The Highland Council Highland Licensing Committee – 8 February 2010 Agenda Item Report No 6.1 HLC/034/11 Licensed Taxi Operator – Robert J S McPhee Report by the Area Solicitor Summary This Report relates to a licensed taxi operator who has been reported for a breach of licence conditions. This application is subject to a formal hearing procedure. 1 Background 1.1 The Highland Council has resolved that in terms of the Civic Government (Scotland) Act 1982 a licence will be required for the operating of a licensed taxi. A licence for the same issued by the Highland Council is valid for the whole Council Area. 1.2 Mr Robert J S McPhee is a licensed taxi operator and licensed taxi driver with the Highland Council. He currently holds one operator’s licences namely 31114. The licence holder was first granted an operator’s licence in 2005. 1.3 On 17 January 2011 a report was received form the Council’s Trading Standards Service, who are responsible for the enforcement of the licensing scheme for taxis/private hire cars and their drivers, in relation to Mr McPhee. 1.4 The report was submitted regarding Mr McPhee’s failure to maintain his licensed taxi to the standards required by the Council. 1.5 A copy of the report is attached together with relevant documentation and statements from: Elizabeth Gardner - Trading Standards Officer Stewart Hiddleston – Assistant Trading Standards Officer 1.6 A copy of this Report and all attachments have been sent to all parties who, in the terms of Paragraph 4(2) of the Civic Government (Scotland) Act 1982, have been invited to attend and will be provided with an opportunity to be heard by the Committee. A copy of the procedure which will be followed at the meeting has also been sent to all parties. 1.7 In terms of Section 11 of Schedule 1 of the Civic Government (Scotland) Act 1982 a Licensing Authority may suspend a licence(s) if in their opinion the holder of the licence is no longer a fit and proper person to hold the licence(s). 2 Policies and Conditions 2.1 The following policies are relevant to this case: Standard Taxi Driver’s Licence conditions. A copy of these can accessed at www.highland.gov.uk/businessinformation/licensing/civicgovernmentlicensing or a hard copy can be supplied where requested. 3 Determining Issues 3.1 Is the licence holder a fit and proper person to continue to hold a licence? If required the Area Solicitor will offer particular advice on the criteria relating to this particular case. 4. Recommendation Members are asked to consider whether or not the licence holder continues to be a fit and proper person to hold a taxi operator’s licence and upon determining this whether any action should be taken against the licence holder in the form of a warning or suspension of licence. Signature: Designation: Area Solicitor Date: 25 January 2011 Background Papers: Civic Government (Scotland) Act 1982 Highland Council’s taxi operator’s licence conditions CIVIC GOVERNMENT (SCOTLAND) ACT 1982 Penalty Points System for Licensed Taxi and Private Hire Car (PHC) Operators and Drivers Reference No. TS/CG(S)A/PP/4/10 Against: Robert John Stewart McPhee Age: 33yrs DoB: 3.3.77 ¶ Licences Held: Taxi Operator, Licence reference no. 31 114 Taxi Driver , Licence reference no. 31 553 Address: 12 Plover Place Reiss By Wick Caithness KW1 4RT Vehicle Description: Registration No: Date of first registration: Mileage at Last Inspection: Citroen Xsara SW02 JXF 25/7/02 160340 Penalty Points Total as of 20/10/2010: 32 points REPORTING OFFICER: NAME: Elizabeth Anne Gardner DESIGNATION: Trading Standards Officer ADDRESS: Highland Council, TEC Services Trading Standards 38 Harbour Road Inverness IV1 1UF TELEPHONE NO: 01463 228700 SUMMARY This report relates to the failure by Robert McPhee to maintain his licensed taxi to the standards required by the Licensing Authority, Highland Council, contrary to Condition 1 of the Taxi Operator’s Conditions of Licence and to his continued fitness to hold a taxi operators licence; subject to paragraph 11(2))) of Schedule 1 to the Civic Government (Scotland) Act 1982. REPORT The Penalty Points System was introduced on July 1st 2006. Its main purpose is to assist Trading Standards in the evaluation of whether licensed operators are maintaining their vehicles and operating practices to an acceptable standard and as a visible deterrent to those licensed operators who fail to do so. Points under the scheme accumulate when faults are discovered at the Council’s programmed inspection of the licensed vehicle, during “on the spot” inspections of the vehicle by Trading Standards staff or as a result of our investigation of a complaint. The points remain on a licensee’s record for a period of two years from the date of issue. An appeal system is in place which allows an operator to question the allocation of points. When the points total reaches 20 or more this would automatically initiate a review of the case by Trading Standards with a view to considering whether a report to the appropriate Council Licensing Committee, or some other regulatory action is deemed necessary. Robert McPhee has been a licensed taxi operator since 7/12/2005 and a licensed taxi driver since 18/11/2004. As summarised in the attached “time line”, Robert McPhee’s licensed vehicles have undergone 10 Council inspections. This has led to 5 “Pass” results, 2 “Conditional Pass” results and 3 “Fail and Dangerous” results. The Citroen Xsara currently on the licence received its first Fail and Dangerous result from a Council inspection on 14th October 2009 which led to the accrual of 13 penalty points and its second on 19th October 2010 which led to the accrual of 19 penalty points, giving the licence a total of 32 penalty points. A Report to the Licensing Committee is considered for a total of 20 or more penalty points within a two year period. Robert McPhee was interviewed by officers from Trading Standards to allow him to demonstrate his maintenance regime for his vehicle. Mr McPhee provided receipts for parts which have been fitted to the licensed vehicle in recent months and stated that Mr Ivor Campbell carried out any bodywork repairs for him and Mr Richard Ambler carried out the mechanical repairs required. He said neither man was prepared to put anything in writing to that effect but Mr McPhee offered their telephone numbers and said they would be both willing to confirm they looked after his car. Mr McPhee said that whenever he thought there was something wrong with his car he took the car to one or other of these men and had repair work carried out. He did not have pre-inspection checks carried out on his car. Trading Standards does not consider that this demonstrates Mr McPhee’s maintenance regime is sufficient to ensure the licensed vehicle remains at the standard required by the Council and this report is presented for the consideration of the Licensing Committee. CONTENTS Number Description 1 Time Line For Taxi Licence 31 114 2 Taxi Test Report Form dated 19/10/10 3 Taxi Test Report Form dated 20/10/10 4 Penalty Points Letter Dated 19/10/09 5 Taxi Test Report Form dated 14/10/09 6 Civic Government (Scotland) Act 1982 Section 11(2) Statutory Notice dated 14/10/09 7 Taxi Test Report Form dated 15/10/09 8 Invoice from Highland Motor Parts Ltd, Units 12-13, 21 Henderson Road, Inverness, IV1 1SN, dated 8/2/10 9 Receipt from Tesco, Wick, dated 10/7/10 10 Invoice from Caithness Tyre Company Ltd, George Street, Wick, dated 13/7/10 11 Invoice from Highland Motor Parts Ltd, Units 12-13, 21 Henderson Road, Inverness, IV1 1SN, in the name of Dennis Campbell, Reiss, KW1 4RR, dated 29/7/10 12 Invoice from Highland Motor Parts Ltd, Units 12-13, 21 Henderson Road, Inverness. IV1 1SN, in the name of Dennis Campbell, Reiss, KW1 4RR, dated 12/8/10 13 Receipt from Autoparts of Thurso 19B Neil Gunn Drive, Ormlie Industrial Estate, Thurso, KW14 7QU, dated 19/10/10 (for brake cables, bought after the failed taxi test of 19/10/10) 14 Witness statement, Elizabeth Gardner 15 Witness Statement, Stewart Hiddleston 16 Members Briefing Note and Penalty Points Tariff TIME LINE FOR LICENCE NUMBER 31 114 Application for Licence, November 2005 Vauxhall Astra, reg no P 181 GMP. Date of first registration 07/08/96. 7/12/05 Council Inspection result:- Conditional Pass Group B Faults Paint on offside sill rubbed off 24/5/06 Council Inspection result:- Fail and Dangerous Group A Faults Off-side rear spring broken Fuel tank leaking Near-side headlamp bad image Group B Faults C.B. radio insecure 26/5/06 Inspection re-test result:- Pass 17/11/06 Citreon Xsara, reg no SW02 JXF, substituted onto licence. Date of first regisration 25/07/2002 7/11/07 Council Inspection result:- Conditional Pass Group B Faults Off side door dented MOT result:- Pass. No advisory notice issued. 30/4/08 Council Inspection result:- Pass 30/10/08 Council Inspection and MOT result:- Pass MOT no advisory notice issued 29/4/09 Council Inspection result:- Pass 14/10/09 Council Inspection result:- Fail and Dangerous Group A Faults Nearside track rod end excessively worn Offside track rod end excessively worn Offside headlight image not to requirement Exhaust mounting in front of silencer broken Nearside rear brake binding MOT also lists:- Parking brake efficiency is below Requirements. **DANGEROUS** 13 Penalty Points accrued 15/10/09 Inspection and MOT Re-test result:- Pass 19/10/09 Letter re Penalty Points posted to Mr MacPhee 22/4/10 Council Inspection result:- Pass 19/10/10 Council Inspection and MOT result:- Fail and Dangerous Group A Faults Offside headlamp aim low** Offside headlight insecure** Nearside number plate lamp not working** Nearside number plate lamp insecure Brake pipe going to offside rear excessively corroded** Nearside brake indicates brake bind** Offside hand brake cable broken** Offside parking brake showing little or no effort** (** denotes **DANGEROUS**) Group B Faults No First Aid Box 19 Penalty Points Accrued 32 Penalty Points in Total on Licence 20/10/10 Inspection Re-test Result:- Pass The Highland Council Trading Standards Statement of Witness Surname: GARDNER Forename(s): ELIZABETH ANNE Title: MRS Maiden Name: Address (H): Tel No (H): Trading Standards, 38 Harbour Road, Inverness IV1 1UF Place and Date of Birth: Tel No (B): Address (B): Occupation: WILSON 01463 228700 Trading Standards Officer ‘Care of’ Address (e.g. students, etc.): Known as or Alias: Taken by: On(Day, Date): At (Time): At (Location): States:Accompanied by Stewart Hiddleston, Assistant Trading Standards Officer, I interviewed Mr Robert John Stewart McPhee on 9th November 2010 with regard to the 32 penalty points accrued by his licensed taxi. I asked Mr McPhee if he had any way of showing that the licensed vehicle had been regularly maintained, any paperwork for example. He replied that he had invoices for the parts he had bought for his taxi. He said that Ivor Campbell, Coachbuilder, telephone number 0781 802271 and Richard Ambler, telephone number 0754 7066782 had both checked over his car through the year. Mr McPhee said that the guys wouldn’t give him anything in writing but I could ring them both to check what he said was correct. He said that he didn’t have a pre-inspection check done on his car because it was too expensive. When he thought something was wrong he had the car fixed. The car is his family car too and he wouldn’t put his son at risk. Date:Page 1 of 2 statement.doc Signed:Committee Report 31 114 EAG The Highland Council Trading Standards Statement of Witness I advised Mr McPhee that I would contact the men who looked after his car and the decision would then be made as to whether he would be the subject of a report to the Licensing Committee. Mr McPhee asked what the Licensing Committee would do. I advised him that if a report was submitted then the Licensing Committee had three options, they could choose to do nothing, they could choose to issue a warning or they could suspend the operator’s licence for any period up to the duration of the licence. Mr McPhee said if he was reported to the Committee he would have to think about his driver’s licence since it was up for renewal soon. I advised Mr McPhee that having his driver’s licence meant that if he was reported and if the Committee chose to suspend his operator’s licence for whatever period, he could still drive someone else’s taxi or lease one. Mr McPhee said he wouldn’t do that. I rang both men the next day. Ivor Campbell confirmed he carried out bodywork repairs for Mr McPhee’s car and a little bit of mechanical work. When a bus hit the car in April he’d done the repairs for that, a door and a wing. In October he’d put a new wing mirror on the car. Richard Ambler confirmed he works on Mr McPhee’s car. The last time he saw it he’d changed both brake cables, the driver’s side brake pipe and two indicator bulbs. Mr McPhee comes to his house for the repair work to be carried out. Mr Ambler has access to ramps at his father’s house. Mr Ambler said he had been brought up in a breaker’s yard but had no formal training as a mechanic. Following these discussions I rang Mr McPhee to inform him that he would be the subject of a report to the Licensing Committee. Mr McPhee said he would fight it. Date:Page 2 of 2 statement.doc Signed:Committee Report 31 114 EAG The Highland Council Trading Standards Statement of Witness Surname: HIDDLESTON Maiden Name: N/A Forename(s): CHARLES STEWART Title: MR Address (H): Tel No (H): Address (B): TRADING STANDARDS HIGHLAND COUNCIL 38 HARBOUR ROAD INVERNESS Place and Date of Birth: Tel No (B): Occupation: ASSISTANT TRADING STANDARDS OFFICER 01463 228700 ‘Care of’ Address (e.g. students, etc.): Known as or Alias: Taken by: On(Day, Date): At (Time): At (Location): States:I was present when Mrs Liz Gardner, Trading Standards Officer, interviewed Mr Robert John Stewart McPhee on 9th November 2010 because the penalty points total for his licensed taxi had reached 32 points. When asked if he had any paperwork to show that the licensed vehicle had been regularly maintained Mr McPhee produced invoices and receipts. He said that Ivor Campbell, telephone number 0781 8022871, and Richard Ambler, telephone number 0754 7066782, looked after the car but they wouldn’t put anything in writing for him. He gave Mrs Date:Page 1 of 2 Statement.doc Signed:Committee Report 31 114 CSH The Highland Council Trading Standards Statement of Witness Gardner their mobile phone numbers so that she could contact them to confirm they carried out work on his car. He did not put his car into a garage for a pre-inspection check because it was too expensive. When something was wrong he had it fixed. His taxi was also the family car and he wouldn’t put his son at risk. Mrs Gardner said she would contact Ivor Campbell and Richard Ambler and then let Mr McPhee know if he was to be the subject of a report to the Licensing Committee. Mr McPhee asked what would happen if he was and Mrs Gardner explained to him that the Licensing Committee had three options, they could choose to do nothing, issue a warning or suspend his operator’s licence for what ever period they chose, up to the duration of the licence. Mr McPhee said he would have to think about his driver’s licence then, it was up for renewal and there was no point if he was to lose his operator’s licence. Mrs Gardner pointed out that if he was reported to Committee and if they suspended his operator’s licence for any period then his taxi driver’s licence allowed him to drive for another operator or lease a taxi. Mr McPhee said he wouldn’t do that. Date:Page 2 of 2 Statement.doc Signed:Committee Report 31 114 CSH Transport Environmental & Community Services Trading Standards Unit Regulation of Licensed Taxi & Private Hire Cars {PHC} The Penalty Points System and Associated Issues Members Briefing Author: Gordon S Robb, Principal Trading Standards Officer Trading Standards Unit, 38 Harbour Road, Inverness, IV1 1UF Committee Briefing Note.doc 25/01/2011 1. The System: What is it? 1.1. This system commonly referred to as the “Taxi & PHC Penalty Points System” is in effect a method used by Trading Standards staff, as part of their enforcement policy, to determine whether the behaviour of a licensed Taxi or PHC operator or driver, when examined over a period of time, has reached the point when the matter justifies referral to the Area Licensing Committee for their consideration. 2. Why was it introduced? 2.1. After approval by the Council, the system was introduced by Trading Standards in July 2006, in an attempt to improve the general standard of Taxis and PHCs operating within Highland and to address the concerns expressed by Members of the Civic Government Licensing Working Group about the level of safety related failures recorded during the routine vehicle examinations undertaken on Taxis & PHCs by the Council’s appointed contractor. 2.2. In addition to the real public safety concerns that existed, the time spent by Trading Standards staff suspending unsafe vehicles from use and chasing up licensees to remedy other defects found, was seen at a time of ever deceasing resources as wasteful and inefficient. 3. What is the principle of the system? 3.1. The principle being applied is clear, i.e. by openly communicating to licensees that their persistent or blatant failure to maintain and otherwise operate the licensed vehicles, or by their unacceptable actions or omissions as a licensed driver; will result via the Penalty Points System in their behaviour being routinely scrutinised and them being subject to sanctions imposed by the Council; will hopefully cause them to regulate their own behaviour. 3.2. In addition, should they fail to regulate their own behaviour, then the decision making process by Trading Standards staff to report the matter to the Licensing Committee can be seen as being fair and transparent. Members can also be confident that a consistent approach is being taken and that the behaviour of one licensee can be easily compared against other licensees as well as in relation his/her performance against the standard set by the Council. 4. How does it work in practice? 4.1. The current Penalty Points Tariff is reproduced on page 3 of this briefing note. The tariff was drawn up by reference, where relevant, to existing VOSA guidelines on the categorisation of vehicle safety defects. Other non-safety elements of the tariff were agreed by the Civic Government Licensing Working Group members. 4.1.1. The tariff was last reviewed by the Civic Government Licensing Working Group during 2009. 4.2. Different categories of licensee i.e. Operators v. Drivers will be liable to have Penalty Points allocated for different event/ defects. This is due to the very specific responsibilities that are applicable to these licensee categories; examples of this are as follows: 4.2.1. A licensed Operator has overall responsibility for the vehicle and will therefore be liable for safety defects discovered which should have been detected by appropriate routine maintenance. A licensed driver also has some responsibility for the safety of the vehicle, but whilst it is seen as reasonable that he/she should carry out an examination of the vehicle prior to being used and detect tyres that are below the legal tread depth. He/she should not be liable for defects that would take a mechanic to identify. 1 4.2.2. On the other hand a licensed operator can not be reasonably liable for the failure of a licensed driver to display his identity badge. The penalty points being allocated only to the driver in such circumstances. 4.2.3. In some cases e.g. the “bald tyres” scenario, both driver and operator would be allocated penalty points as both have equal liability. 4.3. Any vehicle defects discovered either during routine periodic examinations; inspections carried out on taxi ranks and elsewhere while vehicles are in use; complaint investigation outcomes; and any necessary follow-up action e.g. warnings issued where remedial work has not been carried out as required etc. are recorded on the Trading Standards activity database. This record entry is automatically translated into the relevant number of Penalty Points according to the agreed tariff. 4.4. Licensees have been provided with guidance on the system and will therefore know that penalty points will have been accumulated if their vehicle has been found during routine periodic examination to have defects within a particular category. Any licensee can however appeal to the Trading Standards operational staff against the allocation of penalty points and in some cases an adjustment to the allocated points will be agreed, where there are circumstances that justify this. A further route of appeal to the Principal Trading Standards Officer is also available, should this be necessary. 4.5. In other cases where it is intended to allocate Penalty Points e.g. As a result of an investigation into a complaint; Failure to display a driver’s ID card; The issue of a warning letter due to non compliance with enforcement notice etc. the allocation of penalty points will be identified to the licensee at the time of the incident or subsequently in a letter to the licensee. 5. What is the Formal Action Trigger Point? 5.1. The “Formal Action Trigger Point” has been set at a total of 20 Penalty Points during any 2 year period. 5.2. If any licensee accumulates a total number of penalty points greater than 50% of this “Formal Action Trigger Point” they will be formally notified in writing of this fact and given the opportunity to discuss the matter with a member of Trading Standards staff. 5.3. Should the “Formal Action Trigger Point” be reached or exceeded, the preparation of a report to the Area Solicitor for relevant Area Licensing Committee would be triggered. 5.4. Licensees are then notified in full of the occurrences that have resulted in the penalty points that have been accumulated and given the opportunity, before the report is submitted, to make representations to the Head of Environmental Health & Trading Standards in relation to the matter. 5.5. A report would only go ahead if the Head of Environmental Health & Trading Standards was content that such a report was justified. 6. What information will any report to the Licensing Committee contain? 6.1. Any report will identify the licensee against which the case relates. This could be a licensed operator, licensed driver or both. 6.2. Where a report is made against a licensed operator who is also a driver, the report may only be in relation to his behaviour in relation to one of the licence categories he currently possesses. 6.3. The Penalty Points accumulated by the licensee will be identified, but the full facts including vehicle inspection reports; complaint outcomes; warnings issued and any other evidence relevant to the case will also be included. It is on the basis of the total evidence and not simply on the Penalty Points total that any case has been submitted. 2 Penalty Points Tariff Applicability Operator Driver Taxi PHC Taxi PHC 9 9 9 9 9 9 Category Safety Safety SubCategory Tyres/Wheels Tyres/Wheels Safety Tyres/Wheels Safety Safety Brakes Brakes Safety Brakes Safety Safety Safety Steering / Suspension Steering / Suspension Steering / Suspension General General Safety General Safety Safety Lighting Lighting Defect Descriptor High Risk / Obvious Med-High Risk / Detectable by Routine Maintenance Med Risk / Undetectable by Routine Maintenance High Risk / Obvious Med-High Risk / Detectable by Routine Maintenance Med Risk / Undetectable by Routine Maintenance High Risk / Obvious Code Penalty Points TA7 TA5 7 5 TA2 2 TB7 TB5 7 5 TB2 2 TC7 7 TC5 5 TC2 2 TD7 TD5 7 5 TD2 2 TE7 TE5 7 5 TE2 2 TF1 1 9 9 9 9 9 9 9 9 9 9 9 9 Safety 9 9 Safety 9 9 9 9 9 9 9 9 9 9 9 9 Safety Lighting 9 9 Insurance 9 9 MOT Not Present (MOT Valid) TG2 1 9 9 TH1 1 9 Not Present TI1 1 9 9 If meter fitted Registration Document V5 Registration Document V5 Tariff Card Not in operators name 9 Documents, etc. Documents, etc. Documents, etc. Documents, etc. Documents, etc. Med-High Risk / Detectable by Routine Maintenance Med Risk / Undetectable by Routine Maintenance High Risk / Obvious Med-High Risk / Detectable by Routine Maintenance Med Risk / Undetectable by Routine Maintenance High Risk / Obvious Med-High Risk / Detectable by Routine Maintenance Med Risk / Undetectable by Routine Maintenance Not Present (Insurance Valid) Not Present / Illegible TJ3 3 Documents, etc. Documents, etc. Documents, etc. Documents, etc. Documents, etc. Taximeter Drivers ID Card Drivers ID Card Licence plate Not Present TK5 5 Incorrectly Displayed TK3 3 Not Present TL5 5 Licence plate Incorrectly Displayed TL3 3 Taxi Sign Not Present / Incorrectly Displayed Unsealed (Not ‘False or Unjust’ and with Reasonable Excuse) TM3 3 TN3 3 Safety+ Standards Safety+ Standards Safety+ Standards Fire extinguisher Fire extinguisher First aid kit Not Present TO1 1 Unacceptable Standard TP1 1 Not Present TQ1 1 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 If meter fitted 9 9 9 9 9 9 9 Meter 3 Applicability Operator Driver Taxi PHC Taxi PHC 9 9 9 Appearance/ Utility Appearance/ Utility Appearance/ Utility Appearance/ Utility Appearance/ Utility Appearance/ Utility Appearance/ Utility Appearance/ Utility 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 Licensee Behaviour 9 9 9 9 Licensee Behaviour 9 9 9 9 Category 9 Licensee Behaviour SubCategory Spare Wheel External Cleanliness External Appearance Advertising Internal Cleanliness Internal Appearance Controls & Fittings Drivers Cleanliness / Appearance Other Breach of Conditions / Act Other Breach of Conditions / Act Accident Damage Defect Descriptor Code Penalty Points Not Present TR1 1 Unacceptable Standard TS1 1 Unacceptable Standard TT1 1 Unacceptable Standard (Honest, Decent & Truthful) Unacceptable Standard TU2 2 TV2 2 Unacceptable Standard TV1 1 Unacceptable Standard TW1 1 Unacceptable Standard TX1 1 Written Warning TY5 5 Oral Warning/ Written Notice TY3 3 Failure to Report TZ2 2 4