Carriers’ Liability (Amendment) Regulations 2023

Baroness Ludford Excerpts

Monday 13th March 2023 Lords Chamber

[Lord Berkeley (Lab)]

My Lords, I am grateful for the opportunity to have a short debate on these carriers’ liability amendment instruments, SI 2023/29 and SI 2023/30, which the 27th report of the Secondary Legislation Scrutiny Committee has drawn to your Lordships’ attention.

My purpose in raising this was to be able to reflect with the Government and other colleagues on the balance between the very strict and tight regulations which will be applied to the road freight and bus industries, in respect of clandestine or illegal immigrants, and the risk and demand and, as we have seen more recently, the very large number of people who have come across the Channel in small boats. It seems that we have a situation where the penalty very much depends on the mode of entry.

For trucks and buses, whether they are going on ferries or through the Channel Tunnel, the penalty is about £10,000 per entry for the so-called responsible person. It is not quite clear what penalty is payable if people smuggle themselves on freight trains—there are regulations going back many years on that—or whether that applies to trucks on trains. With people in small boats, as we have seen in the press quite a lot recently, it does not seem that anybody gets penalised, because the perpetrators cannot be found. You can see on that basis why the organisers, if there are some, have chosen the small boat route. But if we go back quite a few years, before the small boat revolution—if we can call it that—on the Calais to Dover route, a lot of people were being smuggled on trains and in lorries. One can conclude from this that most of the problems are solved, to the benefit of the people who want to manage these things and take people across, by removing the risk of being caught.

It would be useful therefore if the Minister could start by helping me and maybe other noble Lords with definitions. What does “clandestine” mean? What does “illegal” mean in the case of immigrants? Some of them may be asylum seekers. Does it actually mean everyone apart from visitors? Some people seek asylum and I believe that you have to set foot in the UK before you can. Some people obviously melt away.

However, there are other ways in, for example small boats and other places. The documentation mentions big boats and ships; we have talked about buses and trucks and other vehicles through the Channel Tunnel. But where do they have to come from? In other words, are the same regulations going to apply if you are coming from the Republic of Ireland, either by sea or by air, or going across the frontier into Northern Ireland?

It is not my intention to debate the rights and wrongs of who comes from where, but to try to point out the difference in the way the people organising it and some of those who are suffering are being treated by different modes. The report says that 3,838 people came smuggled in lorries last year, whereas the government website says the total was about 45,000. I would be interested to know how many people were smuggled on rail freight through the tunnel and how many came in, as I mentioned earlier, from the Republic of Ireland. Do these instruments apply there? How many people come across the land frontiers? Equally important for these other modes is how many people are caught and fined in the trucks and buses—maybe we do not know. It would be very good to know why the road freight and bus industries are being singled out for some pretty tight regulations in these SIs.

The Explanatory Memorandum says, in paragraph 10.2 on the consultation:

“Most respondents said the levels of penalty for the existing offence should either be unchanged or should be reduced. Stakeholders also emphasised possible adverse impacts on trade if penalty levels were too high”.


However, the Government are doing the opposite. There was certainly a report which I read, I think last week, about the rather short supply of vegetables from Morocco. The customers were diverting the freight to Belgium and Holland to avoid getting caught in the problems coming into the UK.

I would be interested to know why the Government think that the small number—about 4,000—of people allegedly coming in by truck or bus, compared with the 45,000 who are coming in small boats, justify the present pretty draconian penalties, which will only increase the costs of cross-channel freight. I look forward to the Minister’s comments.

[Baroness Ludford (LD)]

My Lords, the usual channels on the Opposition Benches have just had a quick word with me, saying that the noble Lord, Lord Ponsonby, will be able to contribute to the debate.

On these Benches, we welcome the opportunity that the noble Lord, Lord Berkeley, has given us to debate the regulations and the code of practice. He has comprehensively and usefully set out his concerns. We are concerned that—first, through these sanctions on drivers, and, secondly, in the new Illegal Migration Bill, which is still being debated in the other place—the Government are failing to target the criminal gangs exploiting vulnerable people. Their actions never seem to go upstream to get at the smugglers and traffickers. Does the Minister agree that the Government should be focusing on stopping dangerous crossings by whichever means, whether in the back of lorries or on small boats in the channel, by exercising criminal investigations and prosecutions in co-operation with our European partners? Does the Minister agree that providing safe and legal routes to sanctuary is one way of undermining the criminal gangs involved in people smuggling and trafficking?

The noble Lord, Lord Berkeley, talked about the need for a “coherent and holistic policy”. That theme is shared by many critics of the Government’s many actions on what they call “illegal” asylum seekers, but what my Benches and I would call “irregular” asylum seekers. The Government are flailing around all the time; they never address the need for safe routes and the need to work in partnership to target the criminal gangs. In addition, can the Minister provide an update on what investment the Government are making in officers, training and technology to prevent irregular entry at Britain’s borders?

On the specifics of the code of practice and the regulations, does the Minister recognise the validity of some of the concerns expressed by the Road Haulage Association on the clandestine vehicle checklist? I take the point raised by the noble Lord, Lord Berkeley, that “clandestine” is not defined. The RHA says that the clandestine vehicle checklist is too vague and requires clarity to be of use to operators. That is in the light of the comment in the Explanatory Memorandum to the regulations, that, in response to the consultation:

“Stakeholders welcomed the review of the current vehicle security Code of Practice and supported looking to articulate the required standards more clearly.”


Certainly, in the view of one of the main trade associations, the Road Haulage Association, that aim has not been fulfilled, and I will quote some of the specific points it raises. The first is that

“checking beneath HGVs is not always easy or safe especially if a vehicle has low axles”—

I presume that means, in layman’s terms, that you are expected to crawl underneath an enormous lorry, which sounds not only difficult but potentially unsafe. Then it points out:

“The section that calls for ‘checks inside vehicle for signs of unauthorised access’ is too vague, as it does not list whether trailers should be empty before loading.”


The RHA also says:

“Some checks would also be difficult to carry out with temperature-controlled vehicles as opening them requires a refrigerated environment.”


That seems a fair point. Are drivers expected to carry out checks on a refrigerated vehicle in the middle of a July or August day in France? The fourth point the RHA makes is that

“trailers filled with boxes make it impossible to check the roof for signs of forced entry, due to the impossibility of opening the … doors while on the road.”

Those objections all seem reasonable, understandable and eminently sensible, and I look forward to the Minister addressing them.

Finally, I ask the Minister about the fact that, apparently, the only statutory defence would be duress, as

“it will no longer be a statutory defence to say that an effective system for preventing the carriage of clandestine entrants was in operation”.

In quite a lot of scenarios for regulated activities, the emphasis is often on whether you have an adequate policy and a system, so that, if something happens that should not have happened, you can show that you had all the preparation, systems and safeguards necessary. But apparently that would not apply in this situation; the only defence would be if the driver could show that they were put under duress, even if they had done everything reasonable in the circumstances. It is a very narrow basis for a defence.

I look forward to the Minister responding to as many of my points as possible.

[Lord Ponsonby of Shulbrede (Lab)]

My Lords, we in the Labour Party support these statutory instruments because we believe we need stronger action to tackle dangerous lorry crossings, crack down on criminal smuggler gangs and secure the UK’s borders. Given that the maximum penalty levels have not risen since 2002, we believe it is right to look at these levels as we are now.

However, the Government have said that these measures are being put in place to tackle negligence rather than criminality. Given this, what do the Government plan to do to tackle criminal smuggling and trafficking gangs using lorries to transport migrants? How many of the 3,838 incidents during the previous financial year do the Government believe have been caused by negligence rather than criminality? How many incidents do the Government estimate these new penalty levels will prevent? How many convictions have the Government secured in the previous year against criminal gangs organising vehicle crossings of migrants? Some hauliers have said that there is little more they can do to ask their drivers to better secure their vehicles while maintaining health and safety regulations. How will the Government ensure that these fines target those who are being genuinely negligent?