Lord Harrison
In last year’s excellent Commons debate highlighting the economic contribution of zoos to local, regional and national economies, Andrew Rosindell MP proclaimed:
“Zoos are at the heart of everything”.—[Official Report, Commons, 14/12/2011; col. 274WH.]
After Rosindell’s bold assertion, speakers glowed with proprietary pride about the pride of place that each of their zoos has in the heart of their local communities and about the important but unsung job contribution of our some 300 UK zoos, but economic questions remain. Will Her Majesty’s Government explore, with the redoubtable British and Irish Association of Zoos and Aquariums—BIAZA—the zoos’ role in regenerating local communities and, with BIAZA, produce a policy statement on the untapped potential of zoos to aid training, apprenticeships and job schemes in this time of economic downturn? Will the Government recognise the singular regional role of zoos, well illustrated by my local zoo, Chester, which sits at the heart of and astride the north-west and North Wales region, its benign tentacles spreading across the scientific community, the vibrant tourism industry and the education and research community in schools, FE colleges and local universities?
Chester Zoo also promotes forward thinking on the care of the environment. Zoos will have an as yet untapped and influential role in charting our response to climate change. Indeed, zoos’ pivotal role in preserving, conserving and displaying the wealth of wildlife in our interconnected world was brought home to me in a recent visit to Chester Zoo and its black rhinos. Informed of the danger to the world’s black rhino population from illegal rhino horn trading in Far East and African markets, I raised Questions here in your Lordships’ House and actively took up the matter in Vietnam, the centre of the illegal trade and entrepôt for Chinese dealers who trade in the mistaken belief that black rhino horn confers aphrodisiac or medicinal powers on the recipient.
Given zoos’ roles in innovatory thinking within a languishing economy, the incoming coalition’s overhasty abandonment of RDA grants was unwelcome in the zoo world. In the same vein, will the Minister investigate the difficulties that zoos have in accessing lottery and heritage funds? Given that zoos are for the most part independent, self-financing institutions, will the Government look more favourably on zoos as hothouses for enterprise? Indeed, will the Government directly respond to BIAZA’s well argued An Economic Impact Assessment for the Zoo and Aquarium Sector and sponsored, but still relevant, Manifesto for Zoos?
Given the variety of zoos’ functions and footfall, will the Minister assure me that he has had full briefings not just from Defra but from other departments, even from the FCO? After all, panda diplomacy at Edinburgh Zoo panders admirably with the FCO’s wider and wiser engagement with China. In the preparation for replying to this debate, which departments other than Defra spoke of their distinctive interest in the success of Britain’s zoos? Did the Treasury, which might just recognise investment opportunities in active zoos; DCMS, wrongly vested with responsibility for tourism, which is more properly the domain of the Treasury or BIS; or the Department for Education, for instance? Zoos cater for an important group of unengaged children who, cabined, cribbed and confined by classroom teaching, are liberated among zoo animals and their enthusiastic keepers in the classroom of the open air. Zoos demand a multidisciplinary approach from the Government. Will the Minister confess that we have not yet achieved that?
DCLG is important too, given that local authorities are charged with the task, devolved from Defra, of licensing zoos, but local authorities are already wilting under the burden of delivering local services to national standards in a climate of dwindling resources. It is to this issue, the running of zoos generally, that I now turn. A Licence to Suffer is a controversial and contentious analysis of the regulatory protection of animals in zoos. Its methodology is challenged, as are many of its dispiriting conclusions about the state of animal welfare in our zoos. It declares that,
“there are simply too many zoos, too many animals, too little training, too little understanding of the legislation, too little enforcement”.
That should give us pause for thought. In their proper concern for the welfare of the 190,000 animals in our zoos in England, are the Government convinced that we have a suitable supervisory system? If the author of the report, the Captive Animals’ Protection Society, is even one-quarter right, we have much still to do to comply with our own domestic legislation, the Zoo Licensing Act 1981, and the EU zoo directive 1999.
In that regard, it is disappointing to learn that Defra has recently discontinued its instructional workshops for local authority licensing officers who may simply not have the time, expertise and resources to ensure compliance with the local authority’s statutory duties in respect of zoos. The Born Free Foundation makes similar criticisms. Will the Government introduce a more formal mechanism to evaluate and measure the outcomes of the education and conservation programmes that zoos are legally required to undertake? Is sufficient time and expertise given to quality zoo inspections currently undertaken by local authorities? Are sufficient experienced veterinarians available to help the local authorities in that task? Will the Minister ensure a regular national analysis of all zoo inspection reports to monitor compliance with the Zoo Licensing Act, thereby highlighting the efficacy or otherwise of the current inspection regime? Furthermore, is the Minister alarmed that some one in four zoos may fail to respond to licence conditions imposed in the aftermath of adverse zoo inspections? Indeed, does the Minister accept that improved and modern methods of animal welfare assessment should be urgently and universally introduced, and that there is a compelling case for improved science-based, species-specific guidelines when keeping animals in zoos? Finally, will the Minister agree that zoos that repeatedly and wilfully transgress in the welfare of kept animals should be closed? Indeed, what will the Government do to help the zoo world fulfil its own proper ambitions for the highest standards of animal welfare?
I am most definitely not a zoo abolitionist. Indeed, I believe passionately in well run zoos performing their myriad roles of conservation, preservation, education and scientific discovery, and providing sheer enjoyment and wonder to millions of our citizens, including children, by displaying the world’s unparalleled fauna. I am reminded that the imperishable Charles Darwin learnt not only from studying animals in their natural habitats, such as the turtles on the Galapagos Islands, but from his regular visits to the then newly established London zoo. Jenny the orang-utan and the fast-breeding finches each helped him to formulate his far-reaching thoughts on the origins of species and, ultimately, of humans themselves. Zoos, too, are at the heart of science and human understanding.
All the interested parties that I have consulted share common cause in promoting animal welfare, and none more so than the estimable BIAZA. Its regular questionnaires to its membership provide us with a veritable wealth of data on who runs zoos, their viability and economic impact, including the numbers of visitors and scales of entrance charges, zoos’ education role and their marketing strategies and, perhaps most importantly, their conservation and research roles, including field conservation and animal management. The Government should acknowledge and immerse themselves in BIAZA’s treasure trove of zoo facts and figures. In the 2010 survey, BIAZA’s cri de coeur is the crying need for its members to reply diligently to the questionnaires. Only then can BIAZA document the transparency and accountability of zoos as well as celebrating their achievements and calibrating their shortcomings. BIAZA is alive, unlike some of its members, to the imperative to explain to the world—
Baroness Northover
I am in the fortunate position that I can see a clock. The noble Lord might like to know that he has exceeded his allotted 10 minutes and perhaps he might bring his remarks to a close. Given the lack of a clock in front of us, I will keep an eye for other noble Lords.
Lord Harrison
I was completing my remarks about the Government helping and aiding BIAZA in its task of bringing in the very best standards of zoo management. I have not been able to touch on the European angle, which I had hoped to do, but I look forward to hearing from colleagues examples of the good that zoos do for our communities, as well as what the Government can contribute to this important task, which I think all of us around this Table share.
The Parliamentary Under-Secretary of State, Department for Environment, Food and Rural Affairs (Lord De Mauley)
My Lords, I am grateful to the noble Lord, Lord Harrison, for bringing this debate today, and to all noble Lords for their contributions. In fact, noble Lords probably have no idea how grateful I am for the opportunity to be here today.
I assure your Lordships that the Government are firmly of the view that well managed zoos play a key role in a number of areas. Most importantly, zoos play a significant part in promoting wildlife conservation. Several noble Lords referred to that. As I see it, this is their key role, and their activities include direct financial and in-kind support for projects aimed at conserving populations in the wild in this country and overseas. They also contribute and work together in managed breeding programmes and carry out research; for example, to support field conservation as well as to learn more about the animals in their care.
Noble Lords may have seen the “top 10” list of endangered species whose future is most reliant on conservation programmes supported by UK zoos. The list, published by the British and Irish Association of Zoos and Aquariums in August, contains species such as the scimitar-horned oryx, from north Africa, which is extinct in the wild, and our own white-clawed crayfish, which is endangered. As an example, Bristol zoo has bred these crayfish in captivity and recently reintroduced 80 into the wild in the south-west. My noble friend Lord Redesdale mentioned another successful example.
Zoos have an important role in raising public awareness, as the noble Lord, Lord Paul, so movingly said, and educating their visitors, who are often young people, about wild animals and their habitats in a relaxed and natural setting. The noble Baroness, Lady Rendell, also spoke about the importance of the educational facet of zoos. Of course, as the noble Lord, Lord Harrison, rightly said, zoos contribute to their local and regional economies. Last year a BIAZA report estimated that zoos contribute more than £600 million pounds to the economy each year. That economic contribution is important However, I am sure that BIAZA will be the first to agree that the contribution of zoos to conservation is paramount. The noble Lord, Lord Harrison, highlighted a number of areas where work might be done with BIAZA to supplement support through its work. Following this debate, I shall ask officials to meet BIAZA to discuss a range of issues, and I myself will also look forward to meeting it in due course. One of the specific issues that the noble Lord, Lord Harrison, raised was its concern about access to lottery funding, and I shall make sure that that is on the agenda.
We value the work that BIAZA is doing continuously to raise standards among its members, not to mention the key role that it plays in supporting the European Association of Zoos and Aquaria in striving to raise standards across Europe. The Government also benefit from BIAZA’s expertise in that two members of the Zoos Expert Committee—the Government’s advisory body on zoos matters—are currently also from BIAZA member zoos.
I should add that we welcome the contribution made by the British Association of Leisure Parks, Piers and Attractions and the National Farm Attractions Network and we look forward to continuing to work with all organisations involved in zoos matters.
Of course, not everyone supports zoos, and some zoos are indeed still striving to meet the required standards. I shall come back to that because noble Lords have specifically raised the issue.
The Born Free Foundation asks that the conservation and education contributions made by zoos are formally evaluated and measured. Zoos are expected to review their activities. Indeed, this is a recommendation of the Secretary of State’s Standards of Modern Zoo Practice—to which the noble Baroness, Lady Smith of Basildon, among others, referred—which sets out the minimum standards that zoos are expected to meet. The conservation and education contribution is also assessed at each zoo inspection to make sure that these activities are taking place and are commensurate with the size and nature of the zoo.
The Born Free Foundation also asks for species-specific guidelines for zoos, illustrating the optimum standards for zoo animals. As noble Lords may know, the Government have recently updated and published the Secretary of State’s Standards of Modern Zoo Practice, which for the first time include a specific section on elephants. The welfare of elephants in zoos had become a matter of concern, with research indicating that serious problems existed. These new standards, which we introduced after discussions with BIAZA, will help to ensure that improvements are made to the welfare of elephants in UK zoos. While I am not yet persuaded that specific guidelines are needed for all animal species, I am happy to look at any evidence which suggests that further government intervention is needed. The Born Free Foundation’s inquiry has been very useful in raising awareness of zoos standards across Europe and I welcome any action which will help to improve standards wherever there are difficulties.
The Captive Animals Protection Society—the noble Lord, Lord Harrison, referred to this, as did other noble Lords—claims that the zoo licensing and inspection system is not being implemented properly and that, as a result, zoo animals are suffering. It is claimed that most of this is because local authorities are inconsistent in their application of the legislation. The Government have always been concerned to help and support local authorities in their role. They have had this role for 30 years—local authorities have been responsible for implementing the zoo licensing and inspection system since 1981. They arrange regular zoo inspections and issue zoo licences. They have powers to attach conditions to zoo licences to require that the standards are met. They have powers to require zoos to comply with any conditions, and ultimately they have powers to close a zoo.
It is the Government’s position that local authorities are best placed to implement the zoo licensing system. They know their local area and have close links with local communities. In many cases, they will be in touch with the zoos in their areas on a day-to-day basis, where they will be able to spot problems before they arise. To help them to carry out these activities, the Government have published comprehensive guidance on the requirements of the 1981 Act and have made this widely available.
I should add that, partly in response to concerns expressed about inconsistency in the implementation of the Act, the Government commissioned research to review local authority implementation. The research found that it was generally good and had improved in recent years, but that further improvement could be made.
The noble Lord, Lord Harrison, and my noble friend Lord Redesdale expressed concern that central government support to local authorities in delivering their zoo licensing obligations has diminished recently. Many local authorities have responded positively to these challenging times by working collaboratively to share good practice across local authority boundaries and through nominating officials who are experts in zoo licensing and who willingly share that knowledge and expertise with their colleagues in other local authorities. My noble friend Lord Redesdale asked me to look into self-regulation, and I am certainly happy to do that, although the directive clearly has an impact on it.
Let me assure noble Lords that the Government are tenacious and, to be fair, I pay tribute to the previous Administration who worked hard over many years to make sure that zoos aspire to and strive to achieve ever higher standards. The 1981 Act first set out the legislative framework for the inspection and licensing of zoos. This framework provided the model for the 1999 EU zoos directive. It is fair to say that the UK has led the way in setting and measuring standards in zoos since that time.
The Secretary of State’s standards are at the heart of the zoo licensing and inspection system. They are the minimum which zoos must meet and are taken into account by zoo inspectors and by local authority licensing officers. The Secretary of State has a list of zoo inspectors who he can call upon, including veterinary surgeons and practitioners who have experience of zoo animals and people who are competent to inspect animals in zoos, to advise on their welfare and to advise on the management of zoos generally. Inspectors play a key role in checking that zoos are meeting the required standards. They also support and assist zoos, helping them with any improvements which may be needed. They also support local authorities, for example, by recommending conditions which should be attached to zoo licences.
Successive Governments have also put in place arrangements to make sure they have the best possible advice to help them in developing policy on zoos matters. The Zoos Expert Committee consists of people who, between them, have a wide range of expertise in zoos matters. They provide independent, impartial and objective advice to the Government, which is invaluable, and for which I am very grateful. In particular, the committee has been instrumental in our work to support local authorities who arguably have the most important role in ensuring high standards in zoos.
But what of the future? I can advise your Lordships that the updated standards will come into effect on 1 November. Also on that date, a new guidance document will come into effect. Zoo Licensing Act 1981: Guide to the Act’s Provisions replaces and updates the existing guidance on the legislation and simplifies and brings together the ad hoc documents which are currently in place. It will help local authorities in carrying out their roles.
In November, Defra officials are hosting a second seminar for Secretary of State Zoo Inspectors who will have the opportunity to share their experiences and to compare their approaches to inspections. The noble Lord, Lord Harrison, asked whether the Government could undertake further assessment of inspection reports. The Government have not only looked at local authorities’ implementation of licensing and the contribution that zoos make to education and research but have also responded to concerns on elephant welfare and have put measures in place to improve it.
The noble Lord, Lord Knight, referred to the Born Free Foundation’s 2009 EU zoo inquiry. The Government welcomed the BFF’s report on England’s zoos and have looked at it carefully in the context of their review of standards in their work on the new guidance for local authorities, taking it into account where appropriate.
The noble Baroness, Lady Smith, raised the Captive Animals Protection Society report A Licence to Suffer. The Government welcome that report and I shall cut things short a bit by saying that we have also taken it very much into account in the preparation of the guidelines, as I think she kindly mentioned.
I hope that noble Lords will agree that the Government are working hard to maintain and improve standards in zoos. I have not mentioned the subject of the better running of European zoos. I suspect that I am running out of time, like the noble Lord, Lord Harrison, but it is extremely important to us and we are at the heart of that. I can assure noble Lords that the Government will do all they can to help support improving standards in zoos, but at the same time we have to continue to recognise in the European context individual member states’ authority in ensuring high standards in zoos in their countries, and the Commission’s role in holding member states to account in complying with the directive.
Finally, I acknowledge the good work being done in zoos up and down the country, and thank the noble Lord, Lord Harrison, for giving us an insight into the activities of Chester Zoo in particular, which I know he holds in high regard.