Baroness Finlay of Llandaff
Main Page: Baroness Finlay of Llandaff (Crossbench - Life peer)Energy Bill
Baroness Finlay of Llandaff Excerpts“Carbon monoxide detection
(1) The Secretary of State shall make regulations to provide that any person who undertakes work on a carbon burning appliance within a property shall ensure that—
(a) the premises is equipped with an appropriate carbon monoxide alarm, or(b) in the absence of such an alarm system, the occupier or a person acting on behalf of the occupier is advised of the requirement to install such a system.(2) The Secretary of State shall make regulations that any person replacing or installing energy efficiency measures which alter the air tightness of a building, where a fuel burning appliance is situated, shall ensure that—
(a) the premises is equipped with an appropriate carbon monoxide alarm, or(b) in the absence of such an alarm the occupier or a person acting on behalf of the occupier is advised of the requirement to install such a device.(3) The Secretary of State shall make regulations to provide that—
(a) no person shall replace or install a meter or a smart meter in any premises unless he is equipped with a personal alarm monitor for detecting carbon monoxide gas;(b) where a person replaces or installs a meter or a smart meter he shall ensure that—(i) the premises is equipped with an appropriate carbon monoxide alarm, or(ii) in the absence of such an alarm the occupier or a person acting on behalf of the occupier is advised of the requirement to install such a device.(4) The Secretary of State may by regulations amend the Gas Safety (Installation and Use) Regulations 1988, to ensure—
(a) the premises is fitted with an appropriate carbon monoxide alarm where any carbon burning appliance is in situ, (b) at intervals of not more than 12 months check that alarm system to ensure it is fully functional,(c) its power source is in good order for a further 12 months, and(d) proof of purchase of any alarm is retained for the period of that alarm’s lifetime, as specified in the manufacturer’s instructions.”
Baroness Finlay of Llandaff
My Lords, these amendments concern carbon monoxide detection. I want to explain why carbon monoxide needs to be detected, why the Energy Bill is the place that should have this amendment, and to explain the amendment briefly. I am grateful to the Minister for meeting me yesterday and giving me so much of her time.
Carbon monoxide is a colourless, odourless gas emitted when carbon, however produced—whichever fuel it is in—is incompletely burned. Domestic sources are usually faulty or improperly installed cooking and heating devices. At concentrations of 12,800 parts per million, death occurs in one to three minutes. At lower levels, ongoing damage may persist for years. The problem is that because you cannot see or smell it people often have no idea that they are being killed by it. Hospital episode statistics for England and Wales show that at least 40 people a year die from carbon monoxide poisoning, and about 4,000 people attend A&E departments with carbon monoxide toxicity. The inquiry that I chaired on behalf of the All-Party Parliamentary Group on Carbon Monoxide found that, based on the Government’s approximate figures, these incidents together are probably costing the nation well over £117 million a year.
However this is only the tip of the iceberg. The most authoritative estimates suggest that carbon monoxide poisoning is much more prevalent than previously thought. The majority of those who have discovered that they have been poisoned have never attended A&E and are thus excluded from official figures. Indeed the overwhelming majority of people poisoned by fossil fuel combustion are completely unaware that they are being or have been poisoned. They present with non-specific symptoms, which makes it difficult to diagnose; these include headache, chronic fatigue, mood disorders, poor memory, dizziness, poor or disturbed sleep, poor concentration, tummy ache, diarrhoea, pins and needles and recurrent infections. I should think every Member of your Lordships’ House has had some of those symptoms at one time or another. The effect on the brain is particularly marked: in chronic low level exposure the cognitive changes result in disordered chaotic thinking, which persists. The changes are irreversible and brain changes can be seen on MRI scans years later.
There have been studies into low level exposure. In 2011 Liverpool John Moores University, working with Mersey Fire and Rescue Department, visited 2,180 homes. Over 90% had a fire alarm but fewer than 10% had a carbon monoxide alarm. They left CO logging monitors in 109 homes for six months. These monitors scan to detect whether there is CO present every minute. The findings were horrifying: 24 homes—over 20% of the total—had CO levels at some time that were greater than 50 parts per million—the level at which symptoms develop. A further 53 homes—almost half—showed CO levels between 10 and 50 parts per million. So, half of the homes had chronic low level exposure, and the residents were completely unaware of it.
A study by University College London found that 2% of 597 homes visited had a “very high” risk of carbon monoxide exposure, and a further 4% were at “high” risk. Its study showed that the presence of an unsafe gas appliance was linked to neurological symptoms.
A joint study by Public Health England and Hackney Homes looked at all the homes managed by Hackney Homes which had a carbon monoxide alarm fitted, more than 22,000 homes. Between November 2011 and April last year, there were 106 alarm activations. In 0.4% of households the alarm had gone off: 29% were due to a defective cooker; 9.8% to a defective boiler; and 25% to a defective fire of some sort. In 10.6% of cases there was misuse of a cooker or cooking methods. Some families seemed to put tinfoil over the top of the heating area, which decreases the airflow and raises carbon monoxide levels. In 38.5% of cases the alarm had gone off because the battery was defective and needed to be replaced—so the battery detection was working.
Public Health England concluded that carbon monoxide exposure in local authority homes could be causing substantial ill health across the country and that the problem is seriously under-diagnosed. CO alarms are cheap. I will not ask for a show of hands of how many of your Lordships have got them in their homes, but an alarm with a seven-year battery life costs less than £20; in other words, protection for one year is cheaper than one cup of coffee on the high street. It is not expensive. Everyone in this House could afford several alarms in their home.
Why should we tackle carbon monoxide in the Energy Bill? We have already debated how people will struggle to pay their bills. Poverty puts energy safety at risk because servicing appliances is less likely to be a priority than paying the bill for running that appliance, whatever it is. Alternative fuels such as solid fuels and biomass are typically more dangerous in terms of carbon monoxide exposure than gas. It is classically thought that it is related to gas but actually the bigger problems now come from other fuel sources.
This amendment is concerned with detecting that carbon monoxide. Today in Derby there is a conference involving 113 organisations concerned about carbon monoxide detection and the effects of poisoning, and they all are supportive of this amendment. Industry and victims’ groups have been consulted and have had input into the wording of this amendment, specifically: the Energy Networks Association, Energy UK, HETAS, the Institution of Gas Engineers and Managers, OFTEC, the All-Party Parliamentary Carbon Monoxide Group, the Chartered Institute of Environmental Health, the Gas Industry Safety Group, the Gas Safe Charity, the Gas Safety Trust, the Heating and Hotwater Industry Council, the Council of Gas Detection and Environmental Monitoring, UKLPG, the Carbon Monoxide Survivors, Activists and Victims Group—which has been very active in this area, understandably—and Skanska. This amendment has not come out of the blue.
The first part of the amendment will require an engineer undertaking any work on a carbon-burning appliance to check on the suitability of the CO alarm in the property and make recommendations. It is not burdensome on businesses and can cover all appliances in all situations.
The second part relates to energy-efficiency measures and indoor air pollution. Energy-efficiency measures such as the Green Deal aim to make properties better insulated. But an unintended consequence of this is that hermetically sealed houses increase the risk of carbon monoxide poisoning by decreasing the “advantageous air” ventilation that is required to safely operate many appliances. Of all the noxious gases causing indoor air pollution, carbon monoxide is the most dangerous.
The co-chairs of the All-Party Parliamentary Carbon Monoxide Group, of which I am one, have been working closely with the right honourable Greg Barker, the Energy Minister, who fully recognises the concern and has worked to try to improve the Green Deal. But the Green Deal documents do not go far enough, focusing on existing rather than new alarms. This provision will clear up any confusion for installers of energy-efficiency measures and will meet the Minister’s commitment more comprehensively than the Green Deal.
The third part relates to smart metering. This will allow smart meter installers also to install a carbon monoxide alarm when they visit each property. It also protects the engineers themselves. Northern Gas Networks and Scotia Gas Networks have found unexpectedly high levels of carbon monoxide when their engineers have visited customers’ properties while wearing these personal alarms. Fortunately, most gas distribution networks have either provided or are piloting the provision of personal alarm and air monitors to protect their own staff on home visits. Industry has advised us that it would prefer that proposed new subsection (3)(b)(i) said,
“gas detection equipment capable of detecting carbon monoxide”.
I would suggest that the amendment as it is currently worded should not be accepted. The wording should change to allow for new detection devices as they are developed. Visits by smart meter installers to every home provides a specific window of opportunity to install a carbon monoxide alarm; that will be a fraction of the cost of the smart meter rollout and will save lives. Industry contacts have told us that they are keen to be involved in this because smart metering may provide an opportunity to save lives.
The fourth part focuses on landlords. We have heard already about landlords and how those renting property from private landlords are at higher risk—they have a fivefold higher risk of carbon monoxide incidents than members of the population in other dwellings. The Downstream Incident Data Report has provided data on this. Domestic carbon monoxide alarms are now required when a new or replacement appliance burning solid fuel is installed and, in Northern Ireland, this extends to all newly installed appliances, irrespective of the fossil fuel. This amendment gives specific protection to those people who are at risk because they rent where they live and are often in a poorer group of the population. It will require private landlords to have carbon monoxide detection in their properties. I hope that the Minister will accept these amendments, possibly with some modification of the wording, because they are extremely important. There is a typographical error, for which I apologise, in the proposed new subsection (4): it refers to the date of the regulations as 1988 but it should be 1998. I beg to move.
Baroness Maddock
My Lords, I support the noble Baroness in her efforts in this area. I had better indicate that—I cannot remember—I may be a co-chair of the All-Party Group as well. I cannot remember what the job was last time. The noble Baroness has introduced the amendment so well and with all the facts that I do not need to say very much at all. I first became aware of this problem when I was a Member of Parliament in Christchurch and a family in the constituency was affected by it. One of the family members died because of a flue wrongly installed by a builder. I have been aware of this matter ever since and have campaigned a bit but, I have to say, the noble Baroness has taken this much farther forward and with much more energy than I have ever done and I am grateful to her.
One of the problems that we have come across over the years—and I have proposed amendments to other Bills about this—is that the Government always say, “It’s not us”, and, “It’s not appropriate in this Bill”. I have a feeling that this may be what the Minister will say today. Interestingly, I notice that there are some people who know about it, because the civil servants behind her changed between the first and second amendments that we are discussing. Somebody in her department clearly knows something about this. It is time that we took this seriously—we have that opportunity now, as we have so many programmes where people go into other people’s houses and install equipment that might have faults in it of the kind we are discussing, when they could easily fit something else or easily detect where carbon monoxide is. Not only should we be doing this, but we should keep much better records; as the noble Baroness, Lady Finlay, said, one of the problems is trying to get records of how many people there are. The worst thing is that sometimes even doctors do not recognise the symptoms. There have been cases where someone has turned up at a surgery but the symptoms have not been diagnosed and they have gone home and died. We need to take this more seriously and to stop making excuses about why we cannot do some of the things that are—as the noble Baroness, Lady Liddell, said earlier—common sense.
If the Minister cannot accept the amendment, I hope that she will help us get something that we can put down on Report that will deal with this once and for all. We can have the cross-departmental working that we are going to have on fuel poverty on this as well.
Baroness Finlay of Llandaff
My Lords, I thank everybody in the Committee for their unconditional support. I recognise that the Minister realises the importance of this. I will warmly welcome officials from her department to our All-Party Parliamentary Group, as will my co-chair, the noble Baroness, Lady Maddock.
This is the second Energy Bill that we have put this amendment down on. We have explained previously why this presents a unique opportunity. It would be a dereliction of our duty to the nation not to use this opportunity to widen the scope of protection from the pockets of protection that are there.
I do not know how any of us could accept not putting this in the Bill and then look the bereaved in the face. These are young people dying. I will tell the Committee about two boys: one went up to university; a year later his brother went to the same university so that his older brother would be there to look after him. They found a flat; the second night in that flat it was cold and they put the heating on. They did not wake up the next morning—two bright, much loved university students dead because their landlord had a faulty appliance there and there was no alarm. An audible alarm costing less than £20 would have saved both their lives. That is why this is so important.
I hope that the Minister will meet with us very soon. I would really welcome getting some wording, whatever it is, to signal that this is a major problem that needs to be addressed. The regulations can follow but we really should not let it drop. I accept that the wording here is not right. With that and with gratitude, I withdraw the amendment.