Draft Littering from Vehicles Outside London (Keepers: Civil Penalties) Regulations 2018
(Limited Text - Ministerial Extracts only)
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The Parliamentary Under-Secretary of State for Environment, Food and Rural Affairs (Dr Thérèse Coffey)
I beg to move,
That the Committee has considered the draft Littering From Vehicles Outside London (Keepers: Civil Penalties) Regulations 2018.
It is a pleasure to serve under your chairmanship, Mr Robertson. I am sure that hon. Members will agree that littering is lazy and irresponsible. Time is running out for litter louts. Roadside litter is particularly problematic. Clearing it from the side of busy roads is a dangerous and expensive job for councils and their employees, and for the legions of voluntary litter pickers who do our communities proud. It also costs a lot of money, and those funds could be better used to provide the range of important services that we rely on our councils to deliver.
Following the first ever litter strategy, which we published last April, we are bringing forward the regulations, as promised, which will make it easier to take action against people throwing litter from vehicles. Littering is a criminal offence, but when litter is thrown from a vehicle it can be hard for council enforcement officers to identify the offender with sufficient certainty to issue a criminal sanction. We have listened to local authorities, which have told us how difficult they find it to take enforcement action against those who throw litter from vehicles.
The purpose of the regulations is to make it easier for councils to take enforcement action to tackle littering from vehicles, by removing the need to identify the litterer and holding the “keeper” of the vehicle responsible. The statutory instrument confers a power on district councils in England, outside London, to require the keeper of a vehicle to pay a fixed civil penalty if there is reason to believe that a littering offence has been committed from the vehicle.
In this context, the term “district council” includes any metropolitan, borough, unitary or other district councils, including the Council of the Isles of Scilly, which has the statutory duty to collect litter—such an authority is also known as the litter authority. I should point out that London borough councils already have similar powers, but I was surprised to learn that Wandsworth is the only borough council to use them. I encourage other London boroughs to include the use of those powers in their armoury for tackling litter on London’s streets and roadways.
Lucy Powell (Manchester Central) (Lab/Co-op)
I agree fully with the sentiment behind the regulations, but does the Minister agree that perhaps one reason why many councils that have the powers have not yet used them is that, given the huge scale of local government cuts, they lack the resources to enforce the measures as they would like to, particularly on littering?
Dr Coffey
The amount of money spent by councils on tackling the issue could well be used in different ways. We are sending a strong message that powers will be available for councils to use if they wish. Fines can be used, of course, to improve all sorts of refuse, recycling and collection services, to make sure that the focus is on keeping streets clean.
Enforcement officers have to be satisfied to the civil standard of proof—the balance of probabilities—that litter was thrown from the vehicle in question. A penalty notice is a civil fine, which, unlike a criminal penalty, does not carry the risk of a criminal prosecution, and therefore does not require the offence to be proved to a criminal standard of proof. The penalty amount payable is set by the litter authority, and must be the same as the amount of any fixed penalty for littering in the area. Hon. Members will be aware of our recent regulations, under which penalty limits will rise and which are intended to have a deterrent effect. Those new levels are reflected in the statutory instrument.
Vicky Ford (Chelmsford) (Con)
In my constituency there is often praise for our clean city centre and parks, but I also get complaints about litter beside verges, particularly down dual carriageways such as the A12. Does the Minister agree that the regulations will encourage motorists to chuck less litter out of cars? Clearly when litter is at the side of motorways and dual carriageways it can only have come from vehicles, as there are no pedestrians. Are the regulations a measure to help everyone have a cleaner environment?
Dr Coffey
There is certainly a clear message in raising the issue that councils will have powers to do that. For our highways, and particularly our strategic road network, Highways England has an arrangement with the litter authority, whereby the litter authority is still responsible for clearing the litter from that side. It is perfectly possible for councils to work closely with Highways England once they have these powers, to use the camera footage that will be available to try to tackle and identify those who litter. The key thing we want to do is deter the behaviour in the first place.
Naz Shah (Bradford West) (Lab)
What do the Government propose to do for taxi drivers? If a passenger throws litter out the back of a car, will the taxi driver be fined, or will they try to find the passenger?
Dr Coffey
The hon. Lady has pre-empted part of my explanation of the draft regulations, which specifically includes that point. Let me first finish the point I was making about the process of issuing fines.
The process for issuing the penalty notice and the payment and appeals process are akin to those for other penalty notices levied by councils, such as parking tickets. A number of grounds for making representations deal with circumstances in which the person was not the keeper of the vehicle at the time, for example because the vehicle had been sold, stolen or was hired to somebody else. In addition, public service vehicles, including buses, taxis and private hire vehicles, are exempt from liability of a civil penalty notice if the offence is committed by a passenger.
To answer the hon. Lady’s point, I suggest that if there was appropriate evidence to show that the litter was tossed from the driver’s window in a taxi, I would expect there to be reasonable grounds to believe that it was the driver of the vehicle. If the litter came from different windows, there would be good grounds to accept that that would be a passenger.
Thelma Walker (Colne Valley) (Lab)
Do the Government have any plans to introduce other measures in support of the draft regulations, for instance educational resources for drivers on the economic, environmental and societal effects of littering, or a campaign bringing this to life for all road users?
Dr Coffey
We work closely with a number of organisations, and we push litter education programmes. I am very fond of something that the official Government comms do not like: I am prone to using the hashtag #dontbeatosser, which is a slogan that came from Australia and was adopted by my local radio station, BBC Suffolk—I think some people have different thoughts about what it might mean. I am quite keen to escalate the activities, which is why we are working closely with organisations such as Keep Britain Tidy.
Mr Bob Seely (Isle of Wight) (Con)
My hon. Friend may be aware that we tried #dontbeatosser on the Isle of Wight, but the Campaign to Protect Rural England felt that we were a little too genteel for that. Excuse my ignorance about this—I am new to this place and to Delegated Legislation Committees—but what is the process by which councils are informed of these decisions that are taken in Parliament? What does she expect councils to do and how active should they be in getting that message out? Clearly, as she says, this is about public information.
Dr Coffey
Councils have been asking us for the opportunity to have these powers. Our estimate is that about one third of councils are minded to take them out. The point is that we are giving the councils the powers to do that. I encourage my hon. Friend to go back to the Isle of Wight and proclaim that from 1 April, if both Houses of Parliament agree, the council will be able to have these powers, and drivers should look carefully, consider their local environments and recognise that other people may be watching them to make sure they do the right thing. At the end of the day, we have to have the kind of behaviour—I think we do generally—where littering becomes unacceptable. We need to keep reinforcing that with positive powers and messaging.
Andrew Bridgen (North West Leicestershire) (Con)
Can the Minister clarify something? If a driver is informed that litter has come from his vehicle, but it is clear that it was not thrown from his window, and he does not know or is unwilling to divulge who threw it, who will be fined?
Dr Coffey
The draft regulations specifically make it the responsibility of the “keeper of a vehicle”. I will not pretend to be a transport lawyer, but it is the registered keeper of the vehicle; one never knows exactly who buys a car and who its registered keeper is. I do not want to go down a cul-de-sac—literally—on that concept. [Interruption.] I have just been passed a note by one of my officials. I should make it clear to the Committee, and to anybody who is listening, that only Parliamentary Private Secretaries are allowed to pass notes to Ministers. I apologise to you, Mr Robertson, and to the Committee for that.
In conclusion, by giving councils the additional power to take action, we believe that the draft regulations will operate as a greater deterrent to those who might be tempted to litter and will reduce the build-up of litter on our roadsides and verges. They demonstrate our commitment to reducing litter and littering behaviour. I commend the draft regulations to the Committee.
Dr Coffey
The draft regulations have obviously exercised hon. Members. I will not say that a lot of rubbish has been spoken. Far from it; searching questions have been asked, and I shall be pleased to try to provide some illumination.
It is true that the powers granted by the regulations extend from those in the Clean Neighbourhoods and Environment Act 2005, but that Act amended and clarified the Environmental Protection Act 1990. It identified smoking-related detritus as litter and gave councils further powers. The draft regulations set out the relevant primary legislation that authorises them.
As I mentioned, fly-tipping is a different legal offence. Councils already have separate powers to issue penalties or prosecute for fly-tipping, including powers to seize vehicles. The Environment Agency has thanked us for granting those powers, which certainly act as a huge deterrent. Littering is defined in section 87 of the Environmental Protection Act, while under the statutory code of practice on litter and refuse, any discarded item larger than one black bag should be considered fly-tipping.
A question was asked about the police and criminal enforcement. Frankly, if littering can be identified and there is sufficient evidence of a criminal offence, that evidence can be used to prosecute the alleged litterer. However, the draft regulations do exactly what councils have asked for: they grant civil enforcement powers, and it is up to councils whether to use them. The origin of the legislation for London was the London Local Authorities Act 2007; we had to make some corrections to that Act in 2012, because it was not working as it should, but London already has the necessary powers. I know that the hon. Member for Hornsey and Wood Green is a former council leader. It will be for local councils to decide to apply their many statutory powers, including those on littering and fly-tipping. I know that some councils are keen to get on with this, and it will be their choice to do so.
Catherine West
I thank the Minister for mentioning local authorities. As my hon. Friend the Member for Manchester Central said, enforcement depends on funding. It would be wonderful to have a special environment fund for boroughs to really tackle the issue, because there is huge public support. There has been a culture change—the Minister may remember that I did some press work on that when I was chair of London Councils’ transport and environment committee in 2007.
Dr Coffey
I have to admit that I do not recall the work from 2007, but I am sure that the hon. Lady will encourage her local borough to think again about how its spending on littering issues balances against the potential for recouping its costs through enforcement. Again, that is a decision for councils.
The reason for citing Plymouth in the regulations relates to the definition of licensed private hire vehicles. Like London, Plymouth licenses its own private hire vehicles, and we wish to ensure that it can continue to do so.
The appeals process is fairly standard. There is a PATROL—parking and traffic regulations outside London—adjudication joint committee of councils that considers traffic regulations. The adjudication process can happen through traffic tribunals. The process is straightforward and akin to the process for parking tickets.
Hon. Members raised hire cars. There are exemptions in cases when it is clear that the registered keeper was not using the car, because it had been hired out to someone else or stolen. I expect that councils will not enforce the measures against hire companies, but as happens when other offences are committed by people who hire cars, it may be possible for the hire car company to provide evidence to the enforcement authorities so that they can pursue the matter.
Andrew Bridgen
I have two quick points for the Minister to consider. First, the main enforcement tool for the draft regulations, which I support wholeheartedly, will probably be automatic number plate recognition cameras. Does she have any concerns that an unintended consequence of the regulations might be to push the problem out of urban areas and into rural areas not covered by cameras? Secondly, has she any sympathy for a registered keeper who faces vicarious liability when they may not have been the litterer or even have been in the car when the offence occurred?
Dr Coffey
Of course, the registered keeper of a car has to give permission to whoever drives it. There are other matters, such as the use of seatbelts, for which the person in charge of the vehicle—perhaps the registered keeper—is responsible. In essence, they have to be accountable. As we are making clear to the owners of cars, we are giving councils the power to say that they will be held liable. I think that is reasonable.
As the hon. Member for Stroud pointed out, this is a problem. Councils have asked us for these powers because of the challenges in bringing prosecutions. The powers we are giving to councils are sensible and straightforward, and there are appeal processes. There has to be a reasonable balance of belief and proof that the offence has happened. This is sensible legislation that I think our constituents will welcome. My #dontbeatosser tweet, in which I identified the number plate of a litterer’s vehicle, is possibly the most popular I have ever posted. I did not name the driver, because I did not know who they were.
I genuinely hope that councils will take advantage of these powers. Once Parliament agrees to the regulations, it will be down to councils to decide whether they wish to do so. The powers will come into effect on 1 April.
Question put and agreed to.
Resolved,
That the Committee has considered the draft Littering From Vehicles Outside London (Keepers: Civil Penalties) Regulations 2018.