That this House has considered e-petition 600966, relating to the Approved Mileage Allowance Payment rate.
It is a pleasure to serve under your chairmanship, Mr Sharma. The prayer of the petition reads:
“The HMRC mileage rate for reimbursing the use of private cars (e.g. for employees but also volunteers) has been fixed at 45p/mile (up to 10,000 miles) since 2011. The lack of any increase since then is a serious disincentive to volunteer drivers particularly as fuel has gone up again recently.
Since 2011, inflation has gone up by over 25%; fuel has increased by over 20% over the last 5 years. Volunteer car drivers who did so much during Covid, and still do, to get people to healthcare settings, e.g. hospitals, vaccination centres, and to deliver shopping and prescriptions, are not being compensated fairly for the use of their cars. Consequently charities are struggling to recruit new volunteer drivers. These drivers help free up hospital beds and keep people independent and in their own homes.”
I thank the hon. Gentleman for opening his speech so powerfully. Does he agree that the approved mileage allowance payment rate must increase because it has not increased since 2011, while motoring costs, including the cost of fuel and vehicle maintenance costs, have risen?
The hon. Lady has basically nicked the crux of my speech, but I thank her for making my point so succinctly.
The petition received over 41,500 signatures, including 25 from Carshalton and Wallington. On behalf of all parliamentarians, I should declare that MPs’ mileage rates, claimed through the Independent Parliamentary Standards Authority, are also calculated at 45p per mile, in line with the approach taken by His Majesty’s Revenue and Customs. However, I hasten to add that we are not debating MPs’ rates today.
I thank all those who signed the petition and have taken an interest in the debate, including the many volunteer and community groups that have been in touch. I also thank the petition creator, Rev. Nick Ralph, as well as representatives of the Good Neighbours Network, the Community Transport Association, Unison and the Association of Taxation Technicians, for meeting me to discuss the subject of the debate. As always, a massive thanks must go to the Petitions Committee team, who have worked incredibly hard to organise the meetings I just mentioned and to provide briefings in advance of the debate.
When I agreed to lead the debate, I did so with a focus on the charitable activity mentioned in the petition’s prayer, remembering the enormous volunteering effort that I witnessed and was part of during the pandemic, both locally and nationally. Our country has a proud history of volunteering. One route can even be traced back to the medieval age, when there was a strong link between religion and the aiding of the sick, needy and poor. Indeed, according to sources, over 500 voluntary hospitals were established in England in the 12th and 13th centuries alone. More recently, in this century, we London MPs think of the enormous army of volunteers who helped to spread joy and cheer throughout the Olympic park during the 2012 London Olympics and, as I have already noted, the hundreds of thousands of people who volunteered their time to help those in need during the covid pandemic. From taking part in befriending telephone calls to collecting and dropping off shopping or prescriptions, the effort was enormous. It made me incredibly proud of our country and, indeed, my own community.
The hon. Member is outlining powerfully the benefits of volunteering for the community, but he will also be aware of its benefits for individuals. Does he share my concern that, as the cost of motoring rises, we are excluding many people from the benefits of volunteering to both them and their community, and does he agree that all community transport networks should be consulted in any review of the mileage rate?
The mileage allowance payment rate currently allows volunteers to claim up to 45p a mile for the first 10,000 miles and 25p for each mile after that, yet the 45p rate has not been reviewed or increased since 2011. That affects not just charities but many employees of the variety of businesses that use the AMAP rate to regulate employees’ use of their private cars for business.
In their initial response to the petition, the Government stated that the rate
“is intended to create administrative simplicity by using an average, which reflects vehicle running costs including fuel, depreciation, servicing, insurance, and Vehicle Excise Duty.”
Indeed, I spoke to many stakeholders who agreed that the rate was probably the best approach for reimbursing volunteers and employees. It is easy to use and free from bureaucracy, and it minimises the burden of extra paperwork or the potential for inaccurate or incorrect payment.
The issue for the petition creator is not necessarily the system itself but the rate of the allowance. The “RAC Cost of Motoring Index 2011” concluded that that year was not an easy one for motorists; drivers had to contend with record fuel prices and a sharp increase in the cost of car insurance. Much of that remains true today—it is just a lot more expensive. All the costs associated with vehicle use have increased, but the disparity between today and when the AMAP was last adjusted is demonstrated most simply by the cost of fuel. The current average cost of petrol nationwide is 144.86p a litre, and diesel is at 145.54p. In 2011, the last time the rates were changed, petrol averaged 133.65p and diesel 138.94p.
Those averages do not reflect sporadic fluctuations over that time. One argument that has been made is that fuel costs were brought down by the temporary 12-month cut to duty on petrol and diesel of 5p a litre announced in last year’s spring statement, and the Government noted that in their response. Many people I spoke to in the run-up to the debate argued not just for a review of the rate but for regular reviews, which could take into account fluctuations and would make the system much nimbler, given the continuing uncertainty with respect to the costs of running a vehicle in general and of fuel specifically. Charities and employees could therefore properly fund and support those who currently find that the AMAP only partially covers the costs of running a vehicle, without fear of being penalised through the tax system for paying a more fitting rate.
It is a pleasure to listen to my hon. Friend, who is making incredibly important and sensible points. Does he share my hope that the Minister will listen very carefully to them? We have a very strong voluntary sector on the Isle of Wight. Mike Bulpitt, one of the lead volunteers on the Island and chief executive of a community action centre, contacted me because he is worried that a lot of our voluntary drivers will find it difficult to continue to volunteer due to the lack not only of an increase in the rate but of regular reviews. I say on his behalf that we thoroughly support what my hon. Friend is saying. Does he share my hope that the Minister is listening and feeling generous?
My hon. Friend is absolutely right. I know that the rate affects businesses and employees too, but the core principle is that volunteers, in particular, should not be penalised for their noble service and for giving up their free time to help others. It is clear that the rate is affecting the recruitment of volunteers to use their private vehicles at a time when those volunteers are so needed.
I thank the hon. Gentleman for being so gracious in giving way again. Volunteers must be appreciated, and ensuring that these allowances increase is one way to appreciate them, but does he agree that public sector workers—I was one in the past, and they did so much during the covid period and continue to do so—should also be given the allowances they are due, too?
The hon. Lady is absolutely right, too; public sector workers, particularly those working in our national health service, are also impacted by the reduced rate. That only enhances the petitioners’ call for the rate to be increased and reviewed more regularly.
Our volunteers in particular, but also our public sector workers, have shown themselves to be true engines of growth and betterment. It is surely time that they feel properly supported in their endeavours, whether entrepreneurial or charitable. If we are to ensure a brighter future for our country, those who drive it must be paid a rate that reflects today’s world and not the world of more than a decade ago. I look forward to hearing from all hon. Members. I hope that the Government will listen to our calls and look to introduce an increased rate, as well as a system of more regular review so that we do not have to come back to the issue every 10 years or so and just hope that the Government fancy doing it one day.
It is a pleasure to serve under your chairmanship, Mr Sharma. I pay tribute to the hon. Member for Carshalton and Wallington (Elliot Colburn) not only for the eloquence with which he presented his argument, but for its very balanced nature. This issue unites the Chamber; there is almost a manifest injustice here. There is little that has not increased since 2011, and there has been a significant number of elections, never mind of changes in office. As he correctly pointed out, it is not simply the voluntary sector that is affected. Not only those employed by the council, but those who are self-employed—the traditional white-van man and those in other occupations—also need recompense for the mileage that they are required to do to carry out their trade, their services or whatever.
In a matter that I have been pursuing locally it has often been put forward that there can be local settlements, but, as the hon. Member correctly pointed out, the template tends to be HMRC’s and there are implications for taxation if that is not followed. Even when I have had negotiations and discussions with officials, it has been very difficult to get political sign-off, so it is one thing for officials to be persuaded. There are Members here who were at the meeting held by Unison along with the RAC Foundation. Although some might view Unison as having a vested interest, I do not think that that can be said about the RAC Foundation.
I, too, was at the Unison-organised meeting and I can say only positive things about its engagement with Members right across the House. Let me put on the record my thanks to Anna Birley from Unison for the report that she so ably prepared.
Absolutely. I am sitting with a copy of the report myself and the hon. Member is correct; there were people from a variety of parties at the meeting. The RAC Foundation was not there in a political capacity. I think Unison did the right thing to hold the meeting with the RAC Foundation. It gave the meeting ballast and legitimacy because the RAC, along with the AA, is a specialist in motoring matters and has come to the conclusion that 63p, together with some form of system, is what is necessary.
Locally, I face all the difficulties that the hon. Member for Carshalton and Wallington ably pointed out. East Lothian is not the biggest constituency—it is not the size of some of those in the highlands of Scotland—but it is still significant. It runs along the A1 for in excess of 60 miles, from Musselburgh all the way to the villages before the Scottish Borders. Although the principal town tends to be Haddington, with the community hospital hub and the council based there, people are unable to work without going into the other towns, which are equally jealous of their independence and seek to retain their own facilities, whether it is those on the coast such as Dunbar, where I live, and North Berwick, or inland at Tranent or elsewhere, never mind the small villages. Whether someone is doing voluntary work, working for the council or carrying out a trade, they cannot do their job without running up significant mileage.
We are not only talking about those working in fields such as care. There are people in senior positions and health visitors who are struggling financially because, as with others, they have seen their mortgage go up while they have to keep a roof above their head, yet it costs them to work because they are not recompensed for the daily mileage that they rack up. They need a car to carry out their work on behalf of their employer, and they have to pay additional costs to do that. That is why the issue has to be taken on board.
Hannah Bardell (Livingston) (SNP)
The hon. Gentleman is making a brilliant and eloquent speech. Many of my Livingston constituents signed the petition, but one of my constituents, who is a housing officer, was struggling to get by on the mileage allowance before the cost of living crisis. Does the hon. Gentleman share my concern that if staff, whether they are NHS staff or other public sector staff, cannot get by on the mileage rate that is being offered, they will go elsewhere? We are already struggling to keep people in those vital roles.
Absolutely. The issue was first raised with me by the chief executive of East Lothian Council, because it is struggling to retain staff, and staff are necessary.
I will finish there, Mr Sharma. It seems that we have buy-in from across the Chamber and, I think, in the community, as shown by Unison and the RAC Foundation. This is about remedying a wrong: 2011 was a long time ago politically, never mind in terms of costs, and on that basis I hope that the Minister can come around not simply to addressing the rate, but to ensuring that we do not have this issue recurring and that we sort out some annualised system.
It is a pleasure to serve with you in the Chair, Mr Sharma. I congratulate my hon. Friend the Member for Carshalton and Wallington (Elliot Colburn) for leading this e-petition debate. Petition 600966 calls for a review of the approved mileage allowance payment rate—the AMAP rate—which, as we have heard, has remained at the same level since 2012. The petitioners are supported in their campaign by the Community Transport Association and by my hon. Friend the Member for Harrow East (Bob Blackman), who has previously called for an urgent review to reflect the soaring cost of living increases.
When previous campaigns have been launched calling for a review of the AMAP rate, the Government have invariably responded by stating that the rate is not mandatory—that employers can set whatever level of mileage reimbursement they want. However, very few set a different rate, due to the tax liability implications for employers and volunteers. The rate is thus a standard to which the vast majority of businesses and charities adhere; it is regarded as best practice and avoids the complications of drivers having to pay income tax.
I acknowledge that the 5p per litre cut to petrol and diesel prices, announced in the 2022 spring statement and extended through to next year, has provided respite and support to drivers, but the current cost of living crisis has brought into clear focus the need for a review. If it is not carried out, I fear that there will be negative knock-on implications for services such as the NHS, social care and public transport, and that ultimately the Treasury will pick up the bill.
Many of my concerns revolve around community transport and the great work that is carried out in north-east Suffolk and south-east Norfolk by BACT, which provides community transport for people for whom other forms of public transport are not easily available. BACT has its own minibuses and wheelchair-accessible vehicles, but a significant proportion of its services are provided by its volunteer drivers using their own vehicles. The failure to review the AMAP rate is imperilling the crucial lifeline services provided by BACT and many other community transport providers.
It is a pleasure to speak with you in the Chair, Mr Sharma. I commend my hon. Friend the Member for Carshalton and Wallington (Elliot Colburn) for leading the debate and for an excellent speech. I am very happy to contribute to this important debate.
Although a relatively small number of my constituents— 38—signed the petition, the issue of mileage allowance payments looms large in my constituency and has been raised a number of times in correspondence and conversations with my constituents in Stoke-on-Trent South. Stoke-on-Trent is a hub for logistical industries and delivery operations of various kinds, and a larger than average proportion of the workforce works in health and personal care services. As we have just heard, social care is particularly affected by this issue, because people often drive their own vehicles to go to care for people in their homes. Stoke-on-Trent is a city that has no tube or tram network and a very limited local train network, and bus services have been in sorry decline for too long. I am glad to say that this Government have shown a real commitment to remedying that, but for those who have to travel beyond the usual commute for work, without a company car or other such vehicles, there is often no alternative to the use of private vehicles.
In 2011, it was recognised that the time had come for the main allowance to increase by 5p to 45p, because it had been held at 40p for nearly 10 years, since 2002. It has now been more than 10 years since that last uprating. At the very least, we need to look at the allowance again and undertake a review, as many colleagues have called for today. Of course, I accept that the last 10 years were somewhat different from the 10 years before them. In the decade up to 2011, fuel duties rose from 45.82p per litre to 58.95p per litre, but drivers incur a number of other costs, as many colleagues have said. In the decade after 2011, the fuel duty story was very different, thanks to this Conservative Government. Duty was cut to 57.95p per litre in March 2011 and then frozen for a decade until a cut of 5p per litre on 23 March last year—a cut we thankfully still enjoy today. I welcome the Government’s action. It benefits all motorists, and it is the simplest administrative measure available. Generally, I support the Lawson doctrine of lower tax rates funded by fewer tax breaks where possible, but there is clearly a need for a specific tax break, mileage allowance, to reflect the additional inflationary and other costs of using personal vehicles for work purposes. The system needs to be fit for purpose, and the rate needs to be appropriate to the current situation.
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Volunteering is an incredibly noble calling, endorsed by its long history of royal patronage. This year, the Royal Voluntary Service launched the Coronation Champion awards to recognise volunteers who have gone above and beyond for their charities, and volunteering was made an intrinsic part of Their Majesties’ coronation itself. Billed as a lasting legacy of that momentous occasion, the Big Help Out took place on the bank holiday Monday of the celebration, with hundreds of thousands of people taking part across the country.
The numbers speak for themselves. According to a survey in 2019-20, 64% of people had volunteered at least once in the past year, and just shy of 40% had volunteered in the past month. The following year, 62% of respondents stated that they had volunteered at least once in the past year, and the number reporting having volunteered in the past month rose to 41%.
That potted history of the relationship between our country, its people and volunteering featured so heavily in my introduction because it helps to set the scene for the petition and makes clear its importance. Many in our communities depend on volunteers, but it is important that those volunteers, whatever they may be doing, feel valued and appreciated. That is important not just for retaining volunteers but for recruiting new ones. Yet from the conversations that I have had with affected stakeholders, the current HMRC AMAP rate is proving to be a real sticking point for many charities in retaining their volunteers, particularly longer-serving ones.
The AMAP is only one way suggested to employers and charities to reimburse drivers. Some may argue that they could choose to pay more to reflect the increased cost of running a vehicle, but if a higher allowance is paid, an income tax and national insurance charge is placed on the difference. That is precisely why the petition was set up—to try to scrap the charge for those wanting to pay an allowance that better reflects the reality of driving a vehicle in 2023.
Can the Minister tell us how much revenue is collected through overpayment of the AMAP rate and how that would be impacted if the rate were raised to, say, 60p as outlined in the petition? It could be argued that with a more rigorous, up-to-date support system with regular reviews, our businesses and charities would be able to ensure that those using their vehicles for work or for volunteering are valued, and they would find it easier to retain them. The Government have worked to stabilise fuel costs by cutting fuel duty in the light of the knock-on effects of the invasion of Ukraine, among other factors. I believe that that stabilising work should filter down to our volunteers and workers through a regularly reviewed and increased AMAP rate.
The arguments in favour of the petition’s aims seem incredibly plausible, especially since, as I have noted—I am sure we will hear this a lot during the debate—the rate has not been adjusted since 2011. I hardly need to list the ways in which our world, our lives and the cost of things have changed over the last 12 years. Instead, in drawing my remarks to a conclusion, I will again draw Members’ attention to the workers and volunteers who have strived to get this country moving and growing over the last decade.
The hon. Member for Carshalton and Wallington correctly pointed out that we should not just seek to remedy the mileage allowance once and then have to look at it again; it could be worthwhile to make it index linked. As the hon. Member for Darlington (Peter Gibson) will be aware from the meeting I mentioned, we also have to bear in mind that when the allowance is paid by employers, it is meant to recompense workers not simply for the cost of fuel—the £1.45 that the hon. Member for Carshalton and Wallington mentioned resonates with what Asda is currently charging in Dunbar—but for the wear and tear on their cars and for insurance.
One of the most significant things that I learned from the RAC Foundation was that fuel costs had increased at the lowest rate; insurance, as I recall, had increased at the highest rate, but other things had increased too. Not only do people have to pay for their petrol or diesel, but they have to pay the car costs that are necessary for their work and that their employer expects them to pay, because otherwise they cannot do their job. That is certainly true in my area, but it is the same in others, whether they are urban or rural. That is why the mileage allowance should be increased.
There is, as I say, political buy-in from across the Chamber. There is a recognition, not just from trade unions but from motoring organisations, that the rate is long past its sell-by date. It is clear from what others have said that this is not simply about people struggling to do their work, but about getting people into the labour market—a statement is being made elsewhere in this building on that very subject. People must be recompensed for their work and not pay out of their own pocket to do their job.
I shall briefly set out what I believe is a compelling case for a review. First of all, it should be pointed out that the cost of motoring has increased significantly since 2011-12. The petition, as we have heard, highlights that inflation has increased overall prices by over 25% since 2011, and that of fuel by over 20% over the past five years. Since 2011, vehicle maintenance costs have risen by 38% and, as we have heard, the RAC Foundation’s cost of transport index has increased by 41%.
The third sector—that is, the voluntary sector—plays a vital role in local communities. We would not have gotten through covid without volunteers, and we need them even more now to get through the cost of living crisis. Many of those working for charities and organisations like BACT use their own cars, and it is only right that they are fairly recompensed for doing so. Currently they are not, and that disincentivises volunteers to offer their services. Community transport operators like BACT increasingly report challenges with driver recruitment and retention.
In many areas, including Suffolk and Norfolk, community transport operators have become a vital part of the public transport system. They are, in effect, the Heineken of the system—they go where commercial operators and the local transport authority either cannot or will not go—and heavy reliance has been placed on them to provide their services. Without their drivers, a system that I sense already operates on the brink would collapse altogether and many vulnerable people would be left isolated. Community transport operators like BACT provide a vital service to the NHS, driving people to hospital, GP surgeries, vaccination centres and dentists. The latter can be quite a trek, even assuming that an NHS dentist can be found. They also provide non-emergency transport to hospitals, and if they are not around to do that, that will be another cost that the NHS has to bear at a time when it can ill afford to do so.
A product of covid has been a dramatic increase in social isolation and loneliness. During the lockdowns, many vulnerable people were left marooned in their own homes, and it was almost always local volunteers who rallied round to ensure they were not alone and not forgotten. Post lockdown, many people have only tentatively come out of their homes, and for some their only lifeline to the outside world is provided by the volunteers who drive them for their weekly shop, without whom life would be very lonely.
It is important to acknowledge that the service provided by community transport operators like BACT is vital in rural areas, where for many people there is no alternative means of public transport. If the volunteer drivers throw in the towel because they are not being properly recompensed, another group of people will be left stranded, unable to access services that most of us take for granted.
Finally, I come to social care. The Government rightly recognise the importance and the need for an integrated and improved health and social care system that keeps people independent in their own homes. That will need a whole army of dedicated social care workers on the road, invariably in their own vehicles, to visit and support their clients. Unfortunately, they are not well paid, and the last thing they need is a mileage allowance that does not cover the cost of keeping an old vehicle roadworthy. Skimping and saving on the AMAP rate will result in recruitment becoming even more difficult in this vital sector.
The case for a fair, urgent and transparent review of the rate is compelling. I look forward to my hon. Friend the Minister’s reply, but I urge him to take the message back to my right hon. Friend the Chancellor of the Exchequer that he should instigate the review straightaway, with a view to announcing the outcome in the spring Budget.
The Government say that they want to minimise administrative burdens, so the system needs to be simple and predictable. I wonder whether the employer’s discretion in using the AMAP rate really makes the system that predictable for the driver. There is huge variation in how the rate is applied, and many use a rate that is far less generous than the standard rate. Unfortunately, I have heard of a number of employers that are not even applying the 45p rate, never mind a higher one, and some workers are having to suffer much lower rates.
Many who do larger amounts of mileage, such as those who work in delivery or a trade that requires them to travel around the country, have been hit by the 10,000 mile advisory annual limit, after which the rate drops from 45p to 25p. I have spoken with a number of constituents in Stoke-on-Trent South who undertake trades that require them to travel up and down the country to work and deliver services. They often travel many more than 10,000 miles in a year, and they have to put up with a much lower rate after they have gone over the 10,000-mile limit.
I note that the startups.co.uk website warns budding entrepreneurs and contractors:
“Whether you can claim, and how much, depends on an assortment of factors that can require a lot of admin to calculate.”
Notwithstanding that, I think that most colleagues would agree that the current mileage system has not been as pressing an issue historically. The petitions and letters campaign has appeared quite recently, because the feeling that the allowance rate is insufficient is now acute, particularly because of the post-pandemic inflationary pressures, which have been massively increased by Putin’s illegal invasion of Ukraine.
Even in the face of the freeze and cut in fuel duty, this issue continues to be a major challenge. To afford a more generous allowance, it has been suggested that the system be changed so that only certain sectors qualify for a higher rate. We have been talking about the social care and healthcare sectors, and a number of colleagues have mentioned the voluntary sector, wherein many people who voluntarily take parcels and things do so using their personal vehicles. It is potentially important to have a higher rate for individuals who are volunteering, and for organisations that are currently struggling to recruit volunteers because the rate remains at 45p, as it has for so long. The Government could certainly apply sectoral codes, as they do with other reliefs, such as the energy bill relief scheme, but deciding who is left out can lead to challenging outcomes, as I have found with the energy and trade intensive industries scheme, where some sectors have fallen through the cracks.
I do not underestimate how challenging the fiscal situation is. Over 10 years ago, the cost of increasing the allowance by just 5p was around £35 million per annum. That is quite a significant cost, but as the Treasury prepares for the autumn statement—now just weeks away—and the spring Budget, it needs to look at how the rates might be modernised to help with the cost of living pressures that many of our constituents are feeling, given that the rate has been frozen for so long. I hope that the Government and the Minister will consider the issue, and look into the potential for a review. I look forward to the Government’s response in due course.