Smoke and Carbon Monoxide Alarm (Amendment) Regulations 2022

Debate between Lord Greenhalgh and Baroness Finlay of Llandaff

Monday 13th June 2022 Grand Committee

[The Minister of State, Home Office and Department for Levelling Up, Housing & Communities (Lord Greenhalgh) (Con)]

My Lords, this statutory instrument was laid before the House on Wednesday 11 May 2022 under Section 150(9) of the Energy Act 2013 and Section 250(6)(f) of the Housing Act 2004, for approval by resolution of each House of Parliament.

In the social housing White Paper, we committed to ensuring that all homes are safe to live in. We are determined to ensure that the reforms set out in the White Paper will drive up standards, making sure people up and down the country have a safe and decent home to live in. The Government are committed to ensuring residents are protected from the risks of fire and carbon monoxide in their homes. After Grenfell, the social housing Green Paper asked whether there should be parity between the private and social rented sectors on safety standards, and an overwhelming majority were in favour.

At the moment, social tenants have less protection than private tenants. That is why, subject to parliamentary approval, we are amending the regulations to bring requirements for social homes in line with private rented homes. Currently, the Smoke and Carbon Monoxide Alarm (England) Regulations 2015 make it mandatory for private landlords to install smoke alarms on every storey of every home they let, and carbon monoxide alarms in every room with a solid-fuel burning appliance, such as a log-burning stove or coal fire. There are no such requirements for social landlords.

The Home Office estimates you are around eight times more likely to die in a fire if you do not have a working smoke alarm in your home, and there are on average 20 recorded deaths from accidental carbon monoxide poisoning each year in England and Wales. Smoke alarms and carbon monoxide alarms save lives and provide reassurance for residents that their homes are safe.

These changes will mean that, for the first time, all social rented homes in England will be required by law to have smoke alarms installed. They will also mean that millions more households are protected from the risks of carbon monoxide, which is undetectable and can cause serious illness or death. The Government’s ongoing reforms regarding social housing quality aim to make sure everyone’s home is a place of safety, and these changes will give thousands of families and households reassurance that they are receiving the best possible protection.

In November 2020, alongside the White Paper, we launched our consultation on requiring smoke alarms in social housing and introducing new expectations for all landlords for carbon monoxide alarms. The proposals in the consultation to make the legislative changes I am bringing to noble Lords today were supported by a clear majority of respondents to the consultation.

Through this statutory instrument, we will amend the Smoke and Carbon Monoxide Alarm (England) Regulations 2015 to replicate the private rented sector provisions to require social landlords to ensure at least one smoke alarm is installed on each storey of their homes where there is a room used as living accommodation. We will amend the regulations to make it mandatory for all landlords, regardless of tenure, to install a carbon monoxide alarm in any room of their properties used as living accommodation where a fixed combustion appliance of any fuel type is present. This does not include gas cookers, which are responsible for fewer incidents of carbon monoxide poisoning than gas boilers.

We will also require all landlords to repair or replace, as soon as they reasonably and practically can, any alarm which is found to be faulty during the period of a tenancy. We will update government guidance documents to make clear requirements on the placement of smoke and carbon monoxide alarms, and the types of alarms landlords will need to install to meet relevant standards.

The instrument will also make changes to the enforcement process by restructuring the process for making and considering representations from landlords when a local housing authority serves a remedial notice. A lengthy delay between regulations being made and taking effect could put lives at risk, and that is why we have decided that 1 October 2022 is an appropriate date for regulations to come into force: landlords have had, and continue to have, time to prepare, and bringing regulations into force in October means tenants can benefit from the security of the changes as soon as possible.

To conclude, these regulations will save lives and make sure everyone’s home can be a place of safety, and these changes will give thousands of households reassurance that they are receiving the best possible protection from the risks of fire and carbon monoxide in their home. We are determined to ensure that the reforms set out in the social housing White Paper, like these changes, will drive up standards, making sure people up and down the country have a safe and decent home to live in. I hope noble Lords will join me in supporting the draft regulations and I commend them to the Committee.

[Baroness Finlay of Llandaff (CB)]

My Lords, I thank the Government for bringing these regulations forward—they are absolutely crucial. As the Minister said, most—57%—of the exposure to carbon monoxide occurs in the home. We know that one in eight homes in London has levels of carbon monoxide that exceed the WHO limits, and we know that one in five has at least one faulty gas appliance. With financial stringencies, this will probably get worse because people will not have their appliances serviced. Some 54% of homes in England do not have a carbon monoxide alarm. With that background, and welcoming these regulations, I have a few questions for the Minister—I hope that he will be able to answer them satisfactorily.

First, why are gas cookers excluded? The issue here is the coroner’s report that followed 18 deaths that were linked to the Beko cooker scandal, where carbon monoxide was pouring into homes due to a fault with the cookers. The 2017 report Understanding Carbon Monoxide Risk in Households Vulnerable to Fuel Poverty found that, while 59% of homes had a gas cooker, only 25% had that cooker serviced annually. In homes in poverty in particular, the gas from the cooker is often incompletely burned. Some ethnic minority groups in our population cook by putting tin foil over the surface of the burners, which promotes incomplete burning.

One of the problems is that children’s heads are at the level of the cooker itself, so children standing near a mother who is cooking are probably inhaling higher levels of carbon monoxide than the mother. It may not be enough for them to fall on the floor unconscious, but they may be exposed to chronic low levels of carbon monoxide poisoning. As the Minister rightly said, sub-lethal doses cause pathologies including brain damage, sensory impairment, heart disease, Parkinsonism and low birth-weight babies, which becomes particularly important when the woman is pregnant. They also cause cognitive developmental delays in infants born to mothers exposed during pregnancy, as well as respiratory difficulties. That was my question on gas cookers.

Secondly, why are homeowners generally not protected by the regulations until a new appliance is installed? How will people become alert to the fact that an alarm is faulty? Whose responsibility will it be to chase this up, and what is the prosecution process for a landlord who is negligent in this?

Thirdly, why is the alarm type not mandated? This seems to be a lost opportunity, because rogue landlords will inevitably go for the cheapest alarm available. In Scotland, the type of alarm was determined and it was one that had sealed batteries in it. From experience over the years, we know that, in households where batteries can be removed from alarms, people remove them to use them in their television remote, or wherever. The alarm then fails because the batteries have been taken out and people are not aware of the problem.

Lastly, will the alarms be mandatory for bedrooms? There have been several cases where children have died because carbon monoxide has leaked through the brickwork into the bedroom where they were sleeping—their parents then found them dead from carbon monoxide poisoning. The problem is that, when you are asleep, carbon monoxide just makes you more sleepy, so you certainly would not be woken up by it. Of all the rooms in a house, it is bedrooms where people spend the most time all in one go; they do not go out and move around to get the air circulating. In modern housing, particularly in the winter, people sleep with the bedroom windows closed, so there is even less air circulation. So I hope that the Minister will be able to assure me that bedrooms count as living accommodation and, therefore, that alarms must be also in the bedrooms.

Having said that, I hope the Government will have a good public education campaign to roll out the importance of acting when the alarm goes off, of understanding what the alarm does and what people should do if a tenant feels that their landlord is in breach of the regulations. Understanding the health implications of carbon monoxide poisoning is also important, because, unfortunately, across the healthcare sector generally, until fairly recently—and I think even now—some people are somewhat ignorant of the effects of carbon monoxide poisoning and how the non-specific symptoms can present, suggesting sub-lethal exposure in an ongoing way.

So, with those questions and caveats, I welcome these regulations and would not intend to take any action to stop this proceeding–but I do hope that I will have satisfactory answers that will be on the record to all my questions.

--- Later in debate ---

[Lord Greenhalgh (Con)]

My Lords, I thank noble Lords for their contributions to this important debate on the draft regulations. I join the noble Baroness, Lady Hayman, in saying that every single measure that can ensure that a tragedy such as Grenfell—the largest structural fire since Piper Alpha and the largest loss of life in a residential fire since the Second World War—never happens again must be welcomed. I thank noble Lords for their support.

I will turn to some of the points raised by noble Baronesses in this debate. The noble Baroness, Lady Finlay, wanted to know whether alarms are mandatory for bedrooms. Yes, there must be a smoke alarm on each storey. Also, I am happy to clarify that the definition of “living accommodation” includes bedrooms.

[Baroness Finlay of Llandaff (CB)]

Sorry—perhaps I may intervene briefly. I should have declared my interest as chair of CORT, the Carbon Monoxide Research Trust, and of the All-Party Parliamentary Carbon Monoxide Group. I was asking about carbon monoxide alarms; the Minister has addressed smoke alarms. We were seeking clarification on whether carbon monoxide alarms are also mandatory in bedrooms.

[Lord Greenhalgh (Con)]

For carbon monoxide, if there is a fixed combustion appliance in the room, which would not include a bedroom if there was no—

[Baroness Finlay of Llandaff (CB)]

Very few bedrooms have gas boilers in them. Can the Minister write to us and follow up on that?

[Lord Greenhalgh (Con)]

I will clarify when it is smoke alarms and when it is carbon monoxide alarms; as I understand it, effectively, there has to be a gas boiler present, which would rule out many bedrooms. However, I will write to the noble Baroness on that point.

The noble Baroness, Lady Hayman, following the lead of the noble Baroness, Lady Pinnock, wanted to know what “reasonably practicable” looks like. My answer is that, essentially, we will recommend that landlords carry out repairs as soon as they are able to. This will depend on such factors as access to the property, which will be set out in guidance.

In response to the noble Baroness, Lady Finlay, on her question about mandation of carbon monoxide alarms in rooms with gas cookers, data shows that gas cookers are responsible for fewer incidents of carbon monoxide poisoning than gas boilers. This may be because domestic gas cookers do not tend to be used continuously for long periods, unlike boilers. For this reason, the Government believe it would not be proportionate to require alarms in rooms with gas cookers as well as rooms with gas boilers.

On the point about public information, we are developing communication to target tenants to make sure that they understand the regulations and the importance of protection from carbon monoxide poisoning. There is some movement on the call for a public information campaign.

The noble Baroness, Lady Pinnock, wanted to know how we reached the implementation period for these new requirements. This relates to the fact that the majority of respondents to the consultation agreed that we should not delay the introduction of new requirements once the regulations are made. A significant delay between the regulations being made and taking effect would put lives at risk. It is a question of getting the right balance between the two. That is why we alighted on 1 October 2022 as the most achievable date.

Both the noble Baronesses, Lady Finlay and Lady Pinnock, wanted to know why we were not specifying the type of alarm. The draft regulations do not stipulate the type of alarm—such as hardwired or battery powered—to be installed. In the case of smoke alarms, we advise landlords to choose ones that are compliant with British Standards, and I am sure that there must be British Standards that have to be complied with for carbon monoxide alarms. We encourage landlords to make an informed decision and choose the best alarms for their properties and tenants, with due regard for their residents’ circumstances.

Building Safety Defects

Debate between Lord Greenhalgh and Baroness Finlay of Llandaff

Wednesday 5th January 2022 Lords Chamber

[Lord Greenhalgh (Con)]

I take that as a helpful interjection. We need to think about how we protect leaseholders, and sometimes statutory protection is a good thing. We know that the Building Safety Bill, that will have finished Committee in the House, provides a vehicle to do precisely that, but I cannot say any more on the subject.

[Baroness Finlay of Llandaff (CB)]

What is the Government’s response to the statement on 10 December from the chair of the board of the Royal Institution of Chartered Surveyors, in which he calls for the EWS1 checks not to be scrapped for buildings under 18 metres and estimates that there are 77,500 low-rise buildings that urgently need fire remediation work, at an estimated cost of £15 billion?

[Lord Greenhalgh (Con)]

We have quite a lot of the data on the number of medium-rise buildings, and there are far more medium-rise buildings than there are high-rise ones. The figure of 77,000 is broadly correct, but the number within that requiring remediation is very small indeed. I cannot give the noble Baroness those statistics, but I have seen our survey work. The number requiring mitigation is also very small. Frankly, the Royal Institution of Chartered Surveyors seems to be more interested in how it can raise money for surveyors than being proportionate in terms of the approach towards this crisis.

Smoke-free Pavements

Debate between Lord Greenhalgh and Baroness Finlay of Llandaff

Wednesday 24th November 2021 Lords Chamber

[Lord Greenhalgh (Con)]

I agree entirely with my noble friend: we need to see the revival of that industry. We believe that that can be done by taking a proportionate approach of keeping those people who do not wish to smoke in outside pavement space segregated from those who do. In that way we can provide an environment that enables people to exercise their personal choice and enables those areas where smoking rates are higher, which are typically in the north of England, to get back on their feet, which is vital.

[Baroness Finlay of Llandaff (CB)]

My Lords, there is good evidence that exposure to smoking not only damages children’s health but makes them much more likely to go on to become smokers themselves, copying the role model of the adults they see. How does the Minister justify the Government’s current policy on pavement licences, which exposes children to a significant risk of addiction to a lethal product? Do the Government have any evidence that extending smoke-free areas would damage the hospitality industry at all?

Levelling Up White Paper

Debate between Lord Greenhalgh and Baroness Finlay of Llandaff

Monday 15th November 2021 Lords Chamber

[Lord Greenhalgh (Con)]

My Lords, just because previous Governments have failed does not mean that this Government will not succeed. However, I take on board the importance of ensuring that there is appropriate streamlining and that we do not have a scattergun approach to funding. The point is well made.

[Baroness Finlay of Llandaff (CB)]

I declare my role as chair of the Commission on Alcohol Harms. Have the Government included alcohol harm as the top priority in the levelling-up agenda, given that, regarding place, alcohol-related mortality is over 20% higher in the north-east of England than the English average? Alcohol-related violence is up to five and a half times more prevalent in lower socio-economic groups, and alcohol consumption is linked to poorer child development and poorer general well-being.

[Lord Greenhalgh (Con)]

My Lords, I expected this Question to go in any number of directions. It is important to address the barriers for people getting on in life. We are looking to spread opportunities and, of course, we need to address issues such as alcohol harm, which the noble Baroness has raised.

Mortgages: EWS1 Form

Debate between Lord Greenhalgh and Baroness Finlay of Llandaff

Tuesday 29th June 2021 Lords Chamber

[Lord Greenhalgh (Con)]

My noble friend raises an important issue about the inconsistency of the application of EWS1 forms by professionals. I point out that we are working with the British Standards Institution to produce a publicly available specification, known as PAS 9980, which is a code of practice designed to ensure greater consistency in these assessments.

[Baroness Finlay of Llandaff (CB)]

What discussions have the Minister or his officials had with the Financial Conduct Authority regarding lenders’ obligations to treat customers fairly in relation to cladding? In particular, what steps have the Government taken to ensure that leaseholders confronted with an adverse EWS1 rating, emerging during the time of a fixed-rate mortgage, are able to roll over to a new fixed rate, rather than being forced into a standard variable rate at the end of their fixed term?

[Lord Greenhalgh (Con)]

My Lords, I point out that the EWS1 form is not a safety certificate and nor is it a statutory or government document; it has been developed by the Royal Institution of Chartered Surveyors along with others. But we continue to have dialogue with the banks and building societies to ensure that they act in a proportionate and sensible way, and we continue to raise issues from time to time, as needed, with the Financial Conduct Authority.

Tower Blocks: Cladding

Debate between Lord Greenhalgh and Baroness Finlay of Llandaff

Wednesday 12th May 2021 Lords Chamber

[Lord Greenhalgh (Con)]

My noble friend is right: we want to protect leaseholders and we are funding £8 million. Our understanding is that the total remediation bill is some £12 million, and we have been pressing Ballymore to stump up the rest of the cash. When I initially met the company, it pledged £500,000, and it has increased that this weekend to £1.5 million. Frankly, it should not be passing on any costs to leaseholders.

[Baroness Finlay of Llandaff (CB)]

Will the Government explain why the principle of responsibility that applies to cars, domestic appliances and so on, which may be dangerous and even kill people, whereby companies are required to recall and remediate whatever the equipment is, does not seem to apply to the construction industry?

[Lord Greenhalgh (Con)]

My Lords, I have to say that on taking over this ministerial brief I was shocked by the weakness of the redress available to people who put all their life savings into a building. That is something that we want to improve through the building safety Bill; we need to improve the ability to get redress for people who buy these properties then discover these defects.

Wales: Replacement Funding

Debate between Lord Greenhalgh and Baroness Finlay of Llandaff

Wednesday 3rd March 2021 Lords Chamber

[Lord Greenhalgh (Con)]

My Lords, I am afraid I cannot give that assurance but we will continue to ramp up funding so that the total UK-wide funding will at least match EU receipts of, on average, around £1.5 billion per year.

[Baroness Finlay of Llandaff (CB) [V]]

During the passage of the Internal Market Bill in both Houses, Ministers committed to collaborate closely with the devolved Administrations, not simply to have them represented. Will the previous £375 million of EU structural funds now be built into the shared prosperity fund allocation to Wales, and will the Welsh Government’s framework for regional investment, which has been developed through extensive local consultation, be respected?

[Lord Greenhalgh (Con)]

My Lords, I note the points made by the noble Baroness but I think we need to wait for the UK investment framework that underpins the shared prosperity fund for those sorts of details.

Building Safety

Debate between Lord Greenhalgh and Baroness Finlay of Llandaff

Monday 22nd February 2021 Lords Chamber

[Lord Greenhalgh (Con)]

I thank my noble friend for recognising that this announcement includes a developer levy, which he was lobbying for. It will be on future buildings, but at the same time we recognise the role that a number of developers have played in creating the cladding crisis. That is why the Secretary of State also announced that a new tax would be introduced for the UK residential property development sector that will ensure that the largest property developers also make a fair contribution to the remediation programme. We think that these measures taken together will ensure that the industry does more to contribute to the remediation of historical cladding defects and will play its part in dealing with this crisis.

[Baroness Finlay of Llandaff (CB) [V]]

To

“make the industry pay for its faults of the past”,

how will the Government recoup the full cost from those resistant to undertaking remedial work before they close their companies? Are those who deliberately concealed evidence of the flammability of ACM panels to be subject to corporate manslaughter investigations?

[Lord Greenhalgh (Con)]

My Lords, we will continue to push very hard to ensure that developers make their contribution. As I pointed out, historically we have seen developers and building owners step forward and pay for the remediation and removal of unsafe cladding that is on their buildings, and we will continue to push developers to do the right thing. However, the levy and the new tax are set to raise significant sums of money. The tax itself is estimated to raise £2 billion over 10 years.

Leaseholders: Properties with Cladding

Debate between Lord Greenhalgh and Baroness Finlay of Llandaff

Thursday 7th January 2021 Lords Chamber

[Lord Greenhalgh (Con)]

My Lords, there will be a lot of legislative work in the next calendar year on the building safety Bill, and we still have the Fire Safety Bill to play ping-pong with. I will ensure that we consider the noble Lord’s proposals very closely indeed to ensure that we hold building owners to account. That is the whole idea of the building safety Bill: that there is an accountable person.

[Baroness Finlay of Llandaff (CB) [V]]

My Lords, many leaseholders are suffering extreme stress. They are locked down in flats that could go up in flames but which they cannot sell. What urgent support is being given to cover all additional costs, including total waking watch costs, and to recoup long-term drops in value in their investment? Can the Minister confirm that, if their flats are now worth zero and they have been bought under the Help to Buy scheme, all repayments should have been reset to zero and reimbursed, since the scheme allowed for a drop in interest rates if the value dropped?

[Lord Greenhalgh (Con)]

My Lords, I really do feel for the leaseholders. It is not 4.5 million leaseholders, because that would be every leaseholder in the country, but it is a significant number. It is a smaller number in high-rises. We have announced an interim measures package that includes a £30 million fund that will fund some 600 fire alarm systems, which is far cheaper than waking watch, where frankly the costs sometimes defy belief. We have looked into supporting them directly so that they can move to that alarm system, which is the most cost-effective way to provide interim protection.

Leaseholders and Cladding

Debate between Lord Greenhalgh and Baroness Finlay of Llandaff

Wednesday 25th November 2020 Lords Chamber

[Lord Greenhalgh (Con)]

My Lords, with the greatest respect, the bill for remediation of historic cladding defects cannot simply be passed to the taxpayer. We expect developers, investors and building owners who have the means to cover remediation costs themselves to do so without passing on costs to leaseholders.

[Baroness Finlay of Llandaff (CB) [V]]

How many freeholders have been asked to pay for this remedial work on the buildings they commissioned on their land, and how many of those who built these dangerous dwellings, who all gain profit from the sale of leasehold properties? What legislation do the Government plan to bring forward to move from leasehold to co-ownership for multioccupancy buildings?

[Lord Greenhalgh (Con)]

My Lords, in addition to other ministerial responsibilities, I am now responsible for looking at leasehold reform. This is not the place to opine on that, but just over 50% of private sector developers and freeholders with aluminium composite material in high-rises funded it and did not pass on the costs to leaseholders—a significant proportion stepped up to the plate and did the right thing.