Merchant Shipping (Counting and Registration of Persons on board Passenger Ships) (Amendment) Regulations 2023
Lord Greenway Excerpts(4 months, 3 weeks ago)
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Lord Berkeley (Lab)
My Lords, I am pleased to move this Motion to Regret tonight. Effectively, I am trying to probe some of the issues that are raised in these draft regulations. I must say to start with that I support everything that is in them, because they have very serious and helpful safety implications.
I suppose my first question for the Minister is the usual one with such regulations. Why has it taken 24 years from the original 1999 regulations for this new draft to be brought before your Lordships’ House?
I think it is really important that there is a requirement to record the number and details of the passengers on passenger ships, both going around the UK or going to or from the UK, but I have a number of questions on the way these regulations are drafted. It may be because I am too stupid to understand them, but it may be that other people share that concern, and I shall be pleased to hear the Minister’s answers.
My first question, which also applies to the regulations of 24 years ago, is why these regulations appear to apply only to passenger ships? Many people go on journeys in freight ships; sometimes they are long, probably going internationally, and sometimes they are around the coast. I rather too regularly use a freight ship that goes from the Isles of Scilly to Penzance, which is beyond 20 miles and so comes within that limit. It is a freight ship, and it is quite good for taking freight. It is not particularly comfortable, but it will take up to 12 passengers—and of course the number 12 is quite critical for many other safety rules. I think it has seats for about six, and it is very nice that, when the crew are having a good fry-up on their four or five-hour journey, they will not make you a cup of tea either.
That is irrelevant, but what appears odd is that there seems to be no requirement of the operator to report who the passengers are. In other words, if something happens to that ship and we all drown, I do not know how the authorities will know who we are. If it had been a passenger ship, the names would have gone to the coastguards or wherever, which would have helped with identifying the bodies and everybody else. I hope none of that happens, but it seems extraordinary to me that, on a freight ship, the operator apparently does not have to do report who is on it and their names and addresses.
I suppose the biggest question I have concerns Regulation 9, on “exemptions”. I am not quite sure what “exemptions” means. Again, I may just be being ignorant and stupid, but are they exemptions from actual reporting or exemptions relating to how you report? We are moving into the electronic age, and it is quite right that the quicker the passenger list can be transmitted off the ship, the faster the ship can leave, which is a good thing. But it is a bit odd that, having brought in these regulations, we have so many exemptions, which means that, basically, anybody can be given an exemption.
Regulation 9(2) says that
“the Secretary of State may exempt any passenger ship … if the scheduled voyages of such ship, class of ship or group of ships render it impracticable for that ship, class of ship or group of ships, to comply with those requirements”.
I cannot see what circumstances would prevent the master or owner of the ship telling the coastguard who is on the ship and giving their names and addresses; they will have provided them before they get on the ship. Maybe the Minister can help me with that. If these exemptions are important, the whole point of this regulation is almost lost. If there are so many ways that the Minister can wriggle out of it, for good or bad reasons, what is the point of it?
In its 49th report, the Secondary Legislation Scrutiny Committee, in answer to question 4, has a good list of comments. It says that the restrictions came from the original directive, and that:
“The exemption provisions were complex and restricted the scope of the exemption power to just certain vessels on certain types of routes with restrictive conditions”.
It goes on to say that, basically, the Secretary of State can decide to change whatever these restrictions are. Question 5 asks:
“What makes it ‘impractical for the shipowner to comply?’”
The Minister’s answer is:
“This would depend on the circumstances … on a case-by-case basis”.
I know a lot of work has gone into this document and I am sure it is very good overall, but whether shipowners and skippers understand what they have to do, and whether it was worth all the effort, I am not sure. Can the Minister perhaps explain to a landlubber like me what it is all about, why it is so important and who can wriggle out of giving him any information? I beg to move.
Lord Greenway (CB)
I am grateful to the noble Lord, Lord Berkeley, for allowing us to discuss these regulations. Before I go further, I would like to welcome the Minister to his new maritime role. He has a steep learning curve, and I can only wish him well.
We are moving more and more to computers, left, right and centre; everything is computerised. In a way that is a good thing and I welcome it, but we all know that computers go wrong so I am slightly worried that systems that are meant to work will not always do so. What is the back-up position if that happens?
Merchant Shipping (Fire Protection) Regulations 2023
Lord Greenway Excerpts(12 months ago)
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Lord Berkeley (Lab)
My Lords, I support the amendment in the name of the noble Baroness, Lady Scott, and the points she made. I too emphasise that this is not a criticism of the present Minister, who I know is trying very hard to catch up with these regulations; the problem goes back many years before she was appointed.
Today, the issue of fires on ships is very topical, because, as noble Lords will have seen, the ferry “Pentalina” caught fire near Orkney at the weekend and was grounded. I do not think that we know what the cause was, but, luckily, nobody was hurt. It indicates the importance that must be attached to fire prevention on ships. Its sister ship, MV “Alfred”, managed to hit a rock off the Orkney islands last summer—luckily, in broad daylight. Again, nobody was hurt, but these accidents happen, for whatever reason.
It is interesting to reflect that, while the noble Baroness’s amendment mentions a 20-year delay, the issue of lifejackets and bulkheads in river steamers was raised last year, which was 33 years after the “Marchioness” accident, in which a lot of people died. I appreciate that the Government are trying to catch up, but we have to comply with international regulations, and I hope that this work carries on. I am sure that we will all be monitoring the progress that the Minister outlined when she introduced the regulations.
I have one or two questions on some of the issues that the Minister outlined and on things in the Explanatory Memorandum. As we found when we were talking about seafarers’ wages, it is quite difficult and complicated. We are talking here, if I read paragraph 6.1 of the Explanatory Memorandum correctly, about
“passenger ships engaged on international voyages”,
which I think means being registered in the UK, and
“a small class of passenger ships engaged on domestic voyages”.
I suppose that includes the ships I have been talking about in the Orkneys. Does it include the ferries to and from the Isle of Wight? Where is the cut-off? It probably includes the “Scillonian III” going to the Isles of Scilly. I have no problem with this; I would just like to know what it applies to and what it does not. If you get a foreign-registered ship operating within the UK, I trust that the regulations still apply to it. It is terribly important that they do, of course.
I was interested to see in paragraph 6.2 the exceptions to the small ships regulations are that
“government ships and naval ships are not within scope of that instrument”.
Does that mean that it does not matter if naval ships catch fire or is there some other reason for not including them? Is there some alternative regulation? Naval ships, like any other ships, have had the habit of catching fire in the past and, clearly, preserving not only the lives of the seafarers but the government asset is pretty important.
I believe there is a sort of boundary between the 500-tonne ships included here and earlier regulations for smaller ships. I think the Minister has mentioned this before, but it would be nice to have some clarity on that.
My final point is on paragraph 7.2 of the Explanatory Memorandum. In her introduction, the Minister mentioned
“fire protection, prevention of fire and explosion, detection and suppression of fire, escape from fire, operational requirements, alternative design and arrangements and other requirements”.
That is a pretty wide-ranging definition. Presumably when the MCA gets round to the detail of this everybody will know what it is talking about but it is not very clear from this. It clearly has the right intention of reducing the risk and the scope of fire.
I suppose the issue that came up in the Explanatory Memorandum, which again the Minister referred to, is the fact that there are 19 different changes under paragraph 7. This indicates that the MCA is keeping up with different changes. That is very good but perhaps she could also explain what “ambulatory” means in relation to fire on ships. I look forward to her responses and again I congratulate her on bringing this forward because it is very difficult, very complicated and going to do good when it becomes legislation. I have posed a few questions and I look forward to her responses.
Lord Greenway (CB)
My Lords, I think this is the first occasion we have had to welcome the Minister to her new post as Shipping Minister. My mind goes back nearly 40 years to when it was almost de rigueur for the Shipping Minister to reside in this House, so it is extremely welcome to have a Shipping Minister back with us again.
These draft resolutions are extremely important, as has been pointed out by the noble Baroness, Lady Scott. Fire, as she said, remains one of the major areas of disaster at sea. Ships, thank God, are not usually built of wood any more but they carry all sorts of noxious substances that burn like hell if they catch fire and there have been a number of notable examples recently even of car batteries catching fire and sinking ships.
I should say we are almost here again. Every time we have one of these regulations coming forward, we say the same thing: why has it taken so long for this to be incorporated into British law? The original fire protection regulations were in 2003 and almost immediately there was a change in 2004. As we have heard, there have been about 20 such changes since then. Why has it all suddenly come into one thing nearly 20 years later? It hints, dare I say it, at a certain amount of sloppiness in the department that these things have not been dealt with more promptly.
Our standing is still, thank goodness, very high in the International Maritime Organization but things like this cannot help in due course. I know we do not have the merchant fleet we had many years ago but we are still an important player in the maritime scene and I think we should be acting more promptly to agree new regulations.
The “ambulatory reference” provision is most welcome because I hope it will put an end to all this complaining about delay because when new regulations come out of the International Maritime Organization it will be automatic in future.
I certainly have a lot of sympathy with the noble Baroness, Lady Scott. The performance of this country has not been up to scratch in these maritime matters, but I welcome the fact that everything should be sorted out by the end of this year.
Baroness Randerson (LD)
My Lords, I start by thanking my noble friend for tabling her amendment and giving us the opportunity to raise these important issues. I also thank the Minister and acknowledge her efforts to tackle this backlog which is of such concern to us all. I want to mention here the role of the Secondary Legislation Scrutiny Committee, of which I recently became a member. I have often referred to its excellent work in making sure that our attention is drawn to these important lapses.
As others have said, this SI relates to a total of about 20 IMO resolutions which successive UK Governments have so far ignored. Some of these, as has been pointed out, date back 20 years. The Minister referred to resources and I think that reveals to us how hopelessly beyond the Government’s capacity are their plans for the future revocation of EU law. If they cannot manage 20 year-old IMO regulations on fire, they are not going to manage several hundred transport-related pieces of legislation.
All of this relates, of course, to fire protection and, as has been pointed out, fire is one of the greatest dangers faced by mariners and their passengers. It is important to remember that these regulations relate to passenger vessels. That means that there will be people on board who are not professionals, not trained in how to respond if a fire breaks out, and not familiar with how things work or the layout of the ship; in other words, there are lots of people on board—the passengers—who are an additional risk, so it is not just mariners and their status we should be concerned about.
Some of these 20 regulations are about fire detection—the design of extinguishers and storage arrangements. As the Minister said, they are very technical. But some of them are about the basic design and construction materials of the ships concerned. So we could be talking about a maritime version of the Grenfell situation, where dangerous materials have been used. I have no reason to believe that that is the case, but I have no evidence, and neither do any of the rest of us, about whether there is a problem, because it has not been the subject of regulation.
Merchant Shipping (Standards of Training, Certification and Watchkeeping) Regulations 2022
Lord Greenway Excerpts(1 year, 4 months ago)
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The Parliamentary Under-Secretary of State, Department for Transport (Baroness Vere of Norbiton) (Con)
My Lords, these draft regulations implement amendments to the International Convention on Standards of Training, Certification and Watchkeeping for Seafarers 1978 into law. They update the training requirements for seafarers on specific types of ship and make further provision for the approval of training providers, including express powers to suspend or cancel approvals, and to make provision to allow the Government to charge for those approvals.
The STCW amendments came into force internationally on 1 January 2017 and 1 July 2018, and the draft regulations were laid before your Lordships’ House on 31 October 2022. They revoke and replace the current regulations implementing the STCW convention, the Merchant Shipping (Standards of Training, Certification and Watchkeeping) Regulations 2015. As such, they restate existing regulatory provision in this area, and make new provision.
The International Maritime Organization adopted the STCW convention in 1978; it came into force internationally in 1984. The IMO is a specialised agency of the United Nations and is responsible for facilitating the development of international rules for shipping. The STCW convention and code—an integral part of the convention—contain standards of competence for seafarers internationally. Because human error is recognised as the cause of a large percentage of maritime casualties and pollution incidents, the STCW convention addresses this problem by providing minimum standards of knowledge, experience and professional competence for seafarers.
The United Kingdom is a member of the IMO and a signatory to the STCW convention, to which there are a further 164 parties, estimated to represent the vast majority of global shipping. Being a party to the convention allows the UK to issue internationally recognised seafarer qualifications, which means that UK seafarers can work on ships that operate internationally. Since its entry into force in 1984, there have been a number of revisions to the STCW convention. These latest amendments came into force on 1 January 2017 and 1 July 2018. As a party to the convention, the UK is required to implement these amendments into UK law.
The STCW convention amendments being implemented in the draft regulations relate to training for seafarers serving on ships subject to the International Code of Safety for Ships Using Gases or Other Low-flashpoint Fuels—the IGF code—and seafarers working on passenger ships. These specialised ships require seafarers to have additional training and certification to demonstrate competency appropriate to the responsibilities undertaken by those seafarers on board. This additional training will allow United Kingdom seafarers to take up employment on these ships.
These updated and improved regulations will enhance the employment opportunities for UK seafarers by ensuring a modern training and certification structure that reflects the current and future needs of shipping. This includes: clarifying the definition of “seafarer” to ensure that all persons, including non-employed crew, engaged in the operation or navigation of a pleasure vessel of 24 metres in length or over—or 80 gross tonnes or over—are subject to the regulations; clarifying the position of the Secretary of State in relation to the approval of training providers, ensuring that approvals may be suspended or cancelled where appropriate to do so by providing express provision; introducing a charge for the approval of training providers to ensure that the MCA can approve and monitor training providers who deliver the training required by the STCW convention, in line with the principle of public authorities recovering money spent on services, which would otherwise fall to the taxpayer; and, finally, providing powers to approve equivalents and alternative certification, as permitted by the STCW convention.
Enhancing safety through improving the regulatory regime for seafarers’ training will complement the department’s nine-point plan to support seafarers and introduce new powers to protect maritime workers. Furthermore, these regulations allow the UK to grow its high-quality seafarer training brand worldwide, at the same time as supporting the Government’s Maritime 2050 strategy to support quality training initiatives that raise the standards for seafarers across the globe.
The Government fully supported the development of the STCW convention amendments in the IMO, and the UK shipping industry was consulted throughout their development to ensure that they are modern and fit for purpose. The Government’s proposals for implementing the convention amendments and additional regulatory provision by way of this statutory instrument were the subject of an eight-week public consultation. The MCA has refined the proposals based on the comments received, but no substantive changes have been required.
These regulations will be made under the safety powers conferred by the Merchant Shipping Act 1995, as well as prevention of pollution powers contained in the Merchant Shipping (Prevention of Pollution) (Law of the Sea Convention) Order 1996. The draft regulations also make amendments to the Merchant Shipping (Fees) Regulations 2018. This is the part that allows the MCA to charge for the approval of training providers. The draft regulations are subject to the enhanced scrutiny procedures under the European Union (Withdrawal) Act 2018, as they revoke the 2015 STCW regulations, which were made under Section 2(2) of the European Communities Act 1972. The regulations do not themselves implement any EU obligations.
These draft regulations implement amendments to the STCW convention for seafarers and improve the regulatory regime by raising standards of training and education. The draft regulations will continue to allow the United Kingdom to maintain its role as a world leader in seafarer training and education. I commend these regulations to the Committee and beg to move.
Lord Greenway (CB)
My Lords, I thank the Minister for outlining these new regulations that, as she has explained, implement amendments made to the STCW convention. I think we were all taken aback by the size of these regulations; in fact, if I took time to read right through them, it might take almost as long as these regulations have taken to reach this House. We are playing catch up again, but I am pleased that we are now getting on with it, and I have no real queries with the regulations.
I see that pleasure craft are included, and I think there are limits. I cannot remember what the length and tonnage is for pleasure craft, and I have not had the time to work it out, but could the Minister tell me if it brings the Thames Clippers operating on the Thames here into the remit of these regulations?
Lord Berkeley (Lab)
My Lords, I also congratulate the Minister and her officials. I think I should also congratulate the MCA, which has probably done most of the work and produced some amazing documentation; I think we are all very grateful to it. As the noble Lord, Lord Greenway, says, it has taken a lot of reading and I will not go through many of these things, but I have a couple of questions for the Minister.
First, concerning the heading “Application” in Part 2, the noble Lord, Lord Greenway, asked about the Thames Clippers. I saw that the minimum weight was 80 gross tonnes and the length 24 metres. Which ships on the Thames does this apply to, as he asked? We debated life jackets on ships some time ago and I trust that has all been sorted out.
I have another question on this section. We see that it does not apply to foreign- registered vessels, which we know, but in Regulation 5(2)(e) we get an exclusion for
“wooden ships of primitive build”.
Can the Minister say what a wooden ship of primitive build is? Does it have to be over or under 24 metres? Is it powered by sail or motor, and where does it go? The only criterion seems to be that it should have a UK flag, if it ever had one. I do not know about that, but I suppose my concern is that these regulations go into great detail. I notice that only 25 UK-registered ships are owned by small businesses, and you can understand why: if they have to plough through all this and comply with it, the answer is they probably will not. That is quite a worry.
I am not sure how much of these provisions will apply to foreign-registered ships in UK waters. Does anybody check on those? Do the other ports of registry for ships have similar requirements to this—let us hope they do—or will we have one law for the British ones and one law for the rest of the world? As the Minister said, we want to encourage UK-registered ships but if this is the only country of registration that requires 200 pages of documents to be gone through, that is hardly an incentive.
Finally, I have often raised the question of enforcement before on different things. The Minister mentioned human error in her introduction. There have been a couple of interesting accidents with ships this summer, including the MV “Alfred”, which seemed to hit an island in Orkney on 5 July. One has to question how, in broad daylight, that happened with safe manning. I am sure we will see the results of an inquiry into that. I hope that in implementing and enforcing these regulations, the MCA will be given enough staff and resources to do it properly—it will be largely down to them—so that we have a good reputation for following these regulations, rather than just publishing more bits of paper.
Seafarers’ Wages Bill [HL]
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Lord Balfe (Con)
My Lords, I have a lot of sympathy with what my noble friend Lord Forsyth has said. We have set out to deal with the problem of P&O. I have heard nothing from the RMT—it is clearly not that bothered about this side of the House—but this pushes things a bit further than they should go. I hope the noble Lord will not test the opinion of the House.
Lord Greenway (CB)
My Lords, I very much endorse what the noble Lord, Lord Forsyth, just said. I am very concerned about this amendment, as is the Chamber of Shipping. The Bill is part of the Government’s nine-point plan to address the whole problem of seafarer welfare—an important one nevertheless, dealing with services with close ties to the UK, making regular port-to-port international voyages adding up to 120 calls a year. It is not just about Dover/Calais; ports all around the country will be affected, so it is wrong to concentrate just on Dover/Calais, although admittedly that is where the main problem occurred.
The Government went through extensive consultation on the Bill and came up with the figure of 120 calls a year, which is probably the right balance. I know that the chamber is very concerned that widening the scope of the services affected to those making only a single call a week would draw in a very large number of non-UK ships, subjecting many more foreign companies to UK national minimum wage legislation. In turn, that would provoke a severe reaction from the international shipping community—and I know that the International Chamber of Shipping is especially worried about this. In turn, this could be seen as an even greater infringement of international conventions and an excessive claim to prescriptive jurisdiction.
It would also be impractical for the Government to oversee such a large and diverse number of shipping services calling at UK ports, increasing the administrative burden on ports, as has already been said, and creating uncertainty across different shipping sectors such as coastal, wet and tanker services, dredgers and other services that were never intended to be part of this Bill. Any decision to have a scope in the Bill that is way beyond the original stated intention will seriously damage confidence in the UK as a global centre for shipping; it also risks fewer ships calling at UK ports.
My noble friend Lord Mountevans has taken a greater part in this Bill than I have, so in many ways I am speaking for him. I say to the noble Lord, Lord Berkeley, who is a good friend, that no cruise ship would be affected by this amendment, because cruise ships do not call that frequently and most of them migrate during the winter months. So, I do not think that the effect of his amendment would be as great as he might have hoped, and therefore I hope the Government will resist it.
Baroness Randerson (LD)
My Lords, I want to start by thanking the noble Lord, Lord Berkeley, for his usual attention to detail on these issues. The noble Lord, Lord Forsyth, said that he had not participated before. If he had, he would know that the scope of the Bill has been a persistent topic, and those of us who have been engaged throughout have pressed the Minister on a number of occasions, and in a number of ways, to define it more closely. I am particularly interested in Amendment 2; the key point here is the reduction in the number of visits required to demonstrate close ties and regular links with the UK—the noble Lord has suggested a reduction from 120 to 52.
The argument against that is that it might bring in a new range of services, and I understand the Government’s desire to avoid mission creep. But the truth is that although we all agree with the principle of this Bill—that seafarers should be paid a decent wage—in practice it is very poorly drafted. It has imprecise definitions, penalties that are in practice not going to be imposed—such as the denial of access to the harbour, which will come up in an amendment later—and a very cumbersome structure whereby the Government will rely on harbour authorities to implement the rules. I believe it would not have got this far in its current state if the Government had not been so distracted recently; we are after all on the third Secretary of State in three weeks, and it is difficult to get that continuity.
To address the specific issue of the numbers, the noble Lord suggests that the total is 52. It is easy, as the noble Lord, Lord Greenway, has just pointed out, to base one’s judgments on what happens from Dover; in practice, there are ferry services in the rest of the UK that are in every way similar in structure, ownership of the company and the seafarers involved, but they go much less frequently. It is possible to envisage, for example, some of the ferries between the north of England and Scandinavia and ferries between the south-west of England—maybe Poole—and the north of Spain. Those are regular ferry services that often do not run at all in winter, so a total of 52 may not be out of kilter with what is required.
In the interests of fair wages, it might be worth broadening the definition. I urge the Minister to consider that, and to look, even at this late stage, at the pattern of services throughout the UK. There may well be a case to reduce the total number of services which are caught in the Bill.
Merchant Shipping (High Speed Craft) Regulations 2022
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The Parliamentary Under-Secretary of State, Department for Transport (Baroness Vere of Norbiton) (Con)
My Lords, these draft regulations relate to the safety of high-speed craft, which are generally all rapid passenger craft but can be cargo craft. They primarily operate domestically in UK waters, although some operate between the UK and the Isle of Man, the Channel Islands and France.
High-speed craft are defined in the International Maritime Organization’s International Code of Safety for High-Speed Craft, SOLAS chapter X. They include some twin-hulled vessels, hydrofoils and air-cushioned vessels such as hovercraft. Examples include the Isle of Wight hovercraft and the Thames Clippers. The definition of a high-speed craft set out in the international documents relates not only to its speed but to its displacement.
These regulations will be made under the safety powers conferred by the Merchant Shipping Act 1995. However, they are subject to the enhanced scrutiny procedures under the European Union (Withdrawal) Act 2018, as they will revoke the Merchant Shipping (High Speed Craft) Regulations 2004, which were made under Section 2(2) of the European Communities Act 1972. That is a long way of explaining why these have an affirmative attachment to them; in and of themselves, they are fairly straightforward and mostly technical. They do not implement any EU obligations.
As I have noted, these high-speed craft regulations replace those from 2004 to implement the most up-to-date requirements of chapter X of the annexe to the International Convention for the Safety of Life at Sea 1974, known as SOLAS, affecting high-speed craft. Chapter X gives effect to the high-speed craft codes of 1994 and 2000, which contain the requirements applying to high-speed craft. As their name suggests, these codes were first agreed internationally by the International Maritime Organization in 1994 and 2000, but they have been updated, most recently in 2020.
What do these regulations do? They further improve the safety standard for high-speed craft and will enable the UK to enforce these requirements against UK high-speed craft, wherever they may be in the world, and non-UK high-speed craft when in UK waters. This provides a level playing field for industry. These amendments bring UK legislation up to date and in line with internationally agreed requirements.
The updated requirements of SOLAS chapter X, which these regulations seek to implement, introduce both a new requirement for crew drills on entry to and rescue from enclosed spaces, such as machinery spaces, to be conducted every two months, and the recording of those drills alongside other similar recordings currently kept for fire drills and other life-saving appliance drills. These updated requirements came into force internationally on 1 January 2015.
In addition, the regulations implement two further changes to the codes. First, they introduce updates to the requirements for life-saving appliances relating to rescue boats and life rafts. Secondly, they abolish the current monopoly on satellite service provision to ships, opening the market to any provider meeting the required standards. Both these measures came into force internationally on 1 January 2020.
While many other nations adopt such resolutions into their domestic law immediately, our dualist legal system can lead to delays and a backlog has occurred. We intend to avoid such delays in future by using ambulatory references in our regulations. Indeed, we are using ambulatory references in these regulations to put matters agreed at the IMO into our domestic law.
On the UK flag we have about 30 high-speed craft to which these new regulations apply. There are no foreign-flag high-speed craft operating in UK waters. The 1994 code applies to older vessels and the 2000 code to vessels built or substantially modified in or after 2002.
I believe that is about as much as I can say about these regulations. I have one more thought: they also make amendments to the Merchant Shipping (Fees) Regulations 2018. That is purely to enable fees to be charged for the inspection, survey and certification of these high-speed craft by the Maritime and Coastguard Agency. On that note, I beg to move.
Lord Greenway (CB)
My Lords, I am grateful to the Minister for describing these regulations. As she said, under chapter X of the IMO’s SOLAS convention the high-speed craft codes are regularly updated to incorporate advances in safety technology. That is the reason for these regulations.
The changes the Minister outlined are acceptable to the UK shipping industry, as evidenced by the response to the consultation process. The addition of the ambulatory reference provision to keep UK law aligned with IMO obligations is also welcome. As she said, we hope it will speed up the process as this is just another of those maritime SIs that we should have discussed some time ago.
I understand that many of the changes proposed have already been adopted by UK owners, especially by those trading internationally, because it is in their own interests to do so. I believe that some of them would like to have more advance warning of what new changes are being discussed at the IMO so that they have an idea of what might come through the pipeline.
As the Minister said, these high-speed craft come in many shapes and sizes. I have been slightly mystified as to what the size parameters are, because the only thing I have found relates to cubic metres, and I cannot relate cubic metres to a vessel. She mentioned Thames Clippers, so it obviously comes down to a relatively small craft. An upper limit does not really apply, because these craft do not get to enormous sizes.
Another area for high-speed craft, and one that is rapidly increasing, is in the offshore service sector. I looked this up to see what was going on, and I understand that there is already a High-Speed Offshore Service Craft Code. Presumably, those sorts of craft are not included in these regulations. If the Minister and her advisers could help me with a parameter for these regulations, in relation to the vessels they cover, I would be most grateful.
In the offshore sector there is enormously interesting development going on, with the latest things being all-electric craft that fly on foils. Seen from ahead, you wonder how on earth they manage to go about their business, when the ship is high out of the water and there is just a single foil going down into the water. These are exciting prospects and ones that I hope will lead to great commercial success in future. In the mean- time, I welcome the regulations.
Baroness Randerson (LD)
My Lords, it is good to see another small step on the long path facing the Department for Transport, as it tries to catch up with the backlog of maritime legislation waiting to be adopted into UK law. The legendary Secondary Legislation Scrutiny Committee has been watching this process and has produced three reports on this problem over three different Sessions of this House. The impact of this backlog is that the UK is failing, in effect, to live up to its international obligations, which is a matter of concern to many of us—and I think is undoubtedly a matter of concern to the Minister, to judge by what she has said before. Some of her colleagues are not that concerned about international obligations, but I know that she is.
This current lapse seems to be a potential matter of life and death, because these regulations relate to chapter X of the International Convention for the Safety of Life at Sea 1974. Since they also specifically refer to high-speed craft, I assume that there is potential for considerable risk.
I have read the legislation and the Explanatory Memorandum, and I remain a bit confused as to exactly what is covered, because the Explanatory Memorandum specifically refers to
“fire-retardant aspects of construction and fire detection and extinction devices, life-saving appliances (including life-rafts and lifejackets), navigational and stability systems”.
Paragraph 13.3 of the EM refers to these as having
“key implications for safe operation”
and it seems obvious that they do, because they are an area where technical improvements in design and manufacture will have increased the effectiveness of that equipment. But the legislation also talks about people being drunk at sea, obeying orders to leave the ship and so on, so I would welcome clarity from the Minister as to exactly which of these sets of issues we are very late in implementing, if I can put it that way. Several different dates are fired at us in the Explanatory Memorandum. How late are the Government in implementing this? Exactly how much of this is gravely overdue?
When we have discussed other delayed maritime legislation, the Minister has attempted to reassure us that, for various reasons, we have been in effect carrying out the legislation anyway. The noble Lord has just referred to the fact that a craft operating internationally would have had to do that, but those operating just domestically would effectively have been exempt. It seems to me that if we are referring to changes made to chapter X in 2014, we are eight years behind schedule. Have I understood this right? Can the Minister tell us whether there have been any incidents or accidents where the lack of this legislation has been a factor?
The delay in bringing these new powers definitely seems to have been one of the more reprehensible issues that have come from the delay in so much of this maritime legislation, and therefore I am extremely pleased to see that the department is continuing to try to catch up on this issue.
International Organization for Marine Aids to Navigation (Legal Capacities) Order 2022
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The Parliamentary Under-Secretary of State, Department for Transport (Baroness Vere of Norbiton) (Con)
My Lords, this order will allow the UK to recognise the International Association of Marine Aids to Navigation and Lighthouse Authorities, or IALA, and assist in the completion of its transition from a non-governmental to an intergovernmental organisation. The IALA may not be familiar to some noble Lords, but its work is fundamental to maritime safety and, given that 95% of all of our import and export tonnage is transported by sea, the wealth and prosperity of our island nation. The IALA is and will remain a technical, not-for-profit body whose key aim is to co-ordinate
“improvement and harmonisation of marine aids to navigation and related services to the benefit of … navigation, efficiency of shipping traffic and protection of the environment.”
It brings together marine aids to navigation authorities, manufacturers, consultants and scientific and training organisations from all parts of the world, providing a vital forum for the exchange of views, expertise and experience.
The UK was a founding member of the current organisation when it was first established in 1957. Our illustrious maritime heritage and continued leadership on aids to navigation through the work of our general lighthouse authorities—Trinity House, the Northern Lighthouse Board and Irish Lights—means that we have played, and continue to play, a significant role in all its achievements. These include the introduction of a single buoyage system, which replaced the more than 30 different types in use worldwide as late as the 1970s. Many of these had confusing and, worse, often conflicting rules. As a result, many ships were wrecked and lives lost simply because there was no consistency and mariners were often unable to fathom intended meaning.
This represented a significant barrier to the improvement of navigation safety and was the biggest challenge faced by the IALA when it was first formed. Although there was a clear need for consolidation and an internationally recognised consistent method of marking and wayfinding at sea, agreement on the details remained difficult. The IALA managed to navigate a path through these problems and created the IALA maritime buoyage system in 1976, adopted by the IMO in 1977. It remains a fundamental cornerstone of maritime navigation today, and has had an immediate and long-lasting impact on maritime safety.
The IALA continues to set international standards for all marine aids to navigation, make recommendations and deliver guidance. It has been instrumental in facilitating the delivery of enhanced navigation safety—for example, in facilitating the introduction of purely electronic aids to navigation, the transition from filament bulbs to LED lighting and the delivery of new power sources, such as solar. It also advises on challenges to navigation safety, such as offshore windfarms, and new technologies, including autonomous vessels.
The UK’s maritime heritage, although at times painful and tragic, means we have an obligation to others to incorporate and share our learning regarding safety in all of the IALA’s outputs. This is vital if we are to prevent the reoccurrence of the mistakes and tragedies that litter our history. That is why this order is so important. It will facilitate the IALA’s richly deserved transition to intergovernmental status.
The order is a very simple SI that confers the legal capacities of a body corporate on IALA in the UK. Article 1 provides that the order may not come into force until the future intergovernmental organisation comes into existence for the UK. If the UK is one of the first 30 states to ratify, this will be 90 days after the date of the deposit of the ratification instrument of the 30th state. If the UK ratifies after the convention is already in force, it will be on the 30th day after it deposits its instrument of ratification. This article also provides that the order’s provisions extend to the whole of the UK.
The UK was a founding member of IALA when it was first established in 1957. We are very keen to be at the forefront of its transition to an intergovernmental organisation. As I have noted, there is a process that things have to go through, and we need this order for the process to really get going and for us to be able to recognise IALA. I commend the order to the Committee.
Lord Greenway (CB)
My Lords, I am grateful to the Minister for introducing this order. I declare a non-pecuniary interest as an Elder Brother of Trinity House, the general lighthouse authority for England, Wales, the Channel Islands and Gibraltar. As the Minister said, Trinity House has been closely involved with the International Association of Marine Aids to Navigation since its formation in 1957 under its previous name, the International Association of Lighthouse Authorities, which is where the acronym IALA comes from.
At a meeting in Spain in 2014, IALA agreed that the best way forward to develop and improve marine aids to navigation for the benefit of the maritime community and the protection of the environment would be to seek international intergovernmental organisation status as soon as possible through the development of an international convention. Three subsequent diplomatic conferences were held to thrash out a draft convention, and it was finalised and adopted at a fourth conference held in Kuala Lumpur in February 2020. Just under a year later, the convention was opened for signature in Paris, where IALA is headquartered, and some 20 countries have now signed. Five of these—Singapore, Norway, Japan, Malaysia and India—have since ratified.
The convention will lead to increased international acceptance of standards, enhancing harmonisation, and will raise IALA’s status at the International Maritime Organization from merely consultative to equal partner, facilitating direct links with the experts working at the sharp end of research and development and thereby obviating difficulties that have arisen in the past when dealing with some governmental bodies.
Despite the huge technological strides that have been made in the aids-to-navigation sector over the past 20 or so years—here Trinity House has played a major role—the importance of such aids is as great now as it ever was, arguably more so due to the greater emphasis being given to environmental concerns. Bearing in mind our close association with IALA, I sincerely hope that the Government will see their way to ratifying the new convention at the earliest opportunity.
Lord Berkeley (Lab)
My Lords, I welcome this order. As the Minister and the noble Lord, Lord Greenway, said, it is well overdue but is certainly going to happen. It appears to be going at a faster rate than on ballast water, perhaps because it will be based in France; we can conjecture on that. However, that is not really what I want to ask the Minister about.
As the noble Lord, Lord Greenway, said, Trinity House is responsible for the lights and other navigation aids in England. It must have been more than 10 years ago that the shipping industry got very upset because it was paying its light dues for when ships use British ports—the light dues go to maintaining the lights—and we discovered that the lights being maintained included all the lights around the Irish Republic as well as those around England and Scotland. I recall that at the time my noble friend Lady Crawley, who was a Minister, was having great trouble negotiating with the Irish Government on the rather simple idea that they should pay for the maintenance of their own lights. She said, “They’re not very keen to negotiate”. That was not a very good answer from the Irish Government.
It was finally sorted out, and the other thing that was sorted out was that Trinity House and the Government together found a way of becoming much more efficient, as they are now, and therefore reducing the light dues applied to ships coming into this country. I am very pleased with the way it has gone, but can the Minister confirm, if not today then in writing, that there is no question that any of the money from ships coming into UK ports and paying light dues goes towards funding anything to do with lights in the Irish Republic?
Merchant Shipping (Control and Management of Ships’ Ballast Water and Sediments) Order 2022
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Lord Berkeley (Lab)
My Lords, I am grateful to the Minister for introducing this fascinating draft order. It is interesting that the Government blame everything on things coming from the Far East, be they Chinese or Japanese knotweed or Japanese oysters. I expect that equal blame goes in the opposite direction.
This needs doing—I have no problem with ensuring that ballast water is sampled and tested—but I wonder whether the Minister can just help me. How is this sampling done? It is presumably done when the ship is in port, then sent away for analysis—that seems quite clear to me—but what happens if some of the samples are found to be non-compliant with whatever regulations we are coming up with? Will they nail a writ to the mast of the ship, the next time it comes in? Will they send our Navy out on to the high seas? How will these things actually be enforced?
It is wonderful having regulations. These have been coming for a long time. The IMO worked very fast to get them ready by 2017. It probably takes 10 years to do these things, and now we are taking another five. It is important to understand how these regulations will be enforced. They need to be enforced around the world. We can do only our bit, but we can set an example. I hope there is a way of doing it without us spending too much money on it.
Lord Greenway (CB)
My Lords, I too am grateful to the Minister for introducing this order. As she said, the convention dates from 2004 and was not ratified until September 2016 by 30 states, representing 35% of the world’s merchant tonnage. By the time it came into force a year after that, over 60 countries had ratified it, representing over 70% of the world’s shipping.
The Minister mentioned the delay in bringing forward this order. I am not certain that I entirely buy her explanation. It seems to me that when so many other countries, representing so much of the world’s shipping, have already ratified it, it does not do our reputation as a so-called maritime nation much good when we are seen to be dragging our feet over these conventions.
She also mentioned in passing the Chinese mitten crabs. When I went through the list, it read more like something out of a science-horror movie, since we also have round goby, North American comb jelly, zebra mussels, toxic algae and even cholera, which has been transported on micro-organisms such as plankton. There are some very nasty things going around, as the noble Lord, Lord Berkeley, just said, and this convention was brought in for very good reasons.
There is one thing I would like to ask the Minister. What has been the position with our ships? This measure does not mean that an awful lot of ships, in the general sense of the word, would be affected because our Merchant Navy is a shadow of what it used to be. But what has happened to those ships to enable them to continue trading? Have they been, on their own accord, taking the actions necessary to comply with the convention in order to trade? If they were seen to be operating under the flag of a country that had not ratified, they would quickly be picked up by port state control around the world and forbidden to trade. I would be grateful if the Minister could shed some light on that.
Baroness Randerson (LD)
My Lords, I welcome this important environmental measure and thank the Minister for her explanation. In particular, I was fascinated by paragraph 6.3 of the Explanatory Memorandum, which explains the complexity about which comes first: the ratifying of the convention or these regulations. However, that does not explain why it has taken since 2004 for us to get to this stage.
I realise that we were not alone because, as the noble Lord, Lord Greenway, just explained to us, it took until 2017 for 30 countries representing 35% of the world’s tonnage to ratify the convention. But it is a serious matter of concern and shame for us that the nations with 70% of the world’s tonnage have now signed up and we have not yet managed to do so, although it will happen soon. It is depressing that, as a once-great maritime nation, we yet again have been slow to adopt international and environmental measures that were a matter of urgency.
Perhaps the Minister can clarify, but am I right that our slowness has simply been because of the huge backlog of maritime measures that the Department for Transport managed to build up? Was it simply overlooked, or has it been a lack of enthusiasm by successive Governments to sign up that has been the problem?
There is a key point, not explained in the Explanatory Memorandum. I am sure that noble Lords will forgive my ignorance, but do ships need new technology to manage their ballast water in the way that will be prescribed, or is it just a matter of better management? I am not clear whether it is that all modern shipping would have the correct equipment, and so on—but I am surprised that there has been no impact assessment. I would assume, whether it is better management or modern equipment, either way there will be costs for ship owners as a result of this SI. However, I welcome the fact that we have finally got round to it.
Merchant Shipping (Prevention of Air Pollution from Ships) (Amendment) Regulations 2021
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Baroness Randerson (LD)
My Lords, I thank the Minister for her very clear introduction. I have no criticism of the regulations themselves, but I want to concentrate on the backlog of maritime legislation within the department and its impact on the sector. I am very grateful to the Secondary Legislation Scrutiny Committee. It has repeatedly drawn attention to this problem, which has existed since 2016. Since then there have been five separate updates to MARPOL, to which the Minister referred. I believe the department still needs to implement over 40 changes to maritime legislation. These regulations, although very welcome, are very late as well.
The Department for Transport says that it has not prioritised this raft of legislation because operators tend to comply with IMO regulatory requirements as ships cross international boundaries all the time. That statement is contradicted by the Government’s own Explanatory Memorandum, which states that the ability of inspectors to sanction non-compliant ships will be very limited until these regulations come into force.
My real concern is the vagueness of all this, so can the Minister provide us with a lot more detail? First, on the simple numbers, the SLSC was told that, of the 40-plus backlog, 10 have now been made, 10—including this one—are in the final stages, and another eight are in the very final stages of preparation and anticipated to be introduced in the 2022-23 Session. The remainder are at an earlier stage of development and are anticipated to be complete by the end of 2023. This is far too slow and could mean that some legislation has been delayed for seven years.
Can the Minister explain exactly how many pieces of legislation are in that final slow lane and why they have been placed there? I realise it is far too much to ask for this to be done here, but could she write to us with a list of all the pieces of legislation in this backlog and say which pieces are in which category? The original DfT target to deal with this backlog was 2020, so why has it lapsed so badly?
I realise that the pandemic has affected everything, but in itself that is not a sufficient excuse, because the pandemic goes back only some 18 months and this backlog goes back to 2016. It must be seen in the context of other delays in DfT legislation. We are in a position where we need more legislation on EVs, driverless cars and other key areas of transport development. A major question must be why the department does not devote more resource to keeping up with modern transport developments. I agree with the committee, which labels the number of delayed pieces of legislation “highly disturbing”.
This is not just a numbers game. Let us look at the implication of these pieces of legislation. Many of them, like this one, have environmental implications. This one concerns sulphur oxide and nitrogen oxide and is about reducing air pollution; it is another example of a Government who talk tough on pollution but fail to deliver on the crucial detail. We must remember that this is about the health and working conditions of sailors as well as the overall state of our planet. Working conditions for many in the maritime sector are often very poor. Many are subject to exploitation and they are certainly often overlooked. We owe it to them to ensure that the UK upholds the highest standards.
This is London International Shipping Week, and I note that the industry has committed itself this week to zero carbon by 2050. It certainly needs the Government to do a great deal more to support it in achieving that. So although these regulations are welcome as far as they go, I would like to see much more from the Government to demonstrate that they are serious about tackling emissions from ships because of the impact on ships’ crews, cruise passengers and dockyard workers, as well as on our planet.
Lord Greenway (CB)
My Lords, I agree very much with what the noble Baroness, Lady Randerson, just said about these regulations. I have no problem with them, as she has already said, but I regret very much the considerable delay that has occurred in bringing them forward, and I hope that we will hear some sort of explanation from the Minister when she comes to sum up.
These regulations are not a great surprise. Our shipping industry has been well aware of what is going on for quite some time now, and it has been forced to act by the introduction of these emission control areas, which stole a march on the International Maritime Organization’s regulations by bringing in things that applied not to the whole world but merely to the specific areas that the Minister mentioned. By and large, our own ships have already made the necessary adjustments to be able to operate in these low-sulphur areas.
I have been in this House for 45 years—I am horrified to say it—and in that period I have seen our merchant fleet reduced from a fairly large standing in the world to something that is almost pathetic compared with what it was. We are not the force in international shipping that we were and that is a huge regret, but this country still has great expertise in the maritime field. The Government have set up a new committee to look into things such as finding a new means of propulsion, in effect to try to replace the internal combustion engine. I do not know how that is going, and the Minister probably cannot help me on that, but we still have a part to play in international shipping.
Transport Decarbonisation
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Lord Greenway (CB) [V]
My Lords, I welcome the Government’s long-awaited transport decarbonisation plan, which includes shipping and aviation, but I have to ask them why they are spending less on innovation and research in the maritime sector than in automotive and aviation. The plan contains no headline commitments and no money to get on with the task confronting the marine industry. It is all very well to set ambitious targets, but the plan does not set out a clear way to meet them. There are elements of jam tomorrow. For example, the plan recognises the need to install shore power points around the coast, but why delay? Why not start now? Other countries have done it through joint investment by industry and government. Converting trucks to run on electricity will not help reduce congestion on our—
Baroness Vere of Norbiton (Con)
I thank the noble Lord, Lord Greenway, for his many questions. Maritime is absolutely critical to our decarbonisation. At the moment, maritime is, unfortunately, very polluting. This is why we already have a lot of work under way. We published the Clean Maritime Plan in July 2019. We have committed £20 million for the clean maritime development competition. We are consulting on steps to support the uptake of shore power and, if necessary, we will mandate it. Clearly, the consultation needs to take place before we go around putting lots of plugs in ports.
Maritime 2050 Strategy
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Baroness Sugg
My Lords, we are working closely with the maritime sector to ensure its continued success regardless of the outcome of the Brexit negotiations. Much of the maritime sector is governed internationally and the UK plays a prominent role in the International Maritime Organization, which is based just over the river from here. We will continue to play a key role regardless of the outcome of the negotiations.
Lord Greenway (CB)
My Lords, while I welcome the Government’s strategy, I ask them to do everything in their power to expedite the re-emergence of coastal shipping. This sector is of great importance to some of our coastal communities, which have been suffering from economic decline. The adoption of new propulsion techniques such as gas or even hydrogen would benefit the environment and new ships would reduce the number of heavy goods movements on our increasingly congested roads.
Baroness Sugg
My Lords, we have the excellent Maritime Growth Study, which was led by the noble Lord, Lord Mountevans, with a review published last year. I agree with the noble Lord that we must do what we can to support the ports around our country. We have made great progress in ensuring that the UK has a strong maritime sector, with several billion pounds-worth of investment having been made across UK ports in recent years. The technology factor which the noble Lord has highlighted is something that we focus on in the strategy.