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The Minister of State, Department for Transport (Jesse Norman)
Thank you very much, Sir Henry, and it is a pleasure to serve under your distinguished and esteemed chairmanship. I congratulate the hon. Member for Stockton North (Alex Cunningham) on securing this very important debate, and I thank everyone who has had a chance to make interventions or speeches. Not only have representatives of different parties brought a great deal of knowledge and expertise to the table, but we have heard very affecting personal stories from the hon. Members for Livingston (Hannah Bardell) and for Coatbridge, Chryston and Bellshill (Hugh Gaffney). I know I speak for everyone when I say that we are enormously grateful to those who have shared their personal experience, and we are enormously sympathetic to the tragedies of the families with whom they have come into contact; I absolutely recognise that.
Hon. Members have rightly said that the oil and gas sector is enormously important to this country. It is important not only economically, but socially and culturally to distinct communities in the country, especially around Aberdeen and the UK continental shelf. Overall, the sector supports something like 280,000 jobs and meets around half of the country’s primary energy needs, but that statement does not cover the human aspects of its local and national impact. Offshore helicopter services provide a vital link—in fact, the only possible link—to ensure the viability of the oil and gas industry in what is widely understood to be one of the most challenging and operationally testing environments. As hon. Members have said, that is the context in which we should see the fatal accidents that have occurred in recent years.
As well as recognising the specific experiences of the Members present, I pay tribute to the families of the victims of those accidents and acknowledge their suffering. They include the 16 workers and crew members who lost their lives north-east of Peterhead in 2009, the four oil workers killed off the coast of Sumburgh in 2013 and, most recently, the 11 passengers and two crew members killed in Norway, one of whom was a British citizen.
As hon. Members have noted, the state safety programme for aviation in this country defines the acceptable level of safety for commercial aviation as one that results in zero fatalities—not a small number or a few, but zero. There will always be risks and hazards associated with operating in the North sea, but we are clear—just as previous Governments were—that the safety of those who rely on offshore helicopters is paramount. As noted by my hon. Friend the Member for Gordon (Colin Clark) and by the right hon. Member for Orkney and Shetland (Mr Carmichael), that is widely recognised as being culturally central to the industry.
The UK is recognised as a world leader in aviation safety, but we cannot be complacent. I absolutely share the view of the right hon. Member for Orkney and Shetland: it was the Piper Alpha disaster that engineered this change. We must face the appalling fact that an accident could occur tomorrow in the North sea, whether through pilot error or equipment failure in helicopters or other forms of transportation. We must be responsible and aware of that fact. I think it raises the bar and reminds us of the consistent pressure to maintain safety at the highest possible level. With that goes the suggestion that regulators and Government must learn lessons from tragic incidents, whether they are caused by equipment failure or pilot error, to ensure that they do not happen again. I am a private pilot, and we know that pilot error is largely responsible for fatalities and injuries in this sector. We owe it to those who now use the service as well as to those who have lost their lives.
The CAA has rightly been discussed in this debate, and it is important to recognise the work that has already been done in this area. In 2014 the CAA published a review of the safety of offshore helicopter operations. It is important to note that that is a comprehensive piece of work—it is nearly 300 pages long and contains almost three dozen recommendations. It considered all aspects of offshore helicopter operations, including the design and certification of helicopters, continuing airworthiness, operational procedures, organisational matters, pilot training, passenger safety, and survivability and resilience in the event of an accident. It was conducted in conjunction with the Norwegian Civil Aviation Authority and the European Aviation Safety Agency.
The review put forward 32 actions and 29 recommendations to helicopter operators in the oil and gas industry. It resulted in the introduction of a number of significant measures to increase safety standards for offshore helicopter flights, including flight restrictions during certain—especially adverse—sea conditions, improved emergency exit access, better emergency breathing equipment and changes to pilot training. Every aspect, including helipads and the like, was reviewed. During the review, the CAA engaged closely with pilot and offshore workforce unions, the oil and gas industry, helicopter operators, manufacturers, Government and regulatory bodies, and other experts in the field. It is right that it engaged with the appointed representatives of workers and—if my hon. Friend the Member for Gordon is right, and I am sure he is—the larger number of workers who were not members of unions but nevertheless wished their interests to be heard, understood and reflected upon. An independent challenge team, chaired by Rear Admiral Simon Charlier and assisted by experts including representatives from Transport Scotland and the British Helicopter Association, scrutinised the review and its recommendations, often robustly, and endorsed the 300-page report. That level of independent challenge was designed to ensure confidence that the process was robust, comprehensive and thorough.
I remind hon. Members that the CAA is a blue-riband regulator, and it is rightly admired across the world for its quality in all aspects of aircraft, airframe and air management certification and review. One of the outcomes of its review was the formation of the offshore helicopter safety action group, which brought together helicopter operators, offshore industries, regulators, unions and pilot representatives to enhance standards still further.
Jesse Norman
I have got an awful lot to get through, but I would be delighted to give way.
Alex Cunningham
That body meets extremely infrequently, and often at short notice. Somebody needs to give it a good kicking to encourage it to do more. Does the Minister agree?
Jesse Norman
I am very grateful to the hon. Gentleman for raising that issue. I cannot speak about the frequency of the group’s meetings, but anyone who is scrutinising this debate with the proper level of attention, as I am sure the group will be doing, will take his remarks alone as a good kick in the pants. If those meetings have been insufficiently frequent, I encourage the group to have more; I support what he has said.
Let me say a few more things, and then I will come to hon. Members’ interventions. A number of hon. Members referred to the Super Puma helicopter, and I absolutely recognise the concerns of workers who have seen colleagues perish in that aircraft. It is important to recall that after the Norwegian accident, both EASA and the CAA placed operating restrictions on the Super Puma. When EASA cleared the helicopters to serve in October 2016, the UK and Norwegian CAAs maintained their operating restrictions to make certain the aircraft were safe to fly. They did not operate in a herd-like way. They played off each other, scrutinised each other and interrogated each other, and they did not reach the same conclusion. In doing so, they worked with, among others, representatives from Unite, the RMT and the British Airline Pilots Association. They lifted operating restrictions in July 2017 only after significant modifications were made to the aircraft and training was undertaken.
The regulators clearly did not take that decision lightly; they did so only after they were confident that the aircraft could meet stringent standards and were fit to fly. Of course, the CAA continues to work with a range of stakeholders, including unions, to provide the assurances that are publicly needed. The regulators are content, subject to the additional checks that I have described, for the aircraft to re-enter service, but the decision rests with operators and their customers. To date, none has come forward.
I absolutely respect the initiative and the viewpoint of the hon. Member for Stockton North, who seeks a public inquiry. He has made similar representations to the aviation Minister. We take these matters extremely seriously and we have given the question careful consideration, but we are not yet persuaded that that is the right thing to do. The right hon. Member for Orkney and Shetland was very wise in pointing to the potential conflicts of jurisdiction that already exist, and he said that he was concerned about the delays and lack of closure for the families.
Mr Carmichael
On that point, may I bring the Minister to the interaction between the air accidents investigation branch and the Crown Office and Procurator Fiscal Service? Surely, without compromising the integrity of either, it would be possible to have a better information-sharing regime that would minimise delays for the families. Would the Minister take that away and look at it?
Jesse Norman
That is a very interesting idea. I feel slightly as though I should withhold my own judgment, because I am not the aviation lead; Baroness Sugg is. I will absolutely take that issue up with her, because I recognise the concerns that the right hon. Gentleman describes.
It is clear that more needs to be done to provide reassurance about the safety of the helicopter fleet. As has been mentioned, after every accident the air accidents investigation branch conducts an independent and transparent investigation and publishes a very detailed report with a set of safety recommendations to the industry and the regulators.
Let me turn to some of the points that have been made, many of which are very important. My hon. Friend the Member for North Cornwall (Scott Mann) rightly reminded us that pilot error is the leading cause of death and injury in civil and commercial aviation. I echo the emphasis of my hon. Friend the Member for Gordon on embedding a safety culture.
To come back to a point made by the hon. Member for Kingston upon Hull East (Karl Turner) , it is not quite right that commercial activity is antithetical to safety. I have lived and worked in communist countries, and I can tell him that the safety records in those places, which were notionally devoted to the wellbeing of workers, was absolutely lamentable. There can be commercial pressures in any safety-oriented situation, and they must be offset by a rigorous internal culture. That is why the emphasis that we and the oil and gas industry place on that is of such importance.
A point was made about the role of the CAA. The CAA not only goes beyond the EASA recommendations, but is itself audited by EASA. The hon. Member for Kingston upon Hull East asked whether the Government wish to stay in EASA following Brexit. As I have repeatedly assured him—of course, this is a matter still for discussion—EASA is in many ways an offshoot of the CAA, and we would like nothing better than to have a comprehensive agreement that includes an appropriate relationship with EASA, whatever the legalities are, because we recognise what it does.
The hon. Gentleman asked whether offshore voters should have a majority vote on the introduction of new helicopter airframes. I cannot comment on the practicality of that. I would say, however, that offshore workers have, in effect, already spoken: they have made it clear that they do not have confidence at the moment. I think that is right.
I have very little time, and I want to allow the hon. Member for Stockton North a chance to give a final response. I thank him for securing this important debate, and I thank everyone who has made contributions—especially those who have brought their personal experiences to the table. The entire framework of the British Government recognises that those who rely on offshore helicopter operations must have their safety preserved. That is of the utmost importance. We also believe that all parties must continue to take whatever steps they can to minimise the risks in those operations and ensure confidence among those who travel in these aircraft.