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The Parliamentary Under-Secretary of State for Business, Energy and Industrial Strategy (Margot James)
It is a pleasure to serve under your chairmanship, Mrs Moon. I congratulate the hon. Member for Warrington North (Helen Jones) on introducing the debate on the closure of retail stores on Boxing day. I must be of a similar vintage, because I can recall when there was no shopping whatever on Boxing day. I have great sympathy with some of her comments on the many changes that our society has undergone since those days.
Even in those days, however, people still worked on Boxing day. People in retail might not have worked, but I remember going to my first football match, Chelsea versus Ipswich, on Boxing day. That match employed a lot of people, as do horse racing and many other sporting events that used to take place on Boxing day, and still do.
Also like the hon. Lady, I can attest to the exhausting nature of work in the retail sector. I would hardly call my time in retail a career, but I worked in a shop for about six months—obviously a great deal less than my hon. Friend the Member for Morley and Outwood (Andrea Jenkyns), who colourfully described her extensive career and experience in the retail sector. Retail is an exhausting occupation on any day of the year. I completely agree that it is particularly exhausting in the run-up to Christmas, and I have great sympathy with workers who, as the hon. Member for Sefton Central (Bill Esterson) said, work until late on Christmas eve and have to be back at work on Boxing day, sometimes as early as 3 o’clock in the morning. When he asks what sort of Christmas that is, I agree with his sentiment.
Christmas is a time for family, which is why one of my constituents, community worker Julie Lees, signed this petition. She is fed up of losing some younger adults in her family to the world of work on Boxing day. There is no doubt that there is considerable feeling about the issue, as expressed in the debate. That feeling prompted the e-petition, which has now reached more than 140,000 signatures. I understand those who feel it unnecessary for shops to be open so soon after Christmas. Many points have been made about other sectors that are busy working straight after Christmas and about online trade, which I will address in a little more depth.
For a number of reasons, the Government do not support an outright ban on shops opening on Boxing day. Boxing day is a bank holiday, and the Banking and Financial Dealings Act 1971 specifies which days are to be bank holidays and contains provisions for appointing additional or substitute days. Additional bank holidays, including those created after 1971, are appointed by royal proclamation in early summer each year for the coming year. Bank holidays are so called because the Act makes provision for banks to close for business by deferring the placement of bills of exchange until the next appropriate day. However, there are no other statutory restrictions on trading associated with bank holidays; in fact, we have few legislative constraints on trading hours at all. There are no constraints on online retail trading, and few constraints apply to small shops.
Mr Hollobone
The Minister’s remarks are of great interest. I think that the general public do not fully appreciate that point; I certainly did not. A bank holiday is not a public holiday. Lots of employees have bank holidays off not because the Government say they should but because their contract of employment says that they should. She would serve the public well if she put what she just said into plainer English, so that everyone could understand it.
Margot James
I thank my hon. Friend for doing what he asked me to do by making that point simply. It would be good if more people were aware of it.
The Sunday Trading Act 1994 restricts the opening of large shops to a maximum of six consecutive hours between 10 and 6 on a Sunday. The Act also recognises the religious significance to Christians of Easter Sunday by obliging large retailers to close. By comparison, Boxing day has little if any religious significance. Neither the Christmas Day (Trading) Act 2004 nor the Sunday Trading Act contain provisions for varying their terms, so any additional constraints on retailers would require new primary legislation.
Although the House has considered changes to the Sunday Trading Act numerous times since 1994, it has always considered that the Act strikes a good balance between the rights of workers and those of retailers and consumers. My hon. Friend the Member for Kettering (Mr Hollobone) mentioned that he voted against the watering down of the Act; he will be pleased to hear that the Government have no plans to make changes to it in the coming years.
On statutory leave entitlement, although there is no statutory entitlement to time off on Boxing day, almost all retail workers, like those in other sectors, are entitled to a generous statutory paid leave entitlement of 5.6 weeks per year, which equates to 28 days a year for someone working five days a week. That is more than the 20 paid days of annual holiday a year mandated under EU law and ensures that workers in the UK get at least four weeks’ paid leave on top of bank holidays, assuming that they have leave on those bank holidays.
An employer has the right, whether or not it is explicitly reflected in the employment contract, to require a worker to work on a public holiday. It is common in industries such as retail or emergency services. We have also heard from hon. Members about other sectors such as hospitality, sport and leisure. Employers can determine when workers take their leave—for example, to cover an annual shutdown at work—and can refuse to give leave at a certain time, but they must give workers the opportunity to take their leave at some point during the leave year. The entitlement should give all workers sufficient time to see their families over the year, although I accept that Christmas and various other times of the year are absolutely associated with spending time with family.
In addition, there are special provisions for shop workers who do not wish to work on Sundays, at least. All shop and betting shop workers can opt out of Sunday working, unless Sunday is the only day they have been employed to work. A shop worker can opt out of Sunday working, even if they agreed in their contract to work on Sundays, by giving three months’ notice.
In putting the legal case before hon. Members, I am sympathetic to the fact that, in practice, many workers, fearing for their jobs, might find it more challenging to give effect to their legal rights than I find it to read them out. I regret that, but staff who opt out of Sunday working are protected from being treated unfairly. If an employer needs shop workers to work on Sundays, they must tell the employees in writing that they can opt out within two months of starting work.
In terms of the potential impact on retailers, the Government recognise the huge importance of the retail sector to both national and local economies, and the pressures under which it labours. The sector generated £91.7 billion in gross value added in 2015, and accounts for 5.6% of the UK economy and more than 3 million jobs. Boxing day sales are extremely popular; we have debated whether it is the busiest day of the year. House of Commons Library figures indicate that although it is not the busiest day, it is certainly very busy with consumers. Last year, an estimated £3.7 billion was spent with retailers, around 22% of it online. If we were to ban high street outlets from opening on Boxing day, that would result in a significant loss of business for them to online retailers, which would particularly disadvantage retailers without a strong online presence. We must bear that in mind, as my hon. Friend the Member for Kettering and a number of other hon. Members pointed out.
Mr Hollobone
The Minister is making an interesting speech. She has basically said that she is not in favour of a Boxing day trading Act to ban retail shops from opening on Boxing day, but she has also said that the Government have existing provisions to allow retail employees to opt out of working on a Sunday. There are 52 Sundays in a year. Why would the Government object to allowing retail employees to opt out of working on Boxing day, which is just one day a year?
Margot James
It would be interesting to look at the picture when Boxing day falls on a Sunday. Presumably that would give people greater rights, at least on those rare occasions. Any changes to the legislation that I have mentioned would require primary legislation. I would hope that there were other ways to afford shop workers some protection without recourse to primary legislation. The law is a balance that Parliament has accepted, and the Government are reluctant to disturb that balance. To change the law would risk opening new disagreements; new primary legislation would create new demands and new risks.
Bill Esterson
The Minister is making some reasonable points, but she said that she hoped that there was some recourse for the Government other than primary legislation. I thought that she was going to tell us what it was, but she seems to have moved on to another point. If I can bring her back, what does she see as the recourse, other than primary legislation, to ensure that staff who want time off get it?
Margot James
I have no suggestions at the moment to put to the hon. Gentleman, and I would not like to give the impression that the Government are exploring that. We are opposed to a ban on retail trading on Sundays. More generally, Boxing day is a day on which some people like to get out of the house. It has long been a major day for shopping and other events, and I have covered the point that an increasing number of workers in other sectors are busy at work.
Another argument against banning offline retail—that is what it is now—from opening on Boxing day is that many other workers would want to know why we were making an exception for the offline retail trade when employees in other sectors work on Boxing day. There are many aspects to the issue other than the threat posed to retailers by an outright ban, particularly, as I have mentioned, to retailers without a strong online presence.
May I respond to a few of the points made by the hon. Member for Warrington North in her interesting and well researched speech? Workers have many protections under the working time regulations, including entitlements to rest breaks, daily and weekly rest periods, and a maximum working week of 48 hours, normally averaged over 17 weeks. However, workers can choose to opt out of the 48-hour limit, and I accept that some jobs are more or less conditional on their exercising that opt-out. The qualifying period for unfair dismissal, which the hon. Lady also mentioned, is intended to strike the right balance between fairness for employees and flexibility for employers.
Helen Jones
The Minister mentioned the working time directive, but the problem in retail is that many workers work flexible hours, so it is difficult for them to enforce that provision.
Also, the Government often miss the point about unfair dismissal and the balance between employers and employees. The law does not say that employers cannot dismiss people; it says that they cannot dismiss them unfairly. That is the key point. Because the time has been extended, those who are forced to work on bank holidays find it difficult to enforce their rights without being dismissed, so they simply cannot make a claim.
Margot James
I take the hon. Lady’s point. It is true that employers can dismiss people, as long as they are not unfair about it and they go through proper consultation and so forth. The flexibility cuts both ways. People increasingly want to work flexibly, especially if they have caring responsibilities and suchlike; likewise, employers, certainly in the fast-changing world of retail, require some groups of workers to work flexibly.
I will finish by reaffirming that we do not believe that it is for the Government to tell businesses how to run their shops or how best to serve their customers. Notwithstanding the many very good arguments that I have heard this afternoon in favour of giving employees greater freedoms on bank holiday periods, particularly around the family-associated festive season, we believe that the current legislation provides the right balance between the interests of employers and workers, and at least provides workers with a generous leave entitlement. The Government therefore do not propose to ban shops from opening on Boxing day.