Health Protection (Coronavirus, Restrictions) (Leicester) Regulations 2020
(Limited Text - Ministerial Extracts only)
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The Minister for Patient Safety, Mental Health and Suicide Prevention (Ms Nadine Dorries)
I beg to move,
That the Committee has considered the Health Protection (Coronavirus, Restrictions) (Leicester) Regulations 2020 (S.I., 2020, No.685)
It is a great pleasure to serve under your chairmanship, Sir Christopher. I have sat in your Chair many times over the past 10 years, but this is the first time I have been here in my role as a Minister, so now I know how it feels.
The regulations were made on 3 July and came into effect the following day. They have not yet been formally cleared by the Joint Committee on Statutory Instruments. This debate has been listed as quickly as possible to address Parliament’s concerns about delays between making regulations and scheduling debates. The regulations were necessary to give effect to the announcement made a few days earlier on 29 June by my right hon. Friend the Secretary of State for Health and Social Care that targeted measures needed to be taken to tackle the outbreak of coronavirus in Leicester.
The concern about the outbreak in Leicester was significant and was shared by local leaders, including the local authorities and the local resilience forum; by national organisations, including Public Health England; by the local directors of public health, Ivan Browne at Leicester City Council and Mike Sandys at Leicestershire County Council; and by the Joint Biosecurity Centre, Ministers and the chief medical officer.
Of course, the decision to take action was not driven by one number. It was a judgment about the overall situation, but some of the figures we had in front of us when the targeted lockdown was imposed bear repeating, because they are stark. At that stage, the seven-day infection rate in Leicester was 135 cases per 100,000 people, which was three times higher than the next highest area. Admissions to hospital were between six and 10 per day in Leicester, rather than around the one per day at other trusts.
Action had already been taken to protect people in Leicester by deploying mobile testing units and providing extra capacity at the regional test site. Extra public health capacity had been deployed to boost the local team. Additional financial support was provided to the local authorities to provide business grants, including £70 million to Leicester City Council. We hoped that the interventions and the work of the local public health teams would get the infection rate down without our having to take more drastic action.
By the end of June, however, it was clear that the high rate of infection was continuing. The cross-Government covid-19 operations committee, chaired by the Prime Minister, therefore decided on 29 June to take further measures to tackle the outbreak. The Secretary of State set out the measures in his statement.
Most of the measures taken did not require legislation. We increased testing capacity further: there are now 10 mobile test units deployed across the city, a regional test site and three local test sites. Four of the mobile units operate on a hyper-local basis, enabling teams of NHS and council volunteers to go door to door across the communities with the highest positivity rates.
We also gave additional funding to the two upper-tier local authorities involved. In addition to the £70 million, Leicester City Council was provided with approximately £2.5 million, and Leicestershire County Council approximately £2.3 million—that is £4.8 million between the two upper-tier authorities. That enabled them to enhance communications, including in locally relevant languages. Public messages on the virus in Leicester were translated into 12 different languages, and a wide range of locally relevant formats were used to communicate those messages, including various social media platforms, posters, and videos by GPs who speak different languages and by Ivan Browne, the local director of public health. Messages were also broadcast from local radio stations in different languages as well as through community leaders and volunteers on the ground.
We also concluded, however, in discussion with the local team, that the restrictions in Leicester would need to be tightened, even as the restrictions were being eased elsewhere in the country. People in Leicester were advised to stay at home as much as they could. We recommended against all but essential travel to, from and within Leicester. Shielding measures could not be relaxed, as they were in the rest of the country the following week. Schools in Leicester would close, except for vulnerable children and children of critical workers.
It would not be proportionate or practicable to ban travel altogether, but we concluded that it was necessary and proportionate for people living in Leicester not to be allowed to stay overnight away from home without a reasonable excuse. It was not safe to allow the easing of social contact measures, including those on gatherings, that the rest of the country benefited from on 4 July.
We also concluded that non-essential retail in Leicester would have to close again. We recognise how difficult and disappointing that was for citizens and businesses in Leicester, but it was the only way we could bring the outbreak in the city under control. We must keep people in Leicester, as elsewhere in the country, safe from this terrible virus.
I shall now move on to the regulations themselves. Given the concern about the situation in Leicester, we used the emergency procedure to make the present set of regulations as soon as we could. They give effect to the decisions set out by my right hon. Friend the Secretary of State. In particular, they require the closure of non-essential retail; limit overnight stays away from the place where individuals live, or a linked household, without reasonable excuse; restrict gatherings to six or fewer outdoors and to no more than two indoors; and enable households containing only one adult, or one adult and one or more people under the age of 18, to link with another household.
The people of Leicester have responded well to these restrictions over the past two weeks, and I would like to thank them for that—as, I am sure, everybody would—and to recognise the impact that they are having on their daily lives. We are required to review the regulations every two weeks, and we will announce the outcomes of the first review shortly.
Coronavirus is the biggest challenge that the UK has faced in decades. The resilience and fortitude of the British people in complying with the national lockdown that we introduced in March has been a true national effort and something of which we can all be proud. It is of course welcome that we have been able to start easing the national restrictions in line with our road map. That reflects the continued decline in the daily death rates and the downgrade in our covid alert level from level 4 to level 3.
We always knew, however, that the path out of lockdown would not be entirely smooth. It was always likely that infections would rise in particular areas or workplaces, and we knew that we would need to be able to respond quickly and flexibly to those outbreaks. We are now working with local authorities, and at national level, to ensure that we have the data and analytical capability to spot potential outbreaks quickly. We have, and will continue to develop, a range of tools and powers that will allow us to respond effectively and proportionately.
We will be saying more in the coming days about our plans for responding to local lockdowns and the powers that will be available. The Leicester lockdown has demonstrated our willingness and ability to take action where we need to. We will of course use the experience of the lockdown in Leicester to inform and help us to develop our responses to any future local outbreaks.
I shall now talk through what the Leicester regulations are designed to achieve. I will not go into detail about the national regulations that sit alongside them, because they are being debated in another Committee Room along the corridor. In general, these regulations return Leicester to where the national lockdown was in the first half of June, before non-essential retail could be opened.
Part 1 of schedule 1 to the regulations lists the postcode districts covered by the regulations. In discussion with the directors of public health at Leicester City Council and Leicestershire County Council, it was agreed that the restricted area for the purpose of a lockdown needed to go beyond the boundaries of Leicester City Council into a number of suburbs of Leicester to the south, west and north of the city that are the responsibility of the county council. The boundary makes sense geographically, as can be seen from the map that was widely circulated, but the simplest and most certain way to describe the areas covered by the restrictions was to list all the affected postcodes. This means that people and businesses could be in no doubt about whether they were covered by the restrictions.
Regulation 2 requires the Secretary of State to review the need for restrictions and requirements by 18 July—this coming Saturday—and thereafter at least once every 14 days, if necessary. In any case, under regulation 12, the regulations will expire six months after they commenced on 4 July, if they are not amended or revoked before then.
Regulations 3 and 4 set out the requirements on non-essential retailers to close. The types of business that need to close are set out in schedule 3. In line with the national regulations on closure of non-essential retail, there are some detailed provisions to clarify how these regulations will operate in particular circumstances, and some necessary exceptions. The requirements will be familiar to businesses from the national lockdown.
Regulation 5 sets out the restrictions on movement. The restrictions prevent people living in the protected area from staying overnight away from their home without a reasonable excuse. They can stay in a linked household. A non-exhaustive list of reasonable excuses is specified. For example, it would be reasonable to stay overnight in order to attend a funeral of a close family member, for work purposes, or to attend a birth.
Regulation 6 restricts gatherings of more than six people outdoors, or of two or more people indoors. There are some necessary exceptions to the restrictions on gatherings—for example, if the person is attending a funeral, or if the gathering is reasonably necessary for work or educational purposes.
Regulation 7 sets out the implications of the lockdown in Leicester for linked households. Households in Leicester may be linked with households outside Leicester.
Regulations 8 to 10 set out how the provisions will be enforced. As with the national regulations, there is the possibility of fixed penalty notices. We have published guidance for people living in Leicester, to help them understand what they can and cannot do under the restrictions.
As I said earlier, we will be saying more in the coming days about the outcome of the initial review of the Leicester regulations, and whether the impact of the lockdown so far allows us to ease them. We will also be saying more about how we plan to deal with future localised outbreaks. I am grateful to all Members for their continued engagement with this challenging process, and their scrutiny of the regulations. We will, of course, reflect on this debate as we consider our response to any future local outbreaks. I commend the regulations to the Committee.
Ms Dorries
I thank the hon. Lady for her—as always—reasonable, intelligent and impassioned response. Some of her points were much wider than the scope of the regulations, so I cannot respond to them, but I will try to respond as well as I can to her substantive points about Leicester.
I want to correct a number of the hon. Lady’s points. We both know whom we are talking about: Ivan Browne, the local director of public health in Leicester, who has done a fantastic job. However, he does not need to wait a week for anything; in fact, as a result of the Joint Biosecurity Centre, all local authorities have daily access to all the data relating to their area. Ivan has an authentication code with which he can log on each day to find out the daily data. No one has to wait a week for anything; if that were the case, we would be in a difficult situation with regards to the epidemiology of the virus.
I do not believe that any announcement was made—this is another one of the hon. Lady’s points—about extending Leicester’s lockdown. I am not aware of the article that she mentioned, but there have been no statements on extending the lockdown. She asked me when an announcement will be made—will it be today or on Saturday? All I can say is that the decisions regarding Leicester will be made very shortly.
The hon. Lady asked whether the decision to lockdown Leicester was based on the R rate or the number of infections. Actually, the decision to lockdown Leicester was based on a number of factors They include not just the positivity rate and the R rate—the transmission rate—but the way people live their lives in Leicester and where they travel to and from. I have never been to Market Harborough, but it has been mentioned to me numerous times in the past two weeks that people have been travelling from Leicester to Market Harborough during lockdown. Lots of considerations were pulled into the decision-making process.
I first spoke to Ivan—I believe it was before the lockdown took place—when we were aware that there was a spike and that the rates were rising, and he named a number of his concerns about households, living conditions, working conditions and the movement of people across Leicester. The hospital is on the far west side of Leicester, but one of the areas most affected is in the east, so Ivan was concerned about travel across the city. There were a number of considerations, and the same issues will be considered when easing the lockdown in Leicester. It will not be down to one issue, but a number of issues. We are advised on those issues on the ground in Leicester. It is not a decision that is just taken in Whitehall; it is taken with local leaders, the local director of public health, Public Health England via the Joint Biosecurity Centre, and the chief medical officer. There is a huge number of considerations and people who have input into the decision
On funding, we have assisted 9 million people across the UK with furlough, and the furlough scheme will continue until October, so people will not be out of pocket in terms of salary. Very few would say that the Government are not being generous in their provision to compensate people under threat of losing their livelihoods, businesses or jobs during the epidemic. We stepped up to the plate, and we have supported people throughout so far. The people of Leicester are no different in that consideration, and they will continue to be supported.
The hon. Lady also mentioned the boundaries. I make the point that the Mayor of Leicester set the boundary himself. He drew the map, and I was at the meeting at which he explained where he had put the boundaries and why he had drawn the map as he had, along with Nick Rushton, the leader of Leicestershire County Council. Overnight, between them, with their officials, they drew the boundary plan; we approved it the next day, on the basis of their recommendation. They recommended, “This is where we think the boundary should fall”, and we approved it. The hon. Lady made issue of the postcodes, areas and local geography, but it was the Mayor of Leicester who decided where the lockdown boundaries should fall. If I have missed any other points, I am happy to speak to the hon. Lady afterwards, but this is all very fast moving.
On finance, we have made £4.8 million available, including for the management of the local outbreak plan and support for local businesses. The funding is there for Leicester. We will continue to review Leicester and any area that goes into lockdown as we move forward.
I felt the passion in the hon. Lady’s voice when she was talking about Leicester, as I have in the voices of many people who have spoken about it. It is as though some people feel upset and almost embarrassed that Leicester has gone into lockdown, but 153 councils across the country have put in place local management outbreak plans. We have put £300 million into supporting those plans and helping every area—every upper-tier authority, which has responsibility for public health management—to be ready for when an outbreak occurs anywhere. Leicester is not the first and it may not be the last—living with coronavirus will be part of our lives.
In my opening speech, I said that we will learn from Leicester and what has happened there. I do not think that we were too slow in what we did. We worked with the data, which was made available, and I have a timeline of when that was available. It does not concur with the hon. Lady’s timeline: on 11 June, the new local dashboards went live and the authentication code was provided to local directors of Public Health England, not just in Leicester, but across the UK; and Leicester accessed its dashboard on 19 June.
Even before we began the enhanced testing—with discussions taking place on the ground a considerable time before that—we were aware at the Joint Biosecurity Centre, as the data was coming in, that a problem was arising. We analysed the data daily, and we could see that a problem was coming in Leicester. Public Health England worked with Leicester long before we announced the lockdown. On 19 June, Leicester used its authentication code to access the Joint Biosecurity Centre to get hold of its data.
I take on board the hon. Lady’s points about ethnicity and named households. That is being considered by the JBC. Obviously, a number of considerations have to be gone into to release that information and data. That is for authorities far higher than here. However, I take on board what she said, and she is not the only person to make the point; the Mayor of Manchester made similar ones. The issues are being discussed.
In conclusion, I thank Members for taking part in the Committee. I emphasise that some of the hon. Lady’s questions will be answered shortly—she will be relieved to hear that. The restrictions we debated today are necessary, and they are important for three reasons: first and most important, to protect the people of Leicester and the surrounding area from this terrible virus. The lockdown we have had to impose has been difficult, but I think that people in Leicester recognise that letting the virus spread unchecked would have been far worse for their continued livelihoods, businesses and future.
Secondly, the restrictions are important because they protect those of us who do not live in Leicester. As a result of the lockdown, few people will travel out of or to Leicester, and that greatly reduces the risk of transmission and of the high infection rates in the city spreading elsewhere. We should recognise that the restrictions and difficulties faced by the people of Leicester will benefit the whole country.
Thirdly, the restrictions show our absolute determination to respond to outbreaks of the virus in a focused and effective way. As I said, we will learn from what has happened in Leicester as we work with local authorities and others to develop our response to any future localised outbreaks. We will say more about that in the coming days.
I am grateful to the hon. Lady for her contribution today. I will conclude by placing on the record on behalf of the Government my thanks to the people of Leicester and particularly the NHS and care workers in Leicester—indeed, all key workers across the city—for their ongoing hard work to keep our vital services running and to save lives throughout this difficult crisis.
Question put and agreed to.
Resolved,
That the Committee has considered the Health Protection (Coronavirus, Restrictions) (Leicester) Regulations 2020 (S.I., 2020, No. 685).