is something that, frankly, most Governments, of all persuasions, have neglected over a long time, so the problem is deeply rooted. We have allowed the erosion of our merchant navy for a considerable time, so I entirely endorse what the hon. Gentleman has said. Skills matter, people matter, and jobs matter.
Grahame Morris
I thank the right hon. Gentleman for that intervention. I agree with his comments. My wish, and indeed that of the maritime trade unions—RMT and Nautilus International—is that the seafarers’ charter and the Government’s nine-point plan embodied in the maritime 2050 strategy be placed on the face of the Bill. That would address many of their concerns, which were echoed by the right hon. Gentleman.
I respectfully point out that the noble Lord Hendy raised the issue of the lack of minimum wage protection for crew working in the offshore wind and offshore renewable energy supply chain beyond the limits of the UK’s territorial waters. At present, crews working on servicing offshore oil and gas across the UK continental shelf are entitled to protection under the national minimum wage legislation that this Bill relates to. However, crew who sometimes work on the same ships but service the offshore wind turbines in the UK exclusive economic zone are not entitled to that protection. That would seem unfair to any impartial observer and is leading to serious cases of exploitation. It is a glaring anomaly that the Bill should address.
We also have the exclusion of UK seafarers from the growing labour market, which is directly linked to the UK economy. These jobs would not exist but for a huge investment from the UK Government and the UK taxpayer. It is quite a travesty that we are not providing the protections that would ensure those jobs go to UK-based seafarers. I would like that to be addressed. That is the purpose of amendment 67.
Mike Kane (Wythenshawe and Sale East) (Lab)
It is a pleasure to serve under your chairmanship, Mr Davies. We hope to work co-operatively with the Government. The common good dictates that workers should be treated with dignity and respect in the workplace, and at the least they should be paid the national minimum wage, but as the hon. Member for Paisley and Renfrewshire North pointed out, international maritime law is incredibly complicated legislation when it comes to looking at economic terms and the definition of ships. Renewables hold a very positive future for the United Kingdom. We need to ensure that this sector comes within scope of the Bill, as my hon. Friend the Member for Easington suggested.
Labour has tabled multiple amendments, along with other colleagues on the Opposition Benches, to extend the definition of to whom the Bill applies. The right hon. Member for South Holland and The Deepings in his often-erudite way points it out: this is about making Britain a greater maritime nation. That depends on the jobs on offer and the skills we train our maritime workers with. We must ensure British workers can get those jobs on our coastal waters and that when they do they are fairly paid, with at least the national minimum wage.
Karl Turner (Kingston upon Hull East) (Lab)
I do not want to detain the Committee for long, but I want to speak briefly to this issue. The rapidly falling number of British ratings in the maritime industry is a crying shame, and the former Minister, the right hon. Member for South Holland and The Deepings, is right: all Governments of all political persuasions have failed to address that issue. They have addressed officers, to an extent, but they have not anywhere near sufficiently addressed ratings.
The Bill could be dramatically improved were the Government to agree to include energy installations. That area is growing exponentially. The Bill is a golden opportunity to recruit, train and encourage kids in schools in my constituency who live in the shadow of the docks, looking over at those vessels going out to sea and wondering whether they could possibly dream of having a job in that industry.
I commend the Government on bringing forward this legislation in good time. The former Transport Secretary, the right hon. Member for Welwyn Hatfield (Grant Shapps), and the former Minister, the hon. Member for Witney, must have worked incredibly hard to put together this complex legislation—this area is particularly complex. However, we could go further and do better, and I call on the Government to think carefully about including energy installations in the Bill.
The Parliamentary Under-Secretary of State for Transport (Mr Richard Holden)
It is a pleasure to serve under your chairmanship today, Mr Davies, and I thank all right hon. and hon. Members present for taking part. It was particularly gracious of the hon. Member for Wythenshawe and Sale East, and indeed the hon. Member for Kingston upon Hull East, to note the complexities around international maritime law relating to this piece of legislation. I will address some of those points a little bit further when I address some of the amendments later on.
Broadly, the Bill will play an important role in improving seafarers’ welfare and working conditions, and I am pleased that, today, we are taking another step towards it becoming law. There is broad support for the Bill, and I hope that during the course of our discussion, I will be able to address colleagues’ concerns and questions relating to the amendments. I have tabled several broader amendments in my own name: while they may appear great in number, the majority of them—as Members will see when we go through them—are consequential on a small number of changes to the Bill that will improve the functioning of the legislation.
To address hon. Members’ concerns, following on from our continued stakeholder engagement, particularly as we develop our secondary legislation, we have identified some areas of the Bill that would benefit from the improvements made by our amendments. As hon. Members have said, the Bill was introduced at pace to respond quickly to P&O’s disgraceful treatment of its seafarers. It is right that we continue to listen to stakeholders and examine how the Bill will function, and I make no apology for taking every opportunity to ensure the right outcome for seafarers.
Clause 1 sets out the services to which the Bill will apply, namely services for the carriage of persons or goods by ship, with or without vehicles, between a place outside the United Kingdom and a place in the United Kingdom. In other words, the Bill applies to international services, as the majority of seafarers on domestic services between places within the UK will be entitled to the UK minimum wage under existing legislation.
Grahame Morris
I recognise that this is a complex piece of legislation and that trying to understand its finer points is quite testing, but could I seek a point of clarification in relation to apprentices? As I am sure the Minister will recall, when Peter Hebblethwaite, the chief executive of P&O Ferries, dismissed those 800 seafarers, he also dismissed the apprentices. Will the Minister indicate whether the wage bands in the UK national minimum wage, to which clause 2 refers, will apply to apprentices as well as the hundreds of directly employed seafarers? The apprentice wage is £4.81 per hour, which does not seem like a princely sum to me.
Mr Holden
I thank the hon. Member for raising that point. The banding is an issue that we will address fully through the UK national minimum wage equivalence in the regulations that will come forward at a later stage. We intend for it to mirror the national minimum wage in the UK, and will set that out through secondary legislation. There are exemptions for services provided by fishing vessels and services for the purpose of leisure or recreation, in line with other maritime employment legislation and to account for the different remuneration practices in those areas.
Grahame Morris
I do not mean to be picky, but can I just point out a contradiction? The scope of the Bill covers seafarers who are working on the continental shelf on oil and gas installations and the servicing of those, but not seafarers who are in the offshore wind turbine energy sector or those working on the continental shelf. It seems a contradiction to leave out that whole section of seafarers.
Mr Holden
I thank the hon. Member for his point. Everybody will be covered if on a boat that moves to and from those platforms at least 120 times a year, but the expansion of the UK’s exclusive economic zone to cover that area would bring, as other hon. Members have said, particular complexity regarding international maritime law. I will come to that when we address the amendments to clause 2.
Gavin Newlands
I hear what the Minister is saying—that workers will be covered under the Bill if they visit a harbour 120 times or more per year—but that might not be the case for some. Clearly, the hon. Member for Easington and I are not going to get what we desire in this Committee this morning. Would the Minister commit to the Department for Transport looking at this issue six months after the passage of the Bill to see who is actually being covered by the legislation?
Mr Holden
I will happily write to the hon. Gentleman before Report with any further details.
For the reasons I have set out, we cannot accept amendment 67, but I do understand the concern about the national minimum wage entitlement for workers on energy platforms in the EEZ. Offshore wind farms and the renewables sector are critical to meeting our net zero target. The Department for Business, Energy and Industrial Strategy regularly reviews the national minimum wage legislation to ensure that it is fit for the current workforce and businesses. We hope that this national minimum wage equivalence legislation will also reflect those changes over time as well.
Virginia Crosbie (Ynys Môn) (Con)
I thank the Minister for bringing forward this important Bill. We in Ynys Môn, like others across the UK, were very shocked by the actions of P&O in Q1 last year. Holyhead is the second busiest ro-ro port in the UK, and Stena is one of the island’s largest employers. It is working with the Isle of Anglesey County Council on its freeport bid.
I wanted to sit on this Bill Committee because Anglesey is known as energy island. We have a significant amount of renewable energy. We have Morlais and Minesto, as well as BP Mona and BP Morgan looking at offshore wind. The Bill is focused on improving protections and welfare for seafarers, which is important in these challenging times, and is particularly important for Anglesey, which certainly needs investment in apprenticeships and skills. In terms of this amendment, will the Minister confirm that those who are looking to invest in the renewable sector and in ports can be reassured?
Mr Holden
I thank my hon. Friend for that intervention—[Interruption.] I did not quite catch what the hon. Member for Glasgow East was saying from a sedentary position. My hon. Friend the Member for Ynys Môn raises some important points. I know she has been a massive campaigner, whether on that nuclear power station in her patch or, as she has raised more specifically today, on the issues around the freeport and the port of Holyhead, which is crucial for our work across the Irish sea. I can confirm to her that the sector is incredibly important, and we recognise how important such jobs are for her community and for coastal communities around the country. That is one of the reasons we are bringing forward this legislation today.
Clause 2 sets out what is meant by a non-qualifying seafarer. This is a person who
“(a) works on a ship providing a service to which this Act applies”—
as defined in clause 1—
“(b) whose work on the ship is carried out in relation to the provision of the service, and
(c) who fails to qualify for the national minimum wage in respect of that work merely because, for the purposes of the National Minimum Wage Act 1998, the person does not work, or does not ordinarily work, in the United Kingdom.”
Paragraph (c) clarifies why they are referred to as “non-qualifying”—they do not meet the criteria—and that is why they need the protection that this Bill provides.
I appreciate that the intention of amendment 43 is to bring the definition of seafarer into line with the definition of “seaman” under the Merchant Shipping Act 1995, as is the intention of the amendments to clause 1 in the name of the hon. Member for Paisley and Renfrewshire North. However, it is vital that we maintain consistency with the terms used in other employment legislation, such as the National Minimum Wage Act 1998 and the National Minimum Wage Regulations 2015. That is where the terminology in the Bill comes from.
There is a risk of incorrect interpretation if we were to accept the amendment, as it may lead to the Bill being interpreted differently from other employment legislation, which is not our intention. Therefore, we need to retain the word “work” in this Bill, rather than moving to “employed or engaged”, as the amendment seeks. There are lots of different connotations of the word “employed” in particular. I hope the hon. Member for Paisley and Renfrewshire North can see from what the Government are proposing that we do intend to cover all the issues he raises.
Amendment 48 seeks to extend the application of the Bill to the exclusive economic zone. Although we hope that appropriate wage rates will extend beyond our waters—indeed, we are having international conversations with partners, particularly those around the North sea, to try to ensure that—this Bill has been carefully calibrated after thorough consultation to focus on work undertaken close to the UK as part of ensuring that the Bill does not interfere with rights and obligations under international law, in particular the United Nations convention on the law of the sea. However, as discussed on amendment 67, seafarers on services from UK ports to offshore wind installations in the EEZ would be covered by the Bill for the portion of their journey that takes place in UK territorial waters, provided that the service calls at a UK port 120 times a year.
Gavin Newlands
I thank the Minister for his comprehensive response. I hear what he is saying on the definitions. The amendments on the definition of vessel and seafarer were intended as probing amendments to ascertain why there was a difference. We will keep an eye on any potential unintended consequences, but I will withdraw the amendment. I am disappointed by what the Minister said about those in the offshore renewable industry. I hear what he said: he thinks that they will be covered. He has promised to write to me before Report; if the issue is not dealt with satisfactorily, we may well revisit it on Report. However, on the basis of his answers and his promise, I beg to ask leave to withdraw the amendment.
Amendment, by leave, withdrawn.
Clause 1 ordered to stand part of the Bill.
Clause 2 ordered to stand part of the Bill.
Clause 3
Power to request declaration
Mr Holden
I beg to move amendment 1, in clause 3, page 2, line 3, leave out subsections (1) to (3) and insert—
“(1) Subsection (2) applies where a harbour authority has reasonable grounds to believe that ships providing a service to which this Act applies will enter, or have entered, its harbour on at least 120 occasions during a relevant year.
(2) The harbour authority must, within such period as is determined by regulations, request that the operator of the service provide the authority with a national minimum wage equivalence declaration (in the rest of this Act, an ‘equivalence declaration’) in respect of the service for the relevant year.
(3) The duty under subsection (2) is subject to any direction given by the Secretary of State under section 11(2)(a).
(3A) A harbour authority which fails to comply with subsection (2) is guilty of an offence and liable on summary conviction to a fine not exceeding level 4 on the standard scale.”
This is the first of a number of amendments concerning national minimum wage equivalence declarations. Taken together, they impose a duty on harbour authorities to request declarations (as it stands, the Bill confers a power to do so). Declarations are to be requested in respect of years determined by regulations and must be provided within a period set out in regulations. Also, as a drafting change, “national minimum wage equivalence declaration” is abbreviated to “equivalence declaration”.
The Chair
With this it will be convenient to discuss the following:
Amendment 44, in clause 3, page 2, line 15, leave out “the harbour” and insert “any UK Harbour”.
Amendment 45, in clause 3, page 2, line 15, leave out “120” and insert “52”.
Government amendments 2 to 6.
Amendment 46, in clause 3, page 2, line 23, leave out “the harbour authority” and insert
“all relevant harbour authorities to which the declaration is applicable”.
Clause 3 stand part.
Government amendment 7.
Amendment 47, in clause 4, page 3, line 6, at end insert—
“(c) pension and other payments to be made that formulate a part of seafarer remuneration in relation to a service to which this Act applies.”
Amendment 62, in clause 4, page 3, line 10, at end insert—
“(c) provision prohibiting deductions from remuneration for accommodation costs, food or other entitlements.”
Amendment 49, in clause 4, page 3, line 16, at end insert—
“(5A) The national minimum wage equivalent must not be adjusted to account for accommodation, food, or other items exempted from being charged to seafarers under international convention”.
This amendment will mean that deductions cannot be made for food, accommodation or other exempted items under convention and will facilitate future changes being made with respect to changes in permissible deductions.
Clause 4 stand part.
Amendment 39, in clause 14, page 9, line 13, at end insert—
“‘equivalence declaration’ has the meaning given by section 3(2);”.
See Amendment 1.
Amendment 40, in clause 14, page 9, line 25, at end insert—
“‘relevant year’ has the meaning given by section 3(4A);”.
See Amendment 1.
Clause 13 stand part.
Government new clause 1—Offence of operating service inconsistently with declaration.
Mr Holden
As currently drafted, clause 3 confers on harbour authorities the powers to provide that the operator of a service within scope of the Bill provides a national minimum wage equivalence declaration. The nature of the declaration is set out in clause 4, so I will address it when we turn to that clause, but it is essentially a declaration to the effect that they pay any seafarers on board who do not qualify for the national minimum wage at least the national minimum wage equivalent for the time that they worked in the UK or its territorial waters.
A harbour authority may not request an equivalence declaration in respect of any year unless it appears to the authority that ships providing the service will have used the harbour on at least 120 occasions in that year. Clause 3 also includes a power for the Secretary of State to make regulations as to the form of the national minimum wage equivalence declarations and the manner in which declarations are to be provided. Finally, it makes it an offence for an operator to operate a service inconsistently with the declaration and fail to inform the harbour authority within a certain period.
Clause 4 sets out the nature of an equivalence declaration. As it stands, subsection (1) provides that an equivalence declaration in respect of a service to which the Bill applies is a declaration to the effect that either
“there will be no non-qualifying seafarers working on ships providing the service”
or non-qualifying seafarers working on ships providing the service will be paid at least the national minimum wage equivalent for their work on that service in the UK or its territorial waters.
The national minimum wage equivalent will be at an hourly rate specified further in regulations—the hon. Member for Easington asked about that earlier. Regulations may make provision for the hourly rate at which non-qualifying seafarers are remunerated in any period in respect of any work, which may include any provision referred to in subsections 2(2) to (6) of the National Minimum Wage Act 1998, or provision relating to currency conversion. Regulations may also make provision for whether, or the extent to which, a non-qualifying seafarer’s work in relation to a service is carried out in the UK or its territorial waters.
In making regulations under clause 4, the Secretary of State must
“seek to secure that a non-qualifying seafarer is…remunerated at a rate equal to the national minimum wage equivalent only if their remuneration is in all the circumstances broadly equivalent to the remuneration they would receive if they qualified for the national minimum wage.”
That essentially means that we will seek to ensure that the total pay that a seafarer receives for time worked in the UK and its territorial waters is, as a result of the regulations, no less than if they had qualified for the national minimum wage.
We will run a public consultation on the regulations, and my officials are working closely with stakeholders and officials in the Department for Business, Energy and Industrial Strategy and His Majesty’s Revenue and Customs to draft them. As the public consultation takes place, I hope that hon. Members will be able to see what happens.
Mrs Natalie Elphicke (Dover) (Con)
The port of Dover is one of those directly affected and, given the situation in relation to P&O, which affected so many seafarers in my constituency, it is a particular concern. In relation to clauses 3 and 4, I would be grateful if my hon. Friend the Minister could confirm that he will take into account the considerable concerns of port operators about how the declarations—with the regulations underpinning them—will be managed and administered, because that is not within the usual business of port operators; it is an exception to the way in which they ordinarily operate. I know—I say this on behalf of the port of Dover in particular—that although of course they will play their part in ensuring that seafarers have the right terms and conditions, they want to ensure that they know what they have to do and how they are supposed to do it, that there is no room for dispute and that they are given the support that they need to be able to administer this.
Mr Holden
I thank my hon. Friend for those points. They are particularly important. I do not think that we would be here today if it was not for her huge campaigning efforts on behalf of her constituents in relation to the awful actions of P&O. I absolutely agree with her that how this is implemented must be taken into account. I am sure that her port will be consulted as part of the broader consultation as regulations are brought forward, and I urge her and other interested hon. Members to take part in the consultations as we move forward.
Amendment 1, tabled in my name, turns the discretionary power to request an equivalence declaration into a mandatory duty—this is quite an important change, which hon. Members mentioned at earlier stages—where the harbour authority has reasonable grounds to believe that ships providing a service will enter, or have entered, its harbour on at least 120 occasions during a relevant year. Reasonable grounds may include a service’s schedule in previous years, or may arise from the normal communications that a harbour authority would have with operators using its ports.
The period within which a harbour authority must request an equivalence declaration will be determined by regulations, which will come forward. A harbour authority that fails to comply with its duty to request an equivalence declaration will be guilty of an offence and liable on summary conviction to a fine not exceeding level 4 on the standard scale. The duty will be subject to directions made by the Secretary of State, which I will discuss in further detail when we come to clause 11, which has an important bearing on this aspect of the legislation.
This amendment is part of a larger set of amendments that will also make the formerly discretionary powers for harbour authorities to impose surcharges, and to refuse access to their harbour, into duties, which is something that Opposition Members raised extensively at earlier stages. As things currently stand, where a harbour authority does not exercise its powers in the circumstances provided for in the Bill, the Secretary of State has powers to direct harbour authorities to do that. We want to see it turned into a duty because, through continued engagement with port stakeholders, we have been informed that harbour authorities are unlikely to exercise their powers without being directed to, and the direction-making power actually was intended as a back-up power and was not intended to be used as the primary means of ensuring that the regulations are met and a minimum wage equivalent is paid. It would be a significant administrative burden on the Department if every instance had to have an imposition from the Secretary of State, and that would undermine the effective functioning of the legislation.
The change from discretionary powers to duties will strengthen the Bill by ensuring that harbour authorities must request declarations, impose surcharges and refuse access to their harbour where appropriate, without requiring the intervention of the Secretary of State at every juncture. The intention is that we will ensure that operators of services in the scope of the Bill are made subject to the requirements, and the process will be made simpler for harbour authorities.
Amendments 2 and 5, tabled in my name, are consequential on amendment 1. Amendment 2 expands the existing power in clause 3(4) by adding a new paragraph that allows regulations to make provision
“as to the period within which equivalence declarations are to be provided”
by operators. Where an operator does not provide an equivalence declaration within that period, the harbour authority must impose surcharges under the new clause 2. This ensures that the point at which their duty begins to apply is clear to harbour authorities.
Amendment 5 makes provision for declarations to relate to a fixed relevant year, starting on a date to be set out in regulations. Providing a fixed relevant year will ensure that harbour authorities and operators are all working to the same period, providing consistency and certainty for harbour authorities to comply with their duties, reducing administrative burdens and making enforcement much more straightforward.
Gavin Newlands
On amendment 5, was any thought given to the possible unintended consequence of setting a specified date in regulation, namely that it might allow operators to consider means of circumventing the legislation through port hopping? As was passed on to me, it is Nautilus’s belief that, for that reason, it should be a 12-month rolling period. Has the Department considered that?
Mr Holden
The hon. Gentleman makes a fair point. I will come to the broader concerns around port hopping that hon. Members have raised at previous stages. We do not think it will be an issue. I will come back to the hon. Gentleman at a later stage; if he continues to have an issue, perhaps he can raise it then.
Amendment 5 makes provision for declarations in a fixed year. These amendments are therefore necessary to ensure the effective functioning of the Bill, and will do just that.
Amendments 3 and 4, tabled in my name, abbreviate
“national minimum wage equivalence declaration”
to “equivalence declaration”—that is all. This is a minor drafting change intended to improve the Bill by simplifying a frequently used term.
Amendments 39 and 40 to clause 14 are consequential on amendments 1 and 5, and give the phrases “equivalence declaration” and “relevant year” the same meaning as in clause 3.
Amendment 7, tabled in my name, allows for equivalence declarations to be provided before, during or after the year to which they relate, and for declarations to relate to part of a year. The amendment will prevent any gaps in coverage in declarations and requires harbour authorities to request a declaration whenever it becomes clear to them that a service is in scope of the Bill. A harbour authority must request a declaration from an existing service before the relevant year starts if it has reasonable grounds to believe that a ship will call at its harbour 120 times during the year. In the event that, part way through a year, a harbour authority has reasonable grounds to believe that ships providing the service will have entered the harbour at least 120 times, it must request a declaration part way through that year, or at the end of the year if it was not clear until that point.
Amendment 6 removes subsections (5) and (6) of clause 3, which provide for the offence of operating inconsistently with an equivalence declaration. New clause 1 provides for an offence adapted to the proposed new system for equivalence declarations. Amendment 6 and new clause 1 therefore also cater for the fact that an equivalence declaration may, as a result of amendment 7, be provided before during or after the relevant year to which it relates.
Subsections (2)(a) and (3)(a) of new clause 1 mean it will be a criminal offence to operate a service inconsistently with a declaration from the start of the relevant year or at the time a declaration is provided during a relevant year. This will ensure that the new offence covers all circumstances in which an equivalence declaration may be requested, and provides legal certainty to operators as to when they may be guilty of an offence.
Clause 13 provides definitions of “harbour” and “harbour authority” that align with the definitions in the Harbours Act 1964 in England, Wales and Scotland, and the Harbours Act (Northern Ireland) 1970 in Northern Ireland. This will ensure consistency with existing legislation and help to clearly identify the relevant authorities for the purposes of the Bill. The clause also currently provides that where there is more than one harbour authority in respect of a harbour,
“the Secretary of State may by direction specify which of them is to be treated as the harbour authority in respect of the harbour”
for the purposes of the Bill. This provision is intended to avoid any uncertainty as to which is the relevant harbour authority for a particular harbour, and avoid multiple harbour authorities exercising powers in respect of a single service, which will help to ensure that the Bill’s provisions are applied consistently and effectively.
Gavin Newlands
I thank the Minister for giving way once again. Perhaps I should have intervened slightly earlier, as I have a query about amendment 7. The amendment allows for declarations to be made for part of the year. As it stands, declarations relate to 120 visits a year. If it is a partial year—say six months, for ease—will it still be 120 visits over those six months, or will it be a pro rata number of visits for that partial period?
Mr Holden
My understanding is that it is for the whole year. The schedules for these operators are based on a whole year; it is very rare that they are not. These are big operations that do not dip in and out. They are not easy to set up; they often involve long-standing arrangements with port authorities, and are based on the whole year. However, if the hon. Gentleman would like to write to me following this sitting, I will obviously respond to any particular issues or examples he wishes to raise.
Grahame Morris
I hope this intervention does not prejudice the fact that I would like to speak to amendment 67, which stands in my name and that of a number of colleagues.
Grahame Morris
Could the Minister give a bit of clarification in relation to Government amendment 1? I welcome the fact that the amendment creates a duty, rather than a power; presumably, that was in response to the concerns raised on Second Reading about the conflict of interest. Let us not forget that some harbour authorities are owned by shipping companies, and may well be reluctant to apply sanctions and fines if there is a conflict of interest.
Regarding the level of fines, proposed new subsection (3A) to clause 3 refers to
“a fine not exceeding level 4 on the standard scale.”
Could the Minister indicate what level of fine that is? My information is that it is £2,500. Would it not be advantageous to set it at level 5, which is unlimited? A fine of £2,500 does not seem like much of a disincentive.
Mr Holden
I thank the hon. Member for the first point he made, about the amendment creating a duty rather than a power. That is exactly why we have done this; hon. Members from across the House made the point, and I am glad that we have got there.
I am fully aware of the issue around level 4 and the levels of fines. I will write to the hon. Member about the specifics, and we can discuss them during the Bill’s later stages, but my understanding is that there were specific reasons behind that decision, related to different fine levels in different parts of the United Kingdom; I raised that issue myself in earlier discussions with officials. We will happily look at it again, because as the hon. Member has rightly said, I do not want it to be a lesser offence for the port operator to not comply with its duty than to comply with its duty. That is a very sensible and important point, and I will happily write to the hon. Member to explain why we have arrived at our position.
Opposition amendments 44 and 46 aim to change the applicability of the Bill from “the harbour” to “any UK harbour”, and from “the harbour authority” to
“all relevant harbour authorities to which the declaration is applicable”.
As hon. Members will be aware, the Bill refers to “the harbour” rather than “a harbour” in order to keep the focus on particular services calling between two specific ports. The scope of the Bill encompasses services calling at the harbour in question at least 120 times a year. In particular, the effective enforcement of the Bill relies on there being one harbour authority responsible for monitoring and enforcement of a service. Individual harbours may be able to anticipate that a particular service will call in that harbour 120 times in the year, especially if that service has done so in previous years or via volume of a new service. However, it would be very difficult for a harbour to anticipate whether a particular operator will have services to other harbours that would amount to 120 calls in harbours in the UK per year.
The amendments would also create confusion about which harbour authority should request an equivalence declaration, and which is therefore responsible for imposing a surcharge. For example, if an operator operated two services using the same ships interchangeably, with one calling at one port 60 times a year and another calling at another port 60 times a year, which would be responsible for requesting a declaration or imposing a surcharge?
David Linden (Glasgow East) (SNP)
It is a great pleasure to serve under your chairmanship, Mr Davies. I will start by returning to some of the comments I made on Second Reading. The Bill is far too narrow in scope. Considering the egregious behaviour of P&O, we could be doing much more. I hope the Minister will look at some of the amendments.
I rise to speak to amendments 44 to 47 and 49 in my name and that of my hon. Friend the Member for Paisley and Renfrewshire North. I should point out that amendment 49 is not dissimilar to Labour’s amendment 62, which we clearly support. In speaking to these amendments, I also want to oppose Government amendment 1, which would doubtless knock out our amendment 45. I will deal first with the issue of port hopping and national minimum wage equivalence.
In clause 3, the requirement to produce a declaration of national minimum wage equivalence is applied to services that call at a harbour 120 times a year. That is the result of a change made following consultation on the draft Bill, which had proposed covering ships that called at a port or UK harbour 52 times a year—once a week. In July, in response to the consultation, the RMT—the National Union of Rail, Maritime and Transport Workers, to which I pay tribute—proposed that the definition in the Bill should be this:
“Seafarers working on ferry services that are frequently operated from UK ports (at least once a week).”
However, following consultation, the Government changed the Bill to apply it to services calling 120 times a year.
The impact assessment says that part of the reason for the change is this:
“The more regularly a seafarer calls at a UK port, the closer their ties to the UK.”
I certainly believe, as I think the Government did, that calling at a UK port once a week is a sufficiently close tie between a seafarer and the UK economy. Indeed, their lordships speaking in support of the shipping and ports industry stated that the Government’s plans contravened the international maritime conventions, specifically the UN convention on the law of the sea.
It is my understanding that the British Ports Association has legal advice that the Bill will not work and will be subject to legal challenge, including on the ground that it infringes the UN convention on the law of the sea. Indeed, the International Chamber of Shipping has also raised the matter, as the shipping industry’s de minimis crewing practices and flagging policies rest on the assertion of innocent passage in international waters between states.
Grahame Morris
The hon. Gentleman is making relevant and sensible points. On the issue of the 120 days, we have concerns, which I am sure he shares, that there are so many exclusions that the Bill will be like a colander—full of holes. The original proposal was 52 times a year, or once a week. What will be the impact of the Bill on the offshore continental shelf with respect to the frequency of the use of supply vessels? Will the figure of 120 days effectively exclude them from the legislation? I suspect it will.
David Linden
I am grateful to the hon. Gentleman for making that point, which gets to both the nub of the issue and a source of real concern for me. He is right to talk about the colander effect, and not making the legislation sufficiently tight means that in many cases companies will exploit the measure, as has he eloquently outlined. Let us be honest: the legislation was introduced because a company sought—within the law—to exploit people, and it would be a dereliction of duty by the House and by the Committee if we did not seek to tighten the Bill in such a way as to ensure that industry cannot get away with using such practices.
Gavin Newlands
My hon. Friend has referred to the House of Lords, but on Second Reading in this place, the Secretary of State said in terms of the number of visits to harbour:
“We think the definition in the Bill at the moment will capture the vast majority of the services we wish to capture.”—[Official Report, 19 December 2022; Vol. 725, c. 66.]
The Secretary of State referred to “the vast majority”, but this relates to the national minimum wage. Why should we be happy with a majority, rather than ensuring that all employees get the minimum wage?
David Linden
Even if people were not around last night, it will not come as a huge surprise that the Government are not particularly wild about standing up for workers’ rights. We on this side of the Committee happen to be of the view that we should be doing everything we can to try to support workers—[Interruption.] The hon. Member for Crewe and Nantwich chunters. I am more than happy to give way if he wants to stand up and speak. If he wants just to make a wee bit of noise behind the Minister, he is welcome to do so.
We support returning to the stricter criterion of 52 calls per year, which is what amendment 45 seeks to do. This is a key test of the Government’s commitment to seafarer welfare, and they failed in the Lords when they narrowly defeated Lord Tunnicliffe’s amendment that aimed to restore the criterion of 52 annual harbour calls.
National minimum wage and domestic employment law are difficult to enforce and apply in the maritime sector. That is why employers such as Stena Line, which employs UK crew on international routes from UK ports in Cypriot-registered vessels, enter collective bargaining agreements with domestic maritime trade unions. The UK Chamber of Shipping estimated that up to 45 major ferry routes served the UK economy in 2020, but that is subject to change. For example, P&O closed Hull-Zeebrugge in October 2021, but DFDS opened an unaccompanied freight service between Sheerness and Calais earlier that year.
In my view, the Bill should cover crew working for operators of containers, bulk carriers, cargo ships and vessels working in the offshore energy supply chain, as well as ferries. In 2018, the RMT estimated that extending the national minimum wage to cover domestic and offshore energy routes would bring 13,000 seafarer ratings into scope. The impact assessment for the Bill estimates only the cost to employers, not the number of seafarers who would be covered by the Bill.
I am concerned that the Government have dismissed out of hand the unions’ concerns over avoidance techniques. Port hopping, as we often refer to it, remains a genuine avoidance technique that becomes far easier to use the more frequently a vessel calls at a UK harbour. At 120 calls per year, it would be far easier for operators to make minor changes to scheduled port calls in order to avoid the legislation. A threshold of 52 calls, which was in the Government’s original proposals, would be far tighter. It was changed only after consultation with industry, although the trade unions supported 52 calls. I go back to the point that if the Bill is about protecting workers—the very workers who were so cruelly shafted by P&O—then it is incumbent on the Government to listen to the voices of those workers and trade unions, not the voices of industry. That is the whole reason we are here.
Disappointingly, the Minister in the Lords, Baroness Vere, was unconvinced that that avoidance technique could be used. She said:
“I do not think operators would play switcheroo with UK ports because, frankly, their customers would not put up with it.”—[Official Report, House of Lords, 26 October 2022; Vol. 824, c. 1506.]
The translation of that is, once again, “Leave it to the markets. The markets will dictate.” If we have learned anything over the course of the last few months in this House and during the P&O debacle, it is that simply leaving it to the markets is not a great idea. I am not reassured that the logistics market will self-regulate. The recent merger between Cobelfret and Seatruck Ferries, two operators who have been paying seafarers below national minimum wage on regular international services from UK ports for years, frankly, also increases the prospect of avoidance techniques.
I hope that has outlined just some of our concerns on the issue. For those reasons, I will formally seek to divide the Committee and vote against Government amendment 1.
Mrs Elphicke
I will take the opportunity to speak to these clauses and amendments. They cover the short straits, and first I will comment specifically on the issue of 120 calls per year. Looking at the short straits, according to figures from the UK Chamber of Shipping, the number of port calls meets the threshold by 30 to 40 times in relation to the Dover-Calais and Dover-Dunkirk lines: around 4,000 port calls that are made would come within the legislation. Whenever we set a threshold, it is important to set it with reference to the matter that we are addressing. The evidence is very clear that 120 days is a relevant and, indeed, low threshold in relation to the particular services that we are seeking to address within the remit of this important Bill, which, as has been discussed, very much has my short straits of Dover at its heart.
I am conscious that some good points have been made in relation to seafarers more generally. I hope that we can show some global leadership on this issue. I have been pleased to have the opportunity to speak at great length about seafarers’ rights with my hon. Friend the Member for Witney when he was Ports Minister. Although I can understand the remit being extended in the way that is being sought within the remit of the Bill, we need to look at seafarers’ rights more generally, as well as those bilateral agreements.
I now turn to amendments 47, 62 and 49. The Minister made some helpful comments in introducing this section, but I ask him, if I may press him further, for an assurance of the position, particularly relating to the calculation for food and accommodation. If I were to work in McDonalds—indeed, I did so for a very long time and enjoyed it greatly—I could have a certain amount of food on my food break if I were to work for four hours. If I were to work for the entire day, I would get much more McDonalds food—very tasty. That food would be free to me as a worker and that is the principle that we want to see for those at land and within our waters.
However, I think that some of the concerns that have been raised must not be seen only through the lens of our own domestic legislation in relation to the minimum wage and its calculation. I have taken some time to look at how these issues are treated within our national minimum wage legislation on land and issues such as accommodation—staying on ship would not, in my view, fall within the current definition of “accommodation” and its applicability for national living wage purposes. But it is right that these issues have been raised and that they are looked into carefully as we go through because, in relation to the operation of seafarers, particularly on these routes, our domestic provisions are not the market provision for these matters. The market for this is global; the conditions are global and international. When we talk about common market practice, it is within a global and international setting, with different countries applying different regimes to their seafarers.
When it comes to seafarers’ rights, we tend to think that this means countries who are very international, such as the Philippines and others, but I will give the Minister a directly relevant example to this food and accommodation issue. The Danish Maritime Authority allows for seafarers’ food subsistence allowance to be deducted from the calculation of national minimum wage. It is a matter for negotiation, either collective agreement or individual contracting, but, none the less, in the application of their calculation of national minimum wage, they do—
Grahame Morris
I thank the hon. Lady for giving way. I recognise the examples of Denmark and one other seafaring nation—I have forgotten which one at the moment—but they have sectoral collective bargaining. Their standards and pay rates are generally much higher. I hope she would acknowledge that. We are looking at a far lower level—just at the national minimum wage, without all of the package that I want to refer to in relation to pensions, accommodation and other things, roster patterns in particular.
Mrs Elphicke
I am grateful to the hon. Gentleman. Indeed, I would like later to come back in the relevant section in relation to roster patterns, which are very important.
I am giving the Danish example as a reason why we need clarity to exclude the provision from our calculation of national minimum wage. It is not appropriate or correct to exclude food and accommodation when someone is on their ferry. They work—too often—two weeks on, two weeks off. They are stuck on that ferry. They must have food and a place to put their head down. They will probably have a poor night’s sleep or a poor day’s sleep when they are off rota. It is absolutely essential that we have clarity so that, unlike in Denmark and other countries, for the purposes of our application of the minimum wage legislation in relation to seafarers operating in our own territorial waters, it would be the same if I was working at McDonald’s, or anywhere else, or working at sea. I ask the Minister to reflect on this matter and to consider whether he can give us some more assurance that that is indeed the intent behind the Bill, because it is a very important point, given the fact that there is different maritime practice even among European neighbours from a business perspective.
If I may, I will touch briefly on the desire to have improved rights for seafarers. The Minister has mentioned bilateral discussions. Again, it would be helpful for us to understand whether the bilateral discussions coming up in March with our Prime Minister and President Macron are intended to include some of the issues around seafarers that we have mentioned, because it will only be through a strong bilateral arrangement across short straits that we can ensure that we get the best possible safety and working conditions for our seafarers.
Grahame Morris
I agree with much of what the hon. Member has just said. I may have misunderstood—[Interruption.] Well, it is the first time; every day is a school day.
Can the Minister clarify something that he said earlier, which may well address our concerns? It is in relation to amendment 62. Did he indicate that on the point just made by the hon. Member, namely that, as the amendment says:
“provision prohibiting deductions from remuneration for accommodation costs, food or other entitlements”
will be addressed through regulation by the Secretary of State? I see that he is nodding, so that is good news indeed.
If I may, I will speak to amendment 62, which was tabled by my colleagues on the Front Bench and I, and amendment 47, which is very similar and which was tabled by the SNP. Both amendments address a broader question. I appreciate that the Bill is trying to address one specific issue by putting in place measures to prevent the actions of rogue bosses, such as the management of P&O, from being replicated by other ferry operators; I understand that.
However, what the Government must understand is that the motivation for P&O and others—I know that we will come on to nationality-based pay discrimination later—is that P&O made far more savings from changing the roster pattern and reducing the crewing than it did from reducing the wages by paying staff, who were mostly able seamen from India, less than the minimum wage. The Government must acknowledge that and if we are going to address this issue, we need some remediation.
Karl Turner
I remind the Committee of the disaster of the Herald of Free Enterprise—193 passengers and crew lost their lives. The inquiry found that that disaster was down to one issue: crew fatigue. My concern is that that could happen again. Five or six months on, two weeks off, seven days a week, 12 hours a day—it is obvious what could occur.
Grahame Morris
I thank my hon. Friend for that powerful intervention and for reminding us of the consequences of fatigue and of reducing staffing to unsafe levels. It is not just a matter of opinion and a concern expressed by the RMT and Nautilus International; a number of academic studies from Cardiff University and others, which I believe the Department has copies of, demonstrate just how important it is that we address this issue.
Mrs Elphicke
I had expected to speak on this issue when we reached new clause 5, but since we are talking about roster patterns, I will comment on it. The capsizing of the Herald of Free Enterprise was an absolute tragedy that we—the RMT and all of us down in Dover—come together to remember every year. It is such an important thing to remember, and I am grateful to the hon. Member for Kingston upon Hull East for mentioning it in this context.
Does the hon. Member for Easington agree that what we have seen, particularly in relation to Irish Ferries joining the short sea route, is that the Maritime and Coastguard Agency has a role at the moment in making sure that the standards of training are appropriate? We saw that the roster patterns, training patterns and crewing patterns in relation to Irish Ferries coming into Dover were changed from those that applied elsewhere in its operations. We also saw the MCA take action in relation to P&O when it tried and failed to stand up its new structures. I would like to see the MCA be stronger and firmer, and taking better action—
The Chair
Order. I have been very generous with interventions, but I must remind Members that interventions are supposed to be just that: interventions, not mini-speeches. If we could back to interventions being interventions, I would very much appreciate it.
Grahame Morris
Thank you, Mr Davies. I will hurry along.
To reinforce the point made by the hon. Member for Dover, I say to the Minister—I am sure he is aware of this—that some academic studies into crew fatigue were published in 2012 by Cardiff University. Further research is provided by the EU’s Horizon project and the World Maritime University’s EVREST report, and all the evidence highlights the dangers of crew fatigue caused by long hours. I believe the replacement crews on the Dover-Calais ferry were working 12-hour shifts, seven days a week, for up to 17 weeks without a break, when they slept on the ship. That must be a cause for concern in terms of health and safety.
In conclusion, I say to the Minister that we really need a maximum roster pattern in the seafarers’ charter. For the ferry sector, two weeks on, two weeks off is the pattern favoured internationally and by the maritime unions, for health and safety reasons as much as anything. I urge the Minister to work with the maritime trade unions and the Labour party in respect of this issue, and on refining the seafarers’ charter to get this right and to help restore jobs, fair pay agreements and training programmes, starting with the ferry sector.
Simon Lightwood (Wakefield) (Lab/Co-op)
It is a pleasure to serve under your chairmanship, Mr Davies. I rise to speak in favour of amendment 62, which stands in my name and those of my hon. Friends, on the deduction of accommodation, food costs and other entitlements, and of amendment 45, which stands in the name of the hon. Member for Paisley and Renfrewshire North, on preventing port hopping.
The intention of amendment 62 is to prevent operators from deducting accommodation, food and other costs from the national minimum wage equivalent. We do, of course, welcome the intention to ensure that operators pay a national minimum wage equivalent to those who have close working relationships with the UK, but as we have heard, significant elements of the provisions and their enforcement must be strengthened to prevent avoidance, which we know is rife in the sector.
First, the minimum wage provision has an offset allowing employers to deduct costs for providing accommodation. That is clearly ripe for abuse and must be ruled out explicitly. We know that P&O could potentially deduct £1,035 and Irish Ferries nearly £490 from a non-qualifying seafarer’s wages, if the accommodation offset is available to them under the secondary legislation provided for in the Bill.
Mr Holden
I will not go over all the points that I made earlier, but I will address some of the specific issues raised by hon. Members. My hon. Friend the Member for Dover mentioned bilateral meetings between the Prime Minister and the President of the French Republic. There have been positive discussions between officials to date; I do not know if this will be raised specifically, but the discussions have been very positive. The Transport Secretary is also hoping to visit France at some point in the not-too-distant future.
My hon. Friend the Member for Dover and the hon. Members for Easington and for Wakefield mentioned deductions. We will have a proper public consultation on the draft regulations in this space. I have already noted—as I hope hon. Members have—the Low Pay Commission’s recent recommendations that this issue should be looked at. I hope hon. Members will take part in the consultation and contribute to the regulations as they are being drafted, without feeling the need to press specific amendments to a vote today.
The hon. Member for Paisley and Renfrewshire North raised the issue of the British Ports Association. We have not seen its legal advice—if he would like to share it with us, that would be lovely—but we do not believe it has a strong legal position.
Sir John Hayes
My experience as a Minister was that Government lawyers never assured us that we were in a strong legal position on anything—at most, they offer a 50:50 chance. The Minister might want to think again about the comments made in Committee; the terms and conditions seem to be critical. The Government—the Minister, in particular—deserve great praise for this legislation, but it would be a grave error to get pay right but not get terms and conditions right at the same time.
Mr Holden
My right hon. Friend makes an important point. We are looking into the terms and conditions, which will be there in the regulations, and we will have a wide public consultation. He is absolutely right: we want to get this right.
The legal issue raised by the hon. Member for Wakefield was about legal risk in the 52 versus 120 days element. When a ship stops at multiple points in Norway, for example, then has one trip a week to the UK, to argue that it should be covered by UK legislation rather than Norwegian legislation would put it into a very difficult international legal position. Under international maritime law, that would expose us to greater legal risk for the entirety of the legislation, rather than on specific points. I hope hon. Members understand.
The hon. Member for Glasgow East made a number of comments. On the broad issues, at least, I say to him that the Government have raised the threshold at which people pay income tax, taking millions of people out of tax. They have introduced the national living wage and reduced the age at which people qualify for it. Moreover, and in a massive and long-term benefit for huge numbers of people, they have expanded auto-enrolment in pensions to hugely benefit working people. His comments were broadly ill judged and, in a certain way, bringing forward this conversation today shows our commitment to delivering for working people. While I appreciate that everyone in the Scottish National party is an expert on ferries these days, I am not sure they are when it comes to this legislation.
The Chair
With this it will be convenient to discuss the following:
Government amendment 9.
Clause stand part.
Government amendments 10 to 12.
Amendment 63, in clause 6, page 4, line 37, at end insert—
‘(6A) An inspector may request information from—
(a) an officer of Revenue and Customs, or
(b) Maritime and Coastguard Agency,
if they consider it necessary for either of the purposes specified in subsection (2), and the authority to which the request was made must respond within 14 days.”
Clause 6 stand part.
New clause 8—Report: evidence of nationality-based pay discrimination—
‘(1) The Secretary of State must produce and publish a report setting out any evidence of nationality-based pay discrimination against non-qualifying seafarers.
(2) The evidence referred to in subsection (1) must include, but need not be limited to, aggregated data drawn from—
(a) minimum wage equivalence declarations requested by harbour authorities;
(b) information provided in response to notices under section 5;
(c) evidence from inspections under section 6; and
(d) any other sources of information as the Secretary of State considers appropriate.”
Mr Holden
As previously, I will address the clauses and speak to the amendments, including those from the Opposition. Clause 5 allows the Secretary of State—in practice, operating through the Maritime and Coastguard Agency—by notice to require operators to provide information for the purpose of establishing whether a service is being operated consistently with an equivalence declaration provided by the operator. It is an offence for an operator to fail to provide information required by the Secretary of State under this clause or to provide information that is false or misleading.
An offence under this clause is punishable on summary conviction by a fine in England and Wales, or by a fine not exceeding level 5 on the standard scale in Scotland and Northern Ireland. The sort of information that the Maritime and Coastguard Agency may request under this clause may include, but is not limited to, payslips, seafarer employment agreements and payroll information.
Clause 6 empowers an inspector appointed by the Secretary of State to board a ship in a harbour in the United Kingdom or enter any premises for the purposes of establishing whether a service is being operated consistently with an equivalence declaration, or of verifying information provided under clause 5. In practice, this will be an inspector from the Maritime and Coastguard Agency, which is responsible for enforcement in many areas in this sector and is the most appropriate agency for the job.
It is an offence for any person to intentionally obstruct an inspector in the exercise of their powers; to fail without reasonable excuse to comply with a requirement imposed by this clause, or to prevent another person from completing such a requirement; or to make a statement that the person knows is false or misleading, or recklessly make a statement which is false or misleading, in purported compliance with a requirement imposed under this clause. Such an offence is punishable on summary conviction by a fine in England and Wales, or a fine not exceeding level 5 on the standard scale in Scotland and Northern Ireland.
This clause, together with requests for information under clause 5, will allow the Maritime and Coastguard Agency to play an enforcement role in checking whether a service is being operated consistently with a declaration. In practice, this will be done through intelligence-based checks in the event of credible evidence suggesting a service may be being operated inconsistently with a declaration and random spot checks. It is important to distinguish the enforcement role from the harbour authority’s role in the compliance process, which is mostly administrative. Harbour authorities are not required to make inquiries as to whether a service is being operated consistently with a declaration.
Amendment 8, tabled in my name, is consequential on amendment 7 to clause 4, which allows for equivalence declarations to be provided before, during or after the year to which they relate and for declarations to relate to part of a year. Amendment 9 is a minor drafting change to abbreviate “national minimum wage equivalent declaration” to “equivalence declaration”, as discussed with respect to amendments 1, 3 and 4.
Amendment 10 to clause 6, tabled in my name, is consequential on amendment 7 to clause 4, which allows for equivalence declarations to be provided before, during or after the year to which they relate and for declarations to relate to part of a year. Amendments 11 and 12 to clause 6 are consequential on the abbreviation of “national minimum wage equivalence declaration” to “equivalence declaration”. In particular, amendment 12 changes the word “declaration” in clause 6(4)(c) to “statement”, so that this is not confused with the term “equivalence declaration”.
Opposition amendment 63 to clause 6 seeks to ensure that inspectors are able to access the appropriate information from Government agencies in order to exercise their enforcement powers. This is unnecessary, as the Maritime and Coastguard Agency will be the relevant enforcement agency and so will already have access to its own information. We have discussed data access with His Majesty’s Customs and Revenue, and it is considered unlikely that it would hold relevant information on seafarers in the scope of the Bill, as they are not already entitled to national minimum wage. As such, we do not consider it necessary to include information-sharing provisions in the Bill, as the MCA is the relevant authority.
Opposition new clause 8 would require the Government to produce and publish a report setting out any evidence of nationality-based pay discrimination against non-qualifying seafarers. Under the Equality Act 2010 (Work on Ships and Hovercraft) Regulations 2011, limited nationality-based discrimination is permitted. Under the Bill, we will not have the relevant evidence to which the new clause refers. Nationality is not relevant to whether someone is a non-qualifying seafarer, so we do not intend for declarations to require operators to provide information relating to nationality. Such information would also not be requested by a notice under clause 5, as it is not relevant to whether the national minimum wage equivalent is being paid. The Government are conducting a post-implementation review of the Equality Act 2010, which will consider nationality-based pay discrimination. I request that the Opposition do not press the new clause.
Mike Kane
I rise to speak in favour of amendment 63 and new clause 8. My hon. Friend the Member for Wakefield gave specific examples of deductions made by Irish Ferries and P&O; as he said, this is all about compliance. In his nine-point plan, the right hon. Member for Welwyn Hatfield (Grant Shapps), now the Business Secretary, pledged to involve His Majesty’s Revenue and Customs in ensuring compliance with minimum wage legislation, but the Bill does not include a direct role for HMRC, which is the only expert in minimum wage compliance. That is like delegating something to a port and harbours board, to the Maritime and Coastguard Agency or to anybody, but it is not the Government taking responsibility for the matter. That clearly must be addressed, and I ask the Minister to address it. Port operators are not experts in minimum wage compliance or in establishing whether the minimum wage is being properly enforced.
Maritime and Coastguard Agency officials will need to be trained in labour market enforcement issues, and HMRC national minimum wage enforcement officials will need to be trained in seafarer and maritime employment practices and law. What provision is there in the Bill for that? I do not see much at all. However, the Department for Transport told the trade unions that His Majesty’s Revenue and Customs has stated that there is no disproportionate risk of seafarers not being paid the national minimum wage. If this is not enforced properly, it is wide open, and I think most Members with any common sense will think it is wide open. On 24 March, Peter Hebblethwaite, the former chief executive officer of P&O Ferries, openly admitted to a joint sitting of the Transport Committee and the Business, Energy and Industrial Strategy Committee that P&O Ferries was paying an average well below the national minimum wage. How does clause 5 tackle what Peter Hebblethwaite said to this House?
Amendment 63 would ensure that an inspector may request from His Majesty’s Revenue and Customs or the Maritime and Coastguard Agency such information as is necessary to ensure that the operator is compliant with the national minimum wage. Further, complaints of non-payment of the national minimum wage have been consistently submitted to His Majesty’s Revenue and Customs. [Interruption.] I am slightly interrupted by the right hon. Member for South Holland and The Deepings—that will be His Majesty’s Revenue and Customs on the phone right now, agreeing with my comments to the Committee. Complaints have been submitted by the RMT on behalf of foreign seafarers, but the third-party process does not require His Majesty’s Revenue and Customs to report back on the outcome or progress in investigating those complaints. How will we, as elected Members, and the industry see how the measures in the Bill progress once they have been implemented by Parliament? There is no provision for that. Amendment 63 would ensure a timescale for response of 14 days, so that the outcome of the measures in the Bill will be crystal clear and transparent.
Gavin Newlands
I rise to support amendment 63. Given the stroppy point at the end of the Minister’s last contribution, I reassure him—[Interruption.] Oh, it was a humorous point; well, that is for each individual to judge. I point out to the Minister that the right hon. Member for Epsom and Ewell (Chris Grayling) has been retained as the Scottish Government’s ferries tsar from now on, so we will not have to worry about that. For the purposes of Hansard, that was sarcasm, lest I have to correct the record at a later date.
The point that has just been made is essentially this: as the Bill currently stands, the Government are hiding behind harbour authorities by expecting them—and with the amendments before us, now compelling them, under fear of prosecution—to carry out the enforcement work. Given the complex nature of the issues we are dealing with, I understand what the Government are doing, but maritime employment rules and minimum wage rules are complicated.
The Maritime and Coastguard Agency will need to be trained in labour market employment issues. HMRC employment enforcement officials responsible for enforcing the minimum wage will need training in seafarer and maritime practices and maritime law. Additional resourcing and time will potentially be needed to make this work. The MCA is responsible for the enforcement of the Bill’s powers, but is not named or listed in clause 6 or anywhere else. A dual role for the MCA and HMRC national minimum wage inspections must be clearly established, otherwise the Bill could have unintended consequences for qualifying seafarers’ existing national minimum wage rights.
The nine-point plan included a specific action to ask HMRC to dedicate UK national minimum wage resource to the maritime sector. The Department for Transport has told trade unions that HMRC has since stated that there is no disproportionate risk of seafarers not being paid the national minimum wage. I have no clue how it has come to that conclusion, given everything that has gone on, and that statement is despite Peter Hebblethwaite’s open admission to the joint Select Committee on 24 March that P&O ferries are now paying an average well below the national minimum wage, not to mention the evidence amassed by the RMT and detailed in annex 2 to its briefing.
The Government should consider using redundant Brexit customs processing facilities built at great expense in ports that host operators and vessels in scope of this Bill to provide bases for the inspectors from the MCA, HMRC and the International Transport Workers’ Federation, which will assist in the enforcement of the legislation. The MCA and the ITF perform essential port state control functions to protect and uphold minimum international seafarer welfare standards in the maritime labour convention. It is for that reason that we support new clause 8 in the name of the hon. Member for Easington.
I suspect the Government may not accept the new clause, but it would be pretty obscene if we were to see evidence of nationality-based pay discrimination. We very much support the new clause. I hope the Minister is generous, for a change.
Grahame Morris
I support the arguments put forward by my colleagues on the Front Bench. Will the Minister give some clarification? I noted what I thought was an assurance in his comments. Our amendment 63 is an attempt to make the enforcement process clearer, in terms of ensuring that the inspectors have the requisite not just powers but information, from HMRC in particular, in order to carry out the task that the Bill assigns to them. I wonder whether the Minister could clarify—maybe I am missing something; I heard him say that it would be the Maritime and Coastguard Agency that would be the inspectors. Could that function be delegated to the harbour authority or to staff of the harbour authority acting on behalf of the MCA? I would appreciate if he could clarify that point in his summing up.
Nationality-based pay discrimination is the elephant in the room. We must get to grips with it. I realise that the issue is incredibly complicated because of international treaties, but we need to get to the kernel of the issue because this is what is happening. Unscrupulous ferry operators in the sector are displacing UK-based seafarers on a “fire and rehire” basis, which Labour finds anathema.
There were Conservative MPs who were incandescent at the tactics employed by P&O Ferries on 17 March—St Patrick’s day—in that terrible action it took. We must see if we can address that, and the hon. Member for Paisley and Renfrewshire North made a good suggestion about using the expertise from the International Transport Workers’ Federation as part of the collective effort, particularly where the issues relate to seafarers from overseas. I wonder if the Minister might consider not only that, but the suggestion to use the facilities that were built—at some cost to the public purse—for the Brexit customs processing facilities and consider whether those not being used adequately could also be used for that purpose.
Mr Holden
I would like to provide some clarification on the points made initially by the hon. Member for Easington. The Maritime and Coastguard Agency is the relevant enforcement agency, not the harbour authority. Furthermore, it would be unlawful to delegate powers in this space to harbour authorities, so I wanted to make that clear. In response to a point made by the hon. Member for Paisley and Renfrewshire North, the Maritime and Coastguard Agency does not need to be named in the Bill because it enforces on behalf of the Secretary of State. This is normal drafting for Government agencies that are subsidiaries of Departments.
The Department has obviously engaged extensively with HMRC on this issue. The truth is, as this is not enforcing national minimum wage legislation but trying to get the national minimum wage equivalent, the amount of information that HMRC holds in respect to many of these people is either nil or incredibly limited, as many of them will not be UK taxpayers. HMRC has been clear that it is happy to share anything it can to make enforcement easier, but it is not in the exact same space. HMRC already enforces national minimum wage for seafarers who qualify for it, but within this legislation we reflect that much of that falls out of the normal scope of UK legislation.
Gavin Newlands
On that point, if I can refer back to the point I made in my speech, does the Minister agree with HMRC—despite all the evidence to the contrary: not just P&O, but many other operators—that there is no disproportionate risk of seafarers not being paid the national minimum wage? Does he think that that is credible?
Gavin Newlands
Of seafarers particularly not being paid the national minimum wage compared to other sectors.
Mr Holden
Part of the issue here is that we are trying to address the national minimum wage equivalence. This is beyond normal UK territorial extent, which is the issue at stake here, which is why we are doing legislation that goes beyond our normal boundaries and does butt up against some of those international maritime obligations that we have, whether that is the case for inland ferries or anything else within the UK. I am not an expert on what HMRC has said, but I assume that what it has said is correct. I imagine there are other elements in the broader economy, where perhaps there are greater language barriers and piecework, where HMRC targets the normal national minimum wage legislation and where it sees the greatest abuses. That is why I am sure HMRC is quite clear in its thinking.
I urge Members, based on what I have said in response to the amendments, to withdraw them, and, if not, to support the Government and vote down the Opposition’s amendments.
The Chair
With the leave of the Committee, I will put a single question on these amendments.
Amendments made: 10, in clause 6, page 4, line 7, after “is” insert “or at any time was”.
This is consequential on Amendment 7.
Amendment 11, in clause 6, page 4, line 8, leave out “a national minimum wage” and insert “an”.
See Amendment 1.
Amendment 12, in clause 6, page 4, line 21, leave out “declaration” and insert “statement”.—(Mr Holden.)
This is consequential on Amendment 1.
Clause 6, as amended, ordered to stand part of the Bill.
Clause 7
Imposition of Surcharges
Mr Holden
I beg to move amendment 13, in clause 7, page 5, line 8, leave out subsections (1) to (4).
This is the first of a number of amendments and new clauses which, taken together, require harbour authorities to impose surcharges (as opposed to merely allowing them to do so) and set out the circumstances in which they must do so. The circumstances are related to the fact that equivalence declarations may be provided before, during or after the year to which they relate.
The Chair
With this it will be convenient to discuss the following:
Amendment 64, in clause 7, page 5, line 32, leave out subsections (5) and (6) and insert—
‘(5) The Secretary of State must by regulations provide for a national tariff of surcharges by which the amount of the surcharge is to be determined.”
Government amendment 14.
Amendment 50, in clause 7, page 5, line 33, after “regulations” insert—
“, where the minimum surcharge to be imposed on an operator where Subsection (2) applies shall be no less than 300 per cent of the difference between the amount calculated as the national minimum wage equivalence for the operator and the amount in total paid by that operator”.
Government amendment 15.
Amendment 51, in clause 7, page 5, line 36, leave out “specified by a harbour authority”.
Amendment 52, in clause 7, page 5, line 37, leave out “the authority” and insert “each authority”.
Government amendments 16 and 17.
Amendment 65, in clause 7, page 5, line 43, leave out paragraph (e).
Government amendments 18 and 19.
Amendment 53, in clause 7, page 6, line 1, leave out subsection (8) and insert—
‘(8) Monies collected by a harbour authority under this section must be transferred to the Secretary of State at a frequency of not less than twice per calendar year for disbursement towards the costs of shore-based welfare facilities for seafarers.”
This amendment would ensure that revenue from surcharges is passed to the Secretary of State for Transport rather than being held by harbour authorities and would direct UK Government spending to welfare facilities.
Amendment 54, in clause 7, page 6, line 3, leave out paragraph (a).
Government amendment 20.
Clause 7 stand part.
Government amendment 21.
Amendment 55, in clause 8, page 6, line 10, leave out “specified by a harbour authority”.
This amendment is consequential on earlier amendments relating to the surcharge.
Amendment 57, in clause 8, page 6, line 14, at end insert—
‘(2A) Any objection must be made to the Secretary of State within a length of time which may be specified by regulations. Any objection made after this time period will be considered void.”
This amendment allows the Secretary of State to set a time limit for any objections to be lodged.
Government amendments 22 and 23.
Amendment 56, in clause 8, page 7, line 1, leave out “to direct the harbour authority”.
Clause 8 stand part.
Government new clause 2—Imposition of surcharges: failure to provide declaration in time.
Government new clause 3—Imposition of surcharges: in-year declaration that is prospective only.
Government new clause 4—Imposition of surcharges: operating inconsistently with declaration.
Mr Holden
I rise to speak to the Government amendments, the Opposition amendments, clauses 7 and 8 and Government new clauses 2 to 4.
As drafted, clause 7 empowers a harbour authority to impose a surcharge on an operator. The power applies in the event that the operator fails to provide an equivalence declaration under clause 3, or if it appears to the authority that the operator has committed an offence under clause 3(5). Where such a determination is made, the harbour authority may impose a surcharge on the operator on any occasion when a ship providing the service enters the harbour.
The amount of the surcharge is to be determined by a published tariff of surcharges set by the harbour authority in accordance with regulations made under the clause.
Grahame Morris
On that specific point, I am sure the Minister can clear up the issue I want to raise. The surcharge relates to ports and harbour authorities competing with one another. Will the surcharge be consistent or will it vary from one port and harbour authority to another?
Mr Holden
That will be clarified through the tariff regulations, which we will introduce. It will depend on the nature of the ship and the size of it, but we aim for consistency in terms of different vessels in different areas, and a tariff will be established.
The clause provides a power to make regulations that will make provision to—
Mr Holden
I hope that what I am about to say will answer the hon. Gentleman’s question. The clause will make provision for publication of a determination to impose surcharges; set out how the imposition of a surcharge is to be notified to the operator; set out the period within and the manner in which a surcharge must be paid; and make provision for notification of a surcharge to the Secretary of State and publication of the fact that a surcharge has been imposed. Surcharges paid under the clause may be retained by the harbour authority for the delivery of any of their functions, or for shore-based welfare facilities for seafarers.
I turn to Government amendments 13, 14, 16, 17, 19 and 20. As with the Government amendments to clause 3, these amendments, along with the amendments introducing new clauses 2, 3 and 4, will make the previously discretionary powers of harbour authorities to impose a surcharge mandatory duties, and set out the circumstances in which these duties should be exercised.
As discussed in relation to clause 3, from our continued engagement with port stakeholders we have been informed that harbour authorities are unlikely to exercise their power to impose a surcharge unless directed to. The direction-making power was intended as a back-up power and was not intended to be used as the primary means. However, this is all part of addressing that issue and ensuring the effective functioning of the Bill.
New clauses 2, 3 and 4 therefore set out the circumstances in which a harbour authority is under a duty to impose a surcharge. In summary, new clause 2 sets out surcharges to be imposed when an equivalence declaration is not provided in time; new clause 3 sets out when a declaration relates only to part of a year; and new clause 4 sets out when a service is operated inconsistently with a declaration.
Amendment 13 amends clause 7 to remove the discretionary power for harbour authorities to impose surcharges, which is now replaced with the new duties set out in new clauses 2, 3 and 4. As a result, there is no need for regulations that make provision as to the publication of a determination to impose surcharges and that will be removed by amendment 17. Subsections 1 to 4 of clause 7, which are removed by amendment 13, are replaced by new clauses 2, 3 and 4, which provide for duties to impose surcharges and the circumstances in which those duties apply. Amendment 14 is consequential on amendment 13.
Amendment 16 provides that a duty to impose a surcharge is subject to direction-making powers of the Secretary of State under clause 11, as amended by amendments 32 to 34, to not comply with their duties or to comply with their duties in a particular way. I will discuss the powers of direction in greater detail when we come to clause 11. It also provides that a harbour authority that fails to comply with a duty to impose a surcharge is guilty of an offence and liable, as previously mentioned, on summary conviction to a fine not exceeding level 4 on the standard scale. As with the offence for not requesting a declaration, this will be enforced by the Maritime and Coastguard Agency and is essential to ensure that the Bill functions properly.
Amendment 19 provides for regulations to make provision requiring a harbour authority that has imposed a surcharge to notify the Secretary of State if the surcharge is not paid in the required timeframe. It is necessary for the Secretary of State to be aware of circumstances where harbour access is likely to be refused, in order to monitor the operation of the Bill, take steps to mitigate disruption caused by the refusal of access if necessary, which will be pertinent in relation to very busy sea lanes, and consider if a direction should be issued to the harbour authority under clause 11(2), as amended by amendments 32 and 33, in circumstances where the refusal of access might cause damage to key passenger services or national resilience. Amendment 52 is consequential on amendment 44 to clause 3.
This group of amendments also relates to clause 8 of the bill, which provides a process for the making of objections to surcharges imposed by harbour authorities under clause 7. As the Bill currently stands, an interested party may make an objection to a harbour authority’s determination to impose a surcharge, the tariff of surcharges specified by a harbour authority, or the imposition of a surcharge or its amount.
The Secretary of State will then consider the objection and any representations made and may decide to approve the decision to which the objection relates, or to direct the harbour authority to revoke the determination, revise the tariff, revoke the imposition of a surcharge, or increase or decrease the amount of the surcharge. The Secretary of State will communicate the decision to the harbour authority and the objector and publish it online.
The Secretary of State may also direct the harbour authority to repay any surcharges required as a result of a decision under this clause. If a harbour authority does not comply with a direction given by the Secretary of State under the clause, they will be guilty of an offence and liable on summary conviction to a fine not exceeding level 4 on the standard scale. It should be noted that where an objection has been made to a harbour authority’s determination to impose a surcharge, an interested person cannot make another objection to that same determination. I shall respond to other amendments as they are moved.
Seafarers' Wages Bill [ Lords ] (Second sitting)
Tuesday 17th January 2023
(1 year, 10 months ago)
Public Bill CommitteesRead Full debate Seafarers’ Wages Act 2023 Read Hansard Text Read Debate Ministerial Extracts Amendment Paper: Public Bill Committee Amendments as at 17 January 2023 - (17 Jan 2023)
The Committee divided: - Ayes: 6 / Noes: 10 - Question accordingly negatived.
The Committee divided: - Ayes: 7 / Noes: 10 - Question accordingly negatived.
The Committee divided: - Ayes: 7 / Noes: 10 - Question accordingly negatived.
The Committee divided: - Ayes: 7 / Noes: 10 - Question accordingly negatived.
The Chair
I remind Members that the Committee will finish at 5pm, regardless of where we have reached in our discussions.
Clause 7
Imposition of surcharges
Amendment proposed (this day): 13, in clause 7, page 5, line 8, leave out subsections (1) to (4).—(Mr Holden.)
This is the first of a number of amendments and new clauses which, taken together, require harbour authorities to impose surcharges (as opposed to merely allowing them to do so) and set out the circumstances in which they must do so. The circumstances are related to the fact that equivalence declarations may be provided before, during or after the year to which they relate.
Question again proposed, That the amendment be made.
The Chair
I remind the Committee that with this we are discussing the following:
Amendment 64, in clause 7, page 5, line 32, leave out subsections (5) and (6) and insert—
“(5) The Secretary of State must by regulations provide for a national tariff of surcharges by which the amount of the surcharge is to be determined.”
Government amendment 14.
Amendment 50, in clause 7, page 5, line 33, after “regulations” insert
“, where the minimum surcharge to be imposed on an operator where Subsection (2) applies shall be no less than 300 per cent of the difference between the amount calculated as the national minimum wage equivalence for the operator and the amount in total paid by that operator”.
Government amendment 15.
Amendment 51, in clause 7, page 5, line 36, leave out
“specified by a harbour authority”.
Amendment 52, in clause 7, page 5, line 37, leave out “the authority” and insert “each authority”.
Government amendments 16 and 17.
Amendment 65, in clause 7, page 5, line 43, leave out paragraph (e).
Government amendments 18 and19.
Amendment 53, in clause 7, page 6, line 1, leave out subsection (8) and insert—
“(8) Monies collected by a harbour authority under this section must be transferred to the Secretary of State at a frequency of not less than twice per calendar year for disbursement towards the costs of shore-based welfare facilities for seafarers.”
This amendment would ensure that revenue from surcharges is passed to the Secretary of State for Transport rather than being held by harbour authorities and would direct UK Government spending to welfare facilities.
Amendment 54, in clause 7, page 6, line 3, leave out paragraph (a).
Government amendment 20.
Clause 7 stand part.
Government amendment 21.
Amendment 55, in clause 8, page 6, line 10, leave out
“specified by a harbour authority”.
This amendment is consequential on earlier amendments relating to the surcharge.
Amendment 57, in clause 8, page 6, line 14, at end insert—
“(2A) Any objection must be made to the Secretary of State within a length of time which may be specified by regulations. Any objection made after this time period will be considered void.”
This amendment allows the Secretary of State to set a time limit for any objections to be lodged.
Government amendments 22 and 23.
Amendment 56, in clause 8, page 7, line 1, leave out
“to direct the harbour authority”.
Clause 8 stand part.
Government new clause 2—Imposition of surcharges: failure to provide declaration in time.
Government new clause 3—Imposition of surcharges: in-year declaration that is prospective only.
Government new clause 4—Imposition of surcharges: operating inconsistently with declaration.
Mike Kane (Wythenshawe and Sale East) (Lab)
It is an absolute pleasure to serve under your chairmanship, Ms Harris.
At the close of the morning sitting, Mr Davies happily interrupted me in full flow about the Laffer curve. I often hear hon. Members talk about the Laffer curve, and earlier the Minister referred to all the tax giveaways implemented by this Government, but I remind Government Members that we are the most taxed society in modern history. Government Members enjoy talking about the nanny state and postcode lotteries, but I worry about how the clause will be implemented by different harbours. The Secretary of State will have enormous powers—a Labour Secretary of State could be implementing the regulations—and will have to play judge and jury between the various ports, harbour companies, the Maritime and Coastguard Agency and others. That is my big worry about the clause.
I rise to speak in favour of amendment 64 in my name and the names of Opposition members of the Committee. The Bill as drafted poses a risk that the surcharge regime will be different between harbours, and too small to have any effect on operator employment practices. Operators could choose to pay the surcharge to continue to use the ports, avoiding any penalty charge set out in clause 9. Will the Minister tell us what happens to penalties if they are charged? Where do they go? Will he seek to fund onshore mariner and seafarer welfare services from the charges? I am keen to hear more about that.
Many operators do not just run ferry services but operate ports as well—P&O itself operates a port. So the Government are potentially asking operators to fine themselves, which is perverse. Ministers must think again.
I note that the Secretary of State said he would use retained powers to decide which port could enforce fines, but he must set a national tariff for surcharges and designate a Government agency to collect them. Agreements and publication of the tariff of surcharges are subject to secondary regulations set out in clause 7. That could undermine the unlimited fines that can be imposed on operators for offences created elsewhere in the Bill, because the tariff will be based only on the differential between the amount paid the seafarers and the national minimum wage equivalence for UK work. Our amendment would give the Secretary of State the powers to set a national tariff of surcharges, which the harbour authorities would then enforce under direction. That would prevent ports from being prosecuted by competitors, and prevent harbour authorities from competing on the level of surcharge company operators would have to pay. That surcharge should not be given to the harbour authorities to use as they see fit, but should clearly be given to support seafarer welfare facilities. It would be wrong for operators to spend on their own businesses the fines levied for exploitation of seafarers. That is why we support amendments 53 and 54 in the names of SNP colleagues.
Gavin Newlands (Paisley and Renfrewshire North) (SNP)
It is a pleasure to serve with you in the Chair, Ms Harris. I will address amendments 51, 52, 55, 56 and 58, which stand in my name and that of my hon. Friend the Member for Glasgow East. We will also be supporting amendment 64—we have signed the amendment —in the name of the hon. Member for Wythenshawe and Sale East.
Ultimately, we want this legislation, in whatever form it takes at Royal Assent, to stick. That is what we are seeking to ensure today. The surcharges and penalties envisaged have to be realistic to have any effect. The hon. Member for Wythenshawe and Sale East raised the possibility of operators who own ports surcharging other operators who use those ports. If we end up in a position where operators allege sharp practice on the part of other operators and take legal action, it is workers who will be caught in the middle. P&O Ferries can afford the lawyers; poorly paid staff cannot. Setting a national tariff will remove the element of discretion from harbour authorities and ensure that all harbours and all operators across the board pay the same surcharge, regardless of which harbour has jurisdiction.
With all due respect to the harbour authorities, shifting the onus to the Secretary of State would also be a clear sign of how seriously the Government will take infringements. It is one thing for an operator to take on a port, but quite another to decide to take on the Department for Transport, if they know they are in the wrong. The likes of P&O might have deep pockets, but ultimatel, there will be no escape from a law that is properly enforced by the state.
As things stand, the level of surcharge that will be levied on operators in breach of the legislation is set entirely by the harbour authority, with reference to the regulations that will be laid at some point by the Secretary of State. My concern is that if the level of surcharge is set too low—we spoke this morning about the level of fines that could be levied—there would be no or very little disincentive for operators to pay below the national minimum wage equivalent. We saw with P&O that even flagrant lawbreaking was no disincentive whatever.
Grahame Morris (Easington) (Lab)
I completely agree with the line the hon. Member is pursuing here—that the fines should present a disincentive to breach the provisions of the legislation—but would he clarify a point on the minimum surcharge? The amendment says it would be
“no less than 300 per cent of the difference between the amount calculated as the national minimum wage equivalence for the operator and the amount in total paid by that operator”.
We learned in the debates on the previous clause that more than 50% of the savings that P&O were making were not from wages but from the changes in roster patterns. Should that be taken into account as well?
Gavin Newlands
I thank my colleague on the Transport Committee for making that point. It is very important, and he is absolutely right. I spoke about the impact of rostering on Second Reading. I am sure we will come on to the seafarers’ charter and the issues around that later on. My amendment seeks to amend the Bill in front of us, but I would love for us to be taking the whole situation into account, rather than just the wage. We will discuss that point in more detail a bit later on.
The Insolvency Service refused to undertake criminal proceedings against P&O Ferries or its corporate leadership, despite Mr Hebblethwaite’s appearance in front of the Select Committees’ joint hearing, when he freely admitted that he and his colleagues conspired over a lengthy period of time to systematically break the law and treat their workforce dreadfully. P&O clearly took the view that the chances of facing any real penalty for their actions were slim and, ultimately, they were proved to be right.
The Bill sets no minimum level of surcharge that would be levied on operators found to be in violation of the law. If the surcharge is set at a rate lower than the difference between compliance and non-compliance, there is nothing to prevent rogue operators from paying below the national minimum wage equivalent, making a declaration to that effect, paying the surcharge and still sailing away with full pockets, exactly as P&O Ferries did. [Interruption.]
The Chair
Order. I remind colleagues not to have private conversations during Committee sittings.
Gavin Newlands
Thank you, Ms Harris. Amendment 50 would make clear the cost operators would face if they were caught flouting the law. It is deliberately punitive. We picked 300%, but I would be happy to go higher.
The amendment would also have the effect of continually updating itself through reference to the national minimum wage equivalent rate, rather than to an absolute cash figure. We know that those involved in drafting statutory instruments will have their work cut out to say the least over the coming months if the Government’s Retained EU Law (Revocation and Reform) Bill is passed. My amendment would save them the trouble of updating this legislation every time that the rate needs to be updated. Indeed, the Government’s own response to the consultation on the Bill stated:
“We envisage that the rate of surcharge will be set by the SHA with reference to the NMWe deficit, which is the difference between the amount that seafarers are actually paid and the amount they would have been paid if they had qualified for NMW for that work.”
All our amendment would do is ensure that the reference to that deficit is fixed and a deterrent, rather than just a price that they pay for doing business.
I am sure that the current Secretary of State wants to see rogue operators caught and held to account, but he may not always be in this place or be the Minister. If future Ministers and Secretaries of State place less value on seafarers’ wages and conditions, they can amend the regulations, without much recourse to this place and probably without much fuss, to remove any deterrent effect that a surcharge may have. Of course, it is open to set a surcharge higher than 300%, but my amendment would ensure that the minimum is fixed in statute and cannot be amended without a new Bill and Act, thus making it more difficult to remove.
I would be happy to hear from the Minister what the level of surcharge is because, to be honest, it was quite difficult to pick up what he was saying in his oration before the Committee adjourned this morning. It was rather like a horse-racing commentary, so I did not quite pick up his opposition to our amendments. Maybe he is backing our amendments; I did not actually hear. I would be happy to hear what he actually thinks about these issues.
I will now speak to amendments 53 and 54. The Bill makes no orders or compulsion on where the proceeds of any surcharge levied by harbour authorities should go, as the hon. Member—and sometimes Friend—for Wythenshawe and Sale East said. Given that the reason for the surcharge is the mistreatment of workers, it seems apposite that the proceeds of a crime such as this should be directed to its victims. It would remain open to the Secretary of State to direct money to the harbour authority in question to spend on welfare facilities for seafarers, but that would be a decision for the Secretary of State, not for the harbour authority. Equally, it would be open to the Secretary of State to spend the money directly through the Department for Transport or other agencies, or to divert it to one of the many charities and trade unions that provide welfare services to seafarers in our ports and harbours.
We all hope that no surcharges will actually need to be levied under the legislation; equally, we all know that P&O Ferries is one of a number of operators that do not treat their staff with the respect and dignity that they deserve. When harbour authorities and the Secretary of State start to exercise their powers and collect surcharges, we need to ensure that those moneys do not disappear in a black hole somewhere or get set aside for the general running costs of a port. Unfortunately, that is exactly what the Bill, as it stands, allows. I would be happy to hear some clarification from the Minister regarding exactly where these moneys will go and whether the regulations will make clear that the surcharges are not to be spent keeping the lights on or building more infrastructure to handle the implications of Brexit. That is not what should happen. My amendment would end that possibility once and for all.
I forgot that I had so many amendments to speak to. Amendment 57 is essentially aimed at ensuring that any objections to a surcharge being levied are made in a reasonable timeframe. It is not too great a stretch of the imagination to foresee a company—again, such as P&O Ferries—being levied with a surcharge, procrastinating on payment and, months later, objecting to the surcharge, thus prolonging the process even further. Setting a time limit would prevent these kinds of frivolous uses of the objection procedure while still allowing genuine objections to be lodged. I can see nothing in the Bill to prevent objections being lodged and then withdrawn, so it would still be open to trade unions and others to lodge on a holding basis, as it were, while retaining the right to explore their options along the way. If the Minister will advise what time limits for objection will be in the regulations when laid, I may well be happy to withdraw that particular amendment.
The Parliamentary Under-Secretary of State for Transport (Mr Richard Holden)
I thank everybody for coming back. I am sorry that my speed of speaking was so swift earlier; I shall try to keep these comments at a more temperate pace. I will pick up on a couple of points from hon. Members, then enter into a little more of the briefing.
Tariffs or surcharges will be set by each harbour authority, but they will be in accordance with the regulations made under clause 7. As the hon. Member for Paisley and Renfrewshire North said, we also hope that the surcharges will never be required, but we need to have them to ensure proper practice. Opposition amendment 50 seeks to set out in the Bill how the surcharge is to be calculated. Currently, the Bill provides that harbour authorities will set the tariff of surcharges in accordance with the regulations. It is important that the surcharges disincentivise operators from not providing equivalence declarations, and we agree that surcharges should be high enough to act as a disincentive. We will consult on the levels of the tariffs to be set in the regulations. We do not want to commit to setting the level in the Bill, but please be assured that we are going to take everything into consideration in the drafting of the regulations.
Amendments 51, 52 and 56 seem to be designed to take responsibility for setting the surcharge away from the harbour authorities. Harbour authorities have been given this duty given their proximity to operators as their customers. The tariff must be set in accordance with regulations, but harbour authorities are well placed to determine within those regulations what the surcharge should be in each case. However, we will consider this position further before Report.
Amendment 53 would remove the option for harbour authorities to keep the surcharge for any of their functions, and would mean that moneys would be transferred to the Secretary of State for disbursement . The Bill already allows moneys to be spent by the harbour authority for the purpose of shore-based welfare facilities. I can see that to make the Secretary of State an intermediary places great faith in the speedy actions of the Government in all cases, but there is a possibility that this transaction would put a significant administrative burden on the Department were it to be dealt with on a case-by-case basis and would delay seafarers seeing the benefit of this money.
Amendments 54 and 68 would remove the harbour authority’s ability to spend moneys collected from the surcharge on the discharge of their functions. This is not intended to be a profit-making mechanism, but I am happy to review this function as intended before Report, because we need to ensure the surcharge is high enough to act as a disincentive.
Amendment 65 would remove the power to make regulations providing for the notification of a surcharge to the Secretary of State. The power to make regulations providing for the notification of the surcharge to the Secretary of State is an important mechanism to deter non-compliance. The mechanism of the Bill relies heavily on the monitoring of enforcement, and, as the imposition of the surcharge is a duty under the Bill, it is important that the Secretary of State is notified in this process.
I understand the importance of making it clear that it is the imposition of the surcharge that must be notified to the Secretary of State. I have thus tabled Government amendment 18, which provides for notification to the Secretary of State of the imposition of a surcharge. I hope colleagues are reassured by that.
Grahame Morris
I am grateful for the explanation. The Minister said amendment 65; did he mean amendment 64 in relation to the powers of the Secretary of State to set regulations? Can the Minister have a quick look at that? It is a point that in the earlier clauses he had indicated he was going to look at again before Report, so that we have a consistent level set by the Secretary of State in regulation. Could the Minister clarify that?
Mr Holden
The hon. Member is quite right. I should have been referring to amendment 64. What I was referring to in that section was Government amendment 18, which relates to Opposition amendment 65. I am about to come on to amendment 64; I did try to reference the hon. Member’s comments earlier, but I will come on to them now.
Amendment 64 would require the Secretary of State to make regulations setting out a national tariff of surcharges, as I indicated earlier, removing any role for harbour authorities in setting surcharge tariffs. The surcharge is an important mechanism to deter non-compliance, and the Government consider it reasonable and proportionate for harbour authorities to play some role, alongside the national tariff setting under clause 7. It is envisaged that a schedule of rates for the surcharge will be set by the harbour authority with reference to the estimated difference between the amount that seafarers are paid and the amount they would have been paid if they had qualified for national minimum wage. This is expected not to be an exact calculation, but to be based on estimates of the number of seafarers involved. The detail of how that will be worked out will be set out in regulations, and we will work closely with industry to ensure we get it right. It is important that surcharges are relevant to the circumstances of the service in scope, and harbour authorities are well placed to make that call given their proximity to services. We have, however, heard the concerns raised by the ports industry and others, so we will consider the matter further ahead of Report.
Gavin Newlands
On Government amendment 15 and the tariff of surcharge being at the discretion of harbour authorities, how much consideration has the Department given to the possibility of surcharge shopping and other conflicts of interests, both of which have been raised here and in the other place?
Mr Holden
That is a fair point. We have considered the matter, but we will be setting a national tariff in regulations following wide consultation, which will then be looked at by the individual harbour authorities. The cost implications of operators changing routes in order to shop around between what we expect to be minor cost differences mean that we do not expect it to be a particular issue.
Amendment 57 would allow for regulations setting a time limit under which an objection to a surcharge can be made. We think it is unlikely that there will be delays in objections to surcharges, but we are none the less happy to continue to consider that point ahead of Report, because it is important to get these things right and to have the right disincentives. We do not want to create strange situations that could act against seafarers’ interests.
Amendment 13 agreed to.
Amendments made: 14, in clause 7, page 5, line 32, leave out second “the” and insert “a”.
See Amendment 13.
Amendment 15, in clause 7, page 5, line 33, leave out from “regulations” to end of line 35.
This amendment is consequential on the removal of clause 11(3) (see Amendment 34).
Amendment 16, in clause 7, page 5, line 37, at end insert—
“(6A) A duty to impose a surcharge is subject to any direction given by the Secretary of State under section 11(2)(a).
(6B) A harbour authority which fails to comply with a duty to impose a surcharge is guilty of an offence and liable on summary conviction to a fine not exceeding level 4 on the standard scale.”
See Amendment 13.
Amendment 17, in clause 7, page 5, line 39, leave out paragraph (a).
See Amendment 13.
Amendment 18, in clause 7, page 5, line 43, after “notification of” insert “the imposition of”.
This is a drafting clarification.
Amendment 19, in clause 7, page 5, line 44, at end insert—
“(7A) Regulations may make provision requiring a harbour authority that has imposed a surcharge to notify the Secretary of State if so much of the period within which the surcharge must be paid as is specified in the regulations has expired without the surcharge having been paid in accordance with regulations under subsection (7)(d).”
See Amendment 13.
Amendment 20, in clause 7, page 6, line 6, at end insert—
“(10) In this Act, ‘surcharge’ means a charge under section (Imposition of surcharges: failure to provide declaration in time), (Imposition of surcharges: in-year declaration that is prospective only) or (Imposition of surcharges: operating inconsistently with declaration).”—(Mr Holden.)
See Amendment 13.
Clause 7, as amended, ordered to stand part of the Bill.
Clause 8
Questions to surcharges
Amendments made: 21, in clause 8, page 6, line 9, leave out paragraph (a).
This is consequential on Amendment 13 and the amendments relating to it.
Amendment 22, in clause 8, page 6, line 36, leave out subsection (7).
This is consequential on Amendment 13 and the amendments relating to it.
Amendment 23, in clause 8, page 6, line 41, leave out paragraph (a).—(Mr Holden.)
This is consequential on Amendment 13 and the amendments relating to it.
Clause 8, as amended, ordered to stand part of the Bill.
Clause 9
Refusal of harbour access for failure to pay surcharge
The Chair
With this it will be convenient to discuss the following:
Government amendments 25 to 28.
Amendment 58, in clause 9, page 7, line 32, at end insert—
“(e) where there is need to provide crew with access to urgent medical or welfare facilities or undertake crew repatriation.”
Government amendments 29 and 30.
Amendment 70, in clause 9, page 7, line 32, at end insert—
“(3A) Where a harbour authority may not refuse access to a harbour under subsection (3), it may instead detain a ship providing a service to which this Act applies, provided that the conditions in subsection (1) are met.
(3B) The Secretary of State may by regulations make provision about the detention of a ship under subsection (3A).”
Clause stand part.
New clause 6—Detention of vessels for failure to pay surcharge—
“(1) A ship providing a service to which this Act applies may be detained by a person appointed by the Secretary of State for the purposes of this section if—
(a) a harbour authority has imposed a surcharge on the operator of the service in respect of the entry into its harbour by any ship providing that service, and
(b) the operator has not paid the surcharge in accordance with provision made by or under this Act.
(2) It does not matter for the purposes of subsection (1) whether an objection has been made to the surcharge under section 8.”
Mr Holden
It is a pleasure to serve under your chairmanship, Ms Harris.
As currently drafted, clause 9 allows harbour authorities to refuse access to a harbour if an operator has not paid a surcharge as required in accordance with the Bill. The provision is intended to incentivise payment of surcharges and to make payment a condition of access to UK harbours. There are exceptions where a harbour authority may not refuse access: in cases of force majeure; where there are overriding safety concerns; where there is a need to reduce or minimise the risk of pollution; or where there is a need to rectify deficiencies on the ship.
Grahame Morris
The Minister is being very helpful. Will he list the categories that fall under, or explain how he would describe, “force majeure”? He mentioned a couple of categories. Is that an exhaustive list?
Mr Holden
I will happily provide the Committee with a full list ahead of Report stage. We are talking about serious incidents where life is at risk, but I am happy to write to the hon. Gentleman with further detail.
The method of communicating refusal of access will be set out in regulations. The clause provides that nothing in section 33 of the Harbours, Docks and Piers Clauses Act 1847 prevents refusal of access to a harbour under this section. Access can be refused, irrespective of whether an objection has been made under clause 8. This revision is a key tool in ensuring compliance with the policy intention of the Bill.
The amendment imposes a mandatory duty on harbour authorities to refuse access to a harbour, instead of a discretionary power to do so, as I mentioned earlier with regard to implementing the surcharges. As with those amendments to clauses 3 and 7, the reason for the amendment is to ensure the effective functioning of the Bill so that harbour authorities do not simply wait to be directed by the Secretary of State.
Grahame Morris
It is a pleasure to serve under your chairmanship, Ms Harris. In this group, I will speak to amendment 70 in my name and to new clause 6.
The Minister explained the reasoning behind his proposal to refuse access to a harbour. Amendment 70 proposes that the ship should be detained within a port. That is far more in line with international maritime law. The denial of harbour access is a matter of some concern. For harbour authorities or, indeed, the Secretary of State to suspend access is dangerous and likely to be ineffective. I therefore support the detention of non-compliant vessels within a UK harbour. The trade unions, the RMT—National Union of Rail, Maritime and Transport Workers—and I believe Nautilus International, also support that view, in order to provide a punishment for non-compliance that is more in line with international maritime regulatory standards governing operators’ behaviours.
I respectfully point out that the Maritime and Coastguard Agency’s port state control powers, which already exist under the maritime labour convention, are the only mechanism for inspecting crew employment and welfare standards. Every month, foreign flag vessels detained following those inspections are posted by the Maritime and Coastguard Agency on the Government’s website. The power that I propose would be a welcome addition to the port state control responsibilities that the MCA discharges for foreign flag vessels working from UK ports.
Only denying access to ports is not a realistic or sustainable punishment, especially as it relies to some extent on vessels not sailing to the UK if they are found to be non-compliant. Amendment 70 and new clause 6, in relation to vessels that fail to pay the surcharge, would be much more effective. There is also the possibility that capacity in another port would be blocked, if a ship were detained outside the port, perhaps in another harbour or even in a different jurisdiction. It is not clear whether the bilateral agreements the Government are negotiating—the Minister referred to them earlier, in particular that with France, but there are also those with Ireland, the Netherlands, Belgium, Spain, Denmark and Norway—would take account of that. I would be interested in the Government’s response to that point.
There is a welfare issue. It is outside the scope of this Bill, but there have been occasions where, certainly during the course of the pandemic, a number of vessels were laid up. I do not know if comes under the category of force majeure. Many tens of thousands—even hundreds of thousands—of seafarers were unable to access proper conditions. I know there were issues about the spreading of infection and so on, but putting that to one side, surely in terms of welfare it would make far more sense to detain the vessels within the port, rather than outside.
Gavin Newlands
I rise to speak to amendment 58. I am minded to support amendment 70 and new clause 6 in the name of the hon. Member for Easington. Perhaps counterintuitively, I am looking to add another exception to the list that could allow a rogue operator’s ship access to harbour, because I do not want seafarers or workers caught in the middle. As things stand, where an operator has been refused access for not paying the surcharge even when a crew welfare issue has been identified, such as a long overdue change of crew, the Bill would allow harbour authorities to continue blocking access to the operator. That could put the crew in the middle of a tug of war between the harbour authority and the operator.
We do not want a situation where the harbour authority is legally able to prevent access to a port when a ship has genuine need to seek access to ensure the safety and health of its crew. I know that most harbours take their responsibility for crew welfare seriously, but we do not want a situation where rogue operators are able to say, “We would love to take crew welfare seriously, but we couldn’t access the nearest harbour because we didn’t take it seriously in the first place, by paying below the national minimum wage.” There should be no excuses when it comes to employee safety.
Adding crew welfare to the list of exceptions to the harbour authority’s right to refuse access would provide some extra piece of mind for seafarers, and ensure that they have the protections, not the operator. It is the seafarers we are looking to protect. The amendment would clearly not prevent harbours from refusing access where the five conditions do not apply and, on that level, does not seek to water down the options available to hit those who refuse to pay a surcharge.
The Neptune declaration was established during the covid pandemic as it became clear that public health restrictions on access to ports were severely impacting on the capacity for ships to change over. Part of that declaration is a commitment that operators should make all reasonable efforts to accommodate crew changes, including when the vessel has to make a reasonable deviation. That should apply even as we have moved beyond the worst of the pandemic, and our legislation should reflect that declaration, which is why we have tabled the amendment.
Mike Kane
I rise to signal our support for amendment 70 and new clause 6 in the name of my hon. Friend the Member for Easington, who spoke well about seafarer welfare.
To give a personal example, over the past 30 years, my wife and I have enjoyed the hospitality, archaeology and beauty of the Orkney Islands. Over those 30 years, we have seen the number of cruise ships docking at Kirkwall go through the roof. There are days when the visitor numbers can double the population of the islands. When I visit the beautiful St Magnus Cathedral in the heart of Kirkwall, I now see—around the back or further up the high street—the welfare lines of mariners waiting for handouts or warm clothes, or going to the post office to send telegrams or money back home to their loved ones. Those lines get longer and longer every year.
I echo the concerns that the power for harbour authorities to suspend access to operators that are not paying crew at least the national minimum wage in UK territorial waters is probably dangerous and ineffective. I would welcome the Minister’s consideration of that. By denying ships access to those harbours, we are denying those crews, who are some of the poorest people in society—they are flown in from all over the world to give us the leisure experience we want on cruises—access to give welfare to those back home. That is less a political and more a humanitarian issue that our ports and harbours increasingly have to deal with.
Mr Holden
I thank hon. Members and welcome the spirit of amendment 58, which aims to provide urgent welfare facilities when they are needed. The Government believe, however, that those would be covered by clause 9(3), under which crew would be provided with access to urgent medical or welfare facilities or to undertake other emergency measures. We support the intention behind the amendment; in urgent cases concerning safety, a ship should be able to access the harbour under the framework that we have set out. Where an incident was not safety-related or related to the welfare of the crew and was therefore not covered by the force majeure exception, the ship would not be permitted access to the harbour.
Mrs Natalie Elphicke (Dover) (Con)
The concern, and I am pleased to hear the Minister has some sympathy for it, is that we do not want seafarers caught in the middle of the bad behaviour of bosses. I appreciate that the provision to which he draws our attention relates to that, but will he further consider whether that needs to be broader to protect seafarers?
Mr Holden
Members on both sides of the Committee are raising a similar issue about welfare. As an additional safeguard, the Secretary of State has the power to direct a harbour authority not to comply with its duty to refuse access. That will ensure that access is not denied—this has to be in rare circumstances for the Bill to work—where it would cause damage by disrupting key passenger services and supply chains. There are rare instances in which the Secretary of State has an overriding power, but on the broad swathe of trying to provide welfare, our view is that that is covered already under clause 9(3).
Gavin Newlands
Will the Minister tell us what part of clause 9(3) would cover the welfare of seafarers? Clause 9(3)(a) is on force majeure and paragraph (b) is on overriding safety concerns—might it be that one?
Mr Holden
The Bill states that
“a harbour authority may not refuse access to a harbour—
(a) in cases of force majeure;
(b) where there are overriding safety concerns;
(c) where there is a need to reduce or minimise the risk of pollution;
(d) where there is a need to rectify deficiencies on the ship.”
Both force majeure and overriding safety concerns for the crew, as well as for the ship, would be covered.
Members can be reassured that the list of exceptions directly reflect the circumstances in which access to a port may be provided. Existing legislation— namely regulation 13 of the Merchant Shipping (Port State Control) Regulations 2011, SI 2011 No. 2601— also covers this issue. I therefore think that the area of safety and crew welfare in exceptional circumstances is covered by legislation and the extra powers that are available to the Secretary of State.
Robert Courts (Witney) (Con)
Does the Minister think that clause 11(2), which contains the power for the Secretary of State to direct harbour authorities
“to exercise, or not to exercise, any of their powers under this Act”
might be relevant here?
Mr Holden
My hon. Friend is right; that is exactly what I referred to following the question from my hon. Friend the Member for Dover. We have the provisions under clause 9(3) and those under clause 11 on the directional powers of the Secretary of State. We have a belt-and-braces approach, which is why I do not think Opposition amendment 58 is required.
New clause 6 is also aligned with amendment 70 and is basically about whether ships can be brought in. The Bill provides for a voluntary compliance mechanism whereby the provision of equivalence declarations, and payment of surcharges if a declaration is not provided, are conditions of access to ports. If an operator chooses to neither provide a declaration nor pay a surcharge, it will be refused access.
If that were replaced by a power of detention by the MCA, as new clause 6 seeks to do, that would be a disproportionate and inappropriate mechanism. Detention of ships can carry significant costs to the ports and wider local authorities in relation not only to looking after them, but by blocking berths. For some small harbours, this can also be particularly challenging as it blocks other access to the port. That is not the case if ships are refused access.
I have heard concerns that refusal of access is unworkable as it might result in ships mid-passage being unable to dock. However, we do not expect the Bill to work that way in practice. By virtue of the requirement that harbour authorities request an equivalence declaration only when ships providing a service call at a UK harbour on at least 120 occasions in a year, all services captured are almost certain to be on short routes, and notification of refusal of access would take place before the ship has set sail from the port of origin.
As set out in clause 9, we will set out in regulations how the harbour authority is to communicate refusal of access. Once a harbour authority has imposed surcharges, the operator will be on notice that ships providing the service will be refused access to the harbour once the period for payment of the surcharge expires, if it remains unpaid. There is an additional safeguard regarding the Secretary of State’s powers of guidance in this circumstance.
We are satisfied that the compliance process of surcharges and refusal of access, supported by the enforcement powers of the MCA, is an appropriate and effective mechanism to incentivise payments. I hope that the new clause is withdrawn.
I also say to the hon. Member for Easington that, fundamentally, the business model of these operators is that they can get things in and off the ships. By stopping them getting access to the ports, we would disrupt a business model that, by design, is on a tight turnaround. They will not survive long if they are unable to get those things into ports quickly. This is also about driving compliance with the national minimum wage equivalent for seafarers, which is what we are trying to achieve. I urge the hon. Member not to press the new clause.
Amendment 24 agreed to.
Amendments made: 25, in clause 9, page 7, line 23, leave out “and”.
This is consequential on Amendment 26.
Amendment 26, in clause 9, page 7, line 24, leave out from “with” to end of line 25 and insert—
“regulations under section 7(7)(d), and
(c) the period within which the surcharge must be paid has expired.”
This amendment is consequential on Amendment 24 and is meant to clarify the circumstances in which refusal of harbour access is required.
Amendment 27, in clause 9, page 7, line 27, at end insert—
“(2A) Subsection (1) does not apply in relation to any surcharge imposed under subsection (3)(a) or (4) of section (Imposition of surcharge: failure to provide declaration in time) which would, if paid, be required to be refunded under subsection (5) of that section.”
This amendment is consequential on the new clause to which it refers.
Amendment 28, in clause 9, page 7, line 28, leave out “may” and insert “must”.
This is consequential on Amendment 24.
Amendment 29, in clause 9, page 7, line 32, at end insert—
“(3A) The duty under subsection (1) is also subject to any direction given by the Secretary of State under section 11(2)(a).”
This is consequential on Amendment 32.
Amendment 30, in clause 9, page 7, line 32, at end insert—
“(3B) A harbour authority which fails to comply with subsection (1) is guilty of an offence and liable on summary conviction to a fine not exceeding level 4 on the standard scale.”—(Mr Holden.)
This is consequential on Amendment 24.
Amendment proposed: 70, in clause 9, page 7, line 32, at end insert—
“(3A) Where a harbour authority may not refuse access to a harbour under subsection (3), it may instead detain a ship providing a service to which this Act applies, provided that the conditions in subsection (1) are met.
(3B) The Secretary of State may by regulations make provision about the detention of a ship under subsection (3A).”—(Grahame Morris.)
Question put, That the amendment be made.
The Chair
With this it will be convenient to discuss the following:
Government amendment 31.
Amendment 59, in clause 11, page 8, line 2, after “may” insert—
“following consultation with relevant stakeholders”.
This amendment would impose a duty on the Secretary of State to consult relevant stakeholders before giving guidance to harbour authorities as provided in clause 11(1).
Amendment 60, in clause 11, page 8, line 4, after “may” insert—
“following consultation with relevant stakeholders”.
This amendment would impose a duty on the Secretary of State to consult relevant stakeholders before giving directions to one or more harbour authorities as provided in clause 11(2).
Government amendments 32 to 36.
Clause 11 stand part.
Government amendments 37 and 38.
Mr Holden
Clause 10 specifies that in England, Wales and Northern Ireland, proceedings relating to offences under the Bill will be prosecuted by the Secretary of State. In practice, the Secretary of State will do so through the Maritime and Coastguard Agency. In Scotland, all criminal prosecutions are brought by the Lord Advocate.
This provision ensures that there is a clear and consistent process for the prosecution of offences under the Bill, and that such proceedings are handled by the appropriate Government agency. The clause is a critical component of the Bill’s enforcement mechanism and it will help to ensure compliance with its provisions.
Clause 11 as drafted will give the Secretary of State the power to give guidance to harbour authorities on how to exercise their powers under the Bill. The clause also allows the Secretary of State to issue directions to harbour authorities, requiring them to exercise or not exercise their powers under the Bill or to exercise them in a particular way.
Grahame Morris
The Minister is being patient and I appreciate that. Will he clarify the difference between “guidance” and “direction”? I ask because, on an earlier clause, we agreed that harbour authorities will now have a duty rather than a power. I wonder whether the Secretary of State’s “guidance” is a weaker term than a “direction”. Will he explain the difference?
Mr Holden
As drafted, the Bill is weaker, and that is why we are replacing the provisions with a duty in all these areas, in order to strengthen the requirement. Whether, in some such areas, it was “guidance” or other wording, there will now be a “duty”. That makes the Bill harder, ensuring that the harbour authorities have to do things.
Sir John Hayes (South Holland and The Deepings) (Con)
Further to the intervention from the hon. Member for Easington and given that what we are debating is on the face of the Bill, are we talking about statutory guidance that will be issued? Guidance, as the Minister knows, is complex, in law and in statute.
Mr Holden
I think we are talking slightly at cross purposes on this point. We are removing some of the things that were guidance for harbour authorities and an element of duty is now being opposed on them. That is what the Government amendments do.
The powers in clause 11 include the power to direct our harbour authorities to impose or not to impose a surcharge, whether generally or in any case or circumstances, and to impose a surcharge of an amount specified in the direction instead of the amount determined by the harbour authority’s tariff. That provision was intended as a safeguard in the event that a harbour authority did not impose surcharges in circumstances where an operator had not provided an equivalence direction, and to provide an incentive for the harbour authority to perform its role objectively.
Harbour authorities would have been required to have regard to any guidance under the clause and to comply with any direction given to them under the clause. Failure to comply with a direction under the clause is an offence punishable on summary conviction to a fine not exceeding level 4 on the standard scale. That provision was designed to help to ensure compliance with the Bill’s provisions and to achieve its policy objectives.
Government amendments 31 and 35 remove the Secretary of State’s power under the Bill to give statutory guidance to harbour authorities. That is a consequence of changing harbour authorities’ powers under the Bill to mandatory duties. We will still provide guidance to harbour authorities, which we intend to consult on, but that will not have a statutory basis. Amendment 36 is consequential on those changes. The reason why there will not be a statutory basis is that harbour authorities will already have a statutory duty.
Sir John Hayes
That answers my question. Essentially, the statutory duties need the guidance about those duties to be issued, rather than it being of itself statutory guidance. The Minister has made that abundantly clear in an eloquent and persuasive way.
Mr Holden
I thank my right hon. Friend for his generous assessment of my ability to describe the Bill’s provisions.
Government amendments 32 to 34 redefine the circumstances in which directions may be given to harbour authorities by the Secretary of State. As the powers are now duties, there is no longer a need for the Secretary of State to direct harbour authorities to exercise their functions. If they do not exercise those functions, they will be liable for prosecution, so the Secretary of State does not need to intervene. Amendment 15 to clause 7 is consequential on that change.
Gavin Newlands
I rise to speak to amendments 59 and 60, which, as the Committee will be pleased to hear, I can dispose of in fairly short order. On clause 12, I will speak to amendments on removing some of the Secretary of State’s untrammelled powers. That argument happens in just about every Bill Committee—certainly every Bill Committee that I am on—because scrutiny and accountability are a good thing. I know that it is out of fashion for Governments to willingly draft scrutiny into legislation these days, but amendments 59 and 60 seek a stakeholder consultation before the Secretary of State can direct harbour authorities, which would provide for an additional layer of scrutiny.
A requirement on the Secretary of State to consult will help to ensure the openness and transparency of the Secretary of State’s actions. Imposing a duty to consult will ensure that any guidance is exposed to critical comment from stakeholders, which may improve said guidance. The Delegated Powers and Regulatory Reform Committee said that the power in clause 11 was “a completely open-ended power”, and that the whole Bill could therefore be modified by directions that are not subject to any form of parliamentary scrutiny.
The Government accepted that argument in the other place in relation to clause 3 and amended it appropriately, so I would be very keen to hear the Minister’s explanation of why the same principle is not applicable to clause 11, taking into account that, in responding to the points about the powers to direct in clause 11, Baroness Vere said:
“We have looked very carefully at the powers of direction for the Secretary of State in Clause 11. We have concluded that to remove them would significantly reduce the effectiveness of the Bill. These powers of direction form an important part of the compliance mechanism under the Bill.”—[Official Report, House of Lords, 26 October 2022; Vol. 824, c. 1513.]
Our amendments do not seek to remove the powers, merely to add a layer of scrutiny. [Interruption.] I slow down as I am about to conclude, to allow the Minister to get back to his seat. What could possibly be wrong with an additional layer of scrutiny?
Sir John Hayes
I intervened on the Minister earlier, on the issue of guidance, because, now that he is clear that the guidance issued is of a more general nature—rather than the specific statutory guidance that would have been necessary to effect the provisions of the Bill, which will now be provided by powers in the Bill implicitly—that provides the opportunity for the Minister to ensure that that guidance is contextualised around the broader narrative.
I mentioned earlier the 2015 “Maritime growth study”, which I commissioned regarding skills and recruitment of people to the sector. That study also recommended that the Government develop
“a vision and set of strategic objectives”
with “quantifiable targets and goals”. I wonder if, in issuing guidance around this Bill to those in the sector, the Minister can ensure that the context is precisely the delivery of those recommendations.
If I might add to that briefly, that report also recommended a ministerial working group for maritime growth to implement a national strategy accordingly. I wonder whether any progress has been made on that. The Minister may not have an immediate answer to that, but I would welcome his further reflection on it during the passage of this legislation.
Mr Holden
I thank both the hon. Member for Paisley and Renfrewshire North and my right hon. Friend for their views on this. Just to be clear, Opposition amendment 59 would require the Government to consult with relevant stakeholders before issuing guidance. As per amendments 31 to 35, tabled in my name, there is no longer a provision for statutory guidance, given the responsibilities under the new duty. However, as we intend to provide some guidance to harbour authorities, I would assure hon. Members on both sides of the Committee that we intend to consult widely on any guidance that is issued, and it is unnecessary to say as much on the face of the Bill.
On the points that my right hon. Friend the Member for South Holland and The Deepings raised about the broader maritime growth strategy, I would be very happy to write to him with any specific updates that we have. I know that this is an important area that he feels passionate about.
Opposition amendment 60—this will be similar to my response to amendment 59—would require the Government to consult with relevant stakeholders before issuing directions. As per amendments 32, 33 and 34, tabled in my name, directions can only be made to instruct the harbour authority not to comply with its duties in a particular way. The need to use those powers of direction might arise when there are issues of welfare, national resilience, or the need to import medical supplies, and a ship should not be refused access. Such scenarios may be very time-sensitive, and the need to consult could significantly slow down that process. We assure hon. Members that we will consult where possible, but on that specific point—it is the reverse, as it were—it would not be appropriate to make that a legal requirement on the face of the Bill because of those issues.
Amendments 37 and 38, tabled in my name, change the power to make a direction to specify a harbour authority in respect of a particular harbour regarding the power to make those regulations. That is consequential on the amendments to convert harbour authority powers into duties, as, now that harbour authorities are required to request declarations, impose surcharges and refuse access to harbours, it is important that they have clarity on the relevant harbour authority for a particular harbour. The amendments will further ensure consistency and reduce the administrative burden of giving directions on a case-by-case basis.
Question put and agreed to.
Clause 10 accordingly ordered to stand part of the Bill.
Clause 11
Guidance and directions
Amendments made: 31, in clause 11, page 8, line 2, leave out subsection (1).
This removes the Secretary of State’s power under the Bill to give guidance to harbour authorities, in consequence of changing harbour authorities’ powers into duties.
Amendment 32, in clause 11, page 8, line 6, leave out
“exercise, or not to exercise, any of their powers under”
and insert
“not do anything they would otherwise be under a duty to do by reason of”.
This and the following amendment redefine the circumstances in which directions may be given to harbour authorities.
Amendment 36, in clause 11, page 8, line 16, leave out subsection (6).—(Mr Holden.)
This is consequential on Amendment 31.
Clause 11, as amended, ordered to stand part of the Bill.
Clause 12
Regulations
Gavin Newlands
I beg to move amendment 61, in clause 12, page 8, line 33, leave out subsection (3) and insert—
“(3) A statutory instrument containing (whether alone or with other provision) regulations made by a Minister of the Crown under any of the following provisions may not be made unless a draft of the instrument has been laid before, and approved by a resolution of, each House of Parliament—
(a) section 3 (power to request declaration);
(b) section 4 (nature of declaration);
(c) section 7 (imposition of surcharges);
(d) section 9 (refusal of harbour access for failure to pay surcharge).
(3A) Any other statutory instrument containing regulations made by a Minister of the Crown under any provision of this Act is subject to annulment in pursuance of a resolution of either House of Parliament.”
This amendment ensures that regulations under clauses 3, 4, 7 and 9 of the Bill are subject to the affirmative resolution procedure.
The Chair
With this it will be convenient to discuss the following:
Amendment 66, in clause 12, page 8, line 33, leave out
“is subject to annulment in pursuance of a resolution of either”
and insert
“may not be made unless a draft of the instrument has been laid before and approved by resolution of each”.
Clause stand part.
Gavin Newlands
I was on tenterhooks there: I was not sure whether I would have to leave expeditiously for the Standing Order No. 24 debate application in the Chamber, but thankfully that has been resolved.
As trailed when I spoke previously, amendment 61 seeks to amend the legislation in a similar fashion to Labour’s amendment 66. I am not precious about which amendment the Minister accepts. Clause 12 concerns the power to make regulations by statutory instrument and currently sets out that regulations made under the legislation are subject to the negative resolution procedure, as is always the case these days—other than for those in respect of clause 15, I should add in fairness. Given the potential nature and impact of the provisions that may be made by regulations under clauses 3, 4, 7 and 9, it would be appropriate for such regulations to be subject to the affirmative resolution procedure, to enhance the scrutiny of the regulations of this Parliament. At one point, the Government were keen for this Parliament to “take back control”. I hope the Minister can exert that with these amendments.
Mike Kane
I rise to speak in favour of amendment 61, in the name of the SNP Members, and amendment 66. The proposal is self-explanatory but important. The regulations under the Bill hand very broad powers to Ministers. It would be important for the House to consider and approve the regulations that will be made.
Grahame Morris
The ground has been very well covered. I am just wondering, particularly in relation to amendment 61, tabled by my colleagues from the SNP, about the impact of the earlier Government amendments. The Secretary of State has quite extensive powers in relation to the declaration, the imposition of surcharges, and directions to harbour authorities. I am sure that that must have been taken into account, but it does seem, given the extensive powers being conferred on the Secretary of State, that it would be reasonable to have reference to the affirmative procedure in the Bill and to specify which sections require delegated power for the Secretary of State. Therefore I support amendments 61 and 66.
Mr Holden
Clause 12 empowers the Secretary of State to make regulations to provide further details on the implementation of the Bill’s provisions. The regulations made under the legislation will be subject, as it stands, to the negative resolution procedure. The regulations may make different provisions for different cases, for example to take account of different types of ship services, such as freight ferries and container ships, and different non-qualifying seafarers—for example, there may be different surcharge rates according to age. The regulations may also confer discretion on specified persons and contain consequential, supplementary, incidental or transitional provisions. This provision gives the Government the flexibility to adapt the regulations as needed to ensure that the Bill’s provisions are effectively implemented and to achieve the Bill’s policy objectives as quickly as possible.
Amendments 61 and 66 seek to ensure that regulations under clauses 3, 4, 7 and 9 are subject to the affirmative resolution procedure, rather than the negative resolution procedure as currently. We expressly considered why it is appropriate that each regulation-making power was negative in our delegated powers memo, and the Delegated Powers and Regulatory Reform Committee did not raise any concerns about the procedure for the remaining regulation-making powers in the Bill. Indeed, the only regulation-making power that the Committee recommended be subject to the affirmative procedure has now been removed from the Bill.
Although we have tweaked certain regulation-making powers, we do not consider that this changes the appropriateness of the negative procedure, and we will be providing a supplementary delegated powers memorandum for the Committee to consider in due course. Switching to the affirmative procedure is not a good use of parliamentary time and would slow down the implementation of the Bill. I request that the amendments be withdrawn so that we can get on with protecting seafarers as quickly as possible.
Gavin Newlands
I thank the Minister for that response. Surely it is for Parliament to decide the best use of parliamentary time. I think we have let the Minister off with enough this afternoon, so I will push the amendment to a vote.
Question put, That the amendment be made.
The Chair
With this it will be convenient to discuss the following:
Government amendment 41.
Clause 15 stand part.
Mr Holden
I will be very swift, because this is very much just definitions and terms. Clause 14 provides definitions of terms used throughout the Bill to ensure clarity and consistency in the interpretation of its provisions. The definitions will help to ensure that the Bill is applied consistently and coherently, and will facilitate its effective implementation. Clause 15 provides for the extent, commencement, and short title of the Bill. Amendment 41, in my name, removes the privilege amendment inserted by the Lords and is a purely procedural matter.
Question put and agreed to.
Clause 14, as amended, accordingly ordered to stand part of the Bill.
Clause 15
Extent, commencement and short title
Amendment made: 41, in clause 15, page 10, line 1, leave out subsection (6).—(Mr Holden.)
This removes the privilege amendment inserted by the Lords.
Clause 15, as amended, ordered to stand part of the Bill.
New Clause 1
Offence of operating service inconsistently with declaration
“(1) The operator of a service to which this Act applies is guilty of an offence if—
(a) the operator provides a harbour authority with an equivalence declaration in respect of the service for a relevant year, and
(b) subsection (2) or (3) applies.
(2) This subsection applies if the equivalence declaration is provided before the beginning of the relevant year and—
(a) the service is operated inconsistently with the declaration at the beginning of the relevant year, or
(b) at any later time during the relevant year the service starts to be operated inconsistently with the declaration and the operator fails to notify the harbour authority within four weeks of—
(i) the fact that the service has started to be so operated, and
(ii) the time when it started to be so operated.
(3) This subsection applies if the equivalence declaration is provided during the relevant year and—
(a) at the time the declaration is provided the service is being operated inconsistently with the declaration, or
(b) at any later time during the relevant year the service starts to be operated inconsistently with the declaration and the operator fails to notify the harbour authority within four weeks of—
(i) the fact that the service has started to be so operated, and
(ii) the time when it started to be so operated.
(4) A person guilty of an offence under this section is liable on summary conviction—
(a) in England and Wales, to a fine, or
(b) in Scotland and Northern Ireland, to a fine not exceeding level 5 on the standard scale.”—(Mr Holden.)
This is connected with the group of amendments introduced by Amendment 1. It provides for an offence of acting inconsistently with an equivalence declaration, in place of the offence in clause 3(5) and (6). It caters for the fact that a declaration may be provided before, during or after the year to which it relates.
Brought up, read the First and Second time, and added to the Bill.
New Clause 2
Imposition of surcharges: failure to provide declaration in time
“(1) This section applies if—
(a) a harbour authority requests the operator of a service to which this Act applies to provide the authority with an equivalence declaration in respect of the service for a relevant year, and
(b) the operator does not provide an equivalence declaration in the prescribed form and manner before the end of the prescribed period.
(2) If the prescribed period expires before the beginning of the relevant year, the harbour authority must impose a charge on the operator of the service in respect of each occasion when a ship providing the service enters its harbour between—
(a) the beginning of the relevant year, and
(b) whichever is the earlier of—
(i) the end of the relevant year, and
(ii) the time when the operator provides the authority with an equivalence declaration in respect of the service for the relevant year in the prescribed form and manner.
(3) If the prescribed period expires during the relevant year, the harbour authority must—
(a) impose a charge on the operator of the service in respect of each occasion when a ship providing the service entered its harbour between—
(i) the beginning of the relevant year, and
(ii) the end of the prescribed period, and
(b) impose a charge on the operator of the service in respect of each occasion when a ship providing the service enters its harbour between the expiry of the prescribed period and whichever is the earlier of—
(i) the end of the relevant year, and
(ii) the time when the operator provides the authority with an equivalence declaration in respect of the service for the relevant year in the prescribed form and manner.
(4) If the prescribed period expires after the end of the relevant year, the harbour authority must impose a charge on the operator of the service in respect of each occasion when a ship providing the service entered its harbour during the relevant year.
(5) But charges imposed by a harbour authority under subsection (3)(a) or (4) must be refunded if—
(a) at any time after the end of the prescribed period the operator provides the authority with an equivalence declaration in respect of the service for the relevant year in the prescribed form and manner, and
(b) the declaration is within section 4(1C) or (1D).
(6) For the purposes of this section, in relation to an equivalence declaration which an operator of a service is required to provide—
‘prescribed period’ means the period within which the operator is required to provide the declaration in accordance with regulations under section 3(4)(za);
‘prescribed form and manner’ means the form and manner in which the operator is required to provide the declaration in accordance with regulations under section 3(4)(a) and (b).”—(Mr Holden.)
This and the following new clauses set out the circumstances in which surcharges must be imposed. In summary, surcharges are to be imposed when an equivalence declaration is not provided in time (this new clause); when a declaration relates only to part of a year (NC3); or when a service is operated inconsistently with a declaration (NC4).
Brought up, read the First and Second time, and added to the Bill.
New Clause 3
Imposition of surcharges: in-year declaration that is prospective only
“(1) This section applies if—
(a) a harbour authority requests the operator of a service to which this Act applies to provide the authority with an equivalence declaration in respect of the service for a relevant year,
(b) the operator provides the declaration during the relevant year in accordance with regulations under section 3(4), and
(c) the declaration is within subsection (1B) of section 4 (and not also within subsection (1C) of that section).
(2) The harbour authority must impose a charge on the operator of the service in respect of each occasion when a ship providing the service entered its harbour between the beginning of the relevant year and the time the declaration was provided.”—(Mr Holden.)
See NC2.
Brought up, read the First and Second time, and added to the Bill.
New Clause 4
Imposition of surcharges: operating inconsistently with declaration
“(1) This section applies if—
(a) the operator of a service to which this Act applies has provided a harbour authority with an equivalence declaration in respect of the service for a relevant year, and
(b) either—
(i) the operator notifies the authority that at a specified time after the declaration was provided the service was, or started to be, operated inconsistently with the declaration, or
(ii) the authority has reasonable grounds to believe that, at a time after the declaration was provided, the service was, or started to be, operated inconsistently with the declaration.
(2) The harbour authority must impose a charge on the operator in respect of each occasion when a ship providing the service entered or enters the harbour between—
(a) the time mentioned in subsection (1)(b)(i) or (ii), and
(b) the end of the relevant year.
(3) But if after the time mentioned in subsection (1)(b)(i) or (ii) the operator provides the harbour authority with a fresh equivalence declaration in respect of the service for the relevant year, the authority must not impose a charge under this section in respect of an occasion when a ship providing the service enters the harbour after the fresh declaration is provided (unless this section applies again by reference to that or a later declaration).”—(Mr Holden.)
See NC2.
Brought up, read the First and Second time, and added to the Bill.
New Clause 5
Implementation and monitoring
“(1) Within six months of this Act being passed, the Secretary of State must publish a report on the implementation of, and monitoring of the effects of, this Act.
(2) The report must include—
(a) an assessment of the impact of this Act on—
(i) roster patterns,
(ii) pensions, and
(iii) wages of seafarers;
(b) a statement as to whether further legislation will be introduced by the Government as a result of the findings of the assessment under paragraph (a);
(c) a strategy for engaging with trade unions for the purposes of monitoring the implementation of this Act, including in reference to conventions of the International Labour Conference;
(d) a strategy for monitoring the establishment of minimum wage corridor agreements with international partners of the United Kingdom, insofar as any such agreement ensures that any non-qualifying seafarer is remunerated for UK work at a rate that is equal to or exceeds the rate that would otherwise be required under this Act;
(e) an assessment of the interaction between this Act and existing international agreements or international maritime law, including reference to any litigation that has arisen as a result of this Act.
(3) The report must be laid before each House of Parliament.”—(Mike Kane.)
Brought up, and read the First time.
The Chair
With this it will be convenient to discuss
New clause 7—Report: remuneration of seafarers—
“Within one year of the date of Royal Assent to this Act, the Secretary of State must lay before Parliament a report setting out an assessment of—
(a) the impact of this Act on the remuneration of seafarers, and
(b) whether there is any evidence that, as a result of this Act, seafarers have been dismissed and re-engaged on lower wages at or closer to the National Minimum Wage.”
Mike Kane
I rise to speak in support of new clauses 5 and 7. Earlier this year, the House stood completely united against the action taken by P&O Ferries. We had oral questions that day in the House, and the former Minister, the hon. Member for Witney, was at the Dispatch Box when the news filtered through that this company had sacked some 800 British workers with no notice. Eight hundred livelihoods were lost because a rogue company made a calculation that it was cheaper to break the law than to abide by it.
A married couple who had been employees of P&O for 14 years spoke to a colleague of mine about the reward for their years of loyal service—summary dismissal by a pre-recorded video message, and then being marched off the ships that they lived and worked on by private security guards, treated like criminals. That was the human face of P&O’s criminal act. It is the reality of a business model that has been allowed to prevail for far too long on our seas—a business model predicated and dependent on exploitation.
The P&O scandal was supposed to represent a line in the sand for seafarers’ rights. The Secretary of State’s predecessor was clear about that: the Government would work with
“unions and operators to agree common levels of seafarer protection on those routes.”—[Official Report, 30 March 2022; Vol. 711, c. 841.]
He was right, because seafarers’ exploitation is every bit as much about conditions as it is about pay. Baroness Vere of Norbiton, the Minister in the other place, said that the Government would act on that wider exploitation only
“where it is proven that it is appropriate to do so.”
Let me briefly give the House an illustrative example of why that is so important. An agency worker can be contracted on the Dover-Calais service at the shamefully low rate of £4.75 an hour. As is common in the industry, such workers could be expected to work up to 91 hours a week, on board, full time, for 17 weeks at a time. My hon. Friend the Member for Kingston upon Hull East reminded us of the Herald of Free Enterprise and what happened there. Outside UK waters, those workers would not be entitled to any pension, the minimum wage or any sick pay. I ask Members to imagine a season of winter storms in the Irish sea or the North sea, where sleep is almost impossible, and to imagine spending up to 17 weeks on board, responsible for the safety of passengers and that vessel.
The industry has already learnt from painful experience about the dangers, but the Bill does nothing to address exploitative crewing and rostering practices. That is why we must see a legally binding seafarers’ charter on the face of the Bill—one that ends the race to the bottom from which P&O Ferries has benefited; one that smashes the business model dependent on the manipulation of vulnerable workers from around the world. That is precisely what our new clause 5 is about.
Turning to new clause 9, the then Prime Minister himself said that P&O Ferries would face “criminal sanctions”. The then Transport Secretary said that it would be placed under “criminal investigation”. He demanded that the boss, Peter Hebblethwaite, stand down. He even demanded that P&O rename its ships, stating that it was completely wrong for them to sail under such names as the Spirit of Britain or the Pride of Kent. Six months on, however, that chief executive—
Mike Kane
Thank you, Ms Harris. That chief executive stays in place. The point is that if P&O Ferries or any of its low-cost rivals wanted to do that again, nothing in the Bill will stop it from doing so. That is why new clause 9 is important, because it clearly establishes fines and personal liability for a failure to abide by the legislation.
Mike Kane
Indeed. Given the track record of shameful companies such as P&O, we have to change.
My final concluding remarks, Ms Harris, are to thank you for your excellent chairing for the first time in such a Committee. I also thank Mr Davies for his excellent deliberations as Chair this morning, and the Minister, because the Bill was brought to the House in the right spirit, for trying to do something. Members across the Committee recognise that, and I thank all those who participated and contributed. With that, I also thank staff at the Department for Transport and the Clerks of the House.
Mrs Elphicke
It is to be noted that new clauses 5 and 7 concern reports about whether more needs to be done. I think we agree across the Committee and more widely that what happened in the P&O case was a spark to firm action going forward.
We touched on the issue of roster patterns earlier on, but I want to address it specifically. We know it is something the Maritime and Coastguard Agency has looked at on the short straits. For me, the new clauses do not address the fundamental question of who will be responsible for ensuring appropriate and safe working conditions on that route. That responsibility sits with the MCA, but concerns have rightly been raised about individual operations, and new clause 5 will not go any way to addressing those particular concerns. I think the bilateral agreements being discussed may form a route to looking at some of the issues, particularly those that apply to the route between Dover and France.
Turning to pensions and wages more broadly, this is the first piece of legislation of its type. There are a number of mechanisms in this place, including the Transport Committee, which has shown to be diligent in its support of not just the P&O workforce but transport matters more generally. There are additional forums in this place that provide the correct routes and opportunities to assess whether this legislation is reaching its objectives and intent.
On new clause 7, it is important that the remuneration of affected seafarers is assessed and considered. I have been encouraged during discussions I have had on remuneration with DFDS, which operates on the Dover-Calais route, to hear that it embraces the opportunity to have these conversations about improving conditions for seafarers. But as regards the Bill, part of the nine-point plan is a comprehensive approach to tackling this issue following the appalling actions of P&O. Overburdening the Bill with additional requirements for statutory reports and assessments may actually delay the important work we all have to do—be it bilateral or voluntary agreements or other options.
Karl Turner (Kingston upon Hull East) (Lab)
I am interested in why the hon. Lady thinks putting the requirement to report into a statutory format would create a delay. How on earth does she believe it would delay anything?
Mrs Elphicke
I thank the hon. Gentleman for his question. Let me explain. This Bill is a piece of legislation that has been brought forward very quickly—in a number of months. I think we would all agree with that, considering the time that things take in this place, but it has a number of journeys to continue on. The first reports under the proposals here would take some time—within six months for the first report. This work is ongoing with the Department right now. I do not want to wait six months. What happens if France says, “Let’s not conclude the bilaterals. Let’s wait for your report.” It is absolutely right that Transport Ministers and the Secretary of State keep us updated and that they are accountable in this place to us all, as they are through the Transport Committee and on the Floor of the House, to make sure that the legislation does what it says, but I do not want to be waiting on a report for six months or a year; I want action now for the workers on the short straits.
Gavin Newlands
I rise to support new clause 5 and must start by congratulating or commending—through heavily gritted teeth, it must be said—the DFT drafting team for drafting the Bill so narrowly that the only recourse we have is to ask for reports on the protections for seafarers on these very important issues.
New clause 5 follows the work done on the seafarers’ charter, work which unfortunately appears to be stuck in the long grass. One of the reasons given by the Minister in the Lords to oppose the original amendment by Lord Tunnicliffe was the 90-day timeframe. The hon. Member for Dover has just said that she does not want to wait. The original amendment was for 90 days; we have had to up that to six months, because the Government rejected that amendment and referred to six months.
The issues outlined in the new clause are real and serious. We have reports of seafarers employed by P&O Ferries—that is, the people employed to replace those they sacked illegally—working 17 weeks straight on board. That is simply unacceptable. A tired and overworked crew is a dangerous crew at sea.
Karl Turner
The crucial point about safety is that the Dover to Calais run involves an incredibly fast turnaround and the work is incredibly intensive. It is not just that these exploited seafarers are working 17 weeks on, 12 or 13 hours a day, seven days a week. They are going to and fro, and the most dangerous part of that run is pulling into the harbour and coming back out. The work is intensive and incredibly dangerous. Does the hon. Gentleman agree?
Gavin Newlands
I could not agree more—rather them than me. It is bizarre that sometimes we argue around the fringes of these issues. We are talking about such dangerous and onerous work for weeks on end, and we are quibbling over whether we pay them the national minimum wage or not. It beggars belief. We cannot trade safety for the profits of DP World.
This is not just an issue of fairness at work. It is an issue of human and environmental safety. It is just over 30 years since the Braer wrecked on Shetland and caused an ecological disaster that I suspect we all remember well, even three decades on. If we have seafarers around our shores working 17 weeks straight with no oversight and no action, sooner or later we will have another Braer or, even worse, a Herald of Free Enterprise.
Similarly, on wages and pensions, we know what many seafarers are expected to put up with. The key point of this Bill is to prevent wages falling below the national minimum wage equivalent, but we also hope it will have the additional impact of improving wages across the board in the industry. If minimum wages go up, there could be benefits for those who are already earning more than that floor.
We know that the Government currently support a voluntary charter for seafarers, and the Minister repeated that again today. I say in all sincerity to the Minister and the Government Members sitting behind him: what good is a voluntary charter when we have operators such as P&O Ferries, which was content not only to break the law but to sit in front of a Select Committee and freely admit to breaking it? A voluntary charter has about as much legal effect as the back of a fag packet, and if P&O Ferries is happy to break the law, it will not look back as it smashes a charter to shreds.
Putting these elements of the charter in the Bill will at least give the Government firm legal ground in assessing how this legislation has benefited the industry and its employees. Again, the new clause calls for nothing more than a report, as the hon. Member for Dover said, on the main issues from the charter. It commits the Government to nothing, except a report. If the Government are serious about a real seafarers’ charter developed in partnership with trade unions and aimed at protecting exploited workers, they have nothing to fear from accepting this new clause.
I turn to new clause 7 in the name of the hon. Member for Easington, and supported by myself and my hon. Friend the Member for Glasgow East. Last July, we saw the publication of the nine-point plan for seafarers. No. 6 on that plan was to develop a statutory code for “fire and rehire” practices, and failures to engage in employee consultations. Sadly, that has progressed no further.
Members may remember that I have certainly highlighted and challenged companies that have used fire and rehire over recent years since its first big deployment in this country by British Airways. Many Opposition Members have repeatedly asked the Government to bring in legislation to end it, as is the case in most of Europe, with some of us introducing multiple Bills to that effect. Despite all the evidence to the contrary, the Government felt that a simple change to guidance would solve the worst of the problem.
Fire and rehire seems to be used disproportionately in the transport sector, by British Airways, Menzies Aviation and Go North West to name just three. Elements of it were deployed by P&O Ferries last year—another charge to add to its self-declared rap sheet, which the RMT said amounted to one of the
“most shameful acts in the history of British industrial relations”.
While some Government Members may have views that differ from mine on the RMT, I hope they would at least agree with them on the depths to which P&O Ferries plumbed last year.
Seafarers are particularly vulnerable to fire and rehire. The particular circumstances of the maritime industry, surrounded by international treaties and conventions, mean that workers are subject to greater exploitation overall than those on land. We saw with P&O how that exploitation can be deployed by a company that is happy to willingly and publicly break the law and make no secret of it. It is a practice that has absolutely no place in a modern society. Our workplaces are not those of a Dickensian novel, yet the legislation that regulates the power dynamic between employer and employee is stuck in the Victorian age.
The UK is almost unique in Europe on fire and rehire. Most other countries in Europe have embraced modernity and made their employment laws fit for the future. P&O Ferries could not have pulled off its scam in most European countries, just as BA’s parent company did not attempt fire and rehire in Ireland or Spain. New clause 5 would not prevent fire and rehire in itself—amendments 71 and 72 tabled by me and my hon. Friend the Member for Glasgow East would have offered greater protection but they were deemed out of scope, so I will not refer to them any further in case I am called to order by the Chair.
However, new clause 5 would ensure that any instances, attempted or otherwise, in connection with seafarers within scope of this legislation are reported by the Secretary of State to Parliament. That will give this place the opportunity to again look at legislation not only in this specific sector, but also across the whole economy. Hopefully by that time, Government Members will finally have made the jump from warm words to tough action, and we will see legislation put on the books to put an end to fire and rehire and an end to these rogue companies. It quite frankly a disgrace that the UK lags so far behind the rest of our neighbours. We can start the process of remedying that disgrace and dragging our employment laws into the 21st century by adopting this new clause.
Sir John Hayes
I rise briefly to address new clause 5, which has much to recommend it. The hon. Gentleman was right to talk about a seafarers’ charter, which has been long called for. He was right to recognise the need for engagement with the trade unions. When I was the Minister, I had a positive dialogue with the RMT maritime section, as my former shadow Minister, the hon. Member for Kingston upon Hull East, will know. It is also right, as I said earlier, that we understand that pay should be seen in a broader context, as the new clause recommends. I called earlier for a strategy that looked at the whole maritime sector, pertinent to the matters we have been discussing today, which would identify common concerns across ports, business services, manufacturing, engineering, science and all the other ancillary industries linked to maritime.
It seems critical to recognise that seafarers are particularly vulnerable to exploitation because of the peripatetic nature of their employment. Where people take advantage of that vulnerability, we need to act. We have moved on from the dark days when economic liberalism prevailed and we thought the free market would solve everything—at least I hope we have. This country has a proud maritime past. One thinks of great seafarers such as Drake, Captain Cook and Lord Nelson, who are heroes, whatever the liberal bourgeoisie, with their doubt-filled, guilt-ridden preoccupations, may think. We can have a maritime future that is just as great, but that must be built on the right terms and conditions, pay and circumstances for our seafarers.
My only reservation about the new clause, which is why despite teasingly suggesting that I might support it, I will not, is that it does not actually go far enough. I would want to do still more. The Government are to be commended for introducing the legislation, and my hon. Friend the Member for Dover in particular is to be commended for championing the interests of seafarers on the back of the awful events that have been reflected on today, when P&O behaved so disgracefully. I say to the Minister let this be the beginning of new thinking about how we can revitalise the maritime sector by doing right by the people who work in it.
Grahame Morris
I am grateful for the opportunity to speak on the new clauses.
New clause 7 is in my name and that of my hon. Friends the Members for Glasgow East and for Paisley and Renfrewshire North. We are using the F-word, aren’t we: fire and rehire. In the context of this new clause and new clause 5, I remind Members of the awful circumstances of the sacking of the seafarers on the P&O Ferries. The Minister has brushed aside all attempts by the Opposition to amend the Bill and address concerns about the number of days in port. That means that the Bill’s scope is incredibly narrow. I am afraid that many seafarers who might have anticipated being afforded a degree of protection will be terribly disappointed. Given the powers we have conferred on the Secretary of State, I think it is completely reasonable to suggest that the Government should produce a report within a year of Royal Assent to assess whether they have been effective. Indeed, the Minister and his predecessors have suggested that if those powers are not effective, further measures would be introduced to ensure that seafarers are protected from unscrupulous rogue employers.
New clause 5 relates to important issues that the Government need to address, not least the fact that the 2018 regulations were breached by P&O Ferries. When Peter Hebblethwaite, the chief executive of P&O Ferries, addressed a joint session of the Transport Committee and the Business, Energy and Industrial Strategy Committee—the hon. Member for Paisley and Renfrewshire North and I are members of the Transport Committee—he was quite open about the three areas of law that he had breached. In fact, he was quite boastful, which was shaming in my opinion. I believe that the 2018 regulations, which P&O Ferries breached, are up for revocation under the Retained EU Law (Revocation and Reform) Bill. I understand, however, that an agreement was reached to retain a number of labour protections in UK law, so I am looking to the Minister for some reassurance on that. If that is the case, I hope that appropriate action will be taken to keep those protections in place for those who Members on both sides of Committee acknowledge to be an extremely vulnerable employment group because of the nature of their work.
Before we lose sight of it, the whole purpose of the Bill is to protect pay, working hours, pensions and other remunerated conditions of seafarer employment on ferries. We rehearsed many of the arguments on Second Reading, and it is the belief of many on the Opposition Benches that the Bill’s scope needs to be widened to more effectively cover employment issues, as well as minimum pay, for seafarers working on those ferry routes.
I am rather disappointed about the seafarers’ charter. I know that it has had a number of iterations; we have at least two former Shipping Ministers on the Committee: the right hon. Member for South Holland and The Deepings and the hon. Member for Witney. I think it started off as the—this is a bit of a tongue-twister—fair ferries framework agreement. It was then the fair ferries charter and then the seafarers’ charter. But it still has not been published, as far as I am aware, and it is only voluntary. If it were in the Bill and we could have some confidence that employers would have to implement it, we would have major reassurance.
Mr Holden
I will write to the hon. Member for Easington on the specific issue of the Retained EU Law (Revocation and Reform) Bill. I will start now by saying that there have been some strong and robust improvements from this Bill, not the least of which is the imposition of a duty on the harbour operators, which I think goes a long way to addressing many of the concerns expressed at earlier stages by hon. Members.
I would like to reflect on a couple of comments from my hon. Friend the Member for Dover. She mentioned the bilateral agreements and how important they are. With us legislating in this way and other countries now starting to look to the legislation for their own societies, perhaps the hon. Member for Paisley and Renfrewshire North will reflect on how it is Britain leading the way in this space—a little.
In terms of the Laffer curve, I did not think I would see my right hon. Friend the Member for South Holland and The Deepings and the hon. Member for Wythenshawe and Sale East perhaps come out on the same side of things, but they do seem to have reflected a general, cross-party consensus that it is important to act in the best interests of working Britain. That is entirely what this legislation is designed to do.
Regarding fire and rehire, which has been mentioned by several hon. Members but is outside the scope of this Bill, I want to put it on record that BEIS will be launching a consultation and code of practice on fire and rehire shortly.
David Linden (Glasgow East) (SNP)
Can the Minister tell the Public Bill Committee how many consultations and letters BEIS has issued about fire and rehire? There is cross-party agreement in this House about what the problem is, so why do the Government have to take forward yet another consultation on it?
Mr Holden
I do speak for the Government but, on the specifics of what BEIS has been up to, I urge the hon. Member to speak to a BEIS Minister. But I do understand the broad thrust of his point. Where we are taking action here today is regarding seafarers.
The hon. Member makes quite an important point: how many consultations and reports can be had? The Opposition are currently proposing two more reports in their new clauses 5 and 7, both of which seek to legislate for the Government to produce a report. The first seeks to legislate for the Government to produce a report within six months of the Bill being passed on its implementation and monitoring. A number of the points that are sought to be included in such a report are well beyond the scope of the Bill. As hon. Members have said, the Bill is focused very much on the remuneration of seafarers who do not qualify for the national minimum wage. Six months after the Bill has been passed, there will be little to report on—hopefully very little indeed, as people will be complying with it. Indeed, the Bill will not be brought into force until secondary legislation is in place, and it is not expected that that will be the case within a short space of time after the Bill has passed.
Let me turn to the detail of the new clause, in particular subsection (2)(a). As a matter of course, we will be conducting a post-implementation review of the Act within five years of it being passed that will cover pensions and pay, as covered in the impact assessment. In any event, pensions and roster patterns are outside the scope of the Bill, and any effect on rostering would be indirect and challenging to distinguish from other factors.
Subsection (2)(b) goes beyond the implementation and monitoring of the Bill itself, and is therefore out of scope. We do not have plans to legislate further than is necessary, but that does not mean that we will not take action on areas beyond the matter of minimum pay, which we all know is not the only aspect of seafarer welfare that requires attention. As hon. Members have mentioned, as part of the nine-point plan, a new seafarers’ charter will be launched as a voluntary agreement, which aims to improve long-term employment and welfare conditions for seafarers. It covers a far wider range of employment protections than is currently covered by the Bill.
Gavin Newlands
The Minister confirms again that the seafarers’ charter, when it is published, will be voluntary. Does he think that P&O Ferries and other operators—perhaps Irish Ferries—will sign up to the charter?
While I am on my feet, I forgot to say in my earlier contribution that I also add my thanks to everyone on the Committee, given that this is my last contribution on the Committee. I thank the team, the Clerks, the Doorkeepers, Hansard and of course yourself, Ms Harris, and your glamorous assistant this afternoon, Mr Davies, who chaired us so ably this morning.
Mr Holden
I hope that people do sign up. The entire aim of the Bill is not to have people being fined but to drive best practice, so I hope that, in time, operators that have not operated in a positive way towards employees in the past, in a way that we would like to see, will sign up.
Karl Turner
The Minister must accept that, when we consider the shocking and utterly disgraceful behaviour of P&O Ferries, companies such as that—and Irish Ferries, which I respectfully submit is equally as bad—will not do anything if it is just a “hope”. We need to put things in statute to force these bad employers to behave in a way that is acceptable. That is the truth of it. Hoping is not enough; unlimited fines are necessary as well.
Mr Holden
As the hon. Member will know, we are indeed legislating, but we are looking at the seafarers’ charter. The Government are not opposed to looking at this again if the voluntary charter is not successful, but it steps in the right direction. We will see how it plays out. I do not want to see a race to the bottom; I want to see standards rising, and we think that the voluntary charter will be a step in that direction. We have had to legislate in order to deliver another element of what we are looking to do.
Karl Turner
The analogy for fining a company such as P&O Ferries 2,500 quid is a bit like slapping a parking ticket on the windscreen of a Bentley for parking in a disabled bay. They are just laughing at it. In reality, the fines need to be punitive. They need to be threatening and to make the company realise that if it behaves in this intolerable, disgraceful manner, it will be fined savagely and brought to justice. That is the only way we will get the results that the Government want—I agree that the Government intend to do the right thing, but we need the punitive tool to make it happen.
Mr Holden
I appreciate exactly what the hon. Gentleman is saying, but I think we have strayed a little from new clauses 5 and 7.
The scope of the Bill is limited to ensuring that seafarers are paid the equivalent of the UK national minimum wage and it is not concerned with broader relationships. Furthermore, there is no requirement for crews to be unionised, so it would be an unusual requirement to put so much focus on that, as the new clause proposes. That does not mean that the Government are not looking to work with the unions, as we have done throughout the process and will continue to, as we look at the regulations to come.
The requirement to publish a strategy for monitoring the establishment of corridors would also be out of the scope of the Bill. In any event, it would be inappropriate and potentially counterproductive to provide a running commentary on live negotiations with international partners, such as those with the French Republic, which I mentioned earlier.
On proposed subsection (2)(e), we do not consider that the proposals in the Bill interfere with rights and obligations under international law, including the United Nations convention on the law of the sea. We therefore we do not deem it necessary to state as such in the Bill, or to have an obligation to assess the interaction between international law and the Bill on the face of the legislation.
Measures taken under the Bill will not interfere with the right of innocent passage, so as to breach the obligations under UNCLOS. The Bill requirements will apply and be enforced only as a condition of entry to UK ports in which the UK has jurisdiction over visiting ships, and where the right of innocent passage does not apply. Vessels visiting a port are not in innocent passage and not merely passing through territorial sea, so associated restrictions on the exercise of jurisdiction as set out in UNCLOS do not apply.
The measures that may be taken under the Bill can be applied only to a narrow subset of services with a close connection to the UK: services on a regular scheduled service, determined by clear, objective criteria—for example, services for the carriage of persons or goods by ship between a place in the UK and a place outside the UK that will have entered the harbour on at least 120 occasions in the period of a year. Given the huge number of additional areas that the new clause would bring in scope, I cannot accept it.
New clause 7 would require an assessment of the impact of the Bill
“on the remuneration of seafarers”
and also whether there is any evidence that, as a result of the Bill,
“seafarers have been dismissed and re-engaged on lower wages at or closer to the National Minimum Wage”
within one year of the Bill being passed. This is simply not feasible. Again, one year after the Bill receives Royal Assent would be far too early to see the real impact. I have already made the point that we will naturally be looking at the legislation five years after implementation. Also, as I have said, there will already be a delay between Royal Assent and the Bill becoming fully operative.
In any event, it is not necessary to include that as a requirement on the face of the Bill. As a matter of course, we will conduct a post-implementation review. I hope I have provided colleagues with enough reassurance to withdraw new clause 7 with confidence.
Question put, That the clause be read a Second time.
David Linden
I beg to move, That the clause be read a Second time.
It is a great pleasure to serve under your chairmanship, Ms Harris. I am conscious that I am the only thing stopping people getting out of this room, but I want to reflect on the fact that the Minister said, “Let’s not look at commissioning reports.” I do not necessarily agree and I did not vote that way, and actually, new clause 9 is specifically about putting into statute how to deal with some of the directors. For the remainder of the debate, I will refer to the new clause as “the Hebblethwaite amendment”.
Throughout this Committee’s proceedings, we have spoken about the importance of teeth and of tightening things up. One reason why we have come to this point and why the legislation is necessary in the first place is the actions of company directors and bosses who have decided to act in such a way as to exploit the workers, as was the case at P&O. If we are going so far as to pass the Bill, which the SNP supports—although we would have liked to have seen more amendments to it—let us at least make sure that it has the teeth to deal with the some of these individuals, who are not exactly reputable.
Let us start with Peter Hebblethwaite, the CEO of P&O, who was paid £325,000 a year before bonuses. Let us remember that this is a man who admitted to a Select Committee of this House that he knew that the action he was undertaking as company director was illegal, but he proceeded anyway, and he had the gall to say that he would do it again.
I absolutely agree with the RMT’s general secretary, Mick Lynch, who said:
“Gangster capitalists should not be rewarded for their appalling employment practices; they should be punished with the full force of law.”
That is exactly what my new clause seeks to do: to make sure that we have in statute the ability to deal with these capitalist gangsters who seek to ride roughshod over seafarers, if hon. Members will pardon the pun.
Let us not forget that this man was responsible for the unlawful sacking of 786 seafarers by a pre-recorded message on Zoom in March last year. He is already out there promoting himself again, scot-free—I think he has had a promotion at DP World. The kind of person this legislation would manage to tackle, if they fell foul of it, is one who admitted breaking the law when questioned by members of a Select Committee, as I said, and who used handcuff-trained, balaclava-wearing security guards to remove dedicated, unionised seafarers, replacing them with non-unionised workers, many of whom are paid a fraction of the UK minimum wage. After experienced crew were fired, the UK coastguard repeatedly detained P&O Ferries’ ships for a lack of crew training, including fire safety and lifeboat drills. He was responsible for a non-unionised P&O Ferries crew from Malta working 17 weeks straight with no shore leave. Let us not forget that this is a gentleman whose company took millions of pounds from the British Government in subsidies during covid-19. I could go on about how utterly unfit Peter Hebblethwaite is, and how he has caused so much distress to many constituents of the hon. Member for Dover.
Karl Turner
Is it right that an obvious calculation that would have been made about sacking 786 British seafarers and replacing them with exploited, poorly paid staff was that nothing was going to be done in terms of person liability? It was almost encouraged. Indeed, I would go further to say that it was done on the basis that, first, nothing would happen personally, and secondly, this particular Tory Government would turn a blind eye. That is the truth of what happened, is it not?
David Linden
The hon. Member is spot on. The reality is that this gentleman factored in that he would appear before a Select Committee, that it would be uncomfortable and that he would probably have to get some crisis comms advice. I rather suspect that Peter Hebblethwaite is walking around waving the fact that he has been able to withstand all this pressure from Parliament as a feather in his cap. He will see it as some sort of virtue that he can sell to future employers. The hon. Member is absolutely spot on: the fact that there is no personal liability means that these kinds of directors will behave with impunity.
New clause 9 does not mandate Members to vote for a report. It mandates us, on a moral basis, to vote for action to ensure that a company director who was as egregious as Peter Hebblethwaite can never again get away with that. Members of this House have a responsibility to stand up for their constituents. On that basis, I have tabled the new clause.
Mrs Elphicke
I wish to speak about this new clause, because we are all of the view that Peter Hebblethwaite should not be allowed to be a director. I made a formal complaint to the Insolvency Service on directors disqualification for the whole of that board. The Insolvency Service has still not completed its civil proceedings, although it has said that it is not minded to take criminal proceedings. It is clearly unacceptable that company bosses are allowed to act in that way and that directors disqualification does not apply.
This is a specific Bill dealing with a specific set of circumstances. I would like the relevant Department to look at why the Company Directors Disqualification Act 1986 and the criminal obligations in the Insolvency Service did not apply to this specific case. I have made representations to the appropriate Ministers accordingly.
I completely agree with the sentiments expressed by the hon. Member for Kingston upon Hull East, except his view that the Government have not taken any action. Throughout the P&O situation, we have walked literally shoulder to shoulder in support of people.
Karl Turner
I think the hon. Lady misunderstood what I said; perhaps I was not clear enough. I did not say that the Government have not taken action. Of course they have—we have a Bill. That is a start. It is not strong enough by any stretch of the imagination, frankly, but it is a start, and I commend the Ministers who were responsible for putting it together on an incredibly speedy timescale. However, the fact is that the calculation was made that the Government would turn a blind eye. That is the suggestion that I put to the Committee, and I think it is right. That was the reality of it—that nothing would happen.
Mrs Elphicke
I thank the hon. Gentleman for that intervention. That is clearly rubbish, because the Government at the time, including the then Secretary of State, my right hon. Friend the Member for Welwyn Hatfield (Grant Shapps), took immediate action—action that no one expected to be taken—as did the Minister at the time, my hon. Friend the Member for Witney. I was involved directly in that action along with the then Secretary of State, the then Prime Minister and a number of Government Ministers, including my hon. Friend the Member for Witney, in relation to this issue. That action is the reason why we have the nine-point plan and why we have the Bill.
Opposition Members will always say that whatever the Government do does not go far enough. However, I have to say, in representing the people in Dover who were specifically affected by P&O, that I am very proud of the action that we have taken across the Chamber and so far in this House. I want to see the Bill put on the statute book at pace.
David Linden
The hon. Lady is talking about the importance of taking action. Other than a pretty toe-curling Select Committee appearance and a couple of bad media interviews, the only action I have seen so far is that Peter Hebblethwaite has received a promotion. He is still able to act as a company director, so for the sake of the hon. Lady’s constituents, I ask her to reflect on the fact that until such a time as Peter Hebblethwaite is unable to act as a director and get away with such behaviour in future, that action will not be enough.
Mrs Elphicke
As I said, I do not think that Peter Hebblethwaite should be a director and I am taking steps to ask the Insolvency Service to remove him.
Mrs Elphicke
I will come back to the hon. Gentleman in a moment. What we have seen with P&O is why I think the right place for tackling this is through the Department for Business, Energy and Industrial Strategy, which I have been encouraging to look at this issue. P&O did not do this once or twice, but three times: it promoted someone to be chief executive who did what the bosses wanted, and then that person either got a payout and got moved on, or got a payout and got promoted. We have seen a pattern of behaviour where people at the senior level have been rewarded for doing what is in the owners’ interests, to the detriment of the company as a whole. We need to look at that, because that pattern of business behaviour is very clear on the face of it and it ought to have been clear to Companies House. We should look at that in relation to not just P&O, but other companies.
Karl Turner
I am sorry that the hon. Lady thinks what I said was “clearly rubbish”. The point that I was making—I will try to be calm—is that there was no deterrent. That should be the test. If she is satisfied that the Bill will deter all the bad employers from potentially following suit and making the same calculation—that things cannot be affected in a way that deters them from taking such terrible actions—that is fine, and she is content with the Bill. My point is that the Bill does not provide a deterrent, but the new clause proposed by the hon. Member for Glasgow East definitely does by making that director personally liable.
Mrs Elphicke
I think we have already explored how adding the odd report here or there will not be the game changer that is needed to ensure that acts like this do not happen again. That is why the Bill is part of an overall strategy and a nine-point plan, as the Government have set out.
New clause 9 would go considerably further than the obligations that already apply to non-compliance with the minimum wage regime. That regime includes criminal and civil penalties, so I do not think that the new clause would sit with the existing provisions on the statute book for civil and criminal liability in relation to the minimum wage regime. It is important that enforcement is effective and that it works. New provisions should fit in with existing legislation, and not conflict with or confuse it.
I fully share the sentiment of making those responsible for P&O—not just Peter Hebblethwaite but other directors on the board—personally criminally responsible, but unfortunately the new clause does not get us to that position. Personal liability is not just about wages; we need to ensure that there is appropriate liability and responsibility for the very serious issues that we have discussed with respect to safety at sea. Although I support the sentiment behind the new clause, I do not think that it would achieve the objectives that have been expressed.
Karl Turner
I had not intended to speak, but I am afraid that I have been motivated by the hon. Member for Dover to say a few words. I am confused. I am not trying to be awkward or to put her under any particular pressure, but I am truly confused by her suggestion that the new clause does not fit, as I think she said, with minimum wage legislation. Frankly, that is just nonsense. She will have to answer to her constituents who go on those ferries day in, day out—passengers, not crew.
The tragedy is that, because of what P&O Ferries did, the crew are exploited foreign workers. The passengers are probably worried, as I would be if I was travelling on one of those ferries, about seafarer fatigue. They are probably worried about the fact that people are doing 17 weeks with very few rest breaks. They are working seven days a week, for 12 and 13 hours a day, and might be charged for accommodation and grub. That is the problem that people will foresee. Respectfully, the hon. Member should think carefully about not supporting the new clause. It is no good saying that she respects the sentiment; she ought to agree with the new clause and vote with the Opposition.
Mrs Elphicke
I thank the hon. Gentleman for giving way, and I ask for a bit of latitude in responding. It is disappointing that Opposition Members are determined to get their headlines and try to make a point of difference. They are trying to say that we on the Government Benches are not working for the people and the seafarers when we are the people leading this legislation. I was clear that the new clause does not go so far as to work for safety. On rosters, asking for a report is not a serious attempt to deal with the issue. We know that a serious attempt will mean the rosters being dealt with outside this legislation. The Minister has set out issues in relation to—
Karl Turner
Thank you, Ms Harris, but I have to answer the hon. Lady. After the terrible incident in which P&O Ferries sacked 786 men and women British seafarers with the deliberate intent of replacing them with exploited people who are on £2 or £3 an hour, what came next was the MCA tying vessels up—arresting those P&O ferries—because they were not considered safe. I am sticking within the scope of the new clause, Ms Harris. I think there are one or two of us here who are lawyers; there are at least two barristers on the Conservative Benches and, although it has been a long time since I was in practice, I am certainly qualified as a lawyer. To those of us who are lawyers, the very idea that those directors should not be held responsible in law and there is going to be no personal liability is just—[Interruption.] I am sorry if the Minister—the yawning Minister—is incredibly bored. He must forgive me if I am keeping him awake. This is an important point. The idea that personal liability should not apply is frankly pathetic. [Interruption.] I am not trying to make a political point. [Interruption.]
The Chair
Order. This is not appropriate behaviour from either side. I call Karl Turner to finish up.
Karl Turner
I was accused of making a political point. I am not. I have to answer, Ms Harris; I cannot be accused of making a political point when I am not.
The reality is that the new clause would provide some deterrents. Currently, the Bill contains no real deterrent. I want to work with the Government.
Gavin Newlands
Does the hon. Gentleman not share my astonishment at some of the comments from the hon. Member for Dover and the right hon. Member for South Holland and The Deepings, who said they could not support new clauses and amendments because they did not go far enough—that ire should be directed at the Minister—yet here we have a new clause that confers personal liability and they cannot back that either?
Karl Turner
I agree entirely with the hon. Gentleman. This new clause would provide an actual deterrent to prevent other bad employers from copying what happened with P&O Ferries. I can see that I am testing the patience of the Chair, so I am going to conclude there. Thank you for your indulgence, Ms Harris.
Mr Holden
Just before we finish, I want to say that it is a pleasure to have served under your chairmanship this afternoon, Ms Harris. We are both virgins on the Bill Committee Front Benches in our respective ways, under the supreme guidance of Mr Davies, which has been superb.
The new clause would create criminal offences for directors of companies operating a service to which the Bill applies where the service is operated inconsistently with an equivalence declaration or the operator has failed to comply with a request for a declaration. While I understand and share the anger against some of the bosses who, as my hon. Friend the Member for Dover mentioned, carry out such underhand employment practices, introducing such offences to the Bill would not improve its effectiveness. There is already a robust compliance mechanism that will provide a severe disincentive against operators that pay less than the national minimum wage equivalent.
Lia Nici (Great Grimsby) (Con)
This is the Seafarers’ Wages Bill, and I think we all agree, across the House, that further action and other Bills are needed. However, this Bill will be a disincentive to companies that think they can act improperly and take on cheap foreign labour rather than looking after staff on a proper minimum wage or more. That is exactly what the Bill is meant to do.
Mr Holden
My hon. Friend makes a very sensible point. The Bill is a big step in the right direction in delivering for seafarers and countering some of the issues we have seen.
It will already be a criminal offence for operators to operate a service inconsistent with a declaration, and we do not think it is necessary for directors to be held personally liable for that offence. It would not be appropriate for directors to be guilty of an offence of failing to provide a declaration, as there is no obligation for them to do so. While the intention is that surcharges will be a sufficient disincentive against operators failing to pay at least the national minimum wage equivalent, it is open to operators not to provide an equivalence declaration, in which case surcharges will be imposed.
The existing compliance mechanism of surcharges for failure to provide a declaration and the criminal offences for operating inconsistently with a declaration will have considerable financial and reputational implications for operators. I do not think anybody here today can say that P&O Ferries has not experienced a reputational impact—not only that, but a legislative impact—from its behaviour over the last few years. Personal liability for directors is therefore not necessary.
I want to leave one thought in the minds of hon. Members on both sides of the Committee. The Insolvency Service is currently undertaking a civil investigation, which, among other things, will assess various individuals’ fitness to be directors.
Mr Holden
As the hon. Member knows all too well, he and I are very much on the same page and would like the Insolvency Service to report as soon as possible, but it is an independent organisation and we cannot comment on ongoing investigations. The entire basis of the new clause tabled by the hon. Member for Glasgow East, which Opposition Back Benchers have spoken about too—that they want something that could disqualify someone—is there in what is being looked at. It is maintained via the Insolvency Service. While I cannot comment on the individual case, I think it is clear that what everybody wants to achieve is already there. I understand why Members are trying to invent another offence, but it is not necessary, as what the hon. Member for Glasgow East seeks to achieve can already be done through current legislation.
David Linden
I am not sure that is the case, given that Peter Hebblethwaite can continue to act with impunity and had a promotion recently.
I will not seek to make this party political; I have been tempted to in the past, but I will not. I was interested in the point the hon. Member for Dover made in an exchange that was probably the hottest point of our proceedings today. I offer a hand of friendship; I will act as the Cilla Black of Parliament and bring us all together. If the hon. Lady says that she appreciates the sentiment behind new clause 9 but wants it to go further, I am happy to work with her.
On that basis, I will not press the new clause to a Division in Committee, but I ask the hon. Lady to join me for a cup of tea at some point to help me look at how to strengthen it. Then we can bring it back for a vote on the Floor of the House during remaining stages. I beg to ask leave to withdraw the motion.
Clause, by leave, withdrawn.
Bill, as amended, to be reported.
Royal Assent
Thursday 23rd March 2023
(1 year, 8 months ago)
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