Legislative priorities

One of the main reasons for carrying out a Formal Investigation into a shipping disaster is to determine its causes so that safety lessons can be learned and action taken to prevent similar tragedies re-occurring. Following the Gaul and Derbyshire inquiries we have found out, however, that this is not really the case: the protection of the financial interests of a few political and corporate operators have primacy over all other considerations, including safety.

In the run up to the 2004 Gaul and 2000 Derbyshire formal investigations, and subsequently, a lot of public money was spent and a lot of work was carried out in order to determine the causes of these two maritime disasters and to propose new measures that would improve safety. The causes for the tragedies were well obscured and, as for the safety measures recommended during those two inquiries, when it came to the final stage - the implementation or concrete action stage – matters, somehow, fizzled out.

Trawler Gaul lost in 1974 with all 36 crew

It is doubtful whether the four safety recommendations that came out of the Gaul 2004 Re-opened Formal Investigation (RFI) will ever come into effect. They had not been implemented in January 2007 when we first raised this matter [link] and they have not been implemented since.

The fact that the four safety recommendations, put forward by Justice Steel (the Wreck Commissioner in the Gaul RFI), are based upon false premises, are inappropriate and will therefore not be effective in preventing future loss of life, may be one of the reasons why the Government prefers them to be shelved and quietly forgotten.

OBO MV Derbyshire lost in 1980 with all 44 persons onboard

The Formal Investigation into the loss of the MV Derbyshire concluded in 2000 and its final report was published on 8 November of that year. The principal finding and recommendation to come out from the Derbyshire RFI was that the regulations for hatch cover strength were seriously deficient and that the International Convention on Load Lines (1966) needed to be amended urgently to rectify this shortfall.

The regulations of the Load Line Convention were thus redrafted at IMO to include requirements for specially strengthened hatch covers to be fitted to the forward cargo holds of all new cargo ships (not only bulk carriers). The new amendments were finalised at IMO [*] in 2002 and came into force Internationally in 2005.

However, they did not legally come into force for UK flagged vessels at the same time because the UK’s own Merchant Shipping legislation had not been amended to give legal force to the new Load Line Convention requirements for hatch covers. Today, the legislation still has not been revised.

The relevant UK rules are contained in Statutory Instrument (SI) 1998 No. 2241: The Merchant Shipping (Load Line) Regulations 1998.

There is no reason why these rules could not have been amended in a timely manner; in fact, the UK Load Line regulations were recently modified by Statutory Instrument (SI) 2005 No. 2114, so as to implement the following changes:

“……… in the definition of "pleasure vessel" or "pleasure craft", as the case may be, for each reference to "husband or wife" substitute "spouse or civil partner".

Now, that was extremely important - and also revealing of our government’s legislative priorities as regards Maritime safety.

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[*] International Maritime Organisation

Safety and Profitability

On the 18th of February 1974, in an interview with ITN News, David Shenton, the National Fisheries Officer for the Transport and General Workers Union, said that lack of evidence [1] about what had happened to the Hull trawler Gaul on the day it disappeared could cost the families of her 36 crewmen as much as £312,000 each [2] .

His statement [3], made just 10 days after the loss of the vessel, managed to crystallise, in a few words, the crux of the matter, which, for the next 35 years, would deny the general public the facts behind the vessel’s loss, and the families of the crew the right to know what happened to their loved ones.

It is now evident that it was not a submarine, a cold war spy-ship encounter, official secrets or hijack and capture by the Russians that had prevented the truth about this tragedy from emerging (these were just convenient ‘red herrings’ made up for the excitement of the public); it was money - purely and simply - and the British Establishment’s unwillingness to pay what amounted to a considerable sum, even though this was proper, fair and legally due to the victims’ families.

The reluctance of both governments and private companies to pay legal damages to injured parties is well-known, and has a long and colourful history in the maritime business world; what is particularly sickening, however, in the Gaul and other recent cases is the shoddiness of the tactics employed to circumvent the law: the cynical setbacks, the unnecessary delays, the long and costly legal battles, the blatant lies and, despite the recent disclosures, the persistent suppression of the truth, all of which go far beyond reasonable prudence and concern for the interests of shareholders and taxpayers.

But what is, perhaps, even more disturbing is the ease, the audacity and the extent to which the ‘cartel’ of politicians, businesses, insurers, civil servants, law firms and the judiciary are nowadays prepared to collude in order to prevent the payment of lawful compensation to those who have suffered such terrible losses.

In the Gaul case, this collusion led to a dubious but costly public inquiry, which, contrary to the available evidence, laid the blame for the tragedy with the crew.

A decade ago, in the debate about the limitation of liability for the maritime industry, justice David Steel placed himself firmly on the side of the shipping and insurance industries, whose financial interests he considered more important than fair compensation to claimants for damages caused by shipping mishaps.

The same justice Steel was then appointed to chair the 2004 Re-opened Formal Investigation into the sinking of the Gaul, which, surprisingly, found no fault with the vessel and, therefore, no grounds for subsequent compensation claims by the victims’ families.

Of course, a fine balance between safety and profitability has to be struck, no one wants the shipping or the insurance industries to go bust, but “at no time should any innocent party be expected to subsidize any business by their personal loss”, [4] nor should a formal legal process to be turned into a farce.

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[1] Simply put, as long as there was no firm evidence concerning the loss of the Gaul, liability could not be established and there could be no compensation for the dependents.

[2] About £3.5million in present day worth

[3] Unfortunately the families were soon to lose their champion as Mr Shenton passed away shortly thereafter. Mr James Johnson paid the following tribute to Mr Shenton in the House of Commons on 5 April 1976: “The late David Shenton, National Fisheries Officer for the Transport and General Workers' Union—whose untimely death is a great loss to the industry—did a great deal for the fishermen in Hull.”

[4] Serge Killingbeck, SCU Law Review Volume 3 November 1999

Parliamentary Questions and Answers (V)

Attention to detail!

The fourth parliamentary question that was addressed to the Secretary of State for Transport concerned the mode and date of implementation of the four safety recommendations arising from the F. V. Gaul Re-opened Formal Investigation.

The Minister’s latest response to this question was very eloquent and reassuring, but, alas, it was also factually incorrect and misleading. The four formal safety recommendations from the RFI have not as yet been implemented and, had it not been for this recent enquiry, it is unlikely that they would have ever been tackled.

One of the principle faults with the Minister’s response, however, is the fact that he seemed to have opened the RFI Report at the wrong page… (!!) that is, he has copied and responded to text from page 280 of the Report, which does not in fact contain the four formal safety recommendations - these are actually detailed on pages 286 and 287 of the formal document.

To assist matters we have reproduced the four safety recommendations together with our further comments on the Minister’s response at this LINK.

Parliamentary Questions and Answers (I)

Sandra Gidley: To ask the Secretary of State for Transport what estimate he has made of the total cost of investigations and inquiries into the loss of the F. V. Gaul in 2006 prices. [96789]

Dr. Ladyman: The total cost to the Department of investigations and inquiries into the loss of the FV Gaul was £6.5 million.

No adjustment has been made for 2006 prices.

Gadfly: Perhaps Dr Ladyman should know that the Original Formal Investigation was concluded in 1974.

There appear to be some items missing from the above list. The total costs to the Department should also have included:

1. the costs of the stability and seakeeping investigations and model tests carried out for the Department by NMI and YARD between 1975 and 1978 estimated at £75,000 (in 1976 prices)

2. the costs of the two reports by Roger Clarke published in 2000. Stated to have cost the Department £50,000 at that time

3. additionally, the costs of 32 years of governmental time that has not been included in the above (political staff, technical, clerical and administrative staff, MOD, legal etc) - £1m at todays prices would not be an unreasonable evaluation!

If a simple compound interest calculation is carried out on the costs detailed above, using historical Bank Rate indices, then a figure of £10m at 2006 prices is obtained!

See also: http://www.dailymail.co.uk/pages/live/articles/columnists/columnists.html?in_article_id=371759&in_page_id=1772&in_author_id=244

Sandra Gidley: To ask the Secretary of State for Transport what progress has been made towards the implementation of the formal safety recommendations arising from the F. V. Gaul Re-opened Formal Investigation. [96790]

Dr. Ladyman: It is considered that, as far as is reasonably practicable, the recommendations have been implemented.

Gadfly: The four formal safety recommendations have not been implemented.

Sandra Gidley: To ask the Secretary of State for Transport whether any evidence of a design fault in the construction and arrangement of the duff and offal chutes on the trawler F. V. Gaul was made available to the Wreck Commissioner during the 2004 investigation. [96794]

Dr. Ladyman: The Marine Accident Investigation Branch provided the inquiry with a copy of a full set of technical drawings for the vessel, a number of which detailed the design of these chutes. These drawings were reviewed by the technical experts and the expert representing the Department for Transport referred to these drawings in the production of the document “Notes on the duff and offal chutes”, submitted to the Re-opened Formal Investigation. These notes included comments on the design of the chutes and the potential design inadequacies.

Gadfly: First of all, the question that had been asked was not answered (i.e. was any evidence of a design fault made available to the Wreck Commissioner?). A yes or no answer would have sufficed.
Secondly, The Marine Accident Investigation Branch would provide, as they normally do and as the Treasury Solicitor recently confessed, “considerable assistance” to the Wreck Commissioner. They would therefore provide much more than a set of old drawings.
Thirdly, the “Notes on the duff and offal chutes”, only commented on a presumed design deficiency in relation to the difficulty of maintenance of the non-return flaps.So, in a couple of sentences, Dr Ladyman implies that either the MAIB performance was poor, or the MAIB witheld evidence, or the retained experts were unable to recognize an obvious design fault in the construction and arrangement of the duff and offal chutes.