HANSARDLords10 Nov 202511 contributions

Protection of Freedoms Act 2012 (Definition of Relevant Land) (Amendment) Order 2025

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Considered in Grand Committee
Moved by
Lord Hendy of Richmond Hill
LabourLife peer
That the Grand Committee do consider the Protection of Freedoms Act 2012 (Definition of Relevant Land) (Amendment) Order 2025.
Relevant document: 36th Report from the Secondary Legislation Scrutiny Committee
The Minister of State, Department for Transport (Lord Hendy of Richmond Hill) (Lab)
LabourLife peer
My Lords, the purpose of this draft order is to extend Schedule 4 to the Protection of Freedoms Act 2012, which I shall refer to as the POFA to save time. This will ensure that the recovery of unpaid parking charges on railway land is enforced consistently with other private car parks and has the relevant safeguards provided for users of those car parks, including an independent appeals service. It will also ensure consistency in the regimes applying in railway car parks across the railway network through the extension of this order to cover England and Wales.
Noble Lords will wish to know that, after the draft order was laid on 8 September, it was formally cleared by the Joint Committee on Statutory Instruments in its Thirty-fifth Report of Session 2024-26. Likewise, the Secondary Legislation Scrutiny Committee formally cleared the draft order as an instrument but named this amendment as an instrument of interest to the House in its 36th Report of Session 2024-26. Prior to this, my department had responded to preliminary inquiries from the committee’s clerk.
The background to the draft order is that railway operators currently use a combination of enforcement regimes to recover unpaid parking charges at railway station car parks, resulting in inconsistency and complexity for operators and passengers. Some operators rely on criminal enforcement set out in the Railway Byelaws, while others use agents who rely on contractual agreements with motorists. With the introduction of Great British Railways, my department expects a consistent level of service to be offered across the network to passengers. Therefore, the order will bring car parks located on railway land within England and Wales into the scope of the same civil enforcement regime that applies to all other car parks on private land.
Previously, railway station car parks were excluded from the POFA because they were subject to the Railway Byelaws, which meant unpaid parking charges could be enforced only under those by-laws. The POFA made a number of changes to the law related to parking on private land. It bans vehicle immobilisation and/or removal without lawful authority and provides private landholders with additional powers to pursue the registered keeper of a vehicle for unpaid parking charges, providing certain conditions are met. Schedule 4 to the POFA facilitates the recovery of unpaid car parking charges from the keeper or hirer of a vehicle parked in a private car park. It sets out detailed requirements regarding the provision of notices and the appeals process. However, as I have said, railway station car parks are currently excluded from this regime.
The change which this order enables will ensure a consistent civil enforcement regime for all railway station car parks across the future Great British Railways network. It will ensure that passengers have the same protection that they would have when parking in other car parks on private land, including access to an independent appeals service. An industry consultation showed support for amending the Railway Byelaws to remove criminal liability for parking breaches and instead using the civil enforcement regime set out under the POFA regime.
Baroness Pidgeon (LD)
Liberal DemocratLife peer
I am pleased to speak in the debate about this amendment order. As the Minister has set out, the order amends the Protection of Freedoms Act 2012 to bring land subject to the Railway Byelaws within the definition of relevant land to facilitate the recovery of unpaid car parking charges from the keeper or hirer of a vehicle parked in a station car park. This will bring simplicity. It brings railway car parks into line with other car parks, which will allow private parking operators to pursue the registered keeper of a vehicle rather than just the driver for unpaid parking charges, which has been an anomaly for some time.
The consultation on this matter was launched in 2020, so I ask the Minister why it has taken over five years for this small order to appear before the House. It seems uncontroversial, and over five years seems a long time. I know that signage costs were one concern raised in the consultation, but the background note explains that budget provisions have been made to cover this, so that should not be a reason for the delay.
In principle, we welcome this rather technical change and the fact that a consultation took place. However, as anyone who has been an MP or an elected member of a council or an assembly knows, parking and parking fines are always controversial. MPs and councillors receive much casework expressing frustrations and problems with many car parking operators and providers, who often lack transparency and are unaccountable; they can sometimes seem unreasonable. Clear and new signage that is accessible is welcome, but what is the timescale for implementing the new code for private car park operators, which has been consulted on recently?
The public need to have confidence in the overall regulatory framework covering private car parking providers to ensure they have greater transparency and consistency, that they are not being unfairly penalised and that they have that forum for appeals when things have gone wrong. Will the Minister ensure that resources are in place so that operators comply with the forthcoming code, particularly regarding signage, fair changes and independent appeals?
Lord Moylan (Con)
ConservativeLife peer
My Lords, this instrument seeks to amend the Protection of Freedoms Act. The moment one sees a Labour Government fiddling with our freedoms, one is naturally anxious as to what they have in mind. That Act was one of the great achievements of the coalition Government—in fact, it was a Liberal Democrat-inspired achievement—from those happy days when the country was run by a quad of David, George, Nick and the red-headed guy, whoever that was, but now it is being amended, so one looks very carefully at what is proposed. In fact, as the noble Baroness, Lady Pidgeon, said, it is much less dramatic than it might be and it is, in essence, to do with enforcement at railway station car parks.
However, I have some questions. I am interested in the thinking and timing behind this order, particularly in how it fits with the proposed architecture of the rail reform Bill, which was published for the first time last week and is, therefore, now available to us so that we can scrutinise the Government’s plans for railway reform.
The basic position is that car parks at railway stations are currently covered by railway by-laws. What is wrong with that? It turns out that the by-laws are unsatisfactory in some respects. So it was open to the Government to come to this House with a view to amending the railway by-laws that govern station car parks—keeping it all within the railway family, if you like—but that is not in fact what they have done. The Department for Transport has not taken us down that track; instead, it is, in effect, outsourcing the whole matter to an MHCLG code of conduct. How does that fit with our plans for a single directing mind for railway infrastructure?
The department is also doing this at a very strange time because, again, as the noble Baroness, Lady Pidgeon, pointed out, the Government are in the process of consulting on a new code for the private enforcement of car parking. I believe that the consultation closed only in September, which is very recently. Of course, it is too early for MHCLG to have finished its consideration of that consultation or to have issued its plans for the future, so we do not know what we are actually being invited to impose on drivers who are parking their vehicles in railway station car parks.
Lord Hendy of Richmond Hill (Lab)
LabourLife peer
My Lords, I thank all noble Lords for their consideration of this draft order. I am grateful for the scrutiny and interest shown in ensuring that our railway and car parking legislation remains coherent and fit for purpose.
I will first respond to the points made by the noble Baroness, Lady Pidgeon. The consultation was launched a long time ago. Although I cannot account for periods of time before this Government were elected in mid-2024, it is clear that several factors around the cost of the change and how it would affect train operators’ revenue required resolution before this could proceed. As the noble Baroness remarked, these impacts are now funded and budgeted for, and this draft statutory instrument is being aligned, as has also been remarked on, with the Ministry of Housing, Communities and Local Government’s private parking code of practice. In answer to both the noble Baroness and the noble Lord, Lord Moylan, that is to avoid duplicate signage changes and ensure consistency across the parking industry. Although it has taken a long time, it is clearly the right thing to do.
I was asked when the consultation by the Ministry of Housing, Communities and Local Government will report. The answer is shortly, but I will write to noble Lords and see whether I can define “shortly” a bit more clearly. In answer to the noble Baroness’s question, the resources are in place to properly pursue this. Will we revisit this if unexpected circumstances arise? The answer is that there will be a review to see what impact the change is having on the courts, and my department will measure the impact on the criminal regime versus the civil regime. If a review is necessary, one will take place.
The noble Lord, Lord Moylan, referred to the Railways Bill and the creation of Great British Railways. In response, I say that this is a suitable time to make this change. Not only is it a suitable time for GBR to inherit consistency, in due course, but, more importantly, this brings consistency for the benefit of passengers and people who park in railway car parks. I know, from my postbag, and it is clear across the parking industry, that there has been a lot of concern about the way in which parking has been dealt with—and railway car parks are no different—particularly the use of by-laws and criminal sanctions. As the noble Baroness, Lady Pidgeon, remarked, you want to get at the keepers of vehicles as well as the drivers, so this is the right time to do this.
The fact that the private parking code of practice is being consulted on and will be pursued should be a comfort to noble Lords that there will be consistency across the whole of car parking on private land, including railway stations, and therefore that this is the right thing to do. I will review Hansard afterwards and if I have missed any of the points made will write further, but in the meantime I commend this order to the Committee.
Motion agreed.