Health Protection (Coronavirus, Restrictions on Gatherings) (North of England) Regulations 2020
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Lord Bethell
That the Regulations laid before the House on 4 August be approved.
Relevant document: 25th Report from the Secondary Legislation Scrutiny Committee
The Parliamentary Under-Secretary of State, Department of Health and Social Care (Lord Bethell) (Con)
My Lords, we are here to debate the SIs putting restrictions on the north of England in August and September. Before we start the debate, I note that there was some confusion yesterday about a bundle of the regulations that we were debating. I express regret for this confusion and thank all noble Lords concerned for their patience. I also express reassurances the House that resources have been put in place to ensure that this does not happen again.
The regulations we are discussing today first came into force on 4 August to tackle the outbreak of coronavirus in parts of the north of England. They are therefore part of a suite of regulations that constitute a dynamic response to local outbreaks of coronavirus. They deliver on the ground a carefully targeted suite of interventions that have helped our partners in local government and in the health and care systems succeed in reducing the severity of this pandemic in each of the flare-up areas. Because of this, we developed legislative solutions as quickly as we could. A consequence of this is, of course, that the regulations are being debated long after they came into force, and it is true that they have been changed since. However, I hope that your Lordships will acknowledge that a system of local actions that is both clinically effective and sensitive to local circumstances will produce a series of regulations such as the ones we are debating today.
I apologise for taking up so much of the Order Paper with this business, but also reassure the House that I hope to mitigate this through transparency about our intentions, our actions and their results. However, I will not apologise for introducing the regulations at all because they have done so much good in supporting our colleagues in these areas in their efforts to tackle the epidemic.
I turn to a brief history of the local lockdowns in these areas. Actions had already taken place to protect the people living in the affected areas in the north of England in the weeks before these regulations came into force, such as increased testing and public health support. We also gave additional funding to all upper-tier local authorities. For example, Manchester City Council received £40,840,915 and Kirklees Metropolitan Council more than £28 million. This enabled them to enhance the various local interventions and support measures put into place.
We hoped that these interventions and the work of the local public health teams would get infection rates down without us having to take more drastic action. However, by the end of July it was clear that the rates of infection were continuing to increase to unacceptable levels. Epidemiological surveillance data had been showing high transmission rates across Greater Manchester and in areas of Lancashire and West Yorkshire. When the regulations came into force, the incidence rates in almost all these geographic areas were significantly above the national average. Pendle, for instance, had the highest incidence rate in England between 31 July and 6 August at 89.7 per 100,000 people. Oldham had the second highest rate of 82.3, and nine other local authorities in the north had rates exceeding 30 per 100,000.
The epidemiological data and local insights suggested that the most likely route for transmission of Covid-19 behind the increases was as a result of people living in different households in the areas meeting up with each other. This is a point that we discussed in the Chamber yesterday. Multi-generational households, overcrowding and social deprivation in many of those locations exacerbated the transmission risks. The Secretary of State for Health and Social Care was therefore persuaded that it would be necessary to impose restrictions to prevent further spread of the virus and keep the country safe. The cross-government Covid-19 operations committee, or Covid-O, chaired by the Prime Minister, decided on 30 July to take further measures to tackle the outbreak. The Secretary of State set out these measures in his Statement.
On 8 August, following concern about the significant increase in local incidence rates of the virus, and taking on board concerns raised by the local authority, the regulations were amended to extend their remit to include Preston. On Wednesday 15 August, a further amendment to the regulations meant that the national restrictions that were lifted across England as part of the Government’s Covid-19 strategy would not be applied to those areas covered by these regulations due to the exceptionally high incidence rates remaining across these areas. That indicates the severity of the situation in these areas.
However, by Wednesday 26 Aug, after reviewing the up-to-date epidemiological data and information from the local authorities, the local directors of public health, PHE, JBC and the contain teams, as a result of this discussion the Secretary of State removed Wigan Metropolitan Borough Council and Rossendale Borough Council from the protected area, so that the restrictions remaining in those areas aligned with the rest of England. Again, on 2 September, we were able to remove certain wards of Calderdale Metropolitan Borough Council and Kirklees Metropolitan Council. This change of strategy, moving towards hyper-localised interventions, reflects our willingness to listen to local politicians.
We sought to mitigate the impact of these measures by imposing them only where the transmission risks were highest. Concerns about the outbreak of coronavirus in the north of England have been significant, and the engagement with local leaders has been extensive, repeated and productive. I therefore thank all the local authorities and local resilience forums, Public Health England and the Joint Biosecurity Centre, as well as the local directors of public health, the Mayor of Greater Manchester, Andy Burnham, and the council leaders for all of their ongoing support.
In general, these regulations prohibited households in the relevant areas of the north of England mixing with each other in their homes or gardens, apart from those with support bubbles or in other limited circumstances on compassionate grounds. The regulations also included provisions making it a criminal offence to breach any of the restrictions or requirements. As with the national regulations, those who breach these provisions can be issued with a fixed penalty notice. Due to the increasing incidence rate in Preston as the regulations came into force, Preston was added to the protected area covered by these regulations. Subsequent amendments removed local authorities or specific wards from the regulations.
In terms of next steps, as I said earlier, we will continue to make public the outcome of any reviews. I am grateful to your Lordships for your continued engagement in this challenging process and for the scrutiny of the regulations. In particular, I thank those people in parts of Lancashire, Greater Manchester and West Yorkshire who have, in general, responded well to the measures put in place. It is thanks to their continued efforts that there were changes to the boundaries, and we hope to ease measures further if improvements continue. I beg to move.
Lord Bethell (Con)
My Lords, I too thank the noble Baroness, Lady Donaghy, for her very kind words. Let me please make it plain to the Chamber: it is an absolute honour to stand here—to have some time to consider these SIs and to do our best, as a Government, under difficult circumstances, to bring in complex regulations and laws that have a huge impact on people’s everyday lives and to try to bring the best possible parliamentary scrutiny that we can under the current rules.
I am completely aware of the concerns of my noble friends Lord Forsyth and Lord Dobbs, the noble Lord, Lord Beith, and the noble Baronesses, Lady Donaghy and Lady Thornton. They all rightly express concerns about how this could be done better. We are committed to the process that we have: we listen to these debates as they happen and I take back to the department the comments made in this Chamber.
I say to my noble friend Lord Forsyth, on the Civil Contingencies Act, the issue is that the Act is expressly concerned with threats that we could not have expected. Unfortunately, we are at a stage with this epidemic—indeed, even at the very beginning of the epidemic—where the lawyers have judged that this kind of regulation does not fit under that definition. That is why we work through the public health Act of 1984. If he has any further questions on that, I would be glad to answer them through correspondence.
The noble Lord, Lord Blunkett, asked a very important question: what have we learned? I will try to tackle people’s points through that lens as quickly as I can. In terms of the north, we learned many things but three stand out. First, this virus moves incredibly quickly through social mobility. My noble friend Lady McIntosh asked why rural areas are tied in with town areas. The truth is that people move between different areas to a much greater extent than would normally be visible. That is one of the challenges we have had to deal with. Secondly, the mixing of households has a profound effect on transmission of the disease. That is why that is a focus of these regulations. Thirdly, getting testing and tracing into hard-to-reach communities can be extremely difficult. My noble friend Lord Bourne asked what we had learned in terms of getting testing into key areas—we have learned that it is very difficult. We have put new resources into it and gathered new expertise and have sought advice from people who understand these things well.
A number of noble Lords, including the noble Lord, Lord Blunkett, asked about hospitality. If a hospitality venue, such as a pub, has good contact tracing on arrival, socially distanced seating, table service and booking, there is no reason why it should present a threat. However, not all pubs abide by those disciplines, with mass crowding either inside or outside, late-night intimacy and mixed groups. That is where the disease spreads, which is why we have cracked down—including through the 10 pm curfew, which sends a clear signal to hospitality venues that they must abide by the regulations. I make these points in answer to my noble friend Lady Wheatcroft and the noble Baroness, Lady Uddin.
We have learned four key things on the macro basis. The first and most important of them was alluded to by a number of noble Lords, including my noble friends Lady McIntosh and Lord Bourne, and the noble Baronesses, Lady Thornton, Lady Bennett and Lady Andrews: the importance of local collaboration. I was asked a large number of detailed questions about the nature of local collaboration. I assure noble Lords that it is happening on an incredibly energetic basis. New systems that completely redefine the wiring of government in this country are being put in place in response to this epidemic. People who did not have each other’s telephone number before now speak every day and collaborations are happening across party grounds. There is the occasional grinding of gears—of that I have no doubt—but the spirit of collaboration is extremely strong. I assure my noble friend Lady McIntosh that local leaders in the north-east met the CMO today and made their representations to the top of government very clearly.
A second learning has been on the sharing of granular data, which we have discussed in other debates. The third learning, in response to the right reverend Prelate the Bishop of Manchester, has been on the use of local languages and cultural sensitivity. I completely recognise his points about the impact of bringing in some of these measures around Eid. I have held round tables with community groups in the north; I heard people’s concerns loud and clear. We thought that we were leaving the time of lockdowns; it was only when the data showing that infection rates were rising emerged that we had to apply the handbrake and do a sudden turn. We learned a lot about the bruising impact of that sudden decision and its impact on trust, and we have moved on.
Fourthly, a number of noble Lords, including the noble Baroness, Lady Lawrence, and my noble friend Lord Flight, mentioned simplicity. It is key. The public’s understanding of the regulations is absolutely essential to changing their behaviours. If people do not understand it, there is no point in regulating. That has been seen through recent regulations, such as on the rule of six and the curfew, where the impact of the regulations has been well thought through.
The noble Lord, Lord Greaves, and the noble Baroness, Lady Massey, asked about money for businesses and quick money. I completely agree with their points. The money that has gone to Pendle included £1.8 million to the council and £21.8 million to Pendle businesses. That indicates both the impact and the level of money that we are distributing to make these regulations effective.
The noble Baroness, Lady Bull, my noble friend Lady Redfern and the noble Lord, Lord Loomba, all mentioned communications. I completely recognise the threat of an “infodemic”—we have one in this very Chamber—and we are working extremely hard to make interventions clearer, as the noble Baroness, Lady Walmsley, called for. The app is a really good example of that and I am extremely encouraged that the noble Baroness, Lady Massey, is able to see the status of her community and the regulations in that community through the app: that is exactly why we designed the app and I am incredibly excited that she cites that as an example. I am completely live to the threat of conspiracy theorists and those who seek to undermine the validity of our vaccine. We have a substantial rebuttal unit that crosses many departments of government. It is probably not wise for me to go into detail, but I reassure the noble Baroness, Lady Bull, that we have put the full weight of government behind that.
The noble Lord, Lord Willis, and the noble Baronesses, Lady Walmsley and Lady Andrews, raised social care. I am extremely proud of our commitment, at a time when pressure on testing capacity is extremely intense, to have 100,000 tests a day for social care. It is making an impact. A lot of people are frustrated, and I wish those testing levels were higher, but we believe that we are winning and we have capacity to bring in more.
On childcare, the noble Lords, Lord Alton and Lord Singh, and the noble Baronesses, Lady Bowles and Lady Walmsley, all gave extremely good examples of why childcare is so important. We have listened, those regulations have been changed and new statutory instruments were brought in on Tuesday that made some of those changes. I reassure the noble Lord, Lord Bilimoria, that we are looking at the Abbott test. I can tell my noble friend Lord Flight that Section 7 has been revoked.
Finally my noble friend Lord Moynihan, the noble Earl, Lord Erroll, and the noble Baroness, Lady Walmsley, and others talked about the long-term impact on young people and the country as a whole. We recognise the impact of these regulations, but it is the virus that is the cause of this; it is not the Government’s fault that we have to bring in these regulations to slow the spread of the virus. In response to my noble friend Lady Altmann, our objective is to get our lives back, and we will know we have succeeded when we get our lives back. I beg to move.