Harbours, Docks and Piers Clauses Act 1847 (Amendment)

Lord Mackinlay of Richborough Excerpts

1st reading: House of Commons
Tuesday 10th May 2016 Commons Chamber

[Craig Mackinlay (South Thanet) (Con)]

I beg to move,

That leave be given to bring in a Bill to amend section 33 of the Harbours, Docks and Piers Clauses Act 1847 to allow local authorities to proscribe, in certain circumstances, the transport of live animals for slaughter abroad via facilities that local authorities control and operate; and for connected purposes.

I introduce this ten-minute rule Bill for a number of reasons. I do not count myself an outright animal rights activist, but I do count myself as a common-sense activist. That said, there are many reasons why we should all have concerns about any act of animal transportation that imposes stress and unnecessary suffering, when the most logical answer is local slaughter and refrigerated transport of carcases to their destination. The Bill is designed not to change the law on the transportation of live animals for breeding or other aspects of animal husbandry, but merely to allow local authorities discretion to decide, in the spirit of localism, whether facilities that they own should be used to transport animals for slaughter abroad. In short, the Bill would make due amendment to section 33 of the Harbours, Docks and Piers Clauses Act 1847 to allow local authority-controlled ports to proscribe, at their discretion, the transport of animals for slaughter abroad.

The primary reason for my interest in the matter is local to my constituency of South Thanet, where we have the active port of Ramsgate. It is on a long-term lease from the Crown Estate, and all port operations are controlled and invoiced by the local authority, Thanet District Council. Following pressure from a shipper, the council acquiesced to legal threats and demands that the port be made available for small vessel roll-on, roll-off operations of just a few lorries carrying livestock. The first such shipment happened on 18 May 2011. Not surprisingly, the transportation attracted a huge amount of local opposition and active campaigning by Kent-wide animal rights activists. The police cost of marshalling such shipments is estimated to be £18,000 per shipment. That is massively more—perhaps by a factor of 10—than the likely profit arising to the shipper.

The regular shipments continued, with local opposition, until what can only be described as a truly appalling event on 12 September 2012. A lorry was loaded with 548 sheep over three tiers, and the Animal Health and Veterinary Laboratories Agency staff who were on site discovered that it had been poorly loaded and was overstocked. One sheep had a broken leg, others were lame and some had trapped limbs. An order was given to unload the sheep, and a witness of the scene that followed commented that

“all hell let loose with nearly 20 people made up of RSPCA, AHVLA”—

the veterinary association—

“Police and port staff, some with a camera in hand and a paint sprayer in the other chasing over 500 sheep around and apparently trying to find lame ones. In fact it was the chasing on the unsuitable surface that was causing the lameness. During the chase six lambs went into the water resulting in four being rescued by the RSPCA and two being found dead”.

Some 13 hours later, after the arrival of Kent trading standards and news crews, a further 37 sheep were identified as lame and were euthanised on site. That followed a second unloading, after sheep were again found to have trapped limbs. It was described by the local press as simply a “massacre”.

The following day, Thanet District Council unilaterally decided to suspend any further live animal shipments through Ramsgate. This decision was supported by the wider council across all the political parties locally, and of course by local residents. However, legal fears were brought to bear, and following a grant of interim relief in the High Court, shipments resumed a little over a month later, on 19 October 2012.

The shippers then entered the legal fray over a protracted period, which resulted in a High Court judgment on 27 February 2014. During a four-day hearing in December 2013, Thanet District Council relied heavily on section 40 of the Harbours Act 1964, which offers some discretion in relation to port use. Unfortunately, the judgment went against Thanet District Council primarily because of section 33 of the Harbours, Docks and Piers Clauses Act, which states that ports

“shall be open to all persons for the shipping and unshipping of goods”.

I am seeking to change that provision through this Bill. The adverse judgment has left local taxpayers—the authority is not a large one—with a compensation bill and costs in excess of £4 million, and it has resulted in the resumption of a trade that nobody wants through a port that is unsuitable. Local residents are appalled that their port is now being used for a trade that they find unnecessary and that many find distinctly abhorrent.

This is the nub of my ten-minute rule Bill: in the true spirit of localism, a long overdue amendment to the 1847 Act would give local authorities a greater degree of certainty that they will not face this type of legal action in future and provide them with an opportunity to object to the use of their municipally operated facilities for such transactions. If only life were that simple, I could bring in a Bill to amend the 1847 Act and if this House agreed to it—if only this House was sovereign and able to do so—that would be the end of the matter. Unfortunately, there is the big boot of the EU to consider, given the protection of free trade and the free movement of goods provided by article 35 of the treaty on the functioning of the European Union. Such protection has been further added to over the years by various European Court judgments, notably Francovich in 1991, and by the Factortame case in the Lords in 2001.

In summary, I am seeking the House’s leave to advance this Bill to its next stage, and, on the assumption that this Parliament is sovereign and can do so, to secure an alteration of domestic law to proscribe such trade in the circumstances that clearly apply to the port of Ramsgate and to Thanet District Council, which controls it. The conclusion of the High Court judgment was rather instructive and quite alarming: in the judge’s words,

“the law does not exist only to protect the interests of the popular.”

I would say that this is entirely the foundation of our democracy. The argument about the intervention of EU law in this area is not one for me to make today; it is an argument for another day—possibly 23 June. On that basis, I commend the Bill to the House.