Health Protection (Coronavirus, Restrictions) (England) (No. 3) Regulations 2020
(Limited Text - Ministerial Extracts only)
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Lord Bethell
That the draft Regulations laid before the House on 17 July be approved.
Relevant document: 24th Report from the Secondary Legislation Scrutiny Committee
The Parliamentary Under-Secretary of State, Department of Health and Social Care (Lord Bethell) (Con)
My Lords, these regulations were made on 16 July and came into effect on 18 July. They were necessary to give effect to the announcement made on 3 July by my right honourable friend the Prime Minister setting out the Government’s goal to enable as many people as possible to live their lives as normally as possible in a way that is as fair and safe as possible. To achieve this, he set out the need to move away from blanket national measures towards targeted local measures.
Three main activities are being undertaken to support the shift in focus to managing localised outbreaks through proportionate localised responses. First, local authorities have now drafted local outbreak management plans, which set out how they will manage outbreaks in their local areas. I cannot emphasise enough the importance of these frameworks, and I thank all those who have worked so hard and so collaboratively on these important plans. Secondly, we have published the contain framework, which sets out national expectations of how and when upper-tier local authorities should make community protection orders to manage the transmission Covid-19. Thirdly, open businesses and venues have been asked to assist the NHS Test and Trace service by keeping a temporary log of their customers and visitors for 21 days—this is critical.
Local authorities already have some legal powers under existing public health, environmental health and health and safety laws. These existing powers are complicated; they apply under a confusing patchwork of triggers and, in some cases, require a time-consuming application to a magistrate. They are simply not sufficient to enable local authorities fully to implement the community protections set out in the contain framework or to do so with the speed needed to manage outbreaks effectively. The Government’s ambition is to empower upper-tier local authorities to introduce targeted restrictions; this is an important rebalance that means the need for the Government to impose more serious restrictions is greatly reduced. Before these local intervention power regulations came into force, local authorities did not have the powers to impose fully the community protection actions set out in the contain framework. These regulations are a response to points made by local authorities, which have been echoed in the Chamber, and I therefore hope this uniform set of powers to enable local decision-makers to take prompt and sufficient action will be welcomed.
The local intervention powers in the regulations are exercisable by upper-tier local authorities in England. A local authority may give directions imposing prohibitions, requirements or restrictions relating to individual premises, as in Regulation 4; events, as in Regulation 5; or outdoor public spaces, as in Regulation 6. Before giving a direction, the local authority must deem that there is a serious and imminent threat to public health in their area due to coronavirus and that giving the direction is necessary and proportionate to control the incidence or spread of coronavirus in that area.
Local intelligence is key to decision-making. The local authority must have regard to advice from its director of public health. Local authorities are supported in such decision-making by guidance published alongside the regulations. As Secretary of State, my right honourable friend has the power to direct a local authority to use its powers under the regulations where he considers that the same criteria are met. Before directing a local authority to use its powers, he is required to consult the Chief Medical Officer or one of the Deputy Chief Medical Officers of the Department of Health and Social Care. We have not, to date, had cause to issue any such direction to a local authority.
There is a mandatory requirement for local authorities to review every seven days the continuing need for any measures they impose under the regulations. The regulations require that, following the review, if the local authority considers that any restrictions or requirements set out in the direction are no longer necessary or proportionate, it must revoke the direction and either not replace it or replace it with a direction that meets the necessary conditions. A similar duty applies to the Secretary of State, who must direct the local authority to revoke the direction if he considers that the restriction or requirement is no longer necessary. If my right honourable friend directed a local authority to impose a direction, it is still for the local authority to terminate, although this could be directed by my right honourable friend.
The local authority must notify the Secretary of State as soon as is reasonably practicable once it has given a direction under these regulations. To date, 48 notifications have been received from 18 local authorities.
To manage cross-boundary impacts, the local authority must provide neighbouring authorities with notice when these powers are exercised. Neighbouring authorities are required to consider whether they should also implement any measures under their own powers.
If a local authority decides to give a direction, it must publish the decision and ensure it is brought to the attention of any person who may be affected by it. Where a direction or decision by a local authority imposes or revokes a direction, it must notify any affected person in writing.
The regulations permit someone affected by a decision to appeal the decision to a magistrates’ court and to make representations to the Secretary of State. Where representations are made to the Secretary of State, the joint biosecurity centre will consider them and make recommendations to my right honourable friend. If he determines that the local authority in question should have exercised its powers differently, he will direct it to amend its direction.
The enforcement regime is broadly based on provisions set out in the national regulations. Police will also have the power to direct an event that contravenes restrictions to stop, to direct people to leave or to remove people from the relevant area if need be. Offences are created for breaching a direction, obstructing police or local authority officers and failing to comply with reasonable instructions. These regulations have their own six-month sunset clause.
Coronavirus is the biggest challenge 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, but we always knew that the path out of the lockdown would not be entirely smooth. These regulations have demonstrated our willingness and ability to empower local authorities to take action where they need to. I am grateful to your Lordships for your continued engagement in this challenging process and your scrutiny of these regulations. We will of course reflect on this debate as we consider the response to any future local outbreaks. I commend the regulations to the House.
Lord Bethell (Con)
My Lords, I thank everyone involved for this important debate. The restrictions that we have debated today are incredibly necessary and do, in fact, answer many of the points that have been raised in this Chamber about the way in which the Government are going about their fight against Covid, and in particular, about the interaction between central government and local authorities. Empowering local authorities to protect the people in their areas from this terrible virus is the exact reason for these regulations. I would like to pay tribute to those local authorities which are working so closely with government and bringing about important impacts in their areas that close down outbreaks that we never hear about.
I will focus on individual answers to questions, and then wrap up. I reassure the noble Lord, Lord Hunt, that all decisions by local action committees are based on the latest data and advice from experts, including the CMO in consultation with local authorities. That interaction between central government and local authorities has come a huge way since we last spoke in this Chamber and a huge investment has taken place during the summer in building those relationships and getting the data moving between the two. It works nine times out of 10 without any impact on the headlines whatever, and those relationships are being forged extremely closely.
The noble Baroness, Lady Jolly, asked about fixed penalty notices. I reassure her that under Regulation 3 no fixed penalty notices have been issued. I think that is a tribute to the way in which the police have gone about marshalling these restrictions, which, despite the comments of some noble Lords, has been extremely responsible, light-touch and has relied on encouragement wherever possible.
I very much welcome my noble friend Lord Lansley’s comments on the collaborative work between government and local authorities. We are extremely committed to local-led leadership in the fight against Covid. In answer to his question, we are investing massively in systems, data, personnel and the culture of collaboration in that relationship between central and local government.
I completely agree with the noble Lord, Lord McCrea, that the virus hits different people in different ways. When I speak to my counterparts in other countries, what is amazing to me is the reassurance I get that many of the challenges they face are the same, but also how the disease hits different people in different ways.
I remind the noble Lord, Lord Hunt, that some of his comparisons between the regulations before us today and the regulations envisaged in the Medicines and Medical Devices Bill are completely different and an unfair comparison. What we have before us today is emergency regulation in the face of an unexpected, unprecedented and horrible epidemic. It was passed quickly to fight a virus that is killing tens of thousands of people. The regulations anticipated for the Medicines and Medical Devices Bill will be highly considered, highly consultative and under the affirmative action in most cases. It is very important to get that comparison right.
I make a special note on the comments of the noble Lord, Lord Scriven, many of which were echoed by the noble Baroness, Lady Barker. I completely pay tribute to the noble Lord, who is absolutely an advocate for local decision-making and enhanced powers for local authorities. I remember well his interventions during the passage of the Coronavirus Bill and his draft amendment. The processes and resources that we are looking at today, at the beginning of September, for local intervention by local authorities, are completely different from what they were in March. We have made a massive investment of time, money, people, technology and systems to beef up those resources. Today, local authorities, local infection teams and directors of public health are being as effective as they are—and they are being effective—because we have worked so hard to build those resources. If it was not for that work, the impact would not be felt. While I completely pay tribute to the vision and accurate analysis by the noble Lord, Lord Scriven, and others on this point, the truth is that if we had taken that approach in March it would not have worked. But we are building those systems today, and I pay tribute to those involved who have taken it so far.
Also in response to the noble Lord, Lord Scriven, I pay tribute to the hard work that went into these regulations. They are characterised as having arrived here unexpected and unscrutinised. That is not true in this case. These regulations were hammered out in conversations between government, local authorities and DPHs in response to the needs and requirements of those local authorities and directors of public health. They were in response to the political call of those in this Chamber and elsewhere. They were not unexpected or rushed; they were the subject of extensive consultation. On their quality, I remark that no one has particularly questioned the regulations themselves. Their quality is first class; they are completely fit for purpose, and I am extremely grateful to those involved in the drafting of these regulations, which have already proved to be extremely effective and have had a huge impact.
On the comments of my noble friend Lord McColl, I am afraid that I could not hear them all, but I believe that they were a sobering reminder that, as a country, we have not tackled the challenge of obesity, which has correlated the impact of coronavirus in this country. The Government take that extremely seriously. It starts at the top with the Prime Minister and his own personal experience and goes through the announcement in July of our obesity strategy, which we debated in this Chamber yesterday. It is a long-term commitment of the Prime Minister and Secretary of State for Health to address the matter properly.
In response to the question from the noble Earl, Lord Clancarty, yes, you can get a test wherever you live, but typically it costs around £100. That is why we are working on dramatically reducing their cost, so that we can introduce the sort of mass surveillance that he discussed.
In response to my noble friend Lady Wheatcroft, I completely welcome U-turns when the evidence changes. We need to balance between national and local resources and decision-making and analysis.
In response to the noble Baroness, Lady Crawley, I am very sad about the disproportionate effect on BAME. We are studying it extensively to try to understand it properly.
I completely and utterly reject the characterisation by my noble friend Lord Naseby of the Department for Digital, Culture, Media and Sport, which has been extremely active in this space. It is deeply engaged with cricket. The second wave has already hit France and Spain hard and it seems unlikely to avoid Lords cricket ground for any cultural superiority reasons.
In response to the noble Baroness, Lady McIntosh—gosh, I am running out of time here—we are offering the flu jab to 30 million people, and plans are in place to extend it to 50 million to 64 million people.
I have massively misjudged my timing on this, and there are a large number of questions that I would have liked to answer, but I have got it completely wrong. My key points are that a second wave is already reaching across Europe. If you go to Marseille or Barcelona, or, if you are in America, you go to Florida, you will see that the rise in prevalence leads to a rise in hospitalisations as night follows day. We have to be prepared for winter. The days are already shorter, and the schools are back. It is only 113 days to Christmas. We have put into place during this summer important preparations for the winter, and these regulations are an important part of it. They meet the challenge of getting central government to work closely with local authorities. They are very good regulations and answer many of the challenges that I have heard here in this Chamber. For that reason, I commend these regulations to the House.