The Parliamentary Under-Secretary of State, Department for Environment, Food and Rural Affairs (Lord De Mauley)
My Lords, I thank my noble friend Lord Marlesford for introducing his Bill. Like my noble friend Lord Lawson, I congratulate him on his persistence. I know that this is an issue he cares deeply about, as do other noble Lords, and I share that concern. Like him and the noble Lord, Lord Mawson, I regularly collect litter along the road which runs past my house. Let me make clear that it is thoroughly irresponsible to throw litter from vehicles, as it is to litter in any other way. It is important that we find an effective way to bring home to people that throwing litter from car windows is unacceptable behaviour.
I agree with my noble friend that roadside litter is a blight on some areas of England. I travel around the country carrying out my role and clearly notice that while some parts of the country are clean, others are regrettably less so. This reinforces the fact that those responsible for tackling littering all take slightly different approaches to fulfilling their responsibilities and that some are more successful than others.
What has come out of this debate today, among other important things, is that littering from vehicles has always been a difficult problem to solve. The sense of anonymity that the litterer appears to feel while encased in his car only serves to accentuate that problem. Unfortunately, for many people it seems that it is almost second nature. When confronted with an empty drinks can or a chocolate wrapper in their box on wheels, they see throwing it out of the window as an acceptable course of action, rather than, as they should, taking it home with them.
The high-profile case of the broadcaster Alice Arnold who, like my noble friend Lord Shrewsbury, took matters into her own hands and delivered a discarded plastic bottle back to its owner while at a set of traffic lights near Hampton Court, led to her being hailed a national heroine. This highlighted the strength of feeling that many of us have about this matter and the need for action. We also need to ensure that any such action is based on sound evidence in order for it to be effective and to make a difference.
Throwing litter from vehicles is already a criminal offence under Section 87 of the Environmental Protection Act 1990. There already are considerable penalties for those who litter, including prosecution in a magistrates’ court where an offender can be fined up to £2,500 and acquire a criminal record. As an alternative to prosecution, a local authority enforcement officer can issue offenders with an on-the-spot fixed penalty of up to £80. The threat of a criminal record for throwing away a piece of litter can act as a strong deterrent, especially as it could have implications for the offender’s career and finances.
However, the seriousness of these consequences also means that it is important that enforcement officers have good evidence which would stand up in court before issuing a fixed penalty notice for littering. When litter is thrown from a vehicle I know that it is not always easy for enforcement officers to know exactly who threw it, especially if the vehicle is moving.
As he explained, through his Bill, my noble friend seeks to enable local authorities to issue civil penalties to the registered keeper of a vehicle if someone inside his vehicle jettisons litter. The key point in his proposal would remove the problem currently faced by enforcement officers of identifying the littering offender with the degree of certainty that would be required for a criminal prosecution. Essentially, this Bill says that we do not quite know who committed this crime but someone should pay, so we will punish the only person we can identify.
The Bill is similar to provisions brought in under the ninth and 10th London Local Authorities Acts, to which several noble Lords have referred, which apply only in London. These powers, which were introduced with the support of London Councils and came fully into force in June 2012, allow London boroughs to issue a civil penalty to the registered keeper of a vehicle where enforcement officers witness littering from it. My department is closely watching this new approach. We have already started the process with London Councils of examining how effective this legislation is and whether it provides a viable way forward in tackling this issue nationally.
However, I have to tell my noble friend that London Councils tells us that there are some emerging questions. Most importantly, as yet none of the London boroughs has issued a single civil penalty notice for littering using the new powers. As a result, as yet we have no data on whether the civil penalty for littering from vehicles in London has been effective in reducing littering behaviour. As the London boroughs have been aware that these powers were coming since the ninth London Local Authorities Act was passed in 2007, this delay in beginning to use the powers in itself seems to suggest that setting up and operating this new approach is not quite as simple as it may seem.
We understand that two boroughs were expected to begin piloting the new approach late last year but they seem to have faced some delays, particularly in setting up the new appeals system. Other boroughs have mentioned difficulties in identifying littering offences using CCTV cameras—the noble Lord, Lord Knight, asked about that—or the need to reorganise their back office functions to handle enforcement of both civil contraventions and criminal littering offences.
Another borough mentioned the anomaly that the new powers create in that littering is a criminal offence if it occurs outside in the open air but it is decriminalised once it occurs from inside a vehicle. We know that some motoring organisations have expressed concern that making the owner of a vehicle responsible for all littering from it regardless of who committed the offence could be seen as an infringement of an owner’s civil liberties, which of course we want to avoid.
I sympathise strongly with my noble friend’s impatience. We all want to see a reduction in this problem. The approach taken in London may ultimately show us the way forward but, until it has had significant practical use, we will not know for sure whether it makes it easier for enforcement officers to take effective action and whether that, in turn, would lead to a reduction in litter on our streets.
However, the issuing of fines is not and cannot be the only answer. With the best will in the world, enforcement officers cannot be everywhere at once and the use of CCTV does not appear to be a magic bullet. Apprehending those who litter at night, at speed, in isolated areas or on quiet rural roads, which many noble Lords were concerned about, will remain difficult.
If we are to tackle the problem effectively, changing people’s behaviour is essential, as my noble friend Lord Cormack said. If people did not feel it to be acceptable to throw their litter out of their car windows, the problem would not exist. As I said in response to the proposals of my noble friend Lord Clement-Jones on leafleting a couple of weeks ago, we believe that the most effective way to change people’s behaviour is to change their attitudes to littering. Changing legislation is not the only answer or even the best solution.
The fact that littering is a criminal offence reflects the unacceptable and harmful nature of this behaviour and it has a certain deterrent effect. Treating littering from vehicles as a civil contravention may make it easier for local authorities to tackle the problem but there is also a risk of sending the wrong message about the seriousness of this conduct.
Of course, the balance between taking action against polluters, criminals and those who persistently behave in an anti-social way while protecting the civil liberties of law-abiding citizens is a delicate one, but we must do our best to get it right. Ultimately, we believe in treating people as adults and providing the freedom to do the right thing, rather than simply making it easier for enforcement officers to fine someone—anyone— whether or not they have got the real culprit.
I referred to the need to change people’s attitudes, as did the noble Lord, Lord Judd, very sensitively. We continue to back Keep Britain Tidy’s call to action. The Love Where You Live initiative works with businesses, local authorities and civil society organisations to make an important contribution to behaviour change on littering in all its forms and to enable local authorities, civil society groups and communities to take local action together to improve their neighbourhoods and engender renewed civic pride.
As part of the Love Where You Live initiative, a meeting of representatives from the vehicle sector, trade associations, the Highways Agency, local authorities and civic society groups convened last year to discuss littering from vehicles in general with a view to agreeing a voluntary commitment to raising its profile. Actions arising included commitments by bodies such as the Society of Motor Manufacturers and Traders, the British Parking Association and the British Vehicle Rental and Leasing Association to carry anti-littering messaging on their websites and vehicles; to build an anti-littering message into their training programmes; and to provide more facilities for disposing of litter, whether it be in cars or outside the wall of a pub or coffee house. These changes are simple and achievable and I thank all of those who got involved at the time and are continuing to do so now.
We have also raised awareness with other government departments. This collaborative approach, with, for example, the Highways Agency, can be seen in the electronic message signs over a number of motorways or the large banners at motorway slip roads advising drivers to dispose of their litter in a responsible manner. Of course, still more could be achieved by vehicle hirers, motoring associations, manufacturers and service stations.
I should like to comment briefly on Part 2 of the Bill, which would require local authorities to publish, at least once in a financial year, the names of any organisations with which they are contracted to collect litter and the amount paid for this service. I understand that one aim of this proposal is to enable anyone with a complaint about a particular problem to contact the relevant contractors directly. This proposal would constitute a move in the opposite direction from the decision made by the Government in 2010 to relieve local authorities of the burdensome requirement to report information about street cleaning to central government. This requirement had until then been part of a national indicator set for local authorities to report against, which we have now abolished. To reintroduce such a requirement, as the Bill would do, would be an added administrative and financial burden on local authorities and would undermine the principles of localism for very uncertain gains. Much of this information is already published or available through existing access to information legislation, with suitable safeguards to protect commercially sensitive information. Forcing the blanket publication of contracts in this way could also undermine a local authority’s ability to negotiate competitive contracts for street cleansing and waste management, thereby further increasing the cost of these services to the taxpayer. It is surely also reasonable for local authorities to determine for themselves how and to whom people should report concerns. If people are reporting incidents directly to cleaning contractors, it may make it more difficult for the local authority to monitor the performance of its contractor’s obligations.
Turning to noble Lords’ questions, my noble friend Lord Marlesford ragged me and suggested that there had been a too brief consultation on the Bill. These are not government proposals so, of course, we have not conducted a consultation. However, we wanted to know what some local authorities thought about this Bill and views were sought via the Keep Britain Tidy membership network, the Association of Directors of Environment, Economy, Planning and Transport and London Councils. We were pleased that we received 27 responses within the time available. The views they expressed were mixed. Some local authorities think that it is too costly and complicated to pursue offenders for littering from vehicles. Others were concerned that the potential for different fines for the same offence depending on whether it was criminal or civil, or that the increase in enforcement action, would lead to fewer fines being paid. Some also expressed concern at disclosing details of contracts, citing commercial confidentiality issues.
My noble friend Lord Lawson charged me with speaking to my right honourable friend the Secretary of State about this debate—of course I will. The noble Lord, Lord Judd, referred to difficulties in moving new estates into local authority responsibility. I will talk to the Department for Communities and Local Government about that and write to him, if I may.
My noble friend Lord Shrewsbury suggested deposits on bottles and referred to legislation in place in certain states in America. I seem to remember that in my youth there were deposits on Ribena bottles. We have looked at this idea, which is in use in several US states, as part of our consideration of our packaging recycling targets. Unfortunately, the costs identified by the review appeared to outweigh the benefits, but I am happy to meet my noble friend to discuss this research further if that would be helpful to him.
The noble Lord, Lord Mawson, referred to the removal of national indicators. As I said earlier, a decision was taken in 2010 to relieve councils of the burden of reporting. Of course, a statutory duty on councils to clear litter and refuse remains. The standards to be achieved are set out in the Code of Practice on Litter and Refuse. As a matter of interest, Keep Britain Tidy’s annual local environment survey for England, which is based on the same set of indicators, shows that litter levels have remained much the same over the past decade.
The noble Lord, Lord Knight, asked who would enforce the Littering from Vehicles Bill. Of course, it is my noble friend Lord Marlesford’s Bill but my understanding is that the powers will be enforced by a civil enforcement officer, who would be either an employee of the local authority or the employee of a contractor of that authority employed to act as a civil enforcement officer. The noble Lord also asked whether local authorities would be able to keep the income and what would happen to it. My noble friend’s Bill says how penalty charge receipts are to be used. Under Schedule 4 to the London Local Authorities Act 2007, London boroughs are required to,
“keep an account of their income and expenditure in respect of the administration and enforcement of section 61 (penalty charges) of this Act”.
At the end of the financial year, any deficits should be made good out of the council’s general rate fund. If there is a surplus, the borough is required to apply this,
“to purposes connected with the improvement of the amenity of the area of the council or any part of that area”.
I assure my noble friend that we are not closed to the possibility of national legislation to tackle littering from vehicles but, as I hope I have explained, a number of significant issues need to be resolved before we decide to roll out the powers in the London Local Authorities Act to the whole country. So far, London local authorities have had more than five years to prepare for the introduction and implementation of these changes but it has evidently not proven as simple as might have been hoped. As a result, we still do not know whether the new powers actually work effectively to reduce littering. Until we have that evidence—until we are sure that simply issuing more fines for littering from vehicles will change people’s behaviour and lead to a real reduction in littering, and that decriminalisation does not send the wrong message about the seriousness of the offence in question—it would be premature to extend these potentially controversial powers nationwide.
I must express my reservations about my noble friend’s Bill. However, my noble friend has made and continues to make a really important point: litter is a blight and litter from vehicles is an important element of that. My noble friend wants to deal with it. I want to deal with it. I would be more than happy to arrange a meeting in my office for my noble friend to meet the relevant people from the local authorities trying out this method in London so that we can explore it together and see whether this is the best way to tackle it.