Road Traffic Offenders Act 1988 (Penalty Points) (Amendment) Order 2016
(Limited Text - Ministerial Extracts only)
Read Full debate
Lord Ahmad of Wimbledon
That the draft Order laid before the House on 8 November be approved.
The Parliamentary Under-Secretary of State, Department for Transport (Lord Ahmad of Wimbledon) (Con)
My Lords, this draft order is being made to improve road safety by increasing the number of penalty points imposed when a fixed penalty notice is issued for drivers caught using a hand-held mobile phone or other similar device while driving.
In January 2016, the Government launched a public consultation on increasing the penalties for hand-held mobile phone use while driving and, when it closed in March, we had received more than 4,000 responses. The responses were overwhelmingly in favour, with 94% supporting an increase. In fact a significant number of responses wanted us to go further than we had proposed and to introduce even harsher penalties for this offence. We have listened, and this draft order therefore increases the number of penalty points endorsed on the driving record of a person who commits this offence from three to six. Furthermore, we will shortly lay before Parliament a further order to increase the fixed penalty amount for the offence from £100 to £200.
Some may ask why we are doing this, although we have had various Questions and debates on this matter in your Lordships’ House. As we all know, hand-held mobile phone use while driving has been proven to be very dangerous and was a contributory factor in 22 fatal accidents in 2015. Each one of those accidents is a needless tragedy and we must bring these numbers down. Indeed, your Lordships’ House had a very informed and constructive debate on this issue, which was tabled last week by my noble friend Lady Pidding. As was also said during that debate, families are understandably not just upset but angry that a close relative of theirs was injured—and, tragically, in some instances killed—because of something that could so easily have been prevented. The RAC motoring report published in September 2016 suggests that increasing numbers of drivers also use hand-held mobile phones at the wheel. It reports that 31% of motorists said they used a hand-held phone while driving, which is put in stark contrast when we see the corresponding figure for 2014, which was 8%. The number of drivers who said they sent a message or posted on social media has also risen, from 7% to 19%.
In 2014, the Department for Transport commissioned roadside observational studies, which showed that around 1.6% of drivers are using a hand-held mobile phone at any given moment. Driving ability is clearly impaired by using a hand-held mobile phone, and studies have found that it potentially impairs driving more than driving above the drink-drive limit. The Royal Society for the Prevention of Accidents has calculated that a driver is four times more likely to crash when using a mobile phone while driving. The police also regard driving while using a hand-held mobile phone as one of the “fatal four” causes of accidents, along with speeding, drink or drug-driving and not wearing a seat belt.
It is therefore clear that change is needed. The increase in the number of penalty points which a driver committing this offence will receive means that drivers need only commit two mobile phone offences, accruing 12 points, before facing the possibility of being disqualified by the courts. It also means that novice drivers, who have passed their test in the last two years, will face revocation of their licence if they commit a single mobile phone offence. Under the Road Traffic (New Drivers) Act, novice drivers can accrue only six points—rather than the usual 12—before they face disqualification. To regain their licence they must reapply for a provisional licence and pass a further theory and practical driving test. Again, in the debate we had on this very issue last week we heard some practical suggestions; the noble Lord, Lord Hunt of Chesterton, who is in his place, put forward some practical suggestions that could be made to amend the existing Highway Code, and we are reflecting on those points.
The majority of novice drivers are young people, below the age of 25, and evidence suggests that young drivers are the group most likely to use a hand-held mobile phone while driving compared with other drivers. As a group, young drivers are also already disproportionately represented in the numbers of fatalities and seriously injured. Given the risk they pose, there is a need for a strong deterrent to their offending behaviour. It is proportionate that the consequence of a single mobile phone offence may mean disqualification.
We must aim to effect behavioural change among this group, who are the drivers most likely to offend and use their hand-held mobile phones when driving, to make progress in improving road safety. As all noble Lords acknowledge, education is key. As well as increasing the penalties for using a hand-held mobile phone while driving, we will also launch a new hard-hitting THINK! educational campaign to coincide with these changes. The aim of the campaign is to alert drivers to the new regulations and raise awareness of the dangers of using a hand-held mobile phone. The long-term aim is to change behaviour and make using a hand-held mobile phone while driving as socially unacceptable as drink-driving.
Today, mobile phones are commonplace, but all drivers need to take responsibility for their actions. It may seem harmless when driving to reply to a text, answer a call or use an app, but the truth is that those actions could kill and cause untold misery to others. I therefore recommend that this House approves this order.
Baroness Chalker of Wallasey (Con)
My Lords, I thank my noble friend for bringing this amendment order forward. I particularly welcome this in the light of the Road Traffic Offenders Act 1988 and the penalty points that are associated with this. Many points were made in the excellent debate last week, launched by my noble friend Lady Pidding, so I will speak only briefly now.
It is now several decades since I was responsible for road safety, and at that time I was responsible for introducing the statutory instrument for seat-belt wearing. On the way a few things which had not been thought of before occurred to me as a driver. They may be old hat to the Department for Transport but, if there is any value in my suggestions, I hope that it will take them on board.
In those days—I am talking about 1982—the publicity campaign was fair for the measures but it did not have the educational element which my noble friend has spoken of and which I believe he envisages for a campaign on this issue. Can that educational element also be introduced in school civics lessons, as well as being communicated to those who want to learn to drive? One needs to imbue in young people the dangers of using a hand-held phone at as young an age as possible. I frequently see cars with all the children in the back using a hand-held device. They are so used to it being an extension of their arm that we have to make them aware of the danger of misuse at a much younger age. That applies even to pedestrians who walk along the street with their eyes down staring at a phone. Therefore, the educational campaign probably needs to be rather broader than may at first seem necessary.
My second suggestion is that police forces should not go soft or easy—I do not believe that they wish to—on those who say, “Oh, it was only …”, when stopped by the police. If you are to make any campaign for public safety work, you have to implement it fully right from the start, and that is what I encourage my noble friend to do. If there is anything that I can do to help him, he has only to ask.
Lord Rosser (Lab)
My Lords, we support the order, largely for the reasons set out by the Minister. Before the introduction of mobile phones we managed to survive, as a nation of car drivers, without them. Presumably, we ought to be able to survive today without using them—a risk to ourselves and others in our cars—while driving. I will, though, ask a few questions about the change in penalty points and issues related to it. I would be grateful for a response either now or subsequently.
I start by pursuing the line the noble Lord, Lord Cormack, and others referred to, namely on disqualification. In the debate in the House of Commons on this order, the Commons Minister said:
“Driving ability is clearly impaired if someone is using a handheld mobile phone. Studies show that that potentially impairs driving more than being above the drink-drive limit”.—[Official Report, Commons, Fourth Delegated Legislation Committee, 6/12/16; col. 4.]
If the Government accept the findings of these studies—the Minister in the Commons referred to them in support of his case for the order, as has the Minister here—why did the Government decide not to impose a period of immediate disqualification, as is the case with those found to be driving when above the drink-drive limit?
Alternatively, since a period of disqualification can be imposed by a court for a speeding offence, usually in cases where the offender has driven well in excess of the limit for the road in question, why did the Government not provide for a court to have the discretion to impose a period of disqualification where the circumstances in which the hand-held mobile phone was being used appeared even more potentially dangerous than normal? For using a hand-held mobile phone while driving, there is no question of a period of disqualification or its equivalent being imposed for a first offence for most drivers, despite the Minister stating that it potentially impairs driving more than being above the drink-drive limit and its being, according to the police, one of the “fatal four” causes of road accidents, alongside speeding and drink-driving—for which a period of disqualification can or must be imposed—and not wearing a seat belt.
Novice drivers who have passed their test in the previous two years face revocation of their licence if they commit a single mobile phone offence. So what difference in terms of the potential adverse impact on driving ability from using a hand-held mobile phone while driving is there between a driver who passed their test within the previous two years and one who passed their test 30 months ago?
Surely what this differentiation means is that, once individuals are more than two years past the date of their driving test, they are then allowed one free go at driving while using a hand-held mobile phone in the sense of not being taken off the road for a period of time. What message does that send out, since that fact might lead some to regard it as worth taking the risk of being caught for the first time using a hand-held mobile phone once they had got past two years since taking the test? Certainly, the figures on enforcement—to which my noble friend Lord McKenzie of Luton referred and which show a big drop of some 90% in the number of fixed penalty notices since 2011, at a time when the RAC reports a significant increase in the percentage of motorists saying that they use a hand-held mobile phone while driving—do not suggest that the likelihood of being apprehended is particularly great. Fear of being apprehended is surely the biggest deterrent to committing an offence. Reducing the number of front-line police officers, despite commitments being given that this would not happen, has very noticeable effects. We do not draw the same distinction when it comes to drink-driving between those who passed their test within the previous two years and those who passed their test more than two years ago, even though the Commons Minister is on the record as saying that studies show that using a hand-held mobile phone potentially impairs driving more than being above the drink-drive limit.
Does the provision for revocation of novice drivers’ licences apply also to HGV and PSV novice drivers who use a hand-held mobile phone while driving? As a matter of interest, is using a hand-held mobile phone while driving more prevalent in some parts of the country than in others, taking into account the number of people driving in different parts of the country?
Have there been other examples where increasing the penalty points for a traffic offence, as opposed to imposing penalty points for the first time, has reduced the incidence of such offences? I ask that because the impact assessment states on page 2:
“Higher penalties are expected to act as a deterrent to the use of mobile phones whilst driving”,
but then states:
“It has not been possible to predict with certainty the number of accidents that can be avoided each year as a result of the intervention and therefore this benefit has been assessed qualitatively”,
followed in paragraph 34 on page 7 by the statement that:
“There is a lack of robust evidence as to the effectiveness of increased penalties at deterring the use of mobile phones”.
There is a real danger that some who read the impact assessment and its apparent lack of hard evidence that the increased penalty points should reduce the incidence of hand-held mobile phone use while driving might come to the conclusion that this change following a consultation has more to do with the Government making policy by focus group than on the basis of a logically argued and substantiated case. Presumably the increasing sophistication and complexity of hand-held mobile phones, and the greater range of purposes for which they can now be used which necessitate looking away from the road ahead for longer than a split second, is a factor in their use while driving posing an increased hazard and danger that must quite rightly be addressed.
On a point made by the noble Baroness, Lady Randerson, the impact assessment states on the first page that,
“not offering the remedial course as an alternative to the”,
fixed penalty notice,
“and penalty points will act as a further deterrent, as first time offenders face the full FPN and fixed penalty points”.
As far as I can see, the impact assessment does not provide any information on how successful or otherwise the remedial course has been in ensuring that first offenders do not offend again. Could the Minister fill in this apparent gap in the information provided? I assume that the Government have some hard information showing that those who have been on the remedial course are just as likely to offend again as those who have not. However, that information should now be placed on the record in Hansard. If the Government do not have that hard information, what is the case for no longer offering the remedial course?
In the debate in this House last Thursday on hand-held mobile devices, the Minister said:
“We are considering the options for a model under which drivers committing this offence will receive a penalty in combination with education on the risks of using a hand-held mobile phone or other devices while driving”.—[Official Report, 15/12/16; cols. 1440-41.]
Does this mean that today the Government seek approval for an order, in respect of which the impact assessment refers to no longer offering the remedial course as an alternative to the fixed penalty notice and penalty points, at the same as they consider continuing with education on the risks of using a hand-held mobile phone alongside a penalty? If that is correct, it seems a rather odd way to proceed. Why not make some decisions now, before withdrawal of the remedial course, on the future of the education aspect?
Finally, could the Minister confirm the definition of “driving” as far as this offence is concerned? For example, if you are stationary in a traffic jam on the M25 and using a hand-held mobile phone, have you committed this offence if your engine is still running, or if your engine is switched off and your handbrake is on?
Lord Ahmad of Wimbledon
My Lords, first, I thank all noble Lords who contributed to the debate this afternoon. I also acknowledge and thank all noble Lords for their broad support for the measures outlined by the Government, in particular the support from Her Majesty’s Opposition and from the Liberal Democrat Front Bench.
The final point raised by the noble Lord, Lord Rosser, is a pertinent, technical one. I shall certainly refer to him. I suppose there would be an added technical issue as to whether the engine is running or not, but he raised an important point on traffic jams. When someone is stopped, the enforcing authority in such a case would normally be the police, who have the ability in assessing it to use what I would describe as a degree of common sense in the application of a particular penalty.
The noble Lord mentioned the issue of remedial courses. Certainly, whether those courses should be offered has been down to police discretion. It is the Government’s view that the application of a severe penalty rather than a remedial course will have the necessary effect of deterring a future offence in that regard. He suggested that there was a contradiction between applying the penalty points and education. The education that I referred to is the campaign we are running alongside the new provisions that we are proposing. The noble Lord asked several other detailed questions, some of which I will answer as I go through my responses to other noble Lords. Of course, as ever, if I do not respond to every single question arising out of his analysis of the order, I will write to him.
Lord Cormack
My Lords, a number of us advocated disqualification for a period, and he has not touched on that.
Lord Ahmad of Wimbledon
There was a final point on disqualification. I believe I have already touched on it. When someone is caught using their mobile phone and is referred to a court, instead of getting a fixed penalty notice, not only would they get a fine of £1,000—an HGV driver would get a larger fine—but they would also face disqualification. That is in the hands of the justice system and the magistrates’ courts. I hope that that answers my noble friend’s question. The noble Lord, Lord Rosser, asked whether this applies to HGV drivers. Indeed it does. HGV drivers can be pursued through traffic commissioners who regulate HGV and PSV operators.
I thank all noble Lords who have taken part in this important debate. The noble Lord, Lord Robertson, talked about experience around the world. Perhaps we do not realise the dramatic nature of the impact until we reflect on the statistics and the information behind deaths on our roads. When that is presented to you, whatever measures we take—what we are doing today or other measures—to mitigate those deaths reflects poignantly on the work of those who ensured that seat belts were fitted into cars. We owe it to all those on our roads and to families who have been impacted by those killed on our roads due to accidents often caused by people who use a hand-held mobile phone, send that text or check that social media tweet or Facebook update on the basis that it is only a second’s distraction. Recent tragic events on our roads have reflected that that one second of distraction can lead to a lifetime of loss for a family. I hope that in answering most, if not all, of the questions on the statutory instrument we can move forward in a practical way.