Thursday 13th February 2020
(4 years, 9 months ago)
Public Bill CommitteesRead Hansard Text Amendment Paper: Public Bill Committee Amendments as at 13 February 2020 - (13 Feb 2020)
The Chair
We will now hear oral evidence from NFU Scotland, Quality Meat Scotland and the Scottish Government. Thank you for coming. The panel will finish at 2.30 pm. Could you introduce yourselves for the record?
Alan Clarke: Good afternoon, everybody. My name is Alan Clarke. I am chief executive of Quality Meat Scotland.
George Burgess: Good afternoon. I am George Burgess. I am the head of food and drink at the Scottish Government.
Jonnie Hall: My name is Jonnie Hall. I am director of policy for NFU Scotland.
The Minister of State, Department for Environment, Food and Rural Affairs (George Eustice)
Q
Jonnie Hall: I am happy to start. I can quote Mr Eustice back at him and say that the CAP has largely “incentivised inertia”—a phrase he has used many times. We agree. The bluntness of area-based payments has not driven innovation or productivity, or indeed delivered on environmental challenges.
In that respect, we see the departure from the EU and from the CAP as an opportunity to develop bespoke agricultural policy tailored to the individual needs of the devolved Administrations. We have some capacity for that already, in the fact that we have four different settlements of pillar 1 and pillar 2 under the CAP, but we are nevertheless constrained by an awful lot of bureaucracy and by the rules and regulations around mapping, inspections, penalties and so on.
It is vital for us to take the opportunity and for Scotland to be allowed, under the devolved nature of agricultural policy development and delivery, to develop its own suite of schemes and measures that fit the needs and profile of Scottish agriculture, which is significantly different from that of the rest of the UK and, in particular, England. That is absolutely right and, therefore, this provides us with an opportunity.
George Burgess: The Scottish Government position, as I am sure all Committee members will know, has not been in favour of Brexit. We believe that continued membership of the single market and customs union is the best way forward on economic, social and environmental grounds. That includes on the common agricultural policy.
Obviously, there will be areas in the common agricultural policy that are not necessarily to our liking. Work has been under way in Scotland, under the “Stability and Simplicity” consultation, to identify, in the short term, any areas where some improvement could be made to the common agricultural policy. That might be around issues such as mapping and penalties, as Mr Hall has mentioned. We are working, through a farming and food production future policy group, to look at longer-term policy in Scotland.
Alan Clarke: I have a couple of points from Quality Meat Scotland. This gives us an opportunity to look outside our normal markets. Currently, 69% of Scottish red meat is being sold in the rest of the UK, outside of Scotland, and 10% goes internationally. It gives us an opportunity to continue to build on that. To do that, protection of our protected geographical indicators is essential.
In addition, we need to have no reduction of standards of any other imports coming into the country, to make sure that we have a level playing field for our food producers. We would like to see transparency of price reporting throughout the supply chain, to enable us to make better decisions across that area. As you will perhaps hear later from me, we have been working closely with the Agriculture and Horticulture Development Board and Hybu Cig Cymru on levy repatriation work. We think there is a lot of work that we could build on across the three nations, if not the four nations.
George Eustice
Q
George Burgess: The Scottish Government’s approach through the “Stability and Simplicity” consultation is that, for the period from now until 2024, we will essentially retain the features of the current CAP system with some scope for simplification, improvement and piloting. Beyond that, we are open to looking at a more radical reform of the policy. That is the approach we are taking through our future policy group, which includes representatives from the farming industry, food production and environmental groups, so that is the forum for considering the longer-term changes in Scotland. Whether it retains area-based payments or moves to some other system, or a combination of the two, remains to be seen.
Jonnie Hall: I support that, in the sense that area-based payments are far too blunt and do not deliver the objectives that we all aspire to, not only in supporting agricultural incomes and productivity but in addressing challenges such as climate change, biodiversity and so on. The sooner we move to an approach that is more action- based than area-based, the better. However, we are in alignment with the Scottish Government in the sense that from 2021 onwards, we will be venturing into uncharted territory in many ways, given the changes in our operating environment, trading issues and other areas. The ability to retain direct income support that offers some stability in the interim is key. We are absolutely in alignment about change, but the key questions are about the pace of that change and how we manage it.
We note with interest what is happening in England and the Bill’s proposals for phasing out direct support. Of course, that would be inappropriate and inapplicable in a Scottish context, so we need the devolved capacity to do things differently. The direction of travel is very much the same and the landing space is probably the same as well, but we have to consider the pace of that change and recognise the challenges and issues that are particularly pertinent to Scottish agriculture.
George Eustice
Q
George Burgess: No, I do not think so. The Agriculture (Retained EU Law and Data) (Scotland) Bill, which implements the stability and simplicity approach for the period between now and 2024, is currently before the Scottish Parliament. I have mentioned the future policy group, which aims to bring forward proposals by the summer of this year. That is the point when we will begin looking at the transition—things that may be piloted between now and 2024—so we are definitely not looking at a sharp cliff-edge transition in 2024.
Hopefully within that time period, we will gain a clearer understanding of our trading regime with Europe and the rest of the world. At the moment, it is frankly quite hard to work out what we should be doing with sectors such as sheepmeat, given that we do not know what the situation with our largest export markets will be.
Jonnie Hall: A number of interests in Scotland have suggested that there should be a sunset clause in the piece of legislation that Mr Burgess has referred to, so that it comes to a definitive end in 2024. However, we would not agree with that, because it would potentially create a cliff edge where we would go off the stability elements that we have talked about and into the unknown. We want to avoid that; we need to be able to adjust to and reflect on the circumstances of the time, and it is right that the Scottish Government have the ability to do so under the legislation that is going through the Scottish Parliament.
Daniel Zeichner (Cambridge) (Lab)
Q
Alan Clarke: It would be a disaster for the Scottish red meat industry. The Scots were pioneers of quality assurance. Scotland was the first country in the world to set up whole of life, whole of supply chain quality assurance, and that gives a unique selling point to our world-class products of Scotch beef PGI, Scotch lamb PGI and specially selected pork. For any diluted product to come to market and be able to compete directly—as far as I am concerned, that has no place on the supermarket shelves.
George Burgess: I suspect you will find a very large measure of agreement at this table. The Scottish Government are very concerned at the prospect that future trade agreements could allow for a dilution of standards.
Jonnie Hall: It is also worth adding that the produce of Scotland—commodities is the wrong word—is not about, “Stack it high, sell it low.” We are not going to compete on world markets. We are not a volume producer. We are based on the authenticity and the provenance of our product, and the welfare standards and environmental standards behind that. If we expose Scottish agriculture to cheaper imports of substandard production methods and so on, we will blow large sections of Scottish agriculture out of the water. That will have significant impacts on the agricultural industry itself, but also, more importantly, on the wider issues around rural communities and the environment and habitats that Scottish agriculture underpins with its extensive grazing systems and so on.
The Chair
We will now hear evidence from George Monbiot. Welcome to the Committee. This panel will finish at 3 pm. Would you introduce yourself, please?
George Monbiot: Thank you. I am an environmental campaigner and journalist.
James Morris
Q
George Monbiot: I think it really important to tighten the definition and to stick with, basically, the classical definition of non-rivalrous and non-excludable. There is potential for slippage within the wording of the Bill, for example into food production that does not fit the definition. We should basically also be funding public goods that are additional and which are not going to be delivered anyway.
We should be very careful not to use subsidies as a substitute for regulation. There is a real danger in saying, “We will put all this on a voluntary basis and we will pay people to do the right thing,” rather than saying, “You may not do the wrong thing.” I feel that there have already been a lot of failures in monitoring and enforcement of cross-compliance under the current subsidy regime. If we are not careful, we could see those failures become a lot worse.
Daniel Zeichner
Q
George Monbiot: One of my aims would be to reduce the area of land used for agriculture. All agriculture is a radical simplification of ecosystems, until you get to the point at which it is so extensive that it is not really agriculture. The Knepp Castle Estate, for example, is a wonderful example of rewilding, but I worked out that if we were to universalise that across much of the UK, we would need to cut our meat consumption by about 99.5%—that is not a great example of agriculture. Until you get to that level of extensification, you are really removing huge numbers of species and a huge amount of potential carbon storage that would otherwise be there.
In this country, we suffer grievously from what I call “agricultural sprawl”—large areas of land used to produce small amounts of food. It gets to the point at which, for instance, sheep farming in the uplands, according to my estimates, occupies roughly 4 million hectares—almost as much land as all our arable and horticultural production put together—yet produces roughly 1% of our food by calories and roughly 2% by protein. That is a remarkably wasteful use of land, which could be much better used for carbon storage through regeneration and rewilding, and for the great resuscitation of ecosystems and the recovery of our very put-upon wild species.
The Chair
We will now hear oral evidence from Professor Bill Keevil from the University of Southampton. We have until 3.30 pm. Will you introduce yourself, please?
Professor Keevil: Good afternoon. I am Professor Bill Keevil, professor of environmental healthcare. I head the microbiology group at the University of Southampton.
James Morris
Q
Professor Keevil: To my mind, food security is the supply of wholesome, nutritious, safe food. Within that the key issue is safety. There has been a lot of discussion this afternoon about whether the UK can provide its own food. If it does not, we have to rely on imports. What is the veracity of checking the safety of those imports?
We made a short written submission to the national food survey—it may have been circulated to you—in which we talked about the microbiological safety of food, particularly from the processing point of view. It deals in particular with the chlorination of food, which has become a very contentious issue in how the UK sees its future trading relationship with countries that use that practice. Currently, the UK follows EU law, with the standing position being that they dislike chlorinating food. Their perspective is not that chlorination poses a toxic chemical risk if you ingest the food; they are more concerned about animal husbandry. As a microbiologist, I would go further and ask the question that most people have ignored until now: does chlorine actually work? Our published research shows that, in fact, it does not.
For more than 100 years, we have relied on the gold standard of examining a sample from patients, the environment or food by culturing it and growing samples in a Petri dish on a nutritious agar medium. If anything grows, something is still alive; if nothing grows, by that definition, everything must be dead. Our research and that of other groups around the world shows that that is not true; it tells us that the current methods of analysis, which help us set the standards, are not rigorous enough. We have to use modern molecular and biochemical methods, which are available, but which, by and large, have not been adopted so far.
Daniel Zeichner
Q
Professor Keevil: As you rightly say, when we look at the data, depending on the source, it can be difficult to interpret because of the way it is recovered. For example, in the USA, they report on infections, some of which are assumed from the evidence they have available. If you look at the reporting of the numbers of pathogens in American produce, such as poultry, they report it in terms of the answer to the question, “Does the food contain more than”—for example—“400 counts of a pathogen per gram of food?” In the UK, the Food Standards Agency reports in terms of “low”, “medium” or “high”. National surveys such as sampling from supermarkets, for example, show that 50% of poultry have very low numbers of pathogens such as a salmonella; only about 5% or 6% have food samples with over 1,000 counts of a pathogen. By those criteria, UK foods appear to be safer—but, I must stress, according to those criteria.
As I say in the written evidence, we now have this vexed question of viable but non-culturable—VBNC—bacteria. When looking at some of the published data, it is very difficult to take that into account, but the work that we and other labs have done is now telling us that we cannot ignore it. We have published our work on chlorine treatment, but we have also looked at what happens when you stress a pathogen such as listeria by depriving it of nutrients. For example, in a factory where you are washing down with tap water, the listeria can still survive, and in those conditions it can become this VBNC form. If all you are doing is regular swabbing and then reporting, you could say, “Our factory is clear of listeria.” In fact, if we used the more modern methods, that might be found to be not true.
We are really talking not just about standards now, but the standards we should adopt in the future, both in the UK and in what we would expect other countries to adopt if we are going to import food from them.
The Chair
Thank you. The acoustics in the room are poor, so it would be helpful if you raised your voice.
James Morris
Q
Diana Holland: The measures we were thinking about have previously been raised in a number of submissions: first, looking at the impact of the Bill on workers in agriculture, and secondly, looking specifically at the reinstatement of the protections of the Agricultural Wages Board, which currently exists, in some form, in Northern Ireland, Scotland and Wales, but not in England.
Why do we think that is important? We do not think that agricultural workers are like every other worker; we think that they are different and their experiences are different. As a union with an incredibly long history of representing them, we speak from experience. They have a special place in the union, and we think that they should have a special place in the Agriculture Bill, too.
Right this moment, the director of labour market enforcement has a session going on to look specifically at the problems of wage theft and employment law non-compliance in agriculture. The Gangmasters and Labour Abuse Authority has had a licensing system in agriculture for 15 years, but it is still recognised as an area with a high level of exploitation and threat of exploitation. That is the background to this.
When the Agricultural Wages Board covered everywhere, there was a level of protection and information that is no longer available to us. Increasingly, you will find that statistics relating to agriculture have little stars by them and a note at the bottom saying, “The sample figures are too small.” That does not mean that there are no other workers to record; it means that they are not hitting any of the official ways of recording people. Increasingly, we find that people are employed in different ways, meaning that they are not recognised in the official statistics in the way they used to be. The Agricultural Wages Board provided a way of ensuring that all that information came to the forefront.
Finally, we have always argued that safe, healthy food and high-quality jobs go hand in hand. There is lots of evidence that where workers are badly treated, there is also an undercutting of food quality standards across the board. We see this as part of ensuring and protecting food standards, food security, supply chains and all the other issues in the Bill. They all have workers associated with them, and we think they should be included and recognised.
Daniel Zeichner
Q
Diana Holland: There are a couple of ways. One would obviously be an additional clause that covered the impact on workers of those developments in agriculture and how the protections that exist in Wales, Scotland and Northern Ireland could also be applied to agricultural workers in England. On top of that, in the rules for agri-food imports, where we will be looking at future developments, we are extremely concerned, first, that there is a lessening of all standards and, secondly, that where food is concerned, while there may be some recognition of protections for food standards, and even of animal welfare, workers may be left out. It should all go together—food, environment, labour protections for everybody.
As I said, when we wrote to our rural and agricultural representatives to ask for examples of issues—I am aware it is anecdotal, but it is important—we found that there are still pressures to hide problems that agricultural workers face, because in small isolated communities personal relationships often extend over other areas and the employer may have other roles in the community that people feel could have an impact on their lives. There is pressure all the time not to speak out about problems that arise. Your accommodation is often tied to your job in some shape or form, whether that is on the horticultural or agricultural side of things. It is those kinds of pressures and those sorts of experiences that we think need to be included; otherwise there is a real danger that, as well as being wrong for the people concerned, they will undermine some of the other things that the Bill is trying to achieve.
The Chair
We will now hear oral evidence from Sustain and Compassion in World Farming. We have until 4.30 pm. I welcome the witnesses and would ask them to introduce themselves for the record.
Dr Palmer: I am Nick Palmer. I am the head of Compassion in World Farming UK. Compassion is the largest animal welfare charity globally, and we have developed our interests to also look at the environment surrounding animal welfare issues. In the mists of pre-history, I was the Member for Broxtowe for 13 years.
James West: I am James West, the senior policy manager at Compassion in World Farming—I work with Nick.
Vicki Hird: I am Vicki Hird, farming campaign co-ordinator at Sustain, which is an alliance of over 100 non-governmental organisations and royal societies, including Compassion and many other people you have had as witnesses.
James Morris
Q
Dr Palmer: The Bill is a good basis, but it is a missed opportunity in the sense that it provides the basis for a variety of things that the Secretary of State may do, but it does not specify what the Secretary of State will do. In the current situation in particular, after Brexit, the farmers and everyone dealing with the industry need more certainty. This would really be an opportunity to pin down what we are prepared to do and what we are not prepared to do in terms of trade, support for the farming industry and a long-term strategy to ensure that we have a viable farming industry stretching into the future.
James West: I would add that it is important that the Bill is joined-up in its thinking, in as far as protection from potentially being undercut—as I am sure you have heard lots of times—as a result of trade agreements. That is fairly critical. That is not in the Bill. Added to that would be that you are then providing farmers with subsidies and grants to help them move to higher standards of production. We should also be looking at things such as method of production labelling—as Nick said, that it is a “may” in the Bill, rather than a “must”—so that consumers know what they are purchasing. We should also look at Government procurement policy, so that in addition to protecting farmers from what is coming into the country, you are also rewarding farmers for delivering higher standards and for protecting our animal welfare standards. Just on Government procurement, McDonald’s has better animal welfare procurement policies than the UK Government, which should not be the case, and the Bill could address that.
Vicki Hird: We were very pleased to see some of the changes in the Agriculture Bill. Overall, we are very positive about the public money for public goods approach and the financial support being listed. We were very pleased to see soil being included in that. We would like to see a stronger reference to agroecological whole-farm systems, because we think that is the way to ensure that you get the in-field changes, as well as the edge of field, wildlife and other nature outcomes that you see. We need the whole of the UK farming system to go towards an agroecological approach in whatever way they can. Those steps should be available through financial support.
We would also like to see, as Nick said, a lot of these things as duties, rather than powers. It seems incredible how much effort—I know, because I have been involved—DEFRA has put into the environmental land management scheme, when it could stop it all in a couple of years and pay a smaller amount of money and not follow through. As MPs, you should have that accountability for you on delivering ELMS.
Finally, I agree with Diana on the protection for workers. We are also pleased with clause 27, which concerns fair dealing. It has been enhanced to really protect farmers. We are grateful to DEFRA for making those changes and to George Eustice, who we welcome as our new Secretary of State. We would like to see that as a duty, because it is so important. It is absolutely vital that we get the protection for farmers in the supply chain. They do have that from retailers, but most farmers do not sell direct to retailers. They need good codes of conduct developed with the industry for every sector, probably starting with dairy.
Daniel Zeichner
Q
Vicki Hird: Thank you for reminding me about the public health purpose. We think it would be very easy to insert it into the Bill. There are so many ways it is already designed to help, for instance with air pollution and with reducing exposure to plant protection products, which can be harmful. We think that saying that there is a public health purpose for agriculture would recognise what an important thing farmers do in providing us with healthy, safe food. It could help by showing that having animal health and welfare measures that help farmers to manage their stock and change their stocking patterns can reduce the reliance on antibiotics, which we know is an absolute global public good, in order to protect our medicinal antibiotics.
The other area is the huge need to boost our supply of fruit and veg, so that people can have access to closer-to-home, more affordable, fresh, sustainably produced fruit and vegetables. That is absolutely central to a healthier diet for the nation. To be able to say that we were doing that would be a benefit. As James was saying about procurement, we could be saying something about procurement and investing in healthier diets for our children in schools.
The Chair
We have until 5pm for evidence from the representative of Which? Welcome. Could you introduce yourself?
Sue Davies: Good afternoon. My name is Sue Davies. I am head of consumer protection and food policy at Which?.
George Eustice
Q
Sue Davies: May I start by saying congratulations on your appointment, Mr Eustice?
We support the public money for public goods approach. We think it is the right way to go, but there is a real opportunity to put more about consumers—the people who will ultimately be eating the food—in the Bill. There is a range of ways in which that could be done. We have a real opportunity to redesign agriculture policy to make sure that we have a much more joined-up approach to food and farming policy in general. We welcome the commitment to the national food strategy, for example, as part of that.
The public money for the public goods that are included is really important, but we would also like to see a stronger focus on other consumer benefits, particularly in relation to food safety, public health and reducing antibiotic resistance. When talking about productivity and increasing food production, we fine that people care so much about food. We have done lots of consumer research over the years. In the last couple of years, we have particularly focused on asking people about food standards.
People expect the UK to have really high standards and that, if anything, we will build on the standards that we have at the moment. We talk about productivity, and we want it done in a way that meets consumer expectations. We would also like to see a more general commitment to upholding high food standards in the Bill.
George Eustice
Q
There is a separate area that is about public health campaigns, healthy eating and food standards, but obviously measures are already in place through the Food Safety Act 1990 and the work that the NHS does to encourage healthy eating. Our view is that we do not want to duplicate work that is already present in other fields and is the responsibility of other Departments.
Sue Davies: I can see that to some extent, but there is a real opportunity to integrate public health much more in farming practices. A good example of that is the work the Food Standards Agency did a couple of years ago to try to reduce campylobacter rates in chickens. We have regulation to some extent around that to try to control the practices that are used, but it was only by incentivising action throughout the supply chain—in that case, by the Food Standards Agency doing a retail survey, where it was, in effect, naming and shaming retailers by showing how campylobacter levels compared—that that led to co-operation across the supply chain to look at what measures could be put in place. That included measures in slaughterhouses as well as a strong on-farm focus, such as looking at biosecurity measures and what happens in relation to thinning.
It is that kind of approach that we feel should be included, and certainly the opportunity to do it should not be excluded. Some things will require regulation, and we definitely think they should be regulated, but it is a mix of using regulation and wider incentives to raise best practice. For issues such as antibiotic use, there is an opportunity to try to incentivise the reduced use of antibiotics again, on top of the legislative requirements that we have.
George Eustice
Q
Sue Davies: It is certainly really positive that that is in there, but if there are specific measures where the main goal is focused on human health, rather than animal health, that should be included in the Bill. Ultimately, the Bill will determine the types of food choices we have as consumers and the sorts of standards to which our food is produced. Obviously, a lot of other policies will have an impact on that, but we think this is a real opportunity to shape our food system in a positive way that works for consumers as well as farmers. We should not miss these really good opportunities to include that in the Bill at this point.
Daniel Zeichner
Q
Ms Davies, I am bound to ask you the question that I have asked virtually every other witness: from a consumer’s point of view, what would be the impact of allowing imports produced to lower standards? I think I can probably guess the answer, because it has been very consistent across all our witnesses. At the end of the whole chain, particularly with ready meals and so on, do you feel that consumers know enough in the current system? Could we not do more through the Bill to lift standards, particularly on antibiotics and so on?
Sue Davies: I think your food standards question is really important and shows why we need to make sure that we have a joined-up policy. This will have a big impact on the sorts of choices that consumers can make, but if we do not address other policies, particularly trade policy, it could completely undermine all the positive things that we are trying to achieve with the Bill.
As I mentioned, we know from our consumer research that people have really high expectations on food standards. Some 93% of people said they expect that food standards will be maintained, and ideally people think they should be enhanced now that we have left the EU. People do not expect cheaper imports to come in and undercut our producers. People want to support UK producers, particularly of products such as meat and dairy, so the tariff schedule that has come out is interesting. All of that has to be joined up to make sure that we are not trading away our standards and potentially bringing in safety issues, or allowing production methods that we know consumers do not find acceptable.
We saw with the horsemeat scare that food has many different aspects. Some are about safety, and others are cultural—people just do not want to eat food that is produced in certain ways. We have been doing a lot of survey work and we know that around eight in 10 people have concerns about eating hormone-treated beef. A similar number have concerns about food produced using antibiotic growth promoters. Those practices are used in some of the countries with which we will seek to reach trade deals—hormones in the case of the US, Australia and New Zealand. We absolutely have to ensure that trade policy builds on our current standards. If anything, we are looking to improve our standards rather than allow them to deteriorate or accept lower quality imports that will make it very difficult for UK producers to produce to the standards that consumers expect.
We have also asked about labelling issues, because sometimes it is suggested that people can decide if you just label everything. People feel strongly about it and do not think that labelling is the solution. That applies to people across all socioeconomic groups; it is not just better-off customers who can make this sort of choice. We think it is really important that there is something in the Bill that makes it clear that we should maintain and build on our food standards.
We have asked people what they think about labelling, and they generally tell us that they think the labelling information is about right, but when you ask people about where improvements might be made, they talk about things such as helping people to make more sustainable choices and improved animal welfare labelling. There is scope to look at how we can improve that by building on the labelling information that we have already. One area that we know people feel strongly about is the traffic light nutritional labelling system, which we would like to be made mandatory when we have the opportunity to legislate to do so.