The Minister of State, Home Office (Lord Bates) (Con)
My Lords, our country is diverse, democratic, peaceful and economically successful. We are all rightly proud of it. We want to protect it but it is also no surprise that we are a country experiencing positive net migration, attracting the brightest and the best, those seeking refuge and those in search of a better life. As more people seek to come here and as the global landscape continues to change, we must ensure that the UK remains a country with fair and safe workplaces, access to adequate housing, quality public services and security against changing threats.
Today, we start to debate the Immigration Bill. Immigration legislation is always a contentious subject and I know that we will take great care exploring the detail. However, this Bill has the interests of the country as a whole at its heart. Tackling illegal immigration builds social cohesion, takes pressure off public services and creates the space, politically, socially and economically to help those migrants in need, as we are now doing with refugees from Syria.
One of the principal aims of this Bill is to implement a manifesto pledge to crack down on those individuals who exploit workers in our country and to support working people. The national living wage, welfare reforms and economic growth are just part of our commitment to support workers. In the last quarter, 73.7% of people aged 16 to 64 were in work, the highest employment rate since comparable records began in 1971. However, in the shadows of our economy there are some abuses and exploitation that we must tackle. Some of the victims are migrants, but the criminals exploiting the vulnerable have no regard for their immigration status. We have laws to tackle these abuses and we have agencies to enforce these laws, but we all agree that we could do better. There are multiple enforcement bodies for employment legislation, each with a good reputation and each working well, but they are fragmented, have different lines of accountability and do not always share intelligence. Organised criminals find it too easy to get away with deliberate exploitation of workers. That is why the first thing the Immigration Bill will do is to bring tougher and better co-ordination of enforcement in this field.
Some have said that the Bill will deter victims of labour market abuses from stepping forward and exposing criminals. We believe that nothing could be further from the truth. Illegal workers and the victims of exploitation are not necessarily the same people. Illegal workers, in most cases, have come to the UK for personal economic gain, circumventing our existing immigration laws. The current offences of entering the UK illegally and breaching immigration conditions date from 1971, but equivalent offences predate even that. Where there are victims, the system is loaded with safeguards. The Modern Slavery Act provides a statutory defence for victims of exploitation. The Crown Prosecution Service and the courts will provide the necessary oversight and support for the enforcement agencies, which will always seek a fair and proportionate outcome.
The Immigration Act 2014 broke new ground on regulating migrant access to services. This House gave it careful scrutiny to ensure that the vulnerable were protected, but also to ensure that the UK remained an attractive destination for international students and investors. We agreed to the creation of the immigration health charge, and to controls on access to bank accounts, driving licences and housing. The right to rent scheme drew considerable debate but was ultimately accepted with additional safeguards and a commitment to a careful, phased implementation. The Government recently published our evaluation of the first phase of that implementation, which I am sure we will debate in detail, but I am confident that the fears of two years ago have not materialised. We worried that international students would not able to secure a home, that the vulnerable would be rendered homeless and that landlords would not understand the documentation; we worried about discrimination. These concerns have been, and continue to be, taken seriously and remain the focus of our efforts to ensure that problems of this nature do not arise as we roll the scheme out across England and then the rest of the UK.
The new reforms to bank accounts and driving licences will further ensure that those who are here unlawfully cannot take advantage of our generous services. We want to stop illegal migrants driving on our roads and to deny them the use of bank accounts. Illegal immigration has a detrimental impact on multiple parts of society, from businesses who are undercut by unscrupulous employers paying low wages to illegal workers, to the threat that can be posed to social cohesion within local communities. Although immigration officers already have existing powers to deal with illegal immigration, we can and must go further. That is why we are providing a basis for public authorities to share documents they hold that may assist the Government in controlling immigration. In doing so, we are simultaneously supporting a collaborative approach to tackling illegal immigration: a vital part of the Government’s objectives. Existing partnerships between immigration enforcement and the police have led to over 3,600 people being removed from the UK, so the benefit of collaborative working is clear. This must be strengthened, which is why we will also ensure that our immigration enforcement warrants are aligned with those of the police. Through this Bill, we will also fulfil the Government’s manifesto commitment to satellite-tag foreign national offenders when they are released on immigration bail, so that we know their whereabouts and can improve public protection.
Another method of combating illegal immigration is to accelerate the removal of those who no longer have the right to be in the UK. Under the 2014 Act, the introduction of the “deport now, appeal later” scheme has had a beneficial operational effect, allowing us to deport hundreds of foreign criminals before they appeal. This is why, in our manifesto, the Government committed to extending this to cover all human rights cases, except asylum claims. I reassure the House that this measure will only be used when requiring someone to appeal from overseas will not cause serious or irreversible harm, or otherwise breach their human rights. The best interests of any children affected will remain a primary consideration for the Home Office before making a decision to exercise this power. We are therefore confident that the extension of this scheme is a proportionate response to maintaining effective immigration control, a position supported by the Court of Appeal’s recent ruling that the Government are generally entitled to proceed on the basis that out-of-country appeals are a fair and effective remedy.
This House will agree that supporting asylum seekers, and ensuring we offer protection to the most vulnerable, is a cornerstone of our democratic and humanitarian society, particularly given recent events. However, the Government believe that it is right to demonstrate our commitment to those who are in search of humanitarian assistance by delivering on our obligation to spend the targeted 0.7% on international aid. We are the only major economy to do that. We are also committed to supporting those affected by the crisis in Syria by delivering £1.1 billion to that region: several multiples of the required share. However, it is not justifiable—or it is difficult to justify—that we spend millions of pounds supporting failed asylum seekers; individuals who have had their claims refused and exhausted their appeal rights, and who should leave the UK where there is no obstacle preventing them. That is why this Government are taking firm action to restrict such support to failed asylum seekers who are destitute and face genuine obstacles to leaving this country.
I can assure your Lordships that there will continue to be safeguards to protect children. In addition to the continued Home Office support that I have just referred to, local authorities will remain able to support families without immigration status who would otherwise be destitute. Some have voiced their concerns that this will simply result in the burdens being transferred to local authorities and the third sector. This is not the intention or the reality. Local authorities do not have a general obligation to accommodate illegal migrants who intentionally make themselves destitute by refusing to leave the UK. Instead, those who do not qualify for Home Office support can, and should, leave the UK and we will work closely with local authorities to encourage and enable them to do so.
This Government have also taken positive steps to relieve some of the burdens which local authorities face to ensure that their finite resources are used effectively. Currently, the framework under which local authorities can support migrants without immigration status is complex and burdensome to administer. This is inefficient and a waste of taxpayers’ money, so the Bill will simplify this process while ensuring that those genuinely in need of support continue to receive it. I appreciate that many in your Lordships’ House will again be concerned about the impact on children, but I assure the House that local authorities will continue to support children and their families to safeguard and promote the child’s welfare.
A further significant burden that local authorities face is the requirement to pay international tuition fees for adult migrant care leavers, which generally range from £12,000 to £15,000 per year but can be as much as £30,000 per year. This Government are not trying to deny these adult migrants access to a university education but the current position is unfair to other migrants and British citizens, who must qualify under regulations for student loans. So to ensure greater consistency and fairness, the Bill will relieve local authorities of the obligation to pay these fees. Finally, we must make sure that we avoid a repeat of the situation that occurred this summer, where a small number of local authorities incurred substantial financial pressure to care for an unexpected number of unaccompanied asylum-seeking children. We are therefore taking steps to encourage other local authorities to voluntarily accept responsibility for such children while simultaneously making sure that we have the required powers, through the Bill, to transfer responsibility for unaccompanied asylum-seeking children between local authorities.
While illegal immigration poses a significant problem for the UK, it is not the only area which requires greater control. We must ensure that we know who is coming into and leaving the UK, irrespective of whether they are lawfully here or not. A lack of control over our borders poses a significant risk to our national security—a risk we cannot afford to take. So the Bill contains measures to ensure that airlines always present passengers to immigration control, and that the Government automatically apply UN and EU travel bans to stop dangerous individuals coming to our country.
Our manifesto committed to requiring all public sector workers in customer-facing roles to speak fluent English. Some have questioned whether there is a need for this measure. First, it is important to stress that many professions within the public sector already require standards of spoken English and that this measure simply brings the rest into line with the forerunners. I am sure we can all agree that it is essential that all members of the public who need to access public services can understand the information provided to them and be confident of their needs being understood. Not only is the provision important for that purpose but it contributes helpfully to another manifesto commitment, to promote British values within society, and will simultaneously increase the efficiency and effectiveness of public services funded by the taxpayer.
Finally, many businesses in the UK are now choosing to hire overseas workers. This has the knock-on effect of denying our resident workforce the opportunity to secure employment and develop its skills to fill existing shortages. The Government have taken positive steps to reduce unemployment in the UK. For example, in the last quarter, youth unemployment stood at 653,000, down 83,000 from the previous year. But more is needed. That is why the Bill introduces a charge for employers recruiting from outside the European Economic Area, with the money raised helping to train resident workers and fund apprenticeships in the UK.
There are many speakers down for this debate with immense personal experience in this area, and as always I assure them that the Government will listen very carefully to their contributions and concerns today and of course, as the Bill progresses, to their suggestions for improvements. I am sure we all want to see the continued prosperity of our great nation. We must ensure we continue to welcome the brightest and the best migrants to the UK while also continuing to provide humanitarian relief to those who need it most. However, an inevitable requirement for that continued prosperity is to ensure that the generous and invaluable services the UK provides are safeguarded for those who have a right to be here, as well as for the most vulnerable in our society and those requiring our international humanitarian protection. That is the balance the Bill achieves and I commend it to the House.
Lord Bates
My Lords, I thank all noble Lords who participated in this debate. It has been a passionate debate, enhanced by the level of first-hand experience and knowledge that noble Lords have in dealing with these very difficult issues.
I will start with an issue that came up quite a few times. The noble Lord, Lord Kennedy, and a number of other noble Lords mentioned the process by which we have got here, so I will deal with that before I go on to policy. The right reverend Prelate the Bishop of Southwark also touched on this. The question was asked: on what basis of evidence are we acting here? What is the basis on which we are legislating? Of course, we have the evidence from the Immigration Act 2014, which the coalition Government took through the House. A lot of the proposals in this Immigration Bill are an extension of areas covered in that Act. We have had the opportunity to see how that has worked in practice over the past couple of years.
We have also, in the process of putting this together, outlined in the briefing pack the draft codes of practice. We have issued the Bill’s European Convention on Human Rights and Delegated Powers memoranda, along with policy equality statements. We talked technically about pre-legislative scrutiny, and there were two days of evidence-gathering in the other place before Committee formally started. Some 48 representations were made to the Public Bill Committee on the legislation in another place, which were taken into account during Committee, which lasted for five and a half days. There were some 35 Divisions. I am not saying that it is always a contentious issue or that we anticipate that it will be, but there was a level of rigour in the scrutiny in the other place that should give us some confidence as we approach this.
We have also seen, in the time since we started the process, the Court of Appeal’s ruling on out-of-country appeals, and the Government’s evaluation of the right to rent scheme, which was published in October—I thank the noble Lord, Lord Best, for contributing to this. The Ewins report on domestic workers, which I know the noble Lords, Lord Hylton and Lord Alton, will want to discuss further, was published just before Christmas. The report of the Independent Chief Inspector of Borders and Immigration on illegal working and immigration removals has just been published. The Shaw report on immigration and detention, which I know is of significant concern, will be published in early January—certainly by the time we reach Committee.
There will also be a Migration Advisory Committee report on the operation of tier 2, in addition to the Home Affairs Select Committee report. Extensive consultations have taken place, including the government consultation on tackling exploitation in the labour market, which we have yet to respond to but which is there in the briefing pack. The Government’s response to the consultation on reforming support for failed asylum seekers and other illegal migrants is another basis for our legislation. There is also the government consultation on draft language requirements for the public sector workers’ code of practice. On the specific point about signing, there is no question that signing would not be covered under this but there is a consultation on that. I go to that length to show that process is very important. It was important, too, for the Modern Slavery Act. I want to put on record that there has been a significant amount of evidence gathering to build the case for the actions we propose here.
Turning to the policy, one thing we tend to be in general agreement about is that there is an issue with illegal immigration into the country. Lots of noble Lords prefaced their remarks by recognising that. Indeed, my noble friends Lord Horam, Lord Sherbourne, Lord Hamilton and Lord Balfe, and the noble Lord, Lord Green, all pointed to the fact that this was an issue of significant public concern. Certainly, my noble friends Lord Horam, Lord Balfe and Lord Hamilton also mentioned that this was something central to the Conservative Party manifesto—and the government manifesto, in that we announced our intention to legislate on it in the Queen’s Speech. In fact, a number of the areas we are dealing with in this Immigration Bill were also subjects in the Labour and Liberal Democrat manifestos. There is an agreement at a high level that there is a problem.
We have categories of people here. We have people who come here through the right of free movement in the European Union. We have issues with that which are being taken on and discussed with our European colleagues at present. We also have the plight of many people suffering around the world. I was very moved by the words of the noble Earl, Lord Listowel, and others who spoke of the plight of those refugees. None of us, at this time in particular when we remember another refugee in a foreign land fleeing persecution, should be immune to acknowledging the tremendous pain and anguish that many people face in these countries. The noble Earl said “there but for the grace of God go I”, and that should challenge us with a sense of humility but also the deep desire to ensure that we treat people with the dignity and humanity that my noble friend Lord Sherbourne invited us to put on the record. People who come to this country in search of help enter our asylum system. All Governments —coalition and Labour—have a proud track record of offering sanctuary to those people fleeing in fear of persecution.
Then there are those people who circumvent the immigration procedures and are found not to be genuine asylum seekers when their claim is tested through the appeals process and tribunal service. The question then is: what do we do? Therein comes a debate. I am very conscious of the hour and the fact that officials have been very busy in providing answers to 64 questions. It may be better if I put some of the substantive answers to those questions in writing to colleagues, ensuring that they have them before the beginning of our first week back on 11 January. All the answers are here. Of course, 11 January is also the date when the Government must table the amendments they intend to bring forward for consideration on 18 January.
I was grateful to the noble Lord, Lord Ramsbotham, for mentioning the timing. We listened very carefully, as we always do, when we attended the Cross-Bench Peers to talk about this issue; there was concern, and we have reacted to that. My noble friend Lord Taylor has responded to that from the Government Whips’ Office and has been able to secure for us additional time, which I think will be appreciated by all, so that people can reflect upon this Second Reading debate as well.
I shall deal with some of the particular points that were raised. The noble Lords, Lord Rosser and Lord Alton, asked about the impact of the Bill. We have published six separate financial impact assessments on various parts of the Bill, as well as a range of equality assessments. The recent report by the Chief Inspector of Borders and Immigration commented on the Government’s success in our aim of year-on-year increases in confirmed voluntary departures every year since 2012-13.
On border security, the noble Lord, Lord Wallace of Saltaire, asked a specific question about private helipads. The Counter-Terrorism and Security Act 2015 included stronger legislative provisions and protection for notification in advance of people arriving on private airstrips, and we would certainly expect an equality of scrutiny for all people coming into this country.
The issue of appeals was raised by the noble Lords, Lord Dubs and Lord Roberts, the noble Baronesses, Lady Ludford, Lady Kennedy of The Shaws and Lady Lister, among others. Appealing from outside the UK does not mean that appeals are less likely to succeed. Internal Home Office statistics for the past five years to July 2015 show that 38% of entry clearance appeals succeeded. Some 42% of appeals succeeded in 2015 in the comparable in-country category of managed migration appeals. Both these categories of appeal could involve human rights claims.
On the point about family reunion, which was raised by the noble Baroness, Lady Hamwee, and the noble Lords, Lord Hylton and Lord Dubs, we recognise that families may become fragmented because of the nature of conflict and persecution, and the speed and manner in which those seeking asylum often flee their country of origin. Our policy allows the immediate family members of a person granted refugee leave or humanitarian protection in the UK, their spouse or partner and children under the age of 18 who formed part of the family unit before the sponsor fled the country, to reunite with them. We have granted over 21,000 family reunion visas over the past five years, 2010-14. Numbers are likely to increase over the next five years in line with the number of applications that are received.
With regard to the points raised about landlords by the noble Lord, Lord Rosser, the noble Baronesses, Lady Kennedy, Lady Lister, Lady Sheehan and Lady Janke, I have acknowledged the work done by the noble Lord, Lord Best. The Government gave careful consideration to concerns about potential race discrimination when establishing the right to rent scheme. These concerns are understandable, and the right to rent checks were carefully crafted in consultation with bodies representing landlords, agents, local authorities and housing charities before the scheme was rolled out. A wide range of documents can be provided to give evidence of the right to rent. The Government recognise the need to be flexible so as not to disadvantage, for example, the minority of British citizens who do not hold a passport.
On detention, I have given an undertaking that Stephen Shaw’s review, which I know is eagerly awaited, will be published before we reach the relevant stage in Committee, while our response will be published before the clause on immigration bail is debated. While there is no fixed time limit to immigration detention—in fact, that is a matter that was discussed in previous legislation—there are well-established principles set out in case law, known as the Hardial Singh principles, which state that for detention under immigration powers to be lawful there must be,
“a realistic prospect of removal within a reasonable timescale … Detention must be used sparingly, and for the shortest period necessary”.
An arbitrary time limit would potentially allow criminals and non-compliant individuals to play the system, as it were, which was a point raised by the noble and learned Lord, Lord Brown of Eaton-under-Heywood.
At that point, I shall draw my remarks to a conclusion.
Lord Hamilton of Epsom
I know that everybody wants to get off for Christmas, but I would be very grateful if the Minister would write to me on EU citizens claiming national insurance and how that relates to net immigration figures.
Lord Bates
I am very happy to do that. A number of noble Lords asked me to write to them on various technical aspects and I will do that. That letter will be sent out on 11 January, a week ahead of Committee stage.
My noble friend has raised one of the elements which is a problem. It is that we do not fully understand the scale of the problem. We deal with estimates. Even when the ONS undertakes forecasts, they are based on estimates. With effect from April, there will be exit checks and therefore we will know who is coming into the country and who is leaving the country and will be able to deduce by fact how many overstayers or illegal migrants there are.
Lord Alton of Liverpool
I realise that we are coming to a conclusion, but I think the Minister would agree that the theme that has run through the debate in your Lordships’ House today has been about destitution, deliberately making people destitute and the way that links into the landmark legislation last year on modern-day slavery and human trafficking. Before he concludes, will the Minister say a word about that? I do not think it should be left to a letter.
Lord Bates
The Bill does not represent a threat of destitution. We are simply making it clear that failed asylum-seeker families and other illegal migrants cannot expect automatically to be in receipt of Home Office and local authority support in circumstances where they could and should leave the UK. We need a better basis of incentives and possible sanctions on which, together with local authorities, to engage with these families in a process that secures more returns. We believe that the Immigration Bill will deliver that. I do not expect that to satisfy the noble Lord because I know he takes a great interest in this area, rightly so, and speaks up for those in need. We are not unmoved by that. As with previous Bills, in Committee we will work together constructively, with the general recognition that there is a problem and that the Government have received a mandate from the electorate to do something about it, to ensure that that mandate is delivered in a way which gets to the people we want to tackle and protects those who are in need of our protection. That is the challenge of the Bill. It has been eloquently set out by contributions to this Second Reading debate and I am sure it will be returned to in the new year as we go through the Bill methodically in Committee.
Bill read a second time and committed to a Committee of the Whole House.