Written evidence from the Department for Transport (RHS0017)

Summary

        The Department for Transport is developing a transport infrastructure skills strategy which will set out how government and industry will increase the transport workforce and raise the level of skills. This will include delivering apprenticeships in roads and rail by 2020; developing a co-ordinated national network of transport infrastructure skills colleges; encouraging greater diversity in the workforce, and promoting transport as an exciting career option to young people.

        The Department for Business, Innovation and Skills (BIS) is responsible for funding the Trailblazer apprenticeships programme and the industry is developing a standard for an HGV Driver apprenticeship. Funding for obtaining an HGV licence is not currently in scope of Trailblazers but this is under review.  BIS will consider what the new funding model will be with the introduction of the new apprenticeship levy.

        In order to reduce waiting times for LGV driving tests the Driver and Vehicle Standards Agency (DVSA) is currently recruiting examiners in a number of areas across the country, and is focusing its efforts particularly in areas where waiting times are higher. To date, DVSA has recruited 78 new driving examiners into post during 2015/16 with a further 65 either attending or are booked on to new entrant courses. DVSA has also offered posts to a further 41 potential examiners and is awaiting clearance to finalise training dates for them.

        Driver and Vehicle Licensing Agency (DVLA) currently deal with vocational applications with no declared medical condition within 10 working days. Where a driver has declared a medical condition, DVLA are currently dealing with approximately 85% within 90 days but this relies on 3rd party compliance. DVLA has made some changes to improve the processing of applications including:

• targeting the oldest cases to reduce backlogs;
• improving the design of medical forms;
• changing processes so the correct medical forms are included with the application;
• updating DVLA’s medical literature;
• recruiting and training further staff and medical professionals;
• advising all group 2 drivers how save time when renewing;
• removing unnecessarily submitted documents to avoid delays.

        Driving Britain’s Future is a 12-month campaign involving Jobcentre Plus (JCP) and the Road Haulage Association (RHA) to engage with RHA members to provide 2,400 work experience placements for Jobseekers.

        The JCP ‘LGV Driver Academy’ supports claimants achieve a Class 2 LGV Category C driving licence, Driver’s Certificate of Professional Competence (CPC) and provide relevant work experience, job search support (including a job matching service) and a guaranteed job interview.

                                                                                                There are currently 72 starters on the JCP Large Goods Vehicle (LGV) Driver Training Programme (71 male and one female) referred from Jobcentres. So far, 14 Candidates have successfully passed their LGV CAT C Test and completed the work experience element, with six confirmed job starts with driving agencies and more job offers and starts in the pipeline over the coming months.

        The Department for Work and Pensions (DWP) National Employers Team are working with the Ministry of Defence to connect service leavers with experience in logistics or a LGV licence to the logistics sector. JCP is also looking at a Logistics Armed Forces Employment Pathway, whereby the Army offers a sector-based programme (training, work experience and guaranteed job interview). This will give jobseekers an opportunity to experience the logistics sector using Army facilities and training, and both the RTA and FTA will identify employer members in the area who are currently recruiting and can guarantee an interview.

1. Introduction

1.1 The Department for Transport (DfT) welcomes the opportunity to contribute to the Committee’s inquiry into the road haulage sector: Skills and workforce planning.

1.2 DfT recognises the vital role that the road haulage sector plays in driving growth in our economy and is crucial in keeping Britain moving. It also recognises that driving an HGV is a responsible, professional and safety-critical job, subject to a statutory licensing, testing and training framework

1.3 The statutory regime is delivered in part by the motoring services agencies which are executive agencies of the Department for Transport (DfT).

• The Driver and Vehicle Standards Agency (DVSA) was launched in April 2014 and incorporates the former Driving Standards Agency and the Vehicle and Operator Services Agency. It is responsible for setting, testing and enforcing driver and vehicle standards. It carries out some 1.6m theory tests and 1.75m practical driving tests every year and regulates nearly 50,000 professional driving instructors and 3,000 instructors for motorcyclists. The Agency carries out 620,000 annual roadworthiness tests of heavy goods vehicles and trailers and 80,000 tests on public service vehicles. It also supervises MoT tests at 21,000 garages and conducts 127,000 in-service checks of heavy commercial vehicles.
• The Driver and Vehicle Licensing Agency (DVLA) is responsible for maintaining over 45 million driver records and over 38 million vehicle records and collects over £6 billion a year in vehicle tax, limiting evasion to no more than 1% a year.

1.4 Highways England (formerly the Highways Agency) is the government company charged with operating, modernising and maintaining England’s motorways and major A roads. This network is around 4,300 miles long and while this represents only 2 per cent of all roads in England by length, it carries a third of all traffic by mileage - and two thirds of all heavy goods traffic.

1.5 In 2013 it was estimated that there were 31,858 enterprises in which generated turnover of £22.9bn. The Office for National Statistics Labour Force Survey estimates the number of large goods vehicle drivers currently in the industry is 299,000[1]. This figure is an increase from the previous two years (259,000 in 2013 and 285,000 in 2014) although still falls considerably short of the recent high in 2005 (329,000). These official figures are based on a sample of households and therefore and may not include drivers that requiring training to drive large goods vehicles as part of other roles.

1.6 There are nearly 400,000[2] registered large goods vehicles, some of which are driven professionally in the course of other work – for example as parts of the agricultural sector. Industry estimates related to the demand for driver Certificate of Professional Competence (CPC) were that there might be between 425,000 and 675,000 professional drivers of large vehicles (goods and passenger) and by the September 2014 deadline, 664,000 drivers had done the first block of driver CPC training in Great Britain.  Driver CPC is required for most driving of large goods vehicles, buses and coaches, so these figures indicate there is a substantially larger number of people driving large vehicles for a job or as part of a job, than the 420,000 large goods, bus and coach drivers identified in the 2015 labour force statistics (70% of whom were identified as professional large goods vehicle drivers). 

1.7 The Road Haulage sector currently estimates a HGV driver shortage of 45,000 which some representatives suggest is growing by an estimated 20,000 pa. Foreign drivers are currently being used extensively with industry estimates at 20,000 to 30,000. There are no official figures about the extent of “foreign drivers” working for UK-based organisations.  Indeed even a definition of “foreign driver” is difficult as it could cover driving by people who acquired licences elsewhere in the EU, have non-UK EU passports, but who are resident, at least temporarily, in the UK.

1.8 In the five months from April to August 2015 almost 14,000 initial driver CPCs were obtained, in addition there were also nearly 20,000 periodic driver CPCs (many of which are likely to be renewals for existing lorry, bus and coach drivers, who obtained their initial driver CPCs five years’ ago.

1.9 The Department concurs with some of the evidence provided previously by parts of the industry over the last year or so about an HGV driver shortage, including that there has been:

a)              Many years of under-investment in recruiting and training UK residents – not least by very large companies - in order to replace existing drivers as they retire

b)              The relative reduction in availability of suitably qualified drivers from elsewhere in the EU

c)              Drivers leaving the industry in the down-turn in demand post-2008, gaining jobs in other sectors in which they are settled

2. Government Support for the Road Haulage Sector

2.1. The Government has already done a lot to help the road haulage industry, through a better tax regime, the HGV levy and removing outdated regulation. Ministers and officials have had regular discussions with the haulage sector regarding what can be done to boost skills, aid recruitment and educate young people about careers in the logistics industry.  We will be continuing these discussions about further action, with much of it likely to involve building on what the industry is already doing.

2.2 HGV levy

2.2.1 Since 1 April 2014 all HGVs at or above 12 tonnes gross weight using UK roads have been required to pay the ‘HGV road user levy’. The levy ensures all such HGVs contribute to the costs of UK road maintenance and removes some of the inequality UK hauliers feel when paying to use many roads abroad. The levy costs up to £10 per day or £1,000 per year. The HGV levy has proved to be a great success in its first year of operation. It has raised a total £192.5 million in receipts, with £46.5 million from foreign-registered vehicles and £146 million from UK-registered vehicles. Receipts from foreign vehicles are significantly ahead of the projected £21 million.

2.3 HGV speed limits

2.3.1 Speed limits for HGVs on single carriageways have been increased from 40 to 50mph and on dual carriage ways from 50 to 60mph. This was announced as a road safety measure which also reduces delays and congestion, particularly on busy single carriageway A roads. This removed a 20 mph differential between the lorry and car speed limits on single carriageway roads, cutting dangerous overtaking and bringing permitted lorry speeds into line with other large vehicles like coaches and caravans. The July 2014 announcement stated assessed benefits to business are £11.8 million per year.

2.4 Security at Calais

2.4.1 This is a very real concern for the UK Government, both the Border Force and the Department for Transport, as well as those in the haulage industry. The Government is working with the French Authorities to tackle the problems at the port of Calais, and £12m has already been invested in bolstering security and the infrastructure. This included

• the building of robust fences along the ring road access to the public area of the port; and
• the strengthening of security at the parking area in the east of the port.

2.4.2 This is in addition to the £2m invested in 2012/13 to upgrade vehicle scanning equipment and the £1m in 2014 to increase the number of body detection dog deployments. Further work is also underway with Eurotunnel to develop a programme of port improvements to security, fluidity and capacity.

2.5 Simplified Driver Hours Guidance

2.5.1 The Government has published simplified guidance on drivers’ hours, working time and breaks, which we hope will help drivers and employers navigate the EU rules. It is available on gov.uk. The guidance reflects the joint understanding of DfT, DVSA, industry and union representatives, which gives it extra weight and will make it a useful addition to the DVSA comprehensive guidance.

2.6 Vocational Licence Acquisition

2.6.1 The March budget announced reviews into the speed at which HGV driving tests and licence renewal medical checks take place. The budget announced that:

“The government will review the speed with which Heavy Goods Vehicles (HGV) driving tests and driver medical assessments currently take place and will consider options to accelerate both in order to help address the shortage of qualified HGV drivers. The government will also work with road haulage firms on an industry-led solution to the driver shortage, including looking at the right level of access to, and funding support for, training.”

2.6.2 Driving Tests - DVSA statistics show that 48,000 candidates took a statutory LGV test in 2014 with a 56% pass rate. Industry representatives have, in discussions with the Department for Transport, indicated that it would be possible to increase test pass rates to approximately 80% through careful selection of candidates.

2.6.3 We are lowering the cost of some parts of the lorry, bus and coach tests as set out below. These are the prices for booking a test using the DVSA service. There are unofficial websites that may charge more.

2.6.4 The average waiting time for a vocational category C (LGV) driving test has been increasing over the last year from a low of 2.6 weeks in June 2014 to 4.9 weeks for September 2015. We believe the increase may be accounted for, in part at least, a rise in demand for tests over the last year. There were 7,394 applicants in April 2014 and 9,798 in March 2015.

2.6.5 DVSA data shows that the waiting time for March 2015 at some centres (Bredbury, Featherstone, Cannock St, Watnall) is as high as 11 weeks. It appears that in some cases the problem is in part owing to sickness among examiners. Operational managers in DVSA are aware of the backlogs at these and other centres and are working to resolve them.

2.6.6 Average waiting times in weeks for LGV tests month by month

2.6.7 DVSA is currently recruiting for examiners in a number of areas across the country, and is focusing its efforts particularly in areas where waiting times are higher. To date, DVSA has recruited 78 new driving examiners into post during 2015/16 with a further 65 either attending or are booked on to new entrant courses. DVSA has also offered posts to a further 41 potential examiners and is awaiting clearance to finalise training dates for them.

2.6.8 New entrant driving examiners begin their careers by conducting car tests only, and specialise into other testing disciplines such as vocational or motorcycle, once they gain experience. However the recruitment of new examiners allows more experienced examiners to move into other disciplines, so the effect of new examiners into the workforce can have a swift benefit in terms of reducing waiting times for LGV tests.

2.6.9 Medical Renewals - Drivers aged 45 and over must provide a report of their fitness to drive at five-yearly intervals and annually after the age of 65.  When a driver of any age has a medical condition which may affect their ability to drive, they must notify the Driver and Vehicle Licensing Agency (DVLA).  Investigations are then carried out to determine whether or not they may hold a licence.  The law requires all drivers to inform DVLA of any medical condition affecting their fitness to drive at any time, and this is publicised in information leaflets and on the gov.uk website. In 2013/14 DVLA received over 260,000 vocational applications. Of these, 105,397 (40%) were referred to the medical section for investigation before a licensing decision could be made.

2.6.10 DVLA currently deal with vocational applications with no declared medical condition within 10 working days. Where a driver has declared a medical condition, the process can take longer due to the medical investigation needed. DVLA aim to complete 90% of the medical vocational applications within 90 days. They are currently dealing with approximately 85% within 90 days but this relies on 3rd party compliance. Those that fall outside this time could be, for example, those with multiple declared conditions (diabetes/vision/heart attack) all of which require medical examinations by consultants in different fields which may have waiting lists and may not be in the same hospital. There are often cases where an appointment is made but then cancelled and rearranged etc. which adds to the delay but is out of the control of DVLA.

2.6.11 Some delays in the vocational application process are unavoidable due to a medical investigation being needed. If a vocational driver needs a medical investigation, examination or test to confirm that they are fit to drive, there are often delays due to a reliance on replies from the driver’s optician, GP, consultant or other medical professional. To some extent, DVLA are unable to affect these timescales. DVLA has made some changes to improve the processing of applications:

a)                 vocational teams target the oldest cases, rather than date of receipt. Backlog reduced from 22,000 in August 2014 to 8,000 in early 2015;

b)                 improving the design of the D4 medical form to reduce the numbers being rejected (25%). A pilot is underway

c)                  sending D48 medical vocational renewal forms from the medical section so the correct medical forms are included with the application saving up to 6 weeks and preventing unnecessary GP appointments;

d)                 updating DVLA’s medical literature to advise vocational drivers that they can retain their physical licence when renewing their entitlement;

e)                 recruiting and training further staff and medical professionals;

f)                    advising all group 2 drivers to visit their GP early, even before they apply, so that they can send the first two stages of information to DVLA in one go, saving time

g)                 removing unnecessary photographs submitted by Group 2 drivers on renewal to avoid delaying the application.

2.6.12 DVLA is considering further changes to streamline the work.

2.7 Driver Recruitment

2.7.1 Trailblazer apprenticeships - Under government reforms Ministers have agreed that all new Apprenticeship Standards must require a minimum duration of 12 months rigorous and substantial training in order to qualify as an Apprenticeship. The 12 months duration is a key determinant in driving higher quality in the Apprenticeship programme. The LGV Driver Standard submitted by the Logistics Trailblazer group has been submitted but not approved. The Department for Business, Innovation and Skills is continuing to work closely with the group to help them further develop the standard.

2.7.2 The funding policy for existing apprenticeship frameworks is that preparation for and obtaining of an LGV licence is not in scope for funding. The funding pilot model for new apprenticeship trailblazer standards is currently under review.  The Department for Business, Innovation and Skills will consider what the new funding model will be with the introduction of the new apprenticeship levy.

2.7.3 Driving Britain’s Future - Driving Britain’s Future is a 12-month campaign involving Jobcentre Plus (JCP) and the Road Haulage Association (RHA) which started on 1 June 2015. The RHA are directly engaging with their employer members about work experience and encouraging their involvement in the campaign. The target is 2,400 work experience placements for JCP customers with logistics employers to expose them to the industry with a view to raising the profile of the sector as a career choice and the offer of employment as appropriate.

2.7.4 JCP Large Goods Vehicle (LGV) Driver Training Programme - Greater Manchester JCP Districts have secured £200,000 of DWP funding to run a ‘LGV Driver Academy’. The target is to achieve a minimum 80 LGV Driver Job Outcomes. The LGV Driver Academy is a 12 week programme which supports claimants in receipt of unemployment benefits to achieve a Class 2 LGV Category C driving licence, Driver’s Certificate of Professional Competence (CPC) and provide relevant work experience, job search support (including a job matching service) and a guaranteed job interview to help them secure an LGV Class 2 Driver job.

2.7.5 There are currently 72 starters on the LGV Driving Programme (71 male and one female) referred from Jobcentres. So far, 14 Candidates have successfully passed their LGV CAT C Test and completed the work experience element, with six confirmed job starts with driving agencies and more job offers and starts in the pipeline over the coming months.

2.7.6 Military Service Leavers - The Department for Work and Pensions (DWP) National Employers Team are working with the Ministry of Defence to connect service leavers with experience in logistics or a LGV licence to the logistics sector. JCP is also looking at a Logistics Armed Forces Employment Pathway, whereby the Army offers a sector-based programme (training, work experience and guaranteed job interview). This will give jobseekers an opportunity to experience the logistics sector using Army facilities and training, and both the RTA and FTA will identify employer members in the area who are currently recruiting and can guarantee an interview.

2.7.7 Scotland - In Scotland the FTA Scottish Regional Council are looking at what activity could be conducted in support of the driver shortage in that country. Ideas taken forward include a JCP Work Coach awareness day, work experience opportunities, group information sessions for benefit claimants, linking to work with the armed forces and enlisting the support of FTA member’s in Scotland.

2.7.8 Wales - A logistics-themed careers fair is being planned in Wales, which will take place on 5 November at Maindy Barracks in Cardiff. There will also be support for unemployed JCP customers to gain their LGV Cat C + E licence to help address some of the driver shortages in Wales, with both the RHA and the Freight Transport Association (FTA) identifying employer members with driver vacancies and connecting them to the event.

2.8 Transport Infrastructure Skills Strategy

2.8.1 In response to growing skills challenges within transport, the department is developing a transport infrastructure skills strategy. The skills strategy will set out how government and industry will increase the transport workforce and raise the level of skills including by delivering 30,000 apprenticeships in roads and rail over the 5 years to 2020; developing a co-ordinated national network of transport infrastructure skills colleges; encouraging greater diversity in the workforce, and promoting transport as an exciting career option to young people.

3. Action for the Road Haulage Industry.

3.1 In previous submissions to Government the road haulage industry has provided evidence relating to the causes of the HGV driver shortage. This evidence recognises that there has been many years of under-investment in recruiting and training UK residents, not least by very large companies, in order to replace existing drivers as they retire. This has been exacerbated by a relative reduction in availability of suitably qualified drivers from elsewhere in the EU, and a failure to re-recruit drivers who left the industry and retrained in the post-2008 down-turn.

3.1.1 It is clear that there are a number of areas that need to be addressed by the industry in order to make vocational driving a more attractive career choice. These issues, to a great extent, centre on pay and working conditions in the sector.

3.2 Workforce diversity

3.2.1 Road transport driving is a male dominated industry. The Labour Force Survey, Quarter 2 - Apr-Jun 2015 show that there were just 52,000 women among the 875,000 road transport drivers on the road. This figure, of under 6%, includes those driving LGVs, buses and coaches, vans and taxis. For large goods vehicles the Office for National Statistics was unable to provide a reliable estimate, however, we understand from industry sources that women make up around 1% of the driving workforce. The percentage of women drivers is higher for Public Service Vehicles (PSV). The Office for National Statistics were unable to provide figures for LGV drivers based on ethnicity but the representation of minority ethnic groups is understood to be disproportionately small.

3.2.2 The industry needs to take positive action to utilise these relatively untapped sections of the workforce. The government stands ready to support the industry in its efforts to increase the diversity of its employees. In addition, the sector needs to address the years of underinvestment in driver training, in particular by the largest companies, through a commitment to recruit and train the next generation of LGV drivers. A commitment such as this may encourage smaller companies to have confidence that they can commit to funding the training of new drivers by reducing the possibility that drivers will be attracted to larger hauliers by higher wages, causing them lose their investment.

Source: ONS - Labour Force Survey[3]

3.3 Pay

3.3.1 The training costs to acquire LGV driving licences are approximately £3,000, while the average annual salary for HGV drivers in 2013 was £25,644[4]. The hourly rate of pay for LGV drivers, excluding overtime, is £10.54 slightly lower than the rate for bus and coach drivers (£10.68). Given the required higher skill levels and training costs the rate of pay for LGV drivers does not compare well with that of van drivers (£9.02) who need no training beyond the standard car licence.

3.3.2 The small pay differential between LGV drivers and van drivers could be seen to be acting as a disincentive to undertake the training required to qualify for the more highly skilled profession.

Source: ONS - Annual Survey of Hours and Earnings

3.4 Daytime and Overnight Facilities

3.4.1 Daytime Facilities - The Workplace (Health, Safety and Welfare) Regulations 1992 require employers to provide welfare facilities for their employees, but this does not extend to short term visitors to the premises and visiting delivery drivers. HSE guidance (HSG 136 – “A guide to workplace transport safety.”) suggests such facilities should be provided in cases of delivery and collection of goods by drivers from other employers. Some companies do not provide facilities for visiting drivers due to security concerns. Additional guidance that states employers should take in to account the need for rest breaks and access to toilets and washing facilities when planning routes.

3.4.2. Campaigns by Unite and Toilets for Truckers are seeking to make the provision of welfare facilities a legal requirement for ‘visiting ‘drivers. They argue road transport is a 24/7 business and public facilities are often closed for long periods during the night. The Department would support the wider provision of facilities but does not believe that this is a matter that requires regulation.

3.4.3. The Workplace (Health, Safety and Welfare) Regulations 1992 requires suitable and sufficient sanitary conveniences to be provided at readily accessible places and paragraph 190 of the corresponding Approved Code of Practice says:

Employers have a legal obligation to provide welfare facilities for their employees, but this does not extend to short term visitors to the premises, including those who are visiting delivery drivers.

The Health and Safety Executive has no plans to change this legislation.

3.4.4 Health and Safety Executive guidance (HSG 136 – “A guide to workplace transport safety.”) suggests such facilities should be provided in cases of delivery and collection of goods by drivers from other employers. Paragraph 127 states:

When deliveries and collections are made, loading and unloading areas should:

•         have a safe area for drivers to wait that allows them to rest between driving shifts, especially if they may be waiting for several hours, with easy and safe access to toilet, washing and refreshment facilities and shelter in case of bad weather.

There is also guidance that states that when planning routes, employers should take in to account the need for rest breaks and access to toilets and washing facilities, in consultation with drivers or their representatives.

3.4.5 Overnight Facilities – Some hauliers will not pay for overnight lorry parking, arguing that drivers can sleep in the cab (many modern lorry cabs will include a sleeping bunk, a microwave oven and sometimes additional features such as a TV and a laptop).  Also some employers give their drivers a cash allowance to cover subsistence and overnight parking but drivers prefer to use laybys rather than lorry parks in order to save the money. It has also been claimed that the cost of using overnight parking, particularly at Motorway Service Areas (MSA), is simply prohibitive. £25 is frequently quoted. It should be noted that MSAs are designed to provide a short period of free parking (2 hours) and therefore would not be commercially viable if they were required to allow overnight parking for LGV drivers. The Department sympathises with drivers forced to sleep in their cabs but this is sometimes unavoidable and it has no powers to compel hauliers to pay for overnight parking or accommodation.

3.4.6 A survey conducted for the Department in 2010-11 found there were approximately 270 lorry parking facilities within five km of the Strategic Road Network.  The survey estimated that only 61% of the available parking spaces were used overnight, whereas 41% of HGVs were parked in laybys or industrial estates.

3.4.7 The lack of provision of overnight facilities that provide a secure environment for both vehicles and drivers is a barrier to increasing the number of women drivers, particularly on long haul routes, It is likely that overnight parking in motorway laybys without toilet facilities is a disincentive to men joining the workforce, this is likely to be a greater impediment in attracting women drivers. The Department will work with the haulage and truck parking industries and Highways England to find a solution to this issue.

3.4.8 Motorway Service Areas - The minimum requirements for the various types of roadside facility that may be eligible for signing from the Strategic Road Network, including Motorway Service Areas (MSA) are set out in the DfT circular 02/2013, The Strategic Road Network and the Delivery of Sustainable Development[5] published on 10 September 2013. MSAs are required to be open 24 hours a day, 365 days a year and provide 2 hours of free parking for all vehicles permitted to use the road serviced by the facility (including HGVs). They are also required to provide shower and washing facilities for HGV drivers, including secure lockers in the shower/washing area and ensure that hot drinks and hot food available at all opening hours for consumption on the premises. MSAs however are not truck stops and do not provide free overnight parking facilities.

3.4.9 We are aware that there have been complaints about the maintenance of facilities at MSA and Highways England are discussing all issues relating to truck parking and service provision with the haulage industry and MSA operators.

4. Other Matters Raised by the Committee in the Call for Evidence

4.1 The Role of the Driver Certificate of Professional Competence (CPC) Qualification in Improving the Professionalism and Safety of Drivers from the UK and Abroad on UK Roads.

4.1.1 The Driver Certificate of Professional Competence (DCPC) was introduced throughout the European Union by Directive 2003/59/EC (“the Directive”). The aim of DCPC is to raise the standards of new drivers and to maintain and enhance the professionalism of existing lorry and bus drivers throughout the European Union, through a continuous update of their capabilities. The Directive was transposed on a UK wide basis following engagement and consultation with industry.  DCPC was introduced in Great Britain in 2008 for bus drivers and 2009 for lorry drivers, requiring them to obtain an initial qualification and undertake periodic training to renew their CPC after five years - but this only applied to those undertaking an initial qualification.  Existing drivers received acquired rights and have only been required to undertake periodic training from 2013 for bus drivers and 2014 for lorry drivers.

4.1.2 It is possible that some experienced drivers may not see the benefit in further training but continuing professional development, of which periodic training is a form, is the norm in many professions these days. It provides an opportunity for drivers to ensure they maintain and develop their professional knowledge and understanding of the logistics and passenger carrying industries.

4.1.3 The European Commission are reviewing Driver CPC and appointed consultants to independently evaluate the effectiveness of the Directive. Dft engaged with industry stakeholders to ensure our response to the consultants call for evidence reflected industry views. A copy of this response (sent in November 2013) can be viewed on the gov.uk website[6]. The consultants published their report in October 2014[7] concluding that it was “too early to assess whether the Directive has contributed to improving road safety on the basis of road accident statistics”. The Commission have not yet published their proposals for the future of DCPC.

4.1.4 In its submission to HM Treasury ahead of the 2014 Autumn Statement, the Road Haulage Association said that the introduction of additional training and test requirements through the Driver CPC legislation has resulted in a marginal loss of drivers.   The Department has had feedback that some older drivers, driving for part-time or as part of another job, have accelerated their plans to stop driving because of the driver CPC requirements. 

4.1.5 In 2013 the Department extended the exemptions to driver CPC to remove the need to do driver CPC from an estimated 85,000 drivers, the biggest group involved are drivers of empty self-hire vehicles mainly minibuses but some engineers, fitters and other operatives involved in goods vehicle maintenance were also exempted.  These extensions are consistent with the EU legislation and the principle in the directive of a proportionate application of it to drivers.  The UK exemptions cannot be extended significantly further without being inconsistent with the European wide law.

4.1.6 The DVSA has indicated that for drivers with pre-2009 category C entitlements, but who have never acquired driver CPC, that their first acquisition of driver CPC can be through either an initial qualification or periodic training.  This flexibility is designed to increase the options for established drivers to return to driving large vehicles if they wish.

4.2 Proposals to Ban Daytime Deliveries in Cities

4.2.1 The Department for Transport does not restrict the movement of freight vehicles by time of day and has no plans to do so. Local authorities already have powers under Sections 1 & 2 of the Road Traffic Regulation Act 1984, to make Traffic Regulation Orders (TROs). These can be used to regulate, restrict or prohibit the use of a road or any part of the width of a road by vehicular traffic or pedestrians for a wide range of safety and environmental reasons. These powers can be used to exclude HGVs either generally or at specified times from roads for which they are considered to be unsuitable. This power rests with local authorities as they are best place to balance the need for restrictions against their impact on residents, the local economy, road safety and environmental factors.

4.2.2 The London Lorry Control Scheme (LLCS) already limits routes which can be used at night and at weekends and is managed by the 33 London borough councils. Exemptions to these rules must be negotiated with each local authority meaning deliveries cannot easily be retimed to before the morning peak period or into late evening. It is enforced and administered by the Association of London Government (ALG).Lorries are banned from 9pm-7am Monday-Saturday and from 1pm Saturday to 7am Monday. The LLCS applies to the whole of the Greater London area. However, there is an Exempt Route Network (ERN) which is outside the ban, consisting of the North and South Circular Roads and major radials leading to the above and some continuing further towards Central London. The LLCS pre-dates the M25 and was designed to stop lorries using arteries such as Tower Bridge. The LLCS does not provide flexibility for quieter and alternatively fuelled lorries that could reduce congestion and pollution through night-time deliveries. Any additional restrictions on lorry movements could seriously impact on air quality and vehicle movements in major cities.

4.2.3 We do not consider that these issues for the haulage industry that relate to the restrictions placed on HGV movements both at night and during peak hours have a significant impact on recruitment.

5 Background

5.1 Current Driving Qualification Requirements for Medium-Sized and Large Vehicles (Weighing 3.5 Tonnes and Over)

5.1.1 The driving licence categories that apply for medium sized and large goods vehicles are set out in the table below. Both types of vehicles require the additional ‘E’ category for trailers over 750kg.

5.2 Government funding for driver training

5.2.1 The Road Haulage Association (RHA) in submissions to the Chancellor of the Exchequer prior to the 2014 Autumn Statement and 2015 Budget, called for a Government grant scheme available to employers for UK resident drivers to be available for 2 years for large goods vehicle (HGV) driving licence acquisition costs. The call is supported by other industry organisations including the Chartered Institute of Logistics and Transport (CILT) and the Freight Transport Association (FTA).

5.2.2 Training costs to acquire statutorily required driving licences are substantial (circa £3,000) while current pass rates are around 56%. This creates disincentives for both individual drivers (test failure and monetary loss) and for hauliers (losing their investment due to drivers seeking higher pay at other companies). The broader economic risks include wage price inflation which is currently masked by fuel price reductions.

5.2.3 State Aid rules limit payments to any business to a maximum of 100,000 Euros (about £73,000) in a three year period. Any payments would have to be non-discriminatory meaning that the government could not limit payments to UK citizens; any EU citizen could undergo training in the UK and seek payment.

October 2015