Brexit: Road, Rail and Maritime Transport (EUC Report)
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The Parliamentary Under-Secretary of State, Department for Transport (Baroness Vere of Norbiton) (Con)
My Lords, I thank the noble Lord, Lord Whitty, and congratulate him and his committee on this report. Although it was published well over a year ago, many of the areas that it covers areas remain relevant today as negotiations continue. To an extent, that will mean that I will not be able to answer all the questions asked because, of course, many of them remain outstanding. That is one reason why the Government have endeavoured to set a deadline by which agreement should be reached, so that we can then make progress with whatever follows. The report makes it absolutely clear that we must be ready for the next phase, whatever that may be.
In transport, we are focused on arrangements that will maintain connectivity, specifically for road, air and maritime transport. We do not need an agreement with the EU on rail as we can already ensure connectivity using other arrangements. The report being debated today covers road, rail and maritime. I shall endeavour to cover the points that were made; as ever, if I am unable to respond to everything, I shall write.
Our aim is to agree a liberalised market for road transport—for haulage, buses and coaches—with no quantitative restrictions. Any agreement must respect our right to decide for ourselves how we regulate those sectors in the UK. Road haulage is, of course, very important. As my noble friend Lord Lansley pointed out, the volumes going across the short straits, for example, are much greater for EU hauliers than for UK ones. Over the course of the pandemic, I have had the opportunity to have many frequent and productive conversations with the road haulage sector. One thing that I took away from my conversations with people from that sector is that it is fantastic to speak to them but sometimes they do not lobby subtly; it is often very black or white, with very few shades of grey. Obviously, conversations will continue with road haulage representatives; we appreciate their input.
We are starting from a position in which we want point-to-point movements and transit, and we are open to discussions on additional rights. These would not be along the lines of our current rights under EU law. We appreciate that the relationship between the UK and EU will be of a different nature, but there are sensible operating flexibilities—for example, around cabotage and cross trade—that would make haulage operations more efficient by reducing traffic and helping the environment. Indeed, we have UK hauliers who want to get to Turkey via the EU, and there are a lot of EU hauliers who want to get to Ireland via the UK. It seems to me that an agreement should be possible.
Turning to permits, which have been addressed by many noble Lords—particularly the noble Lord, Lord Whitty—the UK and EU agree on the importance of securing unlimited, permit-free rights to access each other’s territories. There is a range of ways in which that could work, including the mutual recognition of existing documents issued to UK and EU hauliers for international carriage without the need for new paperwork. However, if a permit-free agreement is not reached, the framework and systems established through the Haulage Permits and Trailer Registration Act will allow us to cater for a full range of outcomes, including a permit scheme. For the avoidance of doubt, the UK Government have made it clear that they do not want to see the introduction of permits for transport services between Northern Ireland and Ireland.
ECMT permits will continue to provide market access for UK hauliers in any Brexit outcome, but many noble Lords have noted, including my noble friends Lord Bourne and Lord Lansley, that they are limited in number. We do not intend to rely on ECMT permits alone; instead, ECMT permits will provide additional capacity to UK hauliers alongside other market access arrangements, such as bilateral agreements with member states. In the absence of an appropriate agreement, the UK would be open to discussing contingency measures with the EU and would seek to supplement the ECMT permit system with bilateral agreements. The UK has historic bilateral agreements with all EU member states—aside from Malta, for reasons of geography—and it is our assessment that 21 of those agreements would come back into effect should an overall deal with the EU not be reached. The ones that have expired offer a good basis for discussions relating to a new agreement.
On passenger transport services, the UK has already made arrangements to accede to the Interbus agreement, as noted by many noble Lords, which will secure rights for UK operators that undertake occasional services—that is, coach holiday-type services. The agreement will be shortly expanded to cover regular and special regular services. The extension to regular and special regular services will take effect, for the contracting parties who sign it, on the first day of the third month after four parties, including the European Union, have signed it. I am very pleased to note—this is very significant—that the EU has now signed the agreement, and we would expect other parties to join in signing that agreement so that it can come into effect in due course. As the committee’s report highlights, the Interbus agreement does not provide for transit through the EU to countries that are not contracting parties to the agreement. The Government recognise the need to secure road transport arrangements with the EU that allow transit.
I turn to private motoring which, as my noble friend Lord Lansley pointed out, will probably impact most of us, as we like to travel to the EU. We are committed to establishing arrangements with member states, which, frankly, minimise bureaucracy. Arrangements for driving licence recognition and exchange do not form part of a free trade agreement. Therefore, Department for Transport officials are progressing bilateral discussions with member states to agree arrangements from January 2021; those arrangements will be publicised in due course.
International driving permits may be required to travel to the EU. They are currently issued by more than 3,000 post offices. The noble Baroness, Lady Donaghy, asked what additional capacity might be available, should demand be too great for the capacity. There is the possibility of a further expansion to an additional 1,500 post office branches, if the demand is significantly increased. At the current time, the average driving distance to a post office with an IDP service is around two miles; 95% of the population is within five miles of an IDP-issuing post office branch, and 99% is within 10 miles.
My noble friend Lord Bourne mentioned introducing an online system. The introduction of such a system would need to take into account that data for Northern Ireland is not held by the DVLA; that would not make any introduction impossible, of course, but perhaps a bit more challenging. For the time being, we are confident that the post office system will be able efficiently and effectively to meet demand.
On motor insurance, the Government believe that the UK can and should remain within the green card-free circulation area once we leave the EU. The UK is maintaining the requirement for third-party motor insurance for travel, and meets all requirements needed to remain a part of this area. We continue to urge the European Commission to commit to issuing an implementing decision that would ensure that UK motorists can drive in the EU without a green card, and vice versa.
On vehicle standards, the UK is an active and respected member of the United Nations Economic Commission for Europe World Forum for Harmonization of Vehicle Regulations, otherwise known as UNECE. We expect to maintain the high level of influence on the development of international vehicle technical standards that we currently enjoy. UNECE leads on the development of safety standards which are adopted globally, including by the EU, and internationally harmonised versions of the EU’s environment standards are in development. The UK is already taking the opportunity to lead on the development of standards for new technologies—for example, on assisted and automated driving—through the relevant UNECE groups.
On type approvals, there is currently no precedent for a regime of mutual recognition of whole vehicle type approvals between the EU and a third country. The Government’s approach is to emphasise opportunities for co-operation, as well as ongoing mutual recognition of UNECE approvals issued by the UK’s type approval authority, the Vehicle Certification Agency, or the VCA, and its EU counterparts. The VCA will continue to issue these UNECE approvals, which already cover the majority of requirements needed to access the EU market. From the end of the transition period, manufacturers will need GB type approval to allow registration of new vehicles. The VCA is, of course, working with manufacturers to ensure that they will be ready for the end of the transition period.
On rail, I am very sorry that the noble Lord, Lord Berkeley, was unable to join us today, as he would clearly have taken a great interest in this area. We are fully committed to supporting the success of our vital international rail links through the Channel Tunnel and on the island of Ireland, for business and leisure travellers and freight, and we have supported operators in establishing robust measures to ensure that they continue in the future.
On the Channel Tunnel specifically, the Government are engaging with France to establish bilateral agreements to further support the continuation of services through the Channel Tunnel and to provide long-term certainty for operators. The Government have also published technical notices on rail transport to communicate to operators—including both current and prospective cross-border operators—the steps that they will need to take to hold valid EU licences from the end of the transition period.
The noble Lord, Lord Bradshaw, asked a series of questions about arrangements for passengers on the Eurostar and, indeed, on other modes of travel, at passport control. I can confirm that the necessary preparations are being made.
Turning to maritime, while ships will continue to trade between UK and EU ports in all scenarios, a free trade agreement can provide assurances to both parties that their shipping companies will not be treated in a discriminatory way. The UK’s approach to negotiations did not make reference to shipping. Neither the UK nor the EU has ever suggested that it will restrict access to ports by the other party’s shipping. Engagement between the two sides on maritime has been constructive.
With regards to divergence, in areas where the EU has legislated—and which are not regulated by the international organisations—there is scope for divergence. One such example is domestic shipping services in UK waters. While we do not in practice prevent companies from other countries providing such services, we have removed the rights in EU legislation that member states had to provide these services. It is for the UK, not the EU, to decide on such matters.
A number of noble Lords, including my noble friend Lord Blencathra, mentioned maritime and cabotage. Maritime cabotage is not typically liberalised in trade agreements. This allows trade areas such as the EU, and other countries, to make their own provisions. The UK and the EU start from a position where UK legislation provides member states with cabotage rights. Some significant EU countries in terms of shipping—including the UK, Belgium, Ireland and the Netherlands—already have an open approach to cabotage by all countries. Other EU countries restrict cabotage by third countries. It is difficult to establish the precise figures for maritime cabotage, but we know that UK shipping companies undertake much more international business than cabotage business.
The UK will continue to engage globally on maritime transport, including through organisations such as the International Maritime Organization. While the nature of our relationship with the European Maritime Safety Agency—or EMSA—will change, we will continue to work with our European partners to ensure we maintain high levels of safety, security and environmental standards. We co-operate, for example, through the Paris memorandum of understanding, to share information on port inspections to target unsafe and polluting ships.
The Maritime and Coastguard Agency, the MCA, and the Marine Accident Investigation Branch, the MAIB, have put in place the necessary systems to replicate the systems previously provided by EMSA databases. In two cases, the systems have been operational since last year; the MCA stood down a third system, which is involved in the surveillance of the sea for oil pollution. The MCA has continued to use the EU CleanSeaNet system during the transition period but is reprocuring the contingency solution for the end of the transition period.
Leaving the EU means that we have an opportunity to do things differently, whether or not that is a trigger for free ports, as pointed out by my noble friend Lady McIntosh. It is true that the Government have big plans for freeports. We plan to introduce up to 10 of them. A public consultation closed on 13 July. We will publish a full response in due course.
I turn to readiness and contingency planning. Over the next few months there will be a lot of that, particularly as the outcome of the negotiations is known. Many of the changes will depend on what happens in the negotiations, but many will need to take place anyway because we are leaving the single market and the customs union. As part of our preparations to date, we have published the border operating model, announced a new £50 million support package to boost the capacity of the customs intermediary sector, and committed to building new border facilities across Great Britain for carrying out customs checks. We are also undertaking an intense period of engagement across all sectors to improve readiness.
Many businesses will be developing the plans that they had already put in place for previous dates. However, we also recognise the impact that the pandemic will have had on their ability to plan. For that reason, the Government are taking a pragmatic and flexible approach to using some of our regained powers as a sovereign nation. By deciding to introduce new border controls in three stages up to 1 July 2021, industry benefits from extra time to adjust to the new procedures. Pragmatism will remain a hallmark of our policy development in the run-up to the end of the transition period on 31 December and beyond.
We have discussed traffic management in Kent many times over recent years and there are now well-established traffic management plans in place. These are currently being revised and we are working closely with the Kent Resilience Forum as we always do. We will draw on the previous planning for no deal, using a combination of on-road lorry holding in the M20 contraflow and off-road sites. We will, of course, need to incorporate changes to reflect the role of the new smart freight system, which I will come to in a second. In areas outside Kent, we continue to support the local resilience forums and each area likely to be affected is also reviewing its traffic management plans ahead of the end of the transition period.
On lorry parking specifically, the Government have committed to supporting ports and airports to put in place new or expanded border facilities in Great Britain for carrying out required checks, as well as providing targeted support to ports to build new infrastructure. Given the scale of infrastructure required and where there is a lack of space in ports, the Government are aiming to provide inland sites at strategic locations. A number of noble Lords had many questions about lorry parking, and I will write to them, as I have further details on planning and considerations for local communities.
I turn now to the smart freight service, which will be up and running for January 2021. To minimise any potential disruption, we are working with businesses and the haulage sector to ensure that it is effective and simple to use. In brief, we want and need traders and hauliers to be ready to travel, particularly at the short straits. This was noted by my noble friend Lord Lansley. I also note his comments on the trusted trader scheme. The SFS will simplify and automate the process of establishing the border readiness of a haulier, and it will be compulsory to cross at the short straits. Once a few details have been entered, the SFS will tell the driver that green means the driver is okay to travel; amber means the driver must go to an HMRC office of departure or a third party consignor; and red means that some or all documents are missing and the driver needs to go back, speak to the trader and get the missing documents. If the driver does not get a green light, they will not get a Kent access permit. That will mean that they should not be driving around Kent. If they are found driving around Kent, they will get a £300 fine.
On the island of Ireland, noted by the noble Baroness, Lady Ritchie, we fully recognise the importance of maritime links between Northern Ireland and Great Britain. During the pandemic, of course, we have been working closely with the Northern Ireland Executive to keep services running and continue the flow of goods. As also noted by the noble Baroness, the Enterprise train service between Belfast and Dublin is vital, and robust and effective arrangements are already fully in place to ensure that that service can continue.
I thank noble Lords for the exceptional quality of the debate today. I understand that we will probably go around this track again in the coming months, and I would be delighted to do so. I will, of course, write with further details on matters that I was unable to address today.