Earl Attlee
My Lords, I congratulate my noble friend Lord Ribeiro on securing the reintroduction of this Bill, which seeks to amend the Health Act 2006 to make provision for a ban on smoking in private vehicles where there are children present. The Government welcome the role that my noble friend’s Private Member’s Bill has played in bringing this important issue to the attention of your Lordships’ House.
In answer to my noble friend Lady Gardner of Parkes, the good news is that this House can carefully consider a Private Member’s Bill. I have had exactly the same experience as my noble friend with my Road Traffic (Enforcement Powers) Bill. But how another place conducts its business is of course not a matter for me.
In addition, we have seen a valuable contribution to raising awareness and stimulating public debate on second-hand smoke achieved through the introduction of a similar Private Member’s Bill last year in another place, the All-Party Parliamentary Group on Smoking and Health’s inquiry and report on second-hand smoke, the Royal College of Physicians’ 2010 report entitled Passive Smoking and Children, and recent campaigns by the British Medical Association and the British Lung Foundation.
Smoke-free legislation has been in place since 2007. These laws have been particularly effective in reducing exposure to harmful second-hand smoke in enclosed public and work places. Smoke-free legislation is popular and levels of compliance are high. We need to maintain that. However, we cannot escape the fact that it is now enclosed places that are not covered by smoke-free laws where people are likely to be exposed to second-hand smoke, including homes and family cars. Importantly, research shows that there has not been displacement of smoking into the home since smoke-free legislation came into place. In fact, more and more people are making their homes entirely smoke free, and that can be only good news.
My noble friend Lady Gardner of Parkes mentioned the problem of smoke from outside smoking areas adversely affecting other residential smoke-free areas. I am aware of this, but it does not mean that the existing legislation is flawed. She asked whether local authorities could be granted powers to introduce by-laws to protect people from second-hand smoke in outdoor public areas. Local communities and organisations may also wish to go further than the requirements of smoke-free laws by creating environments free from second-hand smoke—for example, in children’s playgrounds and outdoor parts of shopping centres. This can also help to shape positive social norms and discourage the use of tobacco and has been introduced using voluntary mechanisms by some local authorities. Local authorities that have introduced smoke-free outdoor places will have done so voluntarily—for example, in children’s playgrounds that are the property of local authorities, and where a condition of entry is that smoking does not take place and signs are put in place. Local authorities do not need by-laws to do this.
I am sure that we would all like to see the end of smoking in cars in which children are being conveyed. There is a diversity of opinion on how to reduce exposure to second-hand smoke in the places not covered by smoke-free laws. The question is: how do we encourage smokers to modify their behaviour for the benefit of the health of others in private spaces such as the home and family car? For example, many, including my noble friend Lord Ribeiro, have called for legislation to prohibit smoking in private vehicles. Others say that the best way to afford protection from second-hand smoke is to encourage smokers to quit for good. The Government have an assertive and comprehensive tobacco control plan to reduce smoking rates and stop the uptake of smoking by young people.
As we have been reminded today, evidence of the harm to children from second-hand smoke is well documented, and that many children continue to be exposed, whether in family cars or in the home. I am sure that my noble friend Lord Ribeiro has convinced the House on the technical points. A key factor to assess when considering his Bill is that we do not know what proportion of the ill health among children attributable to second-hand smoke results from exposure in cars. It follows that we are not able to estimate what the likely impact on child health would be from the ban that the Bill would introduce. This problem is compounded by the likely problems of whether such a ban could be enforced in practice.
Smoke-free legislation in England, covering enclosed workplaces and public places, including public transport, is enforced by local authorities. Local authority officers do not have powers to stop vehicles in progress or even to detain those that have stopped. Even if the officers had such powers, in practice it is likely that they could not be exercised safely without the assistance of the police, extensive training and resource. Without being authorised to stop vehicles or easily identify offenders, enforcement by local authorities would be difficult. Therefore, we consider that the only realistic option would be for the police to enforce any ban on smoking in private cars. This additional task may not be welcomed by the police, on top of their many other responsibilities. The practicalities of enforcement may also be further complicated by the fact that small children may not be easily visible from outside the vehicle, and it may be difficult to identify whether passengers in a car where someone is smoking are under the age of 18. I do not believe that we should legislate in this area without first identifying how any law could be enforced effectively.
Additionally, there is the issue of creating new criminal offences or extending the locations in which current criminal offences are committed—a point made by my noble friend Lord Colwyn. The Government believe that we ought first to consider whether there are other more effective methods of reaching out to parents and other adult smokers to encourage them to want to modify their smoking behaviour to protect others, particularly children.
When considering legislation that seeks to require changes in the behaviour of people in private vehicles for public health rather than road safety reasons, we also need to consider human rights aspects. These might include whether there might be unjustified interference with people’s private space. I acknowledge, however, that such arguments need to be balanced against the rights of children to be protected from harm. One noble Baroness suggested a total ban on smoking in a vehicle. In human rights terms, that might well be a step too far, given the current levels of smoking in the general population.
Your Lordships will be aware that in the Tobacco Control Plan for England, published in March 2011, the Government undertook to run a marketing campaign aimed at raising awareness about the dangers of smoking in vehicles and in the home, particularly when children are present. This campaign ran after Easter and aimed to encourage positive behaviour change among smoking parents and other smokers in those places. I watch little TV but was certainly aware of the campaign. The Department of Health will be carrying out a full evaluation of the campaign, which will give us further information on changes in attitudes and behaviours in relation to smoking in the home and car and on quit attempts generated by the campaign. The results of this will be available for further consideration in the autumn. In answer to the noble Lord, Lord Collins, we will assess the effects of the campaign before determining what to do next to change behaviour.
The results of the campaign were very encouraging and we have some basic data on its results, including the fact that the campaign prompted nearly half a million visits to the smokefree website, which provided information on second-hand smoke, compared with 100,000 visits the year before. Well over 60,000 smoke-free kits were requested and delivered to families in response to the advertising campaign. We saw a parallel increase in quit-kit orders during the campaign and have sent out almost 40,000 of the kits since the campaign was launched. The evaluation will help to inform decisions about what other action, if any, is required to address the issue of second-hand smoke in the home and family cars.
My noble friend Lady Gardner of Parkes talked about dental issues arising from smoking. There is a clear link between smoking and dental health. Smoking is a cause of peritonitis, as well as oral cancer. However, we are not aware of any evidence that there is a link between second-hand smoke and dental health problems.
I was asked why we do not approach the problem from a different perspective and prohibit drivers from smoking in all motor vehicles on the grounds that this distracts them from driving safely. The noble Lord, Lord Collins, asked whether this was a road safety issue. I agree that smoking at the wheel of any road vehicle can cause driver-distraction, as lighting up and using smoking materials means that one’s hands are removed from the steering wheel. However, the Government have no proposals to introduce the same penalties for smoking while driving a vehicle as for using a hand-held mobile phone while driving a vehicle. There are many potential distractions while driving and it remains the driver’s responsibility to drive safely at all times.
The police use the existing offence of failing to have proper control, under Section 41D of the Road Traffic Act 1988, to deal with those who are distracted while driving. This attracts similar penalties to those for the specific offence of driving while using a hand-held mobile phone. It is worth noting that introducing a new law to ban smoking in cars only by drivers would not solve the public health problem that prompted my noble friend Lord Ribeiro to introduce his Bill. Other passengers in the car, either in the passenger seat or in the rear of the car, would still be able to smoke, and children and adults would still be exposed to the harms of second-hand smoke.
The Government are not persuaded that legislating for smoke-free cars is the best approach at this time. We believe that some significant issues need to be resolved before such legislation can be contemplated. None the less, I congratulate my noble friend on his efforts.