Automated and Electric Vehicles Bill

Earl of Selborne Excerpts

2nd reading (Hansard): House of Lords
Tuesday 20th February 2018 Lords Chamber

[The Earl of Selborne (Con)]

My Lords, there is general agreement that this Bill, while modest, is nevertheless an encouraging start. I think it is a start to something far wider than transport and driverless vehicles; I refer particularly to the employment implications of robotics, and of course autonomous vehicles are part of that story. Over the next decade, or probably much longer, the Government will have to deal with a whole succession of issues about how to bring legislation in line with transformative, often disruptive, technologies. We agree that the Bill is a modest start to that. It is easy to look at insurance as a discrete issue and the industry has done some work on that, which I welcome, but I particularly welcome the Government’s recognition that a start has to be made. We should not disguise from ourselves the fact that, if we are to attract inward investment in these essential new technologies to deliver the industrial strategy which was published last year, we need to have legislation, in successive stages, in place to assist the overall policy.

We can all speculate about the speed with which these transformative technologies will be introduced. However, as has been pointed out, we have developed autonomous vehicles for shipping, rail and air transport, and discrete vehicles in isolated tracks. The noble Lord, Lord Berkeley, mentioned platooning in Germany. I can see that it would not be very difficult to fence off or bollard off a lane of a motorway and reduce it from four lanes to three or three lanes to two and simply have platooning going down that track. My noble kinsman Lord Lucas has a more adventurous proposal with regard to railway tracks. I am not sure whether I go the full way with him on that, but I would at least like to see some of Dr Beeching’s tracks restored in that way, even though cyclists might object.

We can say with absolute certainty that, with the advent of robotics, existing jobs in many sectors will disappear—in the transport sector, drivers will, of course, disappear—as they always do when transformative technologies are introduced. The secret is to try to ensure that we get the required inward investment. It does not have to be UK companies that are developed, although it would be good if that were the case, but we have to make ourselves fit for purpose in terms of inward investment.

What will make companies from around the world choose the United Kingdom as the preferred place for investment? I suggest that, first and foremost, it is our science and engineering base and skilled workforce. It is certainly helpful to companies to have a research infrastructure which will advance their cause. Many of the companies involved in this area are not necessarily existing car manufacturers but new entrants—for example, computer companies. They will certainly wish to work closely with university groups leading the field in this highly fast-moving area. Therefore, we must make sure that we promote our national research base. Above all, we need to deal with an issue that we have discussed many times in this House—namely, the skills gap and the shortage of qualified engineers in this extremely fast-moving area. Again, I refer not just to autonomous vehicles but to robotics as a whole.

We also have to ensure, as several noble Lords said, that we are around the table setting the international standards. It would be disastrous if we found that our initial enthusiasm proved to be redundant because the international standards were different from those we had pioneered. It is not just about having one common socket, which the noble Lord, Lord Berkeley, referred to, although that would certainly be a start; there are many other common standards which we will have to favour. We therefore need to think about how we look at the whole sweep of new technologies, of which autonomous and electric vehicles is one.

That brings me back to the Bill. Modest though its scope may be, with most of the provisions concerning driverless cars, which address the insurance issues, the Bill represents a start on the legislative programme which will be of critical importance to the successful implementation of a much wider industrial strategy. If we look at some of the detail, which has already been referred to by several speakers, in particular my noble friend Lord Borwick, there is a complete mystery as to what in fact a driverless vehicle is. It cannot just be level 5, which is some years off. If you look at the table from the Society of Motor Manufacturers and Traders, which was reproduced in the Science and Technology Committee’s report, which the Minister and the noble Lord, Lord Campbell-Savours, referred to, you can see that there are quite a lot of situations, and that levels 3, 4 and 5 might meet the definition of a car which in certain situations is capable of safely driving itself. Therefore, in Committee, unless we are to give a bonanza to lawyers, we must chisel down and decide exactly what we mean by an autonomous vehicle. I rather agree with the noble Lord, Lord Campbell-Savours, that the lack of adequate definitions in the Bill seems to be a hostage to fortune so far as legal fees are concerned.

Connected and Autonomous Vehicles (Science and Technology Report)

Earl of Selborne Excerpts

Wednesday 20th December 2017 Lords Chamber

Moved by

[The Earl of Selborne]

That this House takes note of the Report from the Science and Technology Committee, Connected and Autonomous Vehicles: The future? (2nd Report, Session 2016-17, HL Paper 115).

[The Earl of Selborne (Con)]

My Lords, any committee report which attempts to forecast the pace of technological change will inevitably look rather stupid in years to come. In the fast moving field of artificial intelligence, machine learning and robotics, the one statement that can be made with certainty is that the impact of these disciplines on society will be profound, and no more so than in the field of connected and autonomous vehicles—which I shall refer to as CAV.

Our report hedges its bets with a question mark in the title. We considered other titles. The noble Lord, Lord Hennessy, suggested that for a report which largely considers the prospect of driverless cars, the title should be “Goodbye, Mr Toad”. I was too cowardly to accept this suggestion.

The coalition Government identified robotics and autonomous systems as one of the “eight great technologies” to be supported by their industrial strategy, and the recent Industrial Strategy White Paper has followed up with a sector deal for the artificial intelligence sector to boost the UK’s global position as a leader in developing artificial intelligence technologies.

The possible, and existing, applications of connected and autonomous systems include: aerial, where automatic pilots have long been with us; marine, where early economic benefits can be identified; metro and rail; space; military; ambulance services; precision agriculture, where trials are already in place; working in hazardous environments; off-road vehicles, where the application has been in use for some years in the mining industry, particularly in Australia; and on-road vehicles. All are supported by robotics and information technology.

The committee decided to launch this inquiry into CAV in September 2016 in response to concern that, in an area in which technology was developing at a rapid pace, our Government needed to make policy decisions and investment decisions to enable the UK to receive the maximum possible economic benefit as well as to anticipate some of the transformational impacts, for better or worse, on society. This report is our contribution to encourage not just the Government but other stakeholders to think through the implications of these potential changes. I thank our specialist adviser Professor Eric Sampson, our clerk Anna Murphy and our policy analyst Daniel Rathbone for their most helpful contributions to this report.

I have listed the range of sectors in which CAV have potential or existing applications, yet the vast preponderance of evidence we received, and the main media interest, was in the development of road vehicles, from level 1, where a modest task is performed, such as assisted parking but with the driver performing the driving task, through to level 5, where no driver is required and every driving task in all situations is delivered by full automation—what we familiarly know as driverless cars. The intermediate stages are listed in figure 1 at page 15 of our report: level 2 is partial automation; level 3 is conditional automation; and level 4 is high automation.

Our first recommendation was to suggest that the Government must broaden their focus so that their work on connected and autonomous vehicles cuts across all sectors and does not focus so heavily on road vehicles. I therefore welcome the report of Professor Dame Wendy Hall and Dr Jérôme Pesenti, commissioned at the time of the publication of our report in March 2017, called Growing the Artificial Intelligence Industry in the UK. This report was published in October and focused on job creation, economic growth and whether a coherent AI industrial sector might emerge in the United Kingdom.

Our second recommendation refers to the need for a robotics and autonomous systems leadership council to provide clear co-ordination of strategy or information sharing across the different sectors. Dame Wendy Hall and Dr Pesenti’s report also calls for an AI council to be set up to co-ordinate the necessary initiatives, with the Government providing AI challenge funds. I welcome the Government’s response to our second recommendation. I accept that a sector deal is a positive way forward to ensure that strategic leadership is provided across the full breadth of the robotics and autonomous systems sector and that this will bring industry together with the research base in United Kingdom universities. We await to hear more specific information from the Government on the make-up and role of the industry-led AI council and the office for AI, both of which were proposed in the Industrial Strategy White Paper. Only government can provide the critical mass of investment in fundamental scientific research in robotics and information technology, so the announcement in the Industrial Strategy White Paper of increased government funding for science and innovation is to be welcomed.

On pages 24 and 25, we refer to the skills shortage in the CAV sector and more specifically for robotics and autonomous systems. The Industrial Strategy White Paper recognises the need to take action to close the engineering and digital skills gap and thereby ensure that the UK can benefit from the emerging CAV technologies. The government response to recommendation 6 of our report lists a number of initiatives to address the skills challenge. This is a subject which has been frequently raised in this Chamber, and I have no doubt that the Science and Technology Committee will want to return to this subject as the various initiatives run their course.

In chapter 3, we review whether the possible potential social and economic benefits stand up to rigorous analysis. Many claims for the benefits of autonomous vehicles are made, from increasing mobility for those less able to use traditional vehicles, to improved road safety and reduced costs for freight movement, as well as the economic benefits of improved productivity and increased trade. All these claims need to be treated with caution. We agreed with the Chartered Institution of Highways & Transportation that,

“There is relatively little data available to substantiate the listed potential benefits and there [may be] unintended consequences that could provide dis-benefits”.


We recommend that the Government commission a detailed cost-benefit analysis to provide a realistic indication of the economic benefits CAV could provide in all sectors, differentiating clearly between the different applications of CAV, actual monetary gains from deployment, estimated job creation and social benefits. Our evidence indicated that platooning of trucks could be an early example of CAV deployment on our roads, and the Government should carry out an early evaluation of the potential applications of connected and autonomous larger vehicles used for freight and logistics.

As human error is the cause of the majority of road accidents, it is reasonable to assume that CAV have the potential to lower the number of road fatalities, but the eradication or near eradication of human error will only be realised with full automation at level 5. In the preceding years before that stage is reached, we face the prospect of automated and partially or not at all automated vehicles sharing our roads. We need a better understanding of how CAV will affect the behaviour of drivers, pedestrians, cyclists and other road users. Level 3 autonomy may require a CAV to hand back control to the driver when it is unable to deal with a certain situation. We received evidence, which I entirely accept, that handing back in this way to a potentially unprepared driver could be very dangerous. Perhaps it would be wiser to eliminate level 3 altogether: the risks might be too great to tolerate.

We took evidence on the risks that CAV could be susceptible to hacking and used for malicious, criminal or terrorist purposes. This is a very real threat, which calls for collaboration to establish international standards of cybersecurity, and we urge the Government to take a lead on this. International standards are needed to address the ethical issues, such as ensuring that the data produced by CAV comply with the relevant privacy and data protection legislation. The announcement in the White Paper of funding for a new centre for data ethics and innovation is welcome.

I will now touch on infrastructure requirements. Connected vehicles will require improved digital connectivity, removing not-spots on British roads. Consideration needs to be given now by Highways England and local transport authorities to how we can ensure that new infrastructure can be future-proofed so that it does not need expensive retrofitting.

The funding of research and development for fully automated vehicles should be left to car manufacturers and new entrants. They will undertake this if their business case can justify it. The Government’s role is to support the basic science, to attract inward investment in this country by providing the best testing facilities, to ensure that our infrastructure is fit for purpose as the technology develops and to contribute to establishing international standards of regulation.

CAV technology is not yet sufficiently developed to enable a precise description of just what will be required. This is a fast-moving area of technology, and the Government have much to do, alongside industry and other partners, to position the United Kingdom so that it can take full advantage of the opportunities that CAV offers. I beg to move.

--- Later in debate ---

[The Earl of Selborne]

It only remains for me to thank all who have participated in what I found a fascinating debate. As the noble Lord, Lord Fox, said, there has been a lot of expertise and it has been a great privilege to participate. I particularly thank the Minister for her comprehensive reply; I was very encouraged by it. There was agreement around the Chamber that CAV has great potential, be it at sea, in agriculture or in freight movement, as well as for cars, on which our debate inevitably tends to concentrate. The committee was not of one mind on the timing of the introduction of driverless cars on roads: we could not make up our minds how soon it was going to be a reality. Since then, we have had the White Paper, which set a target of four years. I have a feeling that Sir Humphrey would say to his Minister, “Minister, that is a heroic target”.

Our debate has reinforced my conviction that we have some urgent issues to follow up. The skills gap was mentioned by the noble Lord, Lord Mair. Then there are data regulation, social and behavioural questions—a fundamental point, addressed by many noble Lords, which I hope we can put more effort into—and the development of international standards, on which the Minister gave us a helpful reply. The Bill that will come from the other place soon deals more with insurance and other details, frankly, but I suspect it will be an opportunity to explore more fundamental issues that we must ensure the Government continue to recognise. I beg to move.

Motion agreed.