GPS and Heavy Goods Vehicles

Lord Mackinlay of Richborough Excerpts

Tuesday 22nd March 2016 Westminster Hall

[Craig Mackinlay (South Thanet) (Con)]

I beg to move,

That this House has considered GPS satellite navigation and heavy goods vehicles.

This is an increasingly complex issue because of the proliferation in recent years of devices and, more importantly, software available across Android, Apple and Microsoft-driven smartphones. The issue is not new but has been bubbling in the background for well over a decade. In-vehicle information systems, or IVISs, have received Government attention over the years, including in the Road Traffic (Driver Licensing and Information Systems) Act 1989 and the Driver Information Systems (Exemption) Order 1990, which concentrated on a licensing scheme for providers of real-time on-the-move information, such as Trafficmaster.

There was also a Government consultation in 2006, which sadly received just 111 replies. The results of that consultation were published in May 2008, but there were no firm recommendations for action. However, the sat-nav problem was highlighted in the consultation. In those days, very few heavy goods vehicle-only systems were available, which shows how technology has moved on at an exponential rate. The report concentrated heavily on the safety issues of—this is quite bizarre nomenclature—the human-machine interface, or HMI. There was subsequently one welcome legislative amendment, in 2011, giving local highways authorities the ability to implement advisory signs without formal traffic orders needing to be made.

On 6 March 2012, the Department for Transport hosted a “Delivering the best information to all in-vehicle satellite navigation users” afternoon. It was intended to encourage appropriate sat-nav use, local authority involvement with the mapping companies, and consideration of using the insurance market to force HGVs to require appropriate HGV-robust sat-navs. That is especially important when hugely expensive bridge collisions occur, as happens in many constituencies. Those collisions can stop train services while the damage is assessed. That has not been an uncommon occurrence on the north Kent line running through Strood.

Kent County Council, as the highways authority for Kent, issued a freight action plan in October 2012 to cover the four-year period from 2012 to 2016. It highlighted the problem, unique to Kent, of having the active cross-channel ports of Dover and Sheerness, the port of London, the then fully operational Ramsgate port, and the channel tunnel. Kent has a uniquely high level and density of foreign trucks on its roads because of the port activities, and that presents unique problems. The KCC action plan highlighted inappropriate sat-nav use and particularly the necessity of appropriate advertising of strategic road use across the county.

The Under-Secretary of State for Transport, my hon. Friend the Member for Harrogate and Knaresborough (Andrew Jones), told the House on 20 July 2015 that legislation might be an inappropriate and bureaucratic means of addressing these issues. Despite a number of years considering the problem and despite the numerous initiatives, the problem persists, and it is my contention that it is getting worse and more widespread than ever. The A257 Sandwich to Canterbury road suffers from inappropriate HGV use, and, importantly for the historic fabric of our nation, there are far too regular occurrences of economic standstill in the historic town of Sandwich as inappropriate vehicles that have absolutely no cause to be there become literally stuck, sometimes for hours.

I apologise in advance for the technical nature of my next comments, but I think it is worth while to lay out the framework of the advanced wizardry behind this now routinely used technology. The global positioning system comprises 31 US satellites orbiting 12,500 miles above the Earth. The system became fully live in 1995, but was available before then at lower levels of accuracy.

[James Cartlidge (South Suffolk) (Con)]

I congratulate my hon. Friend, who is making an excellent speech on a subject that is important to my constituency. He mentions the wizardry involved. He may be interested to learn—I will talk about this later—that one of the houses in my constituency that is most frequently damaged by HGVs was used for the set of the Harry Potter film. Unfortunately, that wizardry is not available to us.

[Craig Mackinlay]

I thank my hon. Friend for that intervention. I am sure that if we asked just about every Member of the House, they would be able to cite similar problems of historic buildings being hit.

I will develop a little further my point about the technical wizardry. The GPS concept is based on time and the known position of specialised satellites, which carry stable atomic clocks that are synchronised to one another and to ground clocks. The satellites’ locations are known with great precision. The GPS receivers that we all have on our phones and cars and wherever else also have very accurate clocks. GPS satellites transmit their current time and position, and a GPS receiver, looking at multiple satellites, solves a complex equation and determines its exact position.

As can be imagined, given the usefulness of such technology, it was designed in the US primarily for military use, but its use rapidly spread to marine navigation and has now spread to road navigation, as accuracy levels are now down to 5 metres or less. The system is free to any user on the planet who has a GPS device and it must be considered a true gift from the United States taxpayer to the world. Other countries have replicated the system, or tried to replicate it. There is the Russian GLONASS system, and the European Galileo system and Indian, Chinese and Japanese equivalents are in progress. However, I doubt that any of those new variants will ever overcome the dominance of the US GPS system, obtained through reliability and dependability. There is of course the downside that the US Government could at their discretion turn off the system for civil use at any time. One can imagine that at times of global instability that might be done, but it has never happened thus far.

It was not too many years ago—perhaps 15 years ago—that I was looking with some wonderment at the new gadgets that were appearing on friends’ car dashboards. TomTom was an early market entrant, and for many it became a status gadget, along with early in-built dashboard models in premium cars. However, it became clear within a year or two that they rapidly became out of date as new road schemes came into being. Updates for such machines were cumbersome, were often subject to expensive upgrade charges and, in the case of in-built systems, were sometimes available only at main dealers.

[Andrew Bingham (High Peak) (Con)]

I thank my hon. Friend for initiating this debate on a pertinent issue. He makes the point about devices losing their accuracy as new roads are built. It is also still a problem that they cannot tell how big or small a road is. In my constituency there is a place called New Smithy, near Chinley. Wagons continually get sent down the road there. The county council, which I rarely have a good word for, has done what it can with signage, but devices lead drivers down to a low bridge that they cannot get under. They have to turn round and they knock the bridge, and the costs of having to keep repairing the bridge are ridiculous. That is all because of sat-navs not being able to tell that there is a low bridge under which drivers cannot get their wagons.

[Craig Mackinlay]

My hon. Friend highlights exactly what the debate is all about. I will be coming to exactly that issue in a moment.

There are now a host of portable devices—they are actually called nomadic dedicated devices—that people can put in their pocket and in different vehicles that they own. They are available at varying costs, with new brand names now commonplace in the market. TomTom was a market leader in the early days. Now there is Garmin, which was traditionally a big player in the marine navigation market, and there are names such as Mio, Navman, Magellan and many others. The price of those machines for car use is now as little as £50. For larger screen sizes, the prices can be up to £250.

The market has changed, because we now have the ability to download smartphone software, often for free, across the major phone operating systems. A search of Google Play or Apple’s App Store would reveal a huge choice of available software. Some is free if one is prepared to accept adverts, and some is free for a limited trial period. There are also fully paid systems, but even those are at a remarkably low cost, sometimes of less than £20. Practically every personal digital assistant device that we own—smartphones, iPads, other tablets—now has GPS functionality, and they can all support such software. Many operate on the widespread Google Maps application, which, as with everything Google, is becoming dominant.

[James Cartlidge]

I want to go back to the point that my hon. Friend the Member for High Peak (Andrew Bingham) made. My hon. Friend the Member for South Thanet (Craig Mackinlay) is talking a lot about technology, and I must admit that I do not have the same level of expertise that he does. Is there any sign in the industry that the technology is reaching a point at which, without us having to legislate or regulate, it could tell a driver, “This road is inappropriate relative to the size of your vehicle”?

[Craig Mackinlay]

If my hon. Friend will let me continue just a little bit further, I will address the potential solutions.

We all realise the dominance of Google in our lives and on every machine that we own. Google Maps is a widely used application, but the downside for many of us is that it needs data transfer and use while on the move. That is not particularly helpful for people who are travelling abroad, given the data charges for foreign use. Software-based systems—the dedicated TomTom-style devices—have underlying, in-built maps called geographic information system data. They are installed so that there is no mobile data use. That is often the underlying framework used by nomadic and smartphone devices.

I think the solution lies with the base maps that the systems use. Only a few are actually used. A market leader is Navteq’s SDAL map, which is now called HERE. The Tele Atlas system drives TomTom and provides Apple Maps with its data. Of course, Google Maps has its own system. There is also an open source system called OpenStreetMap. There are 100 or more software variants that can run across different types of map data, and there is interchangeability in some software and devices so that they can accept and read any maps, from wherever they are sourced.

[Royston Smith (Southampton, Itchen) (Con)]

I appreciate my hon. Friend giving way and congratulate him on securing the debate.

The emergency services sometimes have a problem if, for example, a road has been cut in half because something has changed, with a housing estate being built or something of that nature. However, they tend to make that mistake only once. Can something be done along the lines of what the emergency services do, so that updates to roads can be fed in to the companies that supply us with devices?

[Craig Mackinlay]

On the Navteq website, the public have the ability to put in new data as they arise. The company will then check those data and, if it is satisfied with their quality, they will become a new variant of future maps that it produces. Everybody is able to update those maps on a regular basis. It comes down to the fact that the data are out there if one could only find them.

For anybody who uses such systems, other data sources can be laid over the map data—often speed camera information or locations of points of interest such as museums, restaurants or even petrol stations—but, again, another problem creeps in. There is a huge black market out there of free downloads across so-called torrent sites, and that is becoming a huge industry. Therein lie the problems of accuracy and reliability, and questions about whether the data driving the devices are actually up to date at all.

Within a huge majority of the systems with which we are now becoming familiar, choices are available, including voice type and whether the data are required in metric or imperial. One can set up advanced warning alerts, choose whether travel is on foot or by car and decide whether one wants to take the shortest route, the fastest route, or a route with or without tolls. Wrong data or out-of-date devices are issues. If that is applied just to driving in a car, the worst that could possibly happen is that it could lead to a fine if entering a changed road layout, for example. In HGVs, the problem—and this is at the heart of the debate—can be infinitely more serious.

On that point, I come to the key issue. The use by HGV drivers of those cheaper car devices—available for £50, as I mentioned earlier—is all too common. That is compounded by smartphone software that is designed for car use only and, overlaid on that, the use of out-of-date map data that are perhaps downloaded illegally or from dubious sources. I am pleased to say that the problem is not largely seen across the UK lorry fleet. I pay tribute to the Freight Transport Association for its attempts to encourage its 15,000 members to buy HGV-compliant devices. It even has its own industry specialist shop, and provides a high level of advice to its members. I am pleased to say that common sense prevails across its wide membership and influence.

I do not particularly want to single out foreign drivers as the main culprits, but the example I want to present is from Sandwich in my constituency. I am sure that in almost every constituency in the country there are instances—such as those that have been raised by hon. Members today—of HGVs too often using inappropriate roads. A common excuse is usually advanced, and it always runs something like, “Oh, my sat-nav told me to.” After that, there is often a mad struggle for Google Translate to solve the communication problem.

[Kevin Hollinrake (Thirsk and Malton) (Con)]

I congratulate my hon. Friend on securing the debate. These issues might sound trivial to some people who do not have constituencies that are constantly affected by them. In my constituency, the A170 runs up Sutton Bank and there are two one-in-fours divided by a hairpin bend. There are two incidents there a week with lorries having to back up all the way into the village, often causing damage to property and huge tailbacks for several hours. Does my hon. Friend know the combined economic costs of all these issues nationally?

[Craig Mackinlay]

My hon. Friend makes a very good point about not just the physical damage that occurs to road structures and historical buildings, but the economic cost of hours of tailbacks. One could probably make a reasonable guesstimate of what that cost would be in an individual place but, as my hon. Friend points out, this is happening in virtually every town in every constituency on a weekly basis.

[Andrew Bingham]

My seat is very rural so we have all the economic difficulties but there are also safety issues. Wagons are being shoehorned down lanes such as Mainstone Road, which is related to the problem in my constituency that I have already mentioned. Large wagons go down little lanes and roads, often at times when schools are turning out and so on. There is a safety issue as well as all the inconvenience, and the problem is particularly acute in rural areas.

[Craig Mackinlay]

I am grateful to my hon. Friend for raising that point. Not only do we have physical damage but we have the economic costs and the serious issue of road safety in areas that should not be affected by having such huge lorries in the wrong places.

Sandwich in South Thanet is the best preserved medieval town in the country—I am sure other Members will be on their feet claiming the same of towns in their constituency—and HGVs have caused damage to its roads, kerbs, signs and, perhaps more importantly, its historical buildings. There is a particular junction—Members will realise the historical nature of Sandwich—called Breezy Corner, and just a little way away is a barbican dating back to 1539 and an ancient toll bridge. Those structures are damaged on an almost weekly basis. In addition—and this addresses the economic points raised by my hon. Friend the Member for Thirsk and Malton (Kevin Hollinrake)—40-foot HGVs are completely unable to negotiate the tight corners in such an historical town, which often leads to the complete blockage of the town for many hours while emergency services attempt to sort out the mess. That is time that the emergency services, particularly the police, could and should use to deal with other issues.

The A257, the Sandwich to Canterbury road, is served by lots of little feeder roads, some barely wide enough for a car. That is just within 10 miles of Dover so, again, it is commonplace to find foreign HGV drivers slavishly following their sat-nav’s guidance after selecting the shortest route option.

[Royston Smith]

My hon. Friend rightly mentions the physical damage to buildings and the economic damage, but there is also the emotional damage and the frustration caused to residents when lorries constantly drive into residential areas.

[Craig Mackinlay]

My hon. Friend makes the perfect point. I have many residents in Sandwich who are fearful for their property and for their very life, and he raises that problem well.

I would never call myself a luddite, but consulting a good old-fashioned road map always seems to result in greater awareness of my location and how to get to my destination. When using a sat-nav, I am reduced to the state of a compliant zombie, like an automaton at the wheel doing exactly what I am told by the artificial voice from the machine. “Turn left in 300 yards,” and so on. I am sure hon. Members have all felt the same.

I have consulted various retail websites and—this is the important point—HGV-compliant sat-navs are available. For instance, the TomTom Trucker is available at £290, with little obvious difference in screen size or functionality from the car model available for a third of the price. As part of my research before the debate, I consulted a nationwide haulage company, R Swain & Sons. The company’s head office is in north Kent and I know the owner, Mr Bob Swain. He explained the approach taken by his business. He uses no sat-navs at all in his fleet—not one—but he ensures that his drivers are provided with maps and given time to plan their routes before setting out. I know of no instance where one of his lorries has caused such problems.

Of course, it is easy to highlight in Parliament the problems that we face, but I like to come at such problems with potential solutions. In this case, there are six potential solutions. We could implement legislative change to force the use of the right HGV-compliant sat-navs. If we go over and drive in the continent, we face the requirements under French law to carry high-vis jackets, reflective triangles and alcohol breath testers, and we accept those requirements as the rules of that place. I do not propose the mandatory use of sat-navs so that they have to be carried by HGVs, but I suggest that, if they are used at all, they should be compliant and suitable for the vehicle or else face potential forfeiture once found not to be appropriate.

I have encouraged Kent County Council’s highways authority, and I would do the same for all highways authorities, to ensure that maps of Kent that clearly highlight strategic road routes that should be used, and clearly mark the towns and villages that should be avoided, are provided free at ports of entry. With the implementation of an Operation Stack truck-stop solution coming to Kent in due course, providing such maps could serve a useful double purpose. I imagine that advertising sponsorship could be found to defray or cover the costs of such maps.

I would like to see greater use made of the freedoms of the December 2011 road signs measures so that local areas can clearly advise of dangers ahead. As a Government we could encourage data standards for the submission of data by the highways authorities to the mapping companies, because those companies are key. It is frustrating that all the data are known for every road in the country—be it heights, widths or road changes—but they are not being appropriately consolidated and provided to the mapping companies.

I recommend a benchmark standard for the sat-nav manufacturers and software providers to which they should be encouraged to adhere. The benchmark would include—this is the key—a mandatory lorry option across every single device. There is already an option to choose whether one is on foot or in a car, so let us add a mandatory lorry option. That would require manufacturer and software producer buy-in to a voluntary industry code of practice.

I would also like to see a widening of local authorities’ civil powers to levy fines outside of the police’s powers. We have seen a general reluctance among authorities to enforce fines across borders on foreign lorries, as we have seen with Transport for London, the congestion charge, the Dartford crossing and general parking enforcement. It sounds good, but it might not prove as effective as imagined.

I close by highlighting that we face an unprecedented free-for-all in current sat-nav use, with inappropriate devices and software in play across many HGVs—mainly, I am sorry to say, foreign ones. I am not one for draconian legislation, but our towns, villages and historical locations need protection. I would be happy to work with the Department for Transport to find a workable and practical solution and I look forward to the Minister’s comments.

--- Later in debate ---

[Craig Mackinlay]

I thank you, Sir Alan, for your excellent chairmanship. It would have been nice to have a few more Members with us, but there is activity elsewhere. It would be stretching it to think that I will speak for a further 15 minutes—I will not delay Members for that long—but I will make some comments about the excellent contributions made.

My hon. Friend the Member for South Suffolk (James Cartlidge) laid out very well the damage to the fabric of our great nation that we face from many HGVs being inappropriately used. My hon. Friend the Member for High Peak (Andrew Bingham) added a road safety dimension to the debate. Road safety is key, particularly at peak times when children are out of school. My hon. Friend the Member for Southampton, Itchen (Royston Smith) mentioned that, even though we do substantial road improvements or have restrictions in order to do engineered solutions, those are overcome by the automaton-like, slavish adherence to the voice that comes out of the machine—I think we are all prone to that.

I am grateful that the hon. Member for Kilmarnock and Loudoun (Alan Brown) took part in the debate. I am not sure whether the shortage of drivers in the UK is relevant to the core of the debate, but we do have a shortage of available drivers as the HGV industry in this country is growing at all times and the volume of HGV traffic is only increasing. That gets to the heart of why the problem we face with sat-nav use is so relevant. I very much thank the hon. Member for Birmingham, Northfield (Richard Burden), who brought to the debate a high level of knowledge about various aspects of the road industry.

Turning to my hon. Friend the Minister, I was very encouraged that there was an area I did not know about. I go away with some additional technical knowledge, that Ordnance Survey is spending £3 million on open source mapping, which could be vital to further improving the quality of data available to mapping companies. Underneath all of the systems, no matter whether they are nomadic or on personal digital assistants or smartphones, is the fundamental map data.

My hon. Friend the Member for Southampton, Itchen mentioned the potential for driverless cars, which are much in the news. I would not like to think about how driverless HGVs in Sandwich might get on—we will come to that, perhaps, in 10 years’ time. I think that we stand here today in awe of some of the technology that we do not really understand but regularly use, and on the concept of driverless cars, we can foresee the potential for companies going across every road, accumulating data such as widths and heights, and then feeding it back almost immediately into a database system and updating maps almost in real time.

I understand the concerns about more overbearing legislation. I am not for that; markets can decide things effectively and rather more rapidly that Governments. But the plea, I think, from the Chamber this afternoon to the manufacturers of the nomadic devices and the software is that they please put on that little lorry symbol. I realise that that would be a commercial decision, because the same machine for HGV use is often sold for three times the price, but it would solve, at a stroke, many of the problems. We understand that no HGV driver wants to be caught down that small road or to be hitting that bridge or historic building—that is a given—and that additional button could relieve many of the problems.

I thank hon. Members for taking part in the debate, and I thank you, Sir Alan, for your forbearance.

Question put and agreed to.

Resolved,

That this House has considered GPS satellite navigation and heavy goods vehicles.