(3 years, 9 months ago)
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Lord Kennedy of Southwark
Member’s explanatory statement
This amendment would extend the rate relief to publicly-owned libraries and community centres, and local authority properties, which are free to enter and which contain public lavatories that are free to use.
Lord Kennedy of Southwark (Lab)
My Lords, as this is my first contribution today, I draw the attention of the House to my relevant registered interest as a vice-president of the Local Government Association. Amendment 1 in my name and that of the noble Baroness, Lady Pinnock, seeks to amend Clause 1(3) of the Bill. The purpose of the amendment is to bring into the scope of the Bill those toilet facilities that are in community centres, libraries and other local authority buildings and are free of charge for use by members of the public.
There are clear and undeniable public health benefits to having toilets that are available for the public to use. This amendment seeks to increase that provision. I recognise that in some cases, libraries and other public buildings already make their toilet facilities available to the public. This amendment supports them for doing that, but goes further, as it provides a welcome encouragement for those facilities that do not have the same access provision to be made available to the public. There has been a noticeable decline in public facilities over recent years, and this amendment seeks to reverse that trend by providing rate relief as an encouragement either to continue with the access presently provided or to extend access to the public to take advantage of this rate relief.
The noble Lord, Lord Greaves, has tabled Amendment 9, which I am very happy to support, and the noble Lord will explain the effect of his amendment when he speaks shortly. I beg to move.
Lord Greaves (LD)
My Lords, I thank the noble Lord, Lord Kennedy, for his support for my Amendment 9 in this group. I will speak to both my amendment and Amendment 1, which the noble Lord has just moved. I declare my interest as a member of Pendle Borough Council, which no longer has public lavatories but is the rating authority for those that exist. I thank the Government for scheduling this Committee fairly quickly after Second Reading so that we can progress this Bill; it gives us real hope that the Bill will manage to pass in this Session.
The amendment in the name of the noble Lord, Lord Kennedy, would follow up amendments moved in the Commons and comments made quite widely by people at Second Reading in your Lordships’ House. They pointed out that very many lavatories that people consider to be public lavatories and that operate as public lavatories are ancillary to other facilities provided by local authorities and other voluntary bodies, and so on. The problem is that, from a rating point of view, they are part of the same hereditament as the facility to which they are basically ancillary and therefore would not come under the provisions of this Bill as it stands. The Minister has kindly written to interested Members of the House putting forward the view that the Government put forward in the Commons that, to exempt these genuine public lavatories from business rates would be onerous—particularly on the Valuation Office Agency, which is responsible for doing all this— and that it would therefore not be practical to go ahead with it.
My Amendment 9 tackles some of the affected lavatories, which would probably not be a very large number. I believe that this could be done without any onerous burden being placed upon the VOA or anybody else. It reads that, for the purposes of subsection 4(I), which is what this is all about,
“a self-contained public lavatories facility which forms part of a larger hereditament and which may be accessed independently from outside that hereditament forms a separate hereditament.”
It is possible that it would have to be done technically in some other way: it might be that it could be done via secondary legislation. The noble Lord, Lord Lucas, has amendments later on, to which I am not going to speak, but at this stage I will just say that I strongly support them; they provide an opportunity for the Government to tackle the technical details, and there are huge technical details in all this, because it is about rating. They would allow the Government to pick up a lot of the points that we are making in these probing amendments at this stage.
It seems to me that, when a lavatory is part of a council-owned building in the middle of a small town or village—it might be a library, market hall or any other council-owned building—and has an outside door so that, even if there is also an inside door that could be locked when the main building is not open, people would be able to access that from outside, sorting out the separate valuation for a limited number of instances like this would not be a great burden, and it could, and should, be done. In practice, the VOA will have done it anyway when it assesses the rates on the whole building, because here is a separate use from the main building and it will have a look at it and say, “What is the amount that that contributes?” Somewhere in the depths of its records, it probably has the information anyway. Even if it does not have it, however, it is not an onerous task for it to do. The number is relatively small compared with the great majority of lavatories in libraries and so on. I hope the Government will accept the principle of this—I do not expect them to accept my amendment as it is today—and go away and have a look at it. I invite the Minister to say that he will do that.
Lord Lucas (Con) [V]
My Lords, as I said at Second Reading, I welcome the Bill. That the Government have chosen to encourage the provision of public lavatories is a great public good, because adequate lavatory provision is a liberation for many millions of people, for whom the thought of not finding one when they go out is a significant restriction on their participation in society as a whole. There are said to be some 14 million people in this country with bowel or bladder problems. That is a very large proportion of the population who are worried about being able to access a public lavatory when they go out.
I really encourage the Government, perhaps not immediately but during the progress of the legislation, to look at opportunities to extend its reach. An obvious example is lavatories in stations, which everyone regards as public lavatories. Victoria station is very well used. It is only in a very peripheral way a part of any other hereditament. The same applies to lavatories in other public buildings, and to push in the direction which is being opened by Amendment 1 is thoroughly worth while.
There is no obvious need for a public lavatory to be a separate building. It seems, given the attractiveness of public lavatories, that having them in a building encourages other uses of that building too, and that their integration into public buildings should be encouraged. If we can find a way round it over the next few years, we should not be privileging just those public lavatories which are free standing.
As has been said, I really hope that the Government look on this as an opportunity, over time, to encourage facilities that are needed for the general public enjoyment of public facilities by extending the rather narrow rating release in the Bill to the many other deserving facilities that are provided at public expense and otherwise, and without which we will find ourselves rather too often caught short.
Lord Hope of Craighead (CB) [V]
My Lords, I have a great deal of sympathy for what the noble Lords, Lord Kennedy of Southwark, Lord Greaves and Lord Lucas, have said in support of these amendments. For some people, venturing into parts of our urban communities where they cannot be sure of access to a public lavatory is a risk that they dare not take. The physical conditions that create this problem can affect all ages. One thinks especially of the elderly, but there are also visitors to the area and others who depend on the uncertainties of public transport to get home. Whoever they are, they need to be provided for.
My interest in this subject, as I have mentioned before, is a professional one. I am interested in whether the amendments to test alternative solutions to those which the Government are suggesting are capable of being put into effect. The valuation of buildings for rating was one of my specialist subjects when I was in practice at the Scottish Bar. The valuation process itself was not for me; that was the job of chartered surveyors. The noble Earl, Lord Lytton, is a distinguished member of that profession, with years of experience in the practice of that art, and I am very sorry that for other reasons he is unable to take part in this debate.
However, valuation for rating is not just about facts and figures. There are some legal rules too, and that is where I come in. The non-domestic rating system is the product of a listing process. Every non-domestic hereditament that is capable of separate occupation must be entered in the valuation list and given a value. A single building may contain within it a number of properties that are in separate occupation. If so, one would expect each of them to be the subject of a separate entry and a separate value, but where one finds a building in a single occupation, the consequence is that the entire building is treated as a separate hereditament and valued accordingly.
Baroness Randerson (LD) [V]
My Lords, I declare an interest as a member of an informal campaign group which seeks to improve the standards of public toilets generally. I am pleased to speak in support of the amendments in this group, and I am grateful to the Minister for his response by letter to issues that I, among others, raised at Second Reading. However, I am sure that he will forgive me when I say that I found his arguments unconvincing.
I accept that to include facilities open to the public, but not as separate or distinct buildings, would mean a valuation exercise. In each local authority area this would involve numbers maybe in the dozens, not the hundreds. That really cannot be seen as a costly hurdle. The Minister believes that it would divert resources from the 2023 revaluation. It should simply be part of the revaluation. I also reject the idea that identifying the facilities concerned would be difficult. These are public facilities and public bodies would self-identify. I also recommend to the Minister the Great British Public Toilet Map, available online, and a number of apps which guide you to local public toilets.
As it stands, the Bill is of course sensible, but it is a paltry little measure and will certainly not bring the transformation needed. I am not sure how deeply the Government consulted local government representatives. The local authorities that I am familiar with ceased building stand-alone public conveniences decades ago because problems of anti-social behaviour are so much greater in isolated blocks. Nowadays, new sets of conveniences are mainly incorporated in other public buildings, where issues of safety for users, maintenance and cleanliness are more easily dealt with. Stand-alone blocks obviously still exist but are often old and are too often already closed and shuttered.
I also wish to test the definition of “publicly owned”. The definition is very blurred these days. Facilities can be publicly owned but privately run—for example, in many areas that is the case with leisure centres. My area has publicly available toilets in libraries and shopping centres. The shopping centres are commercial developments and commercially run, but the toilets are discrete units. They are not just toilets in shops; there are separate doors to them, but it is a commercial operation.
We also have public toilets in the Wales Millennium Centre in Cardiff—a large building at the centre of Cardiff tourism in the bay. It houses major musical events and a lot of youth and artistic activities. It runs free concerts and there are shops and cafes. There is free public access to the toilets. The Wales Millennium Centre is run by a trust, but that trust has been funded by major amounts of public money. I know that the noble Lord will say that that is in Wales and that there is a separate set of rules, but I use it as an example. Clearly, it would not qualify for this scheme, but why should it not? It provides the same facilities, with cleaning and maintenance, and the public are allowed to enter for a large number of hours each day of the week.
It is really not difficult to ascertain whether toilets are genuinely publicly available or available for a reasonable amount of time each day. The Minister told us that the Government are adopting the community toilet scheme, and similar types of rules can apply for rate relief.
My concern is not just that the Government’s scheme is not generous enough; it is also that it is not even-handed. Public toilets in buildings still have to be maintained and cleaned, so why should an accident of situation define whether this relief is granted? It could even discourage major new developments from incorporating what would be genuinely public toilets.
Baroness Pinnock (LD) [V]
My Lords, I draw the Committee’s attention to my interests as listed in the register: as a member of Kirklees Council and as a vice-president of the Local Government Association.
The amendments in the names of my noble friend Lord Greaves and the noble Lord, Lord Kennedy, to which I have added my name, challenge the scope of the Bill in its restriction to public toilets that are stand-alone and not part of a larger public building, such as a library or community centre. I thank the Minister for the opportunity to discuss these amendments and for the letter that he sent explaining the reasons for confining the scope of the Bill to stand-alone public toilets. However, we have to remember that one consequence of the long period of cuts to local government funding has been that many public toilets have been closed permanently. In my local authority, which serves nearly half a million people, there are now no stand-alone public toilets. The Bill is welcome but it is very much like closing the stable door after the horse has bolted.
These amendments are intended to encourage the Government to appreciate the wider need to increase the availability of public toilets. There is already pressure for some public toilets in public buildings to be closed because of the costs associated with keeping them open, as they are not part of the focused purpose of the building. For example, a public library is having to use scarce funds to keep the public toilets in its building open when there is barely sufficient funding to staff the building. That is the dilemma facing local authorities, certainly in the northern urban areas that I know well.
My noble friend Lord Greaves’s points are well made. Local people regard public toilets within a public building as being the same as stand-alone public toilets. The challenge is explained in the letter that I referred to earlier—the volume of work it would impose on the valuation office—but my noble friend Lord Greaves’s amendment seeks to find a way round this for public toilets that have separate access. I hope that the Minister is able to respond positively to that amendment.
The noble and learned Lord, Lord Hope, is an expert on these matters. He has said that valuation for rating is not just about facts and figures. One example that he provided was the relief given to charities. The Government would do well to take heed of the arguments that the noble and learned Lord made, and that view has been well supported by my noble friend Lady Randerson. As well as making those arguments and supporting my noble friend Lord Greaves’s view, she argued that improved public toilets are more secure and can be more easily kept clean if they are within a public building, rather than being stand-alone.
The Government have a responsibility to ensure adequate availability of publicly funded public toilets. It is a responsibility that has been accepted since the days of the great Victorian public heath reformers. The Bill demonstrates that the Government continue to accept that they have that responsibility. It is not sufficient, in fulfilling this obligation, to make those public toilets that have survived the cull zero rated. The Government must provide the means for local government to increase availability to meet local need. That is what these amendments seek to do and I wholeheartedly support them.
The Minister of State, Home Office and Ministry of Housing, Communities and Local Government (Lord Greenhalgh) (Con)
My Lords, I am grateful to the noble Lord, Lord Kennedy, for raising the points highlighted by his amendment and for his valuable and knowledgeable contribution to the Second Reading debate, supported by the noble Lord, Lord Lucas, and, with great knowledge, by the noble Baroness, Lady Randerson. I point out that the horse has not bolted entirely. There are nearly 4,000 separately assessed public toilets in England and Wales—3,990 as of 31 March 2020—and therefore this is a very important relief for those properties.
The effect of the first amendment would be to extend the scope of the relief to include publicly owned properties, such as libraries, community centres and other local authority properties, where they contain free-to-use public lavatories. In effect, this would mean that the local authority-owned buildings that contained a non-fee-paying public lavatory would be exempted from paying rates.
It is the Government’s firm view that public bodies, like other ratepayers, should pay rates on the properties they own and occupy, and it is therefore right that the legislation should broadly reflect this principle. The Government’s policy aim, and the purpose of Clause 1, is clear in that it provides a targeted relief to support the provision of public lavatories in specific circumstances. In particular, we want to support facilities that exist where there are unlikely to be any other publicly available toilets, such as those along our coastline or in towns, where removing the additional costs of business rates could make a significant difference to the ability of councils or others to keep the facilities open.
Lord Kennedy of Southwark (Lab Co-op)
My Lords, I thank all noble Lords who have spoken in this short debate. Both amendments in this group—from the noble Baroness, Lady Pinnock and me, and from the noble Lord, Lord Greaves—attempt to probe how the Bill could increase the number of public lavatories and prevent further closures.
I agree with the noble Lord, Lord Lucas, about toilet facilities at stations. I regard these as public lavatories. It would be good to extend the provisions of the Bill to cover them. In recent years, charges have been removed at virtually all mainline stations in London—with the possible exception of Marylebone. This is good news.
Amendment 9 from the noble Lord, Lord Greaves, provides for those public toilets with a separate entrance to be brought into the scope of the Bill. The noble Lord is right; there are probably not that many facilities which would come into this category, but it would be a welcome move.
I agree with the noble Baroness, Lady Randerson, that it would not be onerous to identify the different facilities which would come into the scope of the Bill. I do not accept the Minister’s comments about onerous costs on local authorities. In effect, the facilities would self-identify. I do not believe there is a huge amount of work involved. I do not accept the argument that the cost would outweigh the benefit to the local authority going forward. I am also grateful for the support of the noble and learned Lord, Lord Hope of Craighead.
We all support the aims of the Bill. It is good as far as it goes. If we want to stop the decline in the number of public lavatories—and the public health benefits that go with them—we will have to go a bit further than this welcome Bill. This is the point of our amendments. I am sure we shall bring them back on Report. I hope that the Minister will reflect on whether, if we all want the same outcome, we should go further. I do not accept that the costs outweigh the benefits. I beg leave to withdraw the amendment.
The Deputy Chairman of Committees (Lord Lexden) (Con)
We now come to the group beginning with Amendment 2. Anyone wishing to press this or anything else in this group to a Division must make that clear in debate.
Amendment 2
Lord Greaves
Member’s explanatory statement
This is a probing amendment to explore the meaning of “mainly”.
Lord Greaves (LD)
My Lords, I thank the Minister for his detailed response to my previous amendment. I thought that commenting here would be more convenient than making a separate intervention after the Minister in the previous group. That amendment—and others in this and other groups—will give rise to the need for further discussions with the Minister about some of the technical details, if he is agreeable. With the exception, perhaps, of the noble and learned Lord, Lord Hope, none of us is an expert lawyer. We are trying to understand how it works.
That is the purpose of Amendment 2. I am not trying to persuade the Government to remove “mainly”; that would make the Bill even worse. This is a typical House of Lords Committee probing amendment. I am sure that during the noble Lord’s long career as a local government Minister in this House, he will have a lot of fun with a lot of similar amendments to much bigger and longer Bills. This is what we do. It is a way of asking questions. What does “or mainly” mean? It is not clear, and it is not defined.
The National Association of Local Councils’ briefing says that the cost to councils of paying rates on public lavatories is £8 million. The Minister said that the cost of the Bill as it stands is £6 million. Either in his reply to this, or at some other time during today’s discussion, could he explain the difference between those numbers and where it comes from? Perhaps he can give us figures for the extra costs which he thinks would be incurred by some of the proposals being put forward.
I have one other amendment in this group—Amendment 7. I had another, similar probing amendment, but there was a technical problem with it. It was my fault for submitting it on the last day. The Public Bill Office kindly offered to have the Marshalled List reprinted, but I said I could cope with what we have here.
Amendment 7 suggests that “mainly”
“is to be construed according to an assessment by the rating authority of the balance of use by the public of the public lavatories compared with the remainder of the hereditament, disregarding the proportion of the area occupied by the public lavatories.”
I have been trying to get my mind round the relationship between a public lavatory—which might be free standing —and the land on which it stands. This might be a garden area or amenity area in a town or village: a mini-park—or a pocket park, as they are called nowadays; we all know the kind of thing—or it might be a full park. If it is within a park, and basically for the people using that park, it will not be paying rates anyway, because parks are zero-rated. I think it is regarded as part of the hereditament that consists of the park.
If the public lavatory is free-standing in a park or elsewhere and the land around it is a separate hereditament, it will benefit from the Bill. However, somewhere, there must be a dividing line between a lavatory in a park and one that is mainly in an amenity area that forms part of the same hereditament as the lavatory, which is therefore all rated. That is the purpose of this amendment. Alternatively, there may well be a public lavatory that is part of a wider hereditament, the rest of which has fallen into disuse, but it is all part and parcel of the same rate.
If the public use of a public lavatory is greater than that of the rest of the hereditament of which it is a part, and is thus mainly what happens there—this might be a building that contains other council facilities: a storage shed or office, for example—I do not know how this would be worked out under the Government’s own proposal that everything should rely on “mainly”, where this word applies to use by the public.
The other amendment I was going to put down was about the financial valuation. It may be that a hereditament contains a public lavatory and, to all intents and purposes, is a public lavatory but contains another use: it is a mixed hereditament. I am not talking about a public library—where the lavatory is just a small part of it, as the noble and learned Lord, Lord Hope, said—or a community centre, where the public lavatory probably would not be there if it did not exist. How do you decide if a council-owned building that consists partly of a public lavatory and partly of something else is “mainly” a public lavatory? Even if the assumed assessment or valuation of the rest of the building for rating purposes is greater than that of the public lavatory, the latter should nevertheless trump—that may not be quite the right word—or prevail over the rest.
I hope the Minister understands what I am saying. First, how does he define “mainly”? Secondly, even if the public lavatory is a smaller part of the area, can it prevail as the main use? Thirdly, if it is not as valuable as the thing it is attached to, whatever that is—a tiny parish council office or something like that—can it nevertheless be the prevailing use? I ask those questions to find out how the provision will actually work in practice: what is the workability of this, as regards public lavatories? Having said that, I beg to move Amendment 2.
Baroness Pinnock (LD) [V]
My noble friend Lord Greaves has rightly questioned the meaning of “mainly” and its purpose: is it, as he asks, about the extent of public use? He is an experienced user of such probing amendments in seeking to get to the detailed consequences of Bills, and this one is no exception. I am sure the Minister will be able to give a detailed explanation in reply, and I look forward to hearing it.
The other query that my noble friend Lord Greaves rightly raised concerns his information that the cost of paying rates on public toilets is £8 million a year, which is rather different from the £6 million cited by the Minister. It would be good to know the reason for the difference in those figures, and why. Having said that, I am looking forward to the Minister’s response to my noble friend’s probing question.
Lord Kennedy of Southwark (Lab Co-op)
My Lords, I have nothing really to add: the noble Lord, Lord Greaves, has set out very clearly and carefully what he seeks to get from his amendment. As we have heard, it is a very good probing amendment that gives the noble Lord, Lord Greenhalgh, the opportunity to set out carefully for the Committee what is meant by “or mainly”. As the noble Lord, Lord Greaves, said, this is a good House of Lords way of getting into the detail of the Bill, and I look forward to the Minister’s response. Amendment 7 seeks, of course, to provide a welcome definition of what “mainly” could be construed or interpreted as, giving weight to public use of public lavatories. I will leave it there, and I look forward to the Minister’s explanation.
Lord Greenhalgh (Con)
My Lords, I am beginning to learn how the House works, and I appreciate the education; I am sure I will get used to this way of drawing out important information. These amendments probe the current definition of a public lavatory that would qualify for this relief, and seek to amend this definition to capture some of the facilities that the Bill does not currently cover.
The Government have carefully drafted the scope of the Bill, and I am pleased to have the opportunity to set out for the House the rationale behind this decision. Subject to Royal Assent, the relief within this Bill will apply to all hereditaments that
“consist wholly or mainly of public lavatories”.
Amendment 2, tabled by the noble Lord, Lord Greaves, probes the meaning of “mainly” in this provision. The phrase “wholly or mainly” can be found across government legislation and, in particular, exists within that legislation which provides for an 80% business rate discount to properties used
“wholly or mainly for charitable purposes”,
as the noble Lord mentioned. Local authorities are responsible for deciding which properties are eligible for business rate relief, and the use of “mainly” provides for some discretion on their part.
However, I will directly respond to the noble Lord, Lord Greaves, on how this would work in practice. Councils should reflect on all relevant matters, including any relevant case law and guidance, when making these decisions. The use of “mainly” means that an authority may, for example, look at the floor area of a building and see that less than 50% is being used directly as a public lavatory, but it may still feel that it meets the criteria for this relief because the remaining area is used as storage or for other matters of little consequence. That is very similar to the example that the noble Lord gave. The Government consider it right that the Bill provides local authorities with this level of discretion because these are decisions best taken on the ground and on the basis of local knowledge.
The second amendment tabled by the noble Lord, Lord Greaves, follows on from the first and would act to define “mainly” within the Bill in reference to the extent to which a property is used as a public lavatory, rather than for other purposes. I appreciate that the intention of this amendment is to provide for the relief to be available to buildings that do not constitute separately assessed public toilets but that serve that purpose to a large extent. As I set out earlier, an expansion of the relief beyond those toilets that are separately assessed and have already been identified and separately rated would bring with it significant administrative burdens and costs.
In the case of this amendment, local authorities would be required to not just identify qualifying facilities but assess the extent to which the public are using them for different functions. The public use test would be particularly cumbersome because it would go beyond an assessment of a property’s physical elements and would require an analysis of the extent to which these elements are used by the public. The results of such a test could change relatively frequently, and local authorities may need to make the required assessment on a regular basis.
As currently designed, the measure in the Bill does not carry implementation costs disproportionate to the benefits to ratepayers, nor any significant implementation difficulties for local government. As such, we are not in favour of any amendment to this relief which would increase the complexity of its implementation, create unnecessary burdens for local authorities, or indeed create administrative costs disproportionate to the total benefit to ratepayers. However, I would be keen to engage with noble Lords on some of the technical reasons for not expanding the scope of the Bill.
I again thank the noble Lord, Lord Greaves, for his amendments, which probe the design of the relief before the Committee. However, for the reasons that I have set out, I do not consider that the potential benefits of the amendments would outweigh their substantial costs and I hope that the noble Lord will not press them.
Lord Greaves (LD)
My Lords, I am grateful to my noble friend Lady Pinnock and the noble Lord, Lord Kennedy, for their support in this little group, and I thank the Minister for agreeing that we will have some discussions about it. He said that this would be to explain to us what we did not understand, and that we would then understand it. That is fine; I am totally in favour of understanding things.
I hope that the Government understand that some of us, at least, are trying to help them with this, to produce a slightly better Bill. We are not trying to wreck it and certainly not trying to place lots of extra administrative burdens on local authorities. We are looking for ways in which common-sense solutions can be found to problems which are going to occur. Inevitably, a town council will say, “Why are we paying rates on this and not that?” They are not experts, and it will cause all sorts of grumpiness. Also, it will not do, in some instances, what the Government are trying to do, which is relieve the burden on councils, particularly town and parish councils which are increasingly taking on public conveniences. So I hope the discussion we have will be two-way
The Minister said two things. First, he said that, in deciding what “mainly” means, councils should reflect on all the “relevant case law”. He then said that he did not want to put administrative and other burdens on councils. It sounds to me as if the Government are already admitting that there are going to be problems. If you have got to go to all the relevant case law and goodness knows what, it inevitably results in the creation of new case law, because it will get to the courts.
The second thing the Minister said was that the rationale was similar to that for charitable 80% relief, and that that is for “wholly or mainly” charitable use. The word “use” is crucial there, because the Bill does not say “use”, but
“consists wholly or mainly of public lavatories.”
One of my amendments talks about use. Can we look at that, and give the rating authorities a steer that it is the use which is important, rather than the other things, as the legislation does for charitable relief? That might just be a way forward.
I hope that the Government will not be stubborn and say that they are not going to change this under any circumstances, if there are ways through some of these problems. On that basis, I beg leave to withdraw at this stage and look forward to discussions with the Minister.
The Deputy Chairman of Committees (Lord Lexden) (Con)
We now come to the group beginning with Amendment 3. Anyone wishing to press this, or anything else in this group, to a Division must make that clear in debate.
Amendment 3
Lord Kennedy of Southwark
Member’s explanatory statement
This amendment would confine the rate relief to public lavatories that are free of charge to use.
Lord Kennedy of Southwark (Lab Co-op)
My Lords, Amendment 3 in my name seeks to add the words
“which are free of charge for anyone to use”
to Clause 1(3). The Bill provides a financial benefit and the effect of my amendment would be to restrict that benefit to public lavatories that are free to use—a very reasonable aspiration and objective. I do not see why those public lavatories that you must pay to use should be a beneficiary of this relief. The purpose of the Bill is to provide encouragement in this area, and I think that this amendment strengthens the Bill in this regard and provides a clear focus on the free use of public lavatories.
Amendment 10 from the noble Lord, Lord Greaves, is very sensible and I fully support it. Why should we provide financial benefit when the lavatory is not open for extended parts of the day? But I will let the noble Lord explain his amendment to the Committee.
On a more general point, in resisting amendments in previous groups, the noble Lord, Lord Greenhalgh, has relied on the argument that the Government do not want to place additional burdens on local authorities and that any savings would be outweighed by the cost of identifying these lavatories. When he replies to the debate, it would be useful if the Minister could evidence that. I have heard nothing from any local authority—the National Association of Local Councils, the District Councils’ Network, London Councils or the Local Government Association—to suggest that the argument that the Minister is relying on has any basis in fact. So it would be useful if he could explain that to the Committee. Or is it just the assertion of the department? I look forward to his response to the debate.
Lord Greaves (LD)
My Lords, I will speak to Amendment 10 in my name and Amendment 3, proposed by the noble Lord, Lord Kennedy, which is fairly basic. I am old enough to remember one of the great hue and cry campaigns by women; it would be called a gender campaign nowadays. Not only did they have to spend an old penny—one of those great big things which people under 40 or 50 have never seen—but they had to go through a turnstile, which caused problems for pregnant women. That was a huge hue and cry at the time and was, I think, sorted out—but there are still plenty of supposedly public lavatories where you have to pay. The most disgraceful ones in my view were at mainline railway stations, which started charging considerably more than a penny, but that seems to be being changed now.
Amendment 10 would prevent bodies benefiting from free rates when the lavatories are not open for a reasonable amount of time and at reasonable times. I am always told by lawyers and Governments that the word “reasonable” should never be put in legislation because all legislation has to be reasonable before you start. Nevertheless, this seems to me to be a reasonable thing to discuss in this Committee.
There may well be some public lavatories in tourist areas which are not needed, or not in such quantity, at some times of the year. There may be ones which are needed at some times of the week and not others. It may be perfectly reasonable to lock public lavatories overnight to prevent them being used for undesirable purposes. That was certainly done in my part of the world. There may, indeed, be public lavatories which are open only on special occasions because of where they are and what takes place there. We used to have one which was opened at various times of the year, particularly on Remembrance Day, because it was next to the cenotaph. What is reasonable ought to be up to local decision-making by the owners of the lavatories, but they ought to be stopped from keeping them shut when they ought to be open. That decision ought to be made by the rating authority.
I think it was the noble Lord, Lord Kennedy, who referred earlier to some confusion in the Bill about what a public lavatory is, in terms of ownership. Does this Bill apply only to facilities owned by councils or by other public bodies, or to other voluntary bodies and charities as well? Does it apply to commercial enterprises that might provide a public lavatory at the entrance of their commercial facility—there might be a park, or whatever—which is open all the time for public use? Could the Minister clarify that? Is it use as a public lavatory, under the Minister’s terms, that matters, or, is it who owns it that matters? That would be a helpful clarification.
My amendment is about how the Government are going to stop people freeloading and getting rate relief when they are not providing the facility they ought to be.
Baroness Pinnock (LD) [V]
My Lords, there are important and relevant issues to explore in Amendments 3 and 10, proposed by the noble Lord, Lord Kennedy, and my noble friend Lord Greaves, respectively. When a financial benefit is to be gained, as there is in this Bill, it inevitably becomes an issue of dispute at some time in the future when some realise that they are not getting rate relief on their provision of public toilets while others are. That is why it is important to explore what the Government are proposing here.
As we have heard from the noble Lords, Lord Greaves and Lord Kennedy, there is a considerable range of public toilet facilities. Some are open only during the day and some not at the weekend; some require payment, and some do not. We need to understand the implications of this variety of provision for the purposes of the Bill. Is it acceptable to make a small charge for a public toilet facility and get the rate relief proposed in this Bill? What will happen if that small charge becomes ever larger? Is it still right, then, that that facility is zero-rated? These two amendments indicate that what may appear to be simple, straightforward changes can have inconsistent consequences once the detail of the implementation is exposed, as it has been so expertly this afternoon. I look forward to hearing the reply from the Minister.
Lord Greenhalgh (Con)
My Lords, the noble Lord, Lord Kennedy, wanted to know the evidence that this would cause a burden disproportionate to the level of relief provided. The reality is that, under these proposals, we are not asking local authorities or the Valuation Office Agency to do anything in addition to what they already do. But where we are widening the scope, we are asking local authorities to do something they do not currently do, so by definition that will increase burdens on them and, in some cases, on the Valuation Office Agency.
The effect of the amendments from the noble Lords, Lord Kennedy and Lord Greaves, would be to apply a set of conditions that would need to be satisfied before the relief could be granted. I will expand on the reasons why I do not believe these are helpful in the operation of the relief. As a principle, I do not agree we should be moving away from the clear and simple aims of the policy by limiting this much-needed support.
The effect of Amendment 3 would be to exclude those who own and run facilities where a small fee is charged from receiving this relief. The Government’s policy aim and purpose in Clause 1 is to target the relief to best support the provision of public lavatories. In particular, we want to support facilities that exist where there are unlikely to be any other publicly available toilets, where removing the additional costs of business rates could make a real difference to the ability of councils or others to keep the facilities open. I understand the concerns of the noble Lord, Lord Kennedy, about free-to-use public toilets. Nevertheless, the purpose of this Bill is to provide targeted support to separately assessed public lavatories, recognising the particular circumstances they face, not to draw a distinction between those that charge and those that do not. Such a distinction would add complexity, uncertainty and an unnecessary administrative burden for local authorities and would increase the pressure on those facilities that are not able to access this support. I do not agree that those ratepayers that operate a public lavatory and charge a minimal fee for the first service should be excluded from this vital support.
I understand the practice of charging a fee is reducing, but those that charge do so on the basis of a commercial decision. In some cases, that fee may be charged to meet the ongoing costs of maintenance and cleaning, which is entirely reasonable. Nevertheless, I recognise the importance of knowing which facilities charge and what services they provide, so I welcome the work of the British Toilet Association, which provides an online service called the Great British Public Toilet Map, which has been referred to by the noble Baroness, Lady Randerson. This provides visitors with critical information about toilets in a specific area, including whether they are free to use, whether they are accessible and whether they have baby-changing facilities. Users can then make a decision in good knowledge and plan appropriately. I also commend the community toilet scheme, which was first devised by the London borough of Richmond upon Thames and is now used by local authorities across the country. This enables local businesses to work with councils to widen lavatory access so the public can use their facilities without making a purchase.
Amendment 10, proposed by the noble Lord, Lord Greaves, would limit the relief on the condition that the facilities should be open at set times and days as reasonably necessary. As I have outlined, our aim is to increase the support for the provision of public toilets, not to reduce the level of assistance for facilities that are most in need of support. I would not support the creation of a further burden on authorities to assess and police the opening and closing times of a toilet before awarding relief. The establishment of such a regime would be disproportionate to the value of the relief and would not represent good value for money to the taxpayer. As I have set out, the relief applies only to occupied facilities and is awarded only in these circumstances. While I understand the intention of the amendments from the noble Lords, Lord Kennedy and Lord Greaves, in practice, they may, at best, be unhelpful and, at worst, unnecessarily increase pressure on toilets to close.
I hope that I have helped clarify the Government’s intention about how the measure would apply. With these assurances, I hope the noble Lord, Lord Kennedy, can agree to withdraw this amendment.
Lord Kennedy of Southwark (Lab Co-op)
My Lords, I thank all noble Lords who have spoken in this short debate. We are identifying issues the Government should reflect on before this Bill comes back on Report.
The noble Lord, Lord Greenhalgh, has not sought to challenge my general point from my earlier remarks, that the position of the Government, in resisting any amendment here today, is that we are creating burdens on local authorities that far outweigh the benefits. Yet, as I have said, I have looked and cannot find any organisation from local government—the LGA, the Welsh LGA, the District Councils’ Network, London Councils, the National Association of Local Councils—or, in fact, any local council or local authority in England or Wales that would support the Government’s position. If they actually asked them, I suspect there would be a lot of support from local authorities for increasing the benefits of support for their network of public toilets. I will leave that point there, and at this stage, I beg leave to withdraw the amendment.
The Deputy Chairman of Committees (Lord Lexden) (Con)
My Lords, we now come to the group beginning with Amendment 4. Anyone wishing to press this or anything else in this group to a Division must make that clear in debate.
Amendment 4
Lord Lucas
Member’s explanatory statement
This amendment ensures the Government has power to require that the lavatories are provided and operated in accordance with national standards, making proper provision for the various needs of their potential clientele including the disabled, parents with children, women and trans people.
Lord Lucas (Con) [V]
My Lords, I urge the Government to take the opportunity to give the Bill some wording that expands its ambit, and to take advantage of the leverage that it gives them—as the noble Lord has noted, it is a generous disbursement of funds—to achieve other policy objectives. The policy objective that I, personally, would like the Bill to support is whatever the outcome is of the Government’s current review of toilet provision in general.
It has been a joke all my life, let alone my noble friend’s life, how there is always a queue at the ladies and none at the gents. We have not had equal provision in relation to demand. We now need to recognise that there are people—particularly those who are committed transgender—who are not easily able to take advantage of toilets that are just for men or just for women. Having toilets that are universally unisex, such as those in the Old Vic and the Department for Education visitor accommodation, is extremely difficult for many women and some men, including me, to put up with.
There are, therefore, matters of policy relating to the provision of toilets that we can reasonably anticipate will come to the fore over the next couple of years. It would be good to give the Government, in this Bill, the ability to lever the rates relief that they are giving in order to achieve their policies. As the noble Lord, Lord Greaves, pointed out, we may find that over time there will be opportunities to expand the Bill’s ambit to other worthwhile premises in ways which, as my noble friend insisted, go along with the modus operandi of the valuation office. That is fine, but we are missing a chance if we leave the Bill as it is and do not give the Government additional power along the lines that I have suggested. I beg to move.
Baroness Pinnock (LD) [V]
My Lords, it is not clear to me why the noble Lord, Lord Lucas, believes that it is necessary to—I quote—prescribe a definition of public lavatories. It is not clear what policy objective would be achieved by his amendments. Without wishing to cause offence, that clarity has not been expanded during the noble Lord’s introduction of the amendment.
As we have already heard, there is currently a huge variety of provision: some are in old-style toilet blocks, some include Changing Places and some include baby changing facilities. Some modern provision consists of a single facility into which only one person at a time can enter. Some public toilets are unisex, as the noble Lord, Lord Lucas, explained. That is increasingly the case in modern office blocks. I have never heard anyone being particularly concerned about that provision. Public toilets are simply a facility for members of the public. I do not on earth see what is gained by prescribing a definition.
The best thing we can do, having heard the noble Lord, Lord Lucas, explain his amendments, is agree to disagree with him. I, for one, cannot support this amendment.
Lord Kennedy of Southwark (Lab Co-op)
My Lords, Amendments 4 and 12 in the name of the noble Lord, Lord Lucas, enable us to debate important issues. He seeks to ensure that lavatories that operate in accordance with national standards benefit from this relief.
The trade union Unison has campaigned on the issue of disability and the barriers that disabled people face when using a standard toilet. Many disabilities are hidden. The sign that we often see indicating disabled facilities is a person in a wheelchair, but fewer than 10% of people who meet the Equality Act definition of disability use a wheelchair. Signs that say “Some disabilities are invisible” have become more prevalent given the requirements of the pandemic restrictions. Crohn’s disease and colitis are two examples of conditions that may mean that a person has to use a disabled toilet facility while having no outward signs of disability.
As we move forward we need a greater understanding and respect for difference, and we must ensure that people are protected. These are not easy issues; if they were we would not be debating them today. What we also need is many more Changing Places toilets, which are a very important to cater for. We will get on to this later.
The comments from the noble Baroness, Lady Pinnock, reminded me that all the toilets by the reception at Southwark Council are gender-neutral, individual toilets. They are there for public use. So things are certainly changing, but we must at all times have respect for difference and for people. As we move forward on these issues we must ensure we keep those thoughts to the forefront and provide the facilities that people need.
Lord Greenhalgh (Con)
My Lords, I thank my noble friend Lord Lucas for his amendments, which would provide the Government with the power to limit this relief to only those toilets that meet prescribed criteria of their choosing. The underpinning nature of the amendments is the desire to see toilets for all, and I am very supportive of the need to have toilets for those who need disabled access, gender-neutral toilets and gender-specific toilets. As I set out to the House earlier, the Government do not intend to limit the measure within the Bill to only those toilets that meet certain criteria. Subject to Royal Assent, the Bill will support the provision of separately assessed toilets across the country. I therefore do not agree that it would be right to make any amendments which could limit the benefits of this measure.
Furthermore, limiting the relief to only those public lavatories that fit a prescribed description would place a significant burden on local authorities, which will be responsible for administering the relief. Well-intentioned though the amendment is, it would weaken the effectiveness of the legislation were we to require its provisions to be subject to a new, locally administered system of controls.
While I appreciate the arguments that my noble friend Lord Lucas made in support of the Government having the power to make this relief more specific, any benefits must be weighed against the consequential impact on local authorities of using such a power. Although I do not think that the Bill would be improved by these amendments, I appreciate the points that my noble friend makes about the standards of our public toilets.
The Government are interested not just in the total number of public toilets in this country but in ensuring that everyone in our communities feels confident and comfortable using them. This means maintaining hygiene standards and ensuring fair provision of accessible and gender-neutral toilets.
Noble Lords may therefore wish to note that the technical review of toilets launched by the Government will consider the ratio of female toilets needed versus the number for men and take into account the needs of all members of the community, to ensure fair provision of accessible and gender-neutral toilets. The call for evidence, which closes on Friday, has received over 15,000 responses; a government response will be published in due course. As part of this review, the merits of any best practice guidance on the provision of gender-neutral toilets will be considered, alongside any guidance on the necessary provision of access to disabled toilets. These considerations also include provisions for older people and parents with very young children who need changing facilities.
I hope this reassures my noble friend that the Government are supportive of not just the total number of public toilets but the vital importance of ensuring that appropriate facilities are available to all. On this basis—and the basis that the potential administrative burden resulting from these amendments would outweigh the benefits—I hope that he will agree to withdraw his amendment.
Lord Lucas (Con) [V]
My Lords, I am very grateful to my noble friend for his obiter dicta on the Government’s general intentions in this area, which I applaud. I can see that he has clearly understood the intent of my amendment and disagrees with it. I therefore beg leave to withdraw it.
The Deputy Chairman of Committees (Lord Lexden) (Con)
We now come to the group beginning with Amendment 5. Anyone wishing to press this or the other amendment in this group to a Division must make that clear in debate.
Amendment 5
Lord Kennedy of Southwark
Member’s explanatory statement
This amendment would give rate relief to premises that consist partly of public lavatories according to the proportion of the premises occupied by those lavatories.
Lord Kennedy of Southwark (Lab Co-op)
My Lords, Amendment 5 in my name provides for a relief where there is a public toilet in part of a premises by enabling it to be calculated and charged separately and benefit from the zero rating. It would provide welcome support for public lavatories, and I hope that the noble Lord, Lord Greenhalgh, will embrace it.
Amendment 6, also in my name, seeks to provide rate relief to a premises with a Changing Places facility. We need to do much more to support Changing Places facilities; providing this relief would be a very positive way to do so. Changing Places facilities provide the necessary space and equipment for people with disabilities —more than a standard accessible toilet can cater for. I mentioned at Second Reading that the Tower of London, a Historic Royal Palace, has a Changing Places facility installed. Noble Lords will know that that building’s construction dates from 1066, after the Norman conquest. The facility is in the New Armouries building, which was built in 1663. It has installed a Changing Places facility; we should follow its example and do the same elsewhere.
When lockdown ends, we want people to be able to get out, meet family and friends and do all the things we have all longed to do for so long. However, for disabled people wanting to enjoy those things that we often take for granted, we need to ensure more adequate, better and more suitable provision. It is not a lot to ask for. It is about dignity and letting people have the freedom to enjoy themselves. Supporting Changing Places facilities is a very welcome thing that we should all do. My Amendment 6 is a small step to encourage the provision of more Changing Places facilities. I hope that the noble Lord, Lord Greenhalgh, can provide a positive response. I beg to move.
Lord Hope of Craighead (CB) [V]
My Lords, the formula proposed by this group of amendments raises an interesting practical question. I support what the noble Lord, Lord Kennedy, said on Amendment 6 about the desire to provide for Changing Places facilities where required, but my interest is in a more practical question: whether what is proposed here works with the normal principles of rating and valuation law.
I understand that it is proposed to extend the relief to the more usual situation where there is a public lavatory, or perhaps more than one, within a larger building which is not accessible from outside—the situation contemplated by the noble Lord, Lord Greaves, in Amendment 9, which we considered earlier. This being so, these amendments correctly assume that a value has been given to the building as a whole; they seek to extract from that value the amount attributable to the public lavatory or lavatories by asking for it or them to be valued separately and the value given to the building as a whole reduced accordingly. As I said earlier, I am not and never was a valuer, but I fear that the exercise that the amendment contemplates is not nearly as simple as it might seem. The noble Lord, Lord Greenhalgh, touched on this earlier.
The problem is one that a valuer would readily identify. First, it is not normal for individual elements in a building, such as public lavatories, to be given values in the course of making up the value for the hereditament as a whole, so a valuation exercise would have to be undertaken which is not normally—indeed, probably never has been—undertaken in the course of the valuations we have today. There is also a consequence for the other part of the building that does not consist of these lavatories—the effect of extracting the value and whether the value attributable to the remainder can be properly sustained without some kind of examination. I suspect that this approach runs into quite difficult valuation problems which a valuer would need to explore with the Minister to see whether they could be resolved.
There may be an alternative solution. I mentioned earlier the example of charitable relief; this time I will take another. Rather than engaging in the rather difficult exercise I have hinted at, it might be worth considering applying a derating formula across the board to all hereditaments comprising public lavatories. There is precedent for that approach in a statute introduced in the 1920s to provide relief for industrial hereditaments. These were hereditaments that were shown to be occupied and used as a mine, factory or workshop. The details are to be found in the Rating and Valuation (Apportionment) Act 1928. Hereditaments which met the tests for being treated as subjects of that kind were entitled to a reduction of half their annual value. The aim was to deal with the acute problems of unemployment and to stimulate the economy by encouraging the development of subjects for industrial use. Of course, an enormous problem was being addressed there that was shared across the economy as a whole, and one can well understand the measure and the extent of the relief that derating provided. I should mention that that statute was repealed some years ago so does not apply today.
A 50% reduction would be out of all proportion to what we are talking about when considering the public lavatories element in the overall hereditament, but that does not affect the principle on which the relief was given in these cases: that it is possible, without getting embroiled in detailed valuation exercises, simply to introduce a form of derating for a desirable purpose to encourage whatever one seeks to encourage. If the Minister is not willing to accept these amendments, the noble Lord, Lord Kennedy, might find it worth considering a 1% or 2% deduction from the overall figure, perhaps adjustable by statutory instrument in the light of experience, as an alternative to the rather complicated valuation exercises that this group of amendments contemplates.
Lord Lucas (Con) [V]
My Lords, I am attracted to the idea that the noble and learned Lord, Lord Hope of Craighead, has just advanced. After Second Reading, I had a very long and entertaining conversation with the noble Earl, Lord Lytton, on the technical subject of valuation. Some of it may have stuck in my brain, but the overall impression that this was not a simple matter certainly stuck there—in particular, the idea that the uplift in rateable value that comes from having a toilet can be quite substantial. It makes, for instance, the upper floors of a department store much more attractive than one might think. So there are considerable complications underlying the process, and if a toilet was subtracted from the whole, the question of how that whole would be valued fairly—when a toilet is available but it is not being rated—becomes quite complicated. At least, that is the strong impression that I was left with after my conversation.
Baroness Pinnock (LD) [V]
My Lords, these amendments proposed by the noble Lord, Lord Kennedy, explore the opportunities for public toilets within a public building that are not separately rated, so that they may benefit from the purposes of the Bill. In particular, Amendment 6 seeks to achieve the benefits of the Bill for those facilities providing changing places. These are inevitably included within public buildings, where there is the large amount of space available to provide changing places.
The noble and learned Lord, Lord Hope, has shared his expertise on these matters. He provides alternative thinking about derating hereditaments that provide public toilet facilities. The principle is sound; we all seek today to find ways of supporting public toilets through the financial benefit provided by the Bill, and not just those which are stand-alone. I hope that the Minister will, with his department, think carefully about the solution that the noble and learned Lord is pointing to. I certainly hope that we will be able to explore it on Report.
I for one support any means for exempting non-domestic rates where there is a public benefit. This debate has revealed the total incoherence of non-domestic rating. For example, in my own town of Cleckheaton the public toilets we have as part of our small market hall are separately rated and cost the council £15,000 a year in rates. These are no grand-affair public toilets; they are just two toilets, one for men and one for women. The cost of the rates is by far the largest element of expenditure on the upkeep of these toilets, yet they provide a free public benefit. The rate charged on this humble public toilet block is far in excess, in ratio terms, of that charged on an out-of-town warehouse providing storage for online shopping. This is all out of kilter.
Fundamental reform is essential and the Government have for too long avoided taking these difficult decisions. I hope that the Minister will consider all the helpful suggestions made this afternoon and be willing to think again about the contents of the Bill. I look forward to his reply today, and to further discussions and further debate on Report.
Lord Greenhalgh (Con)
My Lords, I appreciate the backing that the Committee has given to the measures in the Bill and recognise the arguments made in support of extending the relief further still. The first amendment tabled by the noble Lord, Lord Kennedy, would provide for relief to be given to properties which contain public toilets that are not separately assessed, and for that relief to be determined according to the proportion of that property occupied by the public toilet. The second would have the same effect, but separately for properties which contain Changing Places facilities.
In designing the scope of the Bill, the Government have given due consideration to the benefits to our communities of extending the relief to those toilets that are not currently separately assessed. However, these benefits must be weighed against the significant practical and financial implications of implementing such a relief. I hope that my colleagues present today have received a copy of the letter of 2 February setting out these implications in detail—actually, I think most noble Lords today have referred to it. For the benefit of the Committee, I will set them out again now.
The Government have taken the deliberate approach of targeting the measure within the Bill at supporting those toilets that appear separately on business rates lists. This means that this support will be available to those facilities for which the cost of business rates has the largest bearing on their ability to remain open. The amendment tabled by the noble Lord, Lord Kennedy, would require the separate assessment of the rateable value of public toilets that sit within larger properties, and for the awarding of a business rates discount relative to the proportion of the property that the toilet occupies.
A valuation exercise to provide an apportioned relief would be extensive and require the Valuation Office Agency to first identify where the facilities are, and then to assess the specific rateable value of each toilet relative to the property of which it forms a part. This exercise would carry significant financial and temporal costs, as pointed out by the noble and learned Lord, Lord Hope of Craighead. It would require business rates valuers to carry out assessments and, where needed, to make site visits up and down the country. As such, it would divert critical VOA resources from the priority of delivering the 2023 revaluation and could potentially delay the implementation of the core measure of the Bill before the Committee today.
The noble and learned Lord, Lord Hope of Craighead, mentioned a formula-based approach to derating. This would also result in considerable burdens, for example by requiring the VOA to identify the location of the public toilets. Obviously, the scale of the intervention is different from that for mines in the 1928 Act, but I am happy to discuss that technical approach with my officials between now and Report.
I am proud to be here today championing a measure that will be of great value to our communities. While I recognise the importance of all publicly accessible toilets, the cost of extending this relief according to the amendment would be significant—far greater than the financial benefit to operators of such facilities. I hope that the Committee will agree that a relief with implementation costs disproportionate to its financial benefits would not represent good value for money for taxpayers.
Although extending relief to toilets that form part of larger properties would undoubtedly bring about significant and disproportionate costs and practical difficulties, I appreciate that the second amendment tabled by the noble Lord, Lord Kennedy, concerns Changing Places toilets in particular. I therefore hope that the Committee will allow me to set out the steps that the Government have already taken to support these vital facilities.
I am proud to belong to a Government who are delivering on their commitment to provide more Changing Places toilets. At the last Budget, the Chancellor announced a £30 million fund to further extend the provision of these vital facilities and my department will shortly set out the allocation of this funding. I would be happy to provide my colleagues in the House with further details on this funding once they are available.
The funding comes on top of the £2 million announced by the Department for Transport to provide Changing Places toilets at motorway services and the £2 million made available by the Department of Health and Social Care to install these facilities in NHS hospitals across England. I hope that that reassures the Committee that where a Changing Places toilet is separately assessed, the measures in the Bill, subject to Royal Assent, act to reduce the business rates liability of these facilities to nil. While there are significant practical reasons why the Bill does not cover toilets—Changing Places or otherwise—within larger buildings, the Government are delivering on their commitment to supporting Changing Places toilets directly through grant funding.
I hope that with those assurances, the noble Lord, Lord Kennedy, will withdraw the amendment.
Lord Kennedy of Southwark (Lab Co-op)
My Lords, I thank all noble Lords who have spoken in this short debate. I was particularly grateful to the noble and learned Lord, Lord Hope of Craighead, for his explanation of what would appear to be a far simpler method of achieving what I am seeking to do. I might have a look at that before Report as it seems to be a simpler method.
I thank the Minister for his response. Obviously, I am pleased to learn of the additional government expenditure on Changing Places facilities. It is good to hear but we need to do more and go further. However, at this stage, I beg leave to withdraw the amendment.
The Deputy Chairman of Committees (Baroness McIntosh of Hudnall) (Lab)
My Lords, we now come to the group consisting of Amendment 8. Anyone wishing to press this to a Division must make that clear in the debate.
Amendment 8
Lord Greaves
“(8E) Subsection (4I) does not provide any relief from non-domestic rates under the Rating (Empty Properties) Act 2007.”Member’s explanatory statement
This amendment ensures that rates continue to be charged on public lavatories that are permanently locked up and out of use.
Lord Greaves (LD)
My Lords, the Deputy Chairman really ought not to continue tempting me to call a Division but, never mind, I am not going to.
I tried to do some research. In May this year, it will be 50 years since I was first elected to a local authority and I thought that I knew about things such as business rates and so on. I have discovered in the past week or two that I do not know much at all. They are complicated and technical. I thought that I would ring up the noble Earl, Lord Lytton, and have a conversation with him but I have been advised by the noble Lord, Lord Lucas, not to do that because I might get too far into this subject.
As part and parcel of this matter, I have been looking at the Government’s rating manual, the Local Government Finance Act 1988 and the regulations that are referred to in Clause 2, and discovered why no amendments have been tabled to that clause because I doubt any noble Lords who might want to table amendments to it would understand a word of it. However, I thought it necessary to table an amendment on empty properties.
The amendment is technically totally hopeless—I am certain about that—but it contains the words “empty properties”. All I want to do is use it to ask the Government: can they give a guarantee that the Bill will not allow people to pay no rates on public lavatories that they have closed? I am aware that local authorities all over the country nowadays charge rates on all kinds of empty properties, which used not to be possible. I do not want people to be able to close public lavatories and still have rate relief on them as a result of the Bill; in other words, I am asking that the Bill should not trump other legislation that allows local authorities to continue to rate empty property, and that people will not be able get away with that. I look forward to the Minister’s response. I beg to move.
Baroness Pinnock (LD) [V]
My Lords, my noble friend Lord Greaves’ Amendment 8 rightly explores the possibility of closed public toilets being eligible for the relief under the Bill. As those toilets provide no relief for the public, it is quite proper that no relief is provided for the authority paying the rates. It is clearly an issue that we need to explore, and be certain that the legislation ensures that authorities do not benefit from closing public toilets. I look forward to the Minister’s response.
Lord Kennedy of Southwark (Lab Co-op)
My Lords, the amendment moved by the noble Lord, Lord Greaves, raises an important point and I hope that the Minister will able to provide some clarity on it. The amendment, on the face of it, highlights what would be an incentive to keep a public lavatory open. I look forward to the Minister’s response because, from what the noble Lord, Lord Greaves, said, it would be perverse if, by closing a public lavatory, one would be eligible for rate relief. I am sure that that is not the Bill’s intention but it is important to get clarity from the Government on the issue that the noble Lord rightly raised.
Lord Greenhalgh (Con)
My Lords, I am happy to give that clarification. I understand the intention of the noble Lord, Lord Greaves, in his amendment and support what he is trying to achieve. However, let me set out why it is unnecessary. His aim is to ensure that the relief cannot be applied in circumstances where a public toilet is permanently closed and out of use. I can assure the noble Lord that this is the Government’s intention. The Bill is therefore structured to reflect that aim. The Bill will amend only Section 43 of the Local Government Finance Act 1988, which relates only to occupied hereditaments. The Bill would therefore ensure that the relief would apply only to eligible occupied hereditaments, not to unoccupied public lavatories. As usual, local authorities will be responsible for determining the award of relief, having regard to the legislation, as they do with other relief schemes.
I hope that that clarification on how the measure would apply will help the noble Lord, Lord Greaves, to withdraw the amendment.
Lord Greaves (LD)
My Lords, I will read carefully the Minister’s reply—and go one more step towards being able to pass my GCSE in business rating. I accept his assurance that what he said will be the case. As on all these occasions, if it happens not to be the case, we will come back and harass him in the House. However, his reply was acceptable; I will read it carefully and attempt to understand it.
The Deputy Chairman of Committees (Baroness McIntosh of Hudnall)
Do I take it that the noble Lord wishes to withdraw his amendment?
The Deputy Chairman of Committees (Baroness McIntosh of Hudnall)
My Lords, we now come to the group beginning with Amendment 11. Anyone wishing to press this or anything else in this group to a Division must make that clear in debate.
Amendment 11
Lord Kennedy of Southwark
“Assessment of the impact of Act on provision of public lavatories
The Secretary of State must within one year of the passing of this Act conduct and publish an assessment of the impact of this Act on the provision of public lavatories.”Member’s explanatory statement
This new Clause would require the Government to publish a report on the impact of the Act on provision of public lavatories.
Lord Kennedy of Southwark (Lab Co-op)
My Lords, the amendment in my name and that of the noble Baroness, Lady Greengross, seeks to insert a new clause that would require the Secretary of State to publish a report on the impact of the Act. The Bill, though small, provides for significant rate relief for public toilets as they become zero-rated. In those circumstances, the Government would surely want to see what the effect of the policy has been. The proposed new clause would bring that into effect.
I am happy to support Amendment 13 in the name of the noble Baroness, Lady Greengross, which goes well with my amendment, by giving us information, year on year, about the effect that the policy is having, given that it will be costing the public purse revenue of which it would otherwise be in receipt. If we found that public toilets were still closing, that would be useful information to help us consider how we keep them open and whether something else needs to be done.
Amendment 14 in the names of the noble Baronesses, Lady Pinnock and Lady Thomas of Winchester, is on a similar theme to Amendments 11 and 13, but has an important emphasis on the review to look at the effectiveness of the Act in increasing accessible toilets and, in particular, Changing Places facilities, which we have talked about in earlier groups. I can see how beneficial it would be for the Government to have this information to hand. It would enable them to see that the Act was working effectively or highlight that more work needed to be done.
Amendment 15 in the names of the noble Baronesses, Lady Randerson and Lady Pinnock, is in a similar place. It picks up on the point and gives power to make a recommendation whether other measures in this area need to be introduced.
I like all the amendments in this group. Perhaps all those who tabled them should get together before Report to table one amendment that takes all these points on board.
Lord Lucas (Con) [V]
My Lords, the noble Baroness, Lady Greengross, asked me to speak to Amendment 13 in her name. We very much share the sentiments just expressed by the noble Lord, Lord Kennedy. We all support this Bill and want to see it succeed. We want it as a foundation on which a renaissance in publicly available toilet facilities can proceed down the next decade or so. To know that we are succeeding or to know where any problems or challenges lie, we need good data. We therefore hope that the Government will accept an obligation to publish that information so that we can cheer them for their successes and encourage them to do better where that appears to be needed. It took around 50 years to persuade Victorian authorities to install public lavatories, let alone to agree funding and rates for them. With luck, because of this legislation, we will see increased provision at a much quicker rate. This amendment would let us keep track of progress and would be an essential expression of Parliament’s support for this measure.
Baroness Thomas of Winchester (LD) [V]
My Lords, I so agree with what the noble Lord, Lord Lucas, just said. I support Amendment 11, but am speaking to Amendment 14, which follows Amendment 11 in this group, calling on the Government to undertake a review of the impact of the Act on the provision of accessible lavatories within a year of its passing.
There are three reasons why we need to know whether the change in rating for stand-alone public loos is resulting in more accessible facilities. First, the population is getting older, so there will be more disabled and elderly people about in the future than there are now, which means that the need for accessible toilets will grow. Secondly, sadly, there will not be so many food outlets on the high street which have accessible toilets for use by the general public, because of multiple closures in the wake of the pandemic. Thirdly, thousands of disabled people, like me, have spent the last year shielding, which means that they will not have been out and about. Many will now be more fearful than ever about going out without knowing where they can spend a penny in an accessible toilet. The Minister may say that any review should be done by local authorities, but we will not have a national picture unless the Government take ownership of it. Perhaps the British Toilet Association could help with up-to-date information.
I asked the Minister, at a meeting to which he kindly agreed, whether he could tell us how the £30 million rollout of Changing Places was going. These wonderful facilities are absolutely vital to about 250,000 disabled people. They are needed in town centres, arts venues, hospitals and wherever there are large gatherings of people. We have heard a bit about them this afternoon. Perhaps the Minister will undertake to give us more specific information at the next stage of the Bill.
Baroness Andrews (Lab) [V]
My Lords, it is a great pleasure to follow the noble Baroness, Lady Thomas of Winchester, and to support what she said. I am speaking in support of Amendment 11 and particularly to Amendment 13. I am conscious that the noble Baroness, Lady Greengross, is not able to be in her place today, because we all know what a superb advocate she is for all these matters. I am happy to support these amendments, because they are significant.
Amendment 13 makes clear what everybody who supports the Bill already knows: that we want to ensure that it works; that it is seen to be working; and that the evidence is collected and available for us to see. There is a matter of principle here: that public policy changes should be seen to be effective, especially when public money is involved; that when local funds are dedicated to a particular purpose, they are used for that purpose; and that there is transparency and agency in local and national government.
There is also a practical issue here. As the noble Lord, Lord Greaves, said, we have waited a long time for practical and universal initiatives to be taken to stop the closure of public lavatories and to place them in their proper context, which is within a robust and vigilant policy for local health and safety, rather than in some afterthought where no one is really interested in what happens to them.
As I said on Second Reading, the Bill is very welcome, but it would be a major disappointment if the funding that is going to be generated is not used for that purpose. We have to know the impact of the Bill, that it works and that it has achieved its purpose, and we need the evidence to be published. As other noble Lords have said, it is all the more crucial that we know this, because the measures will be introduced at a time when local authorities have never been more strapped, and it has never been more difficult to decide on priorities. We need to know that this small change will take its place in the range of priorities.
Local government needs financial and political investment to repair the damage and help to rebuild communities. I think that the Bill is part of that and part of the fabric of our whole public health and preventive health system, for the personal reasons that many noble Lords have raised today, and as part of a series of principles. I support these amendments and look forward to the Minister’s response. I cannot see any possible reason for rejecting them and I hope I am right in that respect.
Baroness Randerson (LD) [V]
My Lords, all the amendments in this group are designed to ensure that the Bill is not the end of the matter, and that the Government are forced to confront the appalling and declining state of public conveniences in Britain. The Bill will not start to tackle the many problems. The Explanatory Memorandum tells us that it will involve redistributing £6 million back to local authorities in England. There are 343 local authorities in England—of course, I realise that there is some double counting because of two-tier areas—but this number does not include parish councils. There are 9,000 of those, many of which go on to take responsibility for public toilets. The Committee can immediately see from those figures that £6 million will not go far; it will be swallowed up in the general budget of local authorities, which are chronically short of cash.
Lord Greaves (LD)
My Lords, I support these important amendments, and I ask the Government particularly to pay attention to the three powerful speeches we have just heard from my noble friends Lady Thomas of Winchester and Lady Randerson and the noble Baroness, Lady Andrews. Those three speeches sum up what the future really ought to be for public provision in this area. When the Government say they are carrying out a technical review, I am afraid that I am a bit cynical about the word “technical” in this respect. I am sure that their intentions are good, but it is more than just technical. It is about basic humanity and a basic provision of human-based services for all people. As I say, I hope that the Government will take this seriously.
To pick up on two or three particular points, parish and town councils are absolutely crucial in the future provision of public lavatories. Although they do not cover anything like a majority of electors in this country, they do cover a huge number of small and medium-sized communities. These are places that people go to, or through, and where people go for holidays and recreation. It is crucial that they are provided with the necessary resources to do what we all want to do, which is, in many places, to turn old inadequate Victorian and Edwardian public conveniences into modern provisions of the kind that people have been talking about which are suitable for everybody.
To do that, they need resources. I keep being told, and the National Association of Local Councils have been told, by the Government that they have no powers to provide funding for parish councils. That was almost the exact wording that I was given in a Written Answer from the Minister, not too long ago. I do not believe that; I think it is complete baloney. The Government can provide funding for projects on almost anything they want. They could certainly provide capital funding through some scheme or other for parish and town councils to renovate and modernise their existing public conveniences and provide new lavatories. I hope that the Government look seriously at that in their technical review because, if they are going to be provided, in many places the town and parish councils will have to do it.
Secondly, I asked a question earlier and the Minister did not reply, on whether the Bill applies to all kinds of ownership—public bodies including councils, voluntary groups including charities and commercial organisations, some of which may be charities. He said separately, in reply on another amendment, that the Bill applies specifically to lavatories that appear on business rate lists. Is that the definition? Does it therefore apply to any public lavatories that appear on business rate lists, whoever owns them, even if it does not apply to lots that are publicly provided?
My final point is on burdens to councils. As the Minister well knows, councils love to talk about, involve themselves in and do something about very local facilities. I understand the difficulties of providing extra burdens on the VOA, particularly at this stage, but I believe that, in a relatively small number of cases, public lavatories could be provided with the relief in this Bill by giving some discretion to local authorities, in some way. I do not believe that local authorities would regard that as a great burden, but as part of their ordinary job. We are not talking about a lot. I have a list of eight public lavatories that are on the business rates list in my own area of Pendle in Lancashire—only eight. The numbers that might benefit from the Bill, if it was extended a little, are not more than that. We are talking about single figures in most local authorities, certainly most ordinary districts. They could cope with that perfectly well and would not complain about the extra burden; they would welcome the ability to influence things a little for the better.
Having said that, I very much support these amendments and look forward to the Minister’s reply. I hope that we see a few improvements to the Bill from the Government, when we get to Report, to make it even better than it is now.
Baroness Pinnock (LD) [V]
My Lords, this is an important series of amendments. My noble friend Lady Thomas knows, at first hand, the challenges facing people with disabilities as they seek to do what the rest of us take for granted. Before people with disabilities venture out, questions have to be answered. Is there an accessible public toilet? Is its accessibility such that it meets the needs of, say, those using larger mobility aids? Is it open at the appropriate times? How easy is it to access? Negative answers to these questions may well mean that someone with a disability is unable to go on a trip or holiday, or simply shopping.
My noble friend’s Amendment 14 is hugely important and I am proud that it is also in my name. I urge the Minister to take these concerns seriously, as I feel sure he will, and to press his ministerial colleagues to make them a priority. During this lockdown, we have all had the experience of not being able just to go out, when we want to. For people with disabilities, this can happen all the time. Ensuring there are accessible and available public toilets goes some way to remove one of their barriers to freedom.
Lord Greenhalgh (Con)
My Lords, these amendments would require the Government to carry out an assessment of the impact of the relief on the provision of public toilets. The first, put forward by the noble Lord, Lord Kennedy, would require an assessment to be made within a year of the Bill receiving Royal Assent, while the amendment tabled by the noble Baroness, Lady Greengross, would require an assessment of the impact to be published on a recurring, annual basis. The amendment tabled by the noble Baronesses, Lady Thomas and Lady Pinnock, would require an assessment to be made with particular reference to accessible toilets and Changing Places facilities. The fourth amendment, which has been tabled by the noble Baronesses, Lady Randerson and Lady Pinnock, would require such an assessment to review the impact of the relief on the cleanliness and maintenance of public toilets and the provision of baby changing facilities, in addition to the impact on the overall provision of public lavatories.
I appreciate the interest that noble Lords have in the efficacy of the measure within the Bill and assure the House that the Government keep all business rate reliefs under review. I also want to meet with interested noble Lords and the British Toilet Association before Report to see how we can review implementation of this relief. That is an important step and, I hope, will be an opportunity to discuss some of the issues that have been raised.
Before I turn to the detail of the amendments, I will respond to the question raised by the noble Lord, Lord Greaves, that I failed to answer earlier. I can confirm that the relief for all separately assessed toilets applies irrespective of ownership. I want to be clear on that point.
On the provision of public lavatories, the Committee may be interested in the data that is already published annually, to which I have already referred. There are some 3,990 separately assessed public toilets in England and Wales, and this figure is constantly updated and monitored. We do not want to see reductions, and it is clear that by significantly reducing the operating costs of these facilities, the measures in the Bill will help to keep public toilets open up and down the country.
While these measures constitute a significant element of support for these facilities, a number of other factors determine whether a toilet is able to remain open. Ultimately, the decisions on whether to maintain or close a facility must be made by the operator of the facility, often the local council. These decisions will usually be based on wider funding pressures, as well as the number of toilets elsewhere in the local area.
The Government strongly support the continued operation of our public toilets. As I set out earlier, we are providing £30 million of grant funding to directly support the provision of Changing Places toilets in particular. I also set out at Second Reading some of the good work that councils have undertaken through community toilet schemes to maintain and increase provision in their local areas. However, it is clear that there are a number of factors that determine whether a toilet is able to stay open, and it would not be possible to attribute any future changes in the overall provision of public lavatories, or facilities of any specific type, solely to the measures in this Bill. Equally, I do not envisage any direct link between business rates relief and the maintenance and cleanliness of existing public toilets. For this reason, and because the number of separately assessed public toilets is already published on an annual basis, I hope that noble Lords will agree that any assessment of the kind proposed would be unnecessary and an ineffective use of government resources.
However, I welcome the fact that the Bill has shone a light on the interest from across the Committee in our public toilets, and I recognise the passion with which my colleagues have spoken of the need for adequate provision of accessible toilets in particular. I hope that the Committee will therefore allow me to conclude by reiterating the support of the Government for these vital facilities.
A number of noble Lords spoke about the importance of accessible toilets. The noble Baroness, Lady Thomas of Winchester, again raised the issue of Changing Places toilets and the disbursement of the £30 million of funds. I am happy to give further details on the progress of that, I hope before Report. It is important to many people in the country that we ensure that the absence of accessible toilets is reduced, because lack of accessible toilets reduces the ability of people with a disability to make use of our public spaces with confidence.
The noble Baroness, Lady Randerson, raised the important question of design and doors opening inwards, thereby reducing space. That is a good point, and everyone here nodded in agreement with that sentiment. So I am pleased to let the Committee know that a technical review is looking at the ergonomics and features of toilets and will I hope take some of these points on board. We hope to see an improvement in design in the future.
While the Bill is important, the provision of public toilets is rooted in a number of factors, and in the particular case of accessible toilets, the Government are providing direct grant funding. On this basis, and as the number of separately assessed public toilets is already published on an annual basis, I hope that the noble Lord, Lord Kennedy, will agree to withdraw his amendment.
Lord Kennedy of Southwark (Lab Co-op)
My Lords, I thank all noble Lords who have spoken in the debate. I agree with the comments made by the noble Lords, Lord Lucas and Lord Greaves, and the noble Baronesses, Lady Thomas of Winchester and Lady Randerson, and my noble friend Lady Andrews. The decline in the provision of public lavatories is a matter of great concern. The adequate provision of toilets is a public health matter, as my noble friend Lady Andrews said in this debate.
I agree with the noble Baroness, Lady Randerson, that many accessible toilets are poorly designed, despite considerable sums of money having been spent on them. I also agree with her that the need to provide more toilets for women and for men, and more gender-neutral toilets, as well as accessible and Changing Places toilets, is of paramount importance. As I have said, it is about understanding needs, the lack of provision of toilets for women, and ensuring respect for difference, along with the provision of facilities that are clean, safe and secure, and which people feel are safe to use.
The Bill does not address these issues because of its narrow scope, but I am sure we all agree that those are important matters. They are relevant issues that need to be addressed. I was very pleased by the offer of the noble Lord, Lord Greenhalgh, to meet interested Peers between now and Report, along with representatives of the British Toilet Association, and I look forward to taking part. However, at this stage I am happy to withdraw the amendment.