Bus Services (No. 2) Bill [HL]

Lord Hampton Excerpts

Committee stage
Thursday 13th February 2025 Grand Committee

[Lord Hampton (CB)]

My Lords, I will speak briefly to Amendment 49, to which I added my name. I will also speak to Amendment 78 tabled by the noble Baroness, Lady Jones. These are two very similar amendments saying pretty much the same thing. Their timeframe is different, but if we are to have this new Jerusalem of connected bus services that help people—the noble Lord, Lord Berkeley, commented about the outer fringes—we really need to know that this is happening. We need to concentrate it and we need it reported back to us.

[Baroness Grey-Thompson (CB)]

My Lords, I will speak to Amendment 49, to which my name is attached, and remind your Lordships that I am president of the Local Government Association. From 2011 to 2023, England saw a 20% reduction in bus service provision, adjusted to a 28% per capita decrease amid population growth. The withdrawal of essential bus routes has isolated residents, particularly the elderly and vulnerable, from critical services and social opportunities. Despite overall national decline, particular regional disparities have hit areas such as North Yorkshire, Rutland, Shropshire and Slough. The government investment of £3.5 billion since the pandemic into initiatives such as the £2 fare cap and examples of community-led efforts to subsidise services demonstrate awareness of the problem, but this alone cannot create a more comprehensive bus network.

Transport for All believes that the Government’s proposed increase in funding is an opportunity to address the challenges faced by rural areas. However, in rural areas disabled people are more likely to rely on buses than non-disabled people. They are often impacted by inaccessible bus stops and poor connectivity, but buses are essential for accessing employment, healthcare and social inclusion. Rural bus services often exacerbate isolation and inequality, highlighting the urgent need for reforms that prioritise accessibility and inclusivity as an absolute must. In a survey carried out by Transport for All, 48% of respondents cited barriers to access on buses.

The English national concessionary travel scheme—ENCTS—is fantastic, but it cannot be used before 9.30 am, which creates barriers to employment for disabled people in these areas. New funding has been announced for rural and smaller authorities to provide for ENCTS enhancements. This would promote greater accessibility, similar to that in areas such as London and Merseyside, where disabled people can travel for free at any point of the day. It is really important that we look at this in rural areas—otherwise, it is going to exclude lots of people.

On the second day in Committee I covered issues on the accessibility of bus stops, ramps and shelters. This is even more important in rural communities, where there might be several hours between bus services, but we should also recognise that buses are critical to the local economy. Buses are socially necessary in rural areas, and it is vital that these services are maintained and expanded to meet community needs, especially for disabled people.

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Moved by

[Lord Hampton]

58: After Clause 27, insert the following new Clause—
“Access to the Confidential Incident Reporting and Analysis System (CIRAS)In the Transport Act 2000, after section 144E (inserted by section 21 of this Act) insert— “144F Access to the Confidential Incident Reporting and Analysis System (CIRAS) for drivers of PSVs(1) Local authorities must ensure that service operators provide drivers of a PSV being used under a licence to provide a local bus service with access to the Confidential Incident Reporting and Analysis System (CIRAS).(2) If service operators do not fulfil the requirement under subsection (1) to provide access to CIRAS for drivers, the local authority may revoke the service permit.””Member's explanatory statement
This amendment seeks to ensure that service operators provide drivers with access to CIRAS (Confidential Incident Reporting and Analysis System).

[Lord Hampton (CB)]

My Lords, in moving Amendment 58, I will also speak to my Amendments 59 and 60. I thank the noble Baronesses, Lady Jones of Moulsecoomb and Lady Pidgeon, for their help along the way. I degrouped these from the original groupings, as they are more about safety than accessibility and inclusivity. I felt that they were important enough that they might get a bit lost in a larger group.

On 29 January, bus drivers marched from Victoria to Parliament to protest about driver conditions and present a petition, signed by over 29,000 people, calling for the acceptance of a bus drivers’ bill of rights, which is about giving bus drivers the basic rights of employment that they feel are being eroded. It was timed to commemorate the death of Kathleen Finnegan, who was killed by a London bus while crossing at Victoria Station. Driver welfare should be the cornerstone of any legislation. I have had meetings with representatives of bus driver groups who feel that there are some working practices going on that they are unhappy about.

My Amendment 58 would mandate that everyone has access to a confidential incident reporting system. CIRAS is one, but there are several bona fide reporting systems available. TfL has had that in place since February 2016; once again, we go back to the fact that TfL does a very good job, so let us roll that out. In my conversations with the Minister, for which I thank him, he felt that this could be brought in and would help a lot with driver safety concerns. If this were a requirement for every bus company, one would hope it meant that any driver safety issues could be thoroughly investigated. That would be great for transparency, passenger confidence, workers and politicians.

I turn to Amendment 59. On the first day in Committee, the Minister said that this Bill is about safety. The noble Lord, Lord Snape, referred to that as well in talking about passenger surveys. However, except for a section about how to deal with crime on buses, there is very little in the Bill about safety.

My amendment would force bus companies to publish their safety data regularly. I talked about this at length at Second Reading, so I will not repeat myself but, in reply, the Minister said that all the data nationwide is already available on STATS19. I am afraid that I will ask the Committee to buckle in and follow me closely on this, because it will get quite granular. The Minister said in his letter that,

“It should also be noted that STATS19 data is a comprehensive and robust public record of personal injury incidents and includes a wide range of data that can be used to support future improvements to safety. A further set of safety data is collected by the Driver and Vehicle Standards Authority, who also collect data on incidents or collisions involving Public Service Vehicle … licence holders. By law, all PSV operators must report fatalities, serious injuries, allegations of a safety defect, serious damage as a result of the incident, a safety critical component failure or history of the same component failing, and a vehicle catching fire”.


I have to say that I did not find STATS19 to be user-friendly, on quite a brief look, and nor did it seem to regionalise data.

In response, the very excellent Tom Kearney, of LondonBusWatch—if there is anyone you need to granularly look at data, it is Tom Kearney—said this. I will quote him exactly:

“Compared to London’s published data, the DfT’s STATS19 Data is seriously deficient and undercounts the number of people killed and injured in Bus Safety Incidents. Even a casual review of STATS19 Data … reveals that is neither published as frequently or in as much useful granular detail as the Bus Safety Data TfL has published on its website every quarter since 2014 … Because STATS19 data combines incidents involving Bus and Coaches and does not include injury incidents involving Buses that have taken place on private roads or land (entrances/exits to and at bus stations) as far as Bus Casualty Data Reporting is concerned, STATS19 is both inaccurate and misleading. STATS19 also does not include injury incidents (Trips & Falls) onboard buses that might not have been caused by a collision, yet produce a lot of casualties (including fatalities) and are an important indicator of Bus Safety Performance”.


He continues by saying that an analysis of TfL’s published data reveals that, for the period from 1 June 2016 to 31 December 2023,

“Collisions from London Buses at Bus Stations have injured 133”

and sent 87 people to hospital.

In addition, between 1 January 2014 and 31 January 2024,

“6 people have been killed from Collisions from London Buses at Bus Stations. None of these fatal or injury incidents involving Buses are recorded in STATS19 Data; Out of the 120 Preventable Bus Safety Deaths that have occurred over the period Q1 2014-Q2 2024 that TfL’s published, 27 … don’t get reported in STATS19 because they occurred at Bus Stations … or resulted from onboard falls … or ‘other’ preventable safety incidents”.

TfL does not provide any details on those. Tom Kearney concludes:

“We have FOI requests that prove that the DVSA collects but does not publish data and the Traffic Commissioner neither collects nor publishes data”.


If the Committee has followed that, this issue is at best muddy.

Could we, as the users, have this data on a dashboard divided by LTA? STATS19 is neither easy to use nor, as far as I can see, divided across the regions. The Minister said that it might well be possible for franchises but was doubtful whether it would work where there was no franchise in place. These days, we are being told that data is gold. Surely companies should be mining this data anyway to analyse their performance—and if not, why not?

When I spoke to Go-Ahead, it was also concerned that much of the accident data is not the fault of buses but might be used as a headline number to dent passenger confidence. I am sure that it is not beyond the wit of mankind to separate fault from no-fault accident data and learn from it. Again, we are talking of transparency and public confidence.

On my Amendment 60, from my conversations with bus drivers, again, they are really concerned about tiredness and things changing with shift patterns. They feel that they need more time. Again, since my conversation with the Minister, I realise that there are very different patterns in being an HGV driver and a bus driver. This is more of an amendment to push for an idea of the reporting. We really need to look at driver welfare and I beg to move.

[Baroness Pidgeon (LD)]

The amendments from the noble Lord, Lord Hampton, raise some really important points about the safety of bus services and are important for our considerations. Bus safety performance data being shared in a clear, simple and transparent way is important if we are talking about driving up performance. The complexities that we have heard clearly outlined show why this is so.

I am particularly interested in Amendment 58. It is a good suggestion that all bus drivers should have access to the confidential incident reporting and analysis system known as CIRAS. Over my years of working on the London Assembly, we heard evidence time and again from drivers suffering from fatigue and stress and, in some places, of there being a culture which really did not support reporting of concerns and practices. Many drivers feared for their jobs and we heard similar things about the tram network as well.

CIRAS describes its role on its website:

“We listen to the health and safety concerns of people in transport. We protect their identity when we share their concerns with the right people to act. When we listen, we learn. We help our members share good practice and promote an even stronger culture of listening. And our members learn from valuable safety information they might have otherwise missed”.


This is important as we seek to improve bus services across the country. I really look forward to hearing the Minister’s thoughts on this group of amendments, particularly the point around CIRAS.

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[Lord Hendy of Richmond Hill (Lab)]

I thank the noble Lord for his intervention. Before I got to the railway, I spent most of my adult life trying to encourage people who control bus services not to rely on the timetable but to adhere to a regular frequency. Of course, the truth is that in most urban areas, once you have lost time, the chances of ever regaining it are, frankly, pretty small, and they are even smaller with the increasing use of speed limits of 20 miles per hour. I take the noble Lord’s point but, in the end, this is about people either being required to drive unsafely or believing that they are required to do so. It is certainly possible, and I have seen it done to encourage people to attempt to make time up but, in my experience over the 50 years I have been driving buses—now and again, more recently—it is very difficult to do so.

Let us go back to the safety aspect of this. Where the noble Lord, Lord Hampton, is going rightly concerns finding a way for bus drivers to express that they are being either expected to drive unsafely or encouraged to do it. I take his point about that very clearly. As I said before, there are all these requirements on franchised authorities, which will report on safety because they are procuring the service. CIRAS is available, where people have chosen to join that third-party organisation, but, where they have not done so, it is about making the route to complaining clearer and more available. I very much hope that that answers the noble Lord’s points. I will leave it there.

[Lord Hampton (CB)]

My Lords, I thank all noble Lords who took part in this debate. I genuinely thought that this was this place at its best, and I realise that I have trespassed on a landscape of real expertise, but I think we got some cross-party consensus that we really need to push safety to the front of the Bill if it is not there already. I think the implication was there, but it is not in the Bill. The noble Lord, Lord Moylan, talked about zero injuries in the construction industry which was very interesting, and we need to take that on board. Once again, we have got back to this: we need a really good reporting mechanism that people can use, and we need to publish what data is coming out as much as possible. I trust the Minister when he says that he will go away and think about this a lot. In that case, I beg leave to withdraw the amendment.

Amendment 58 withdrawn.