Health Protection (Coronavirus, Restrictions) (No. 2) (England) (Amendment) (No. 5) Regulations 2020
(Limited Text - Ministerial Extracts only)
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Lord Bethell
That the Regulations laid before the House on 24 September be approved.
Relevant documents: 26th Report from the Joint Committee on Statutory Instruments (special attention drawn to the instrument) and 28th Report from the Secondary Legislation Scrutiny Committee
The Parliamentary Under-Secretary of State, Department of Health and Social Care (Lord Bethell) (Con)
My Lords, it was necessary to make these regulations against an increase in transmission at local and national level. Although the new local alert regulations have since superseded many of the provisions of the regulations, I welcome the scrutiny from this House on the changes that they brought in and, in particular, on key aspects that remain in force. These include regulations that introduced the 10 pm curfew in these areas—a measure that has attracted considerable interest in the Chamber, and I welcome the opportunity to give this component of a broad suite of important measures the scrutiny that it deserves.
The regulations, SI 2020/1029, tightened the No. 2 regulations in key respects that have attracted considerable comment. The important modifications were necessary due to an increase in the prevalence of the virus. The ONS estimated that coronavirus had doubled in this area in the month up to 13 to 19 September to one in 500 people. From Thursday 24 September, the day that the SI was made, the following changes came into force: early closure of premises selling food and drink between 10 pm and 5 am, the restriction in relevant hospitality venues to table service, the removal of exemption to the rule of six for adult indoor sport, new penalties on individuals for breaking the rules to a maximum of £6,400, and some other measures. Changes from Monday 28 September included changing the exemption to the rule of six for weddings and wedding receptions to a limit of 15 people, limiting life-cycle events to six people, and raising penalties to a maximum of £10,000 for businesses that are not following Covid-secure guidelines.
SI 2020/1057 came into force on 30 September with two main aims. First, it introduced household mixing restrictions in all indoor settings. The regulations prevented people from mixing with other households in any indoor settings, including venues such as pubs and restaurants. The regulations also moved local authorities in Merseyside and Lancashire from the north-east and north-west regulations into the north of England regulations, so that those areas were not subject to the additional household mixing restrictions. Secondly, that SI amended two sets of national regulations by disapplying some gathering provisions and defining “indoors”, which was necessary to bring parity to the rules for indoor settings.
Most of the amendments in both SIs are no longer in force because the local alert-level regulations have replaced them. However, SI 2020/1029 is still required because it increases the level of fines that would apply to those flouting targeted action to close specific outdoor public places. This has been one of the top demands of councils in their fight against coronavirus. Similarly, a majority of the measures in SI 2020/1057 have been replaced by the local alert-level regulations. However, some amendments continue to apply, such as those that insert a definition for “indoors”. It has been necessary to maintain these regulations to ensure that the requirements on business, as provided under the obligations of undertakings regulation, continue to support the Covid-19 response.
I also want to take this opportunity to say a word about the 10 pm curfew. SAGE has highlighted that alcohol consumption may increase the risk of non-compliance with social distancing, and that hospitality settings are therefore associated with increased transmission. Given my 10 years’ experience at the front line of the late-night entertainment industry, to me this feels like a statement of common sense.
This epidemic is unprecedented. It is not possible to run randomised trials or controlled experiments, so we rely on our recent experience for the science. The views of our analysts are clear. In a Centers for Disease Control study of symptomatic patients from 11 US healthcare facilities in July 2020, adults with confirmed Covid-19 were approximately twice as likely as control participants to have reported dining at a restaurant in the 14 days before becoming symptomatic. Public Health England data shows that, between 3 August and 27 September, at least 148 outbreaks occurred in restaurant and food outlets. The PHE surveillance from 21 September to 27 September showed that 13% of those testing positive had eaten out around the time of their likely infection. Police data on street anti-social behaviour suggests that 10 pm is an inflection period in the night. Of course, we have the example of the Belgian authorities in Antwerp.
The prevalence of the disease in the younger demographic is a further clue to how the virus operates. Our initial experience suggests that the 10 pm curfew has struck the right balance, allowing businesses to trade for the majority of the evening while reducing the risk of compliance with social distancing measures breaking down. It has sent a signal to people, particularly young people, that socialising in a way that breaks social distancing is a sure way to transmit the disease. Engagement with local authorities is, and will continue to be, a key part of this and other response mechanisms.
We are not alone in our decision to ask pubs, restaurants and cafés to close early. Denmark, which had taken a more relaxed approach up to this point, is now asking hospitality settings to close at 10 pm. Urban areas in Spain and Germany have a curfew at 11 pm. Across Italy, there is a midnight curfew for all hospitality settings and a 9 pm curfew for those that do not offer table service. Nine cities in France, including Paris, have a curfew of 9 pm. In other countries, a curfew has been placed on other commercial and retail businesses. In Belgium and the Netherlands, there is an 8 pm curfew on the sale of alcohol. We are also seeing countries or areas that are experiencing steep rises in coronavirus cases go a step further in closing hospitality businesses altogether, allowing only takeaway services and outdoor dining. This is true for Belgium, France, Catalonia in Spain, the Netherlands and, most recently, the Republic of Ireland.
I am grateful for noble Lords’ contributions to these debates and continued patience and scrutiny. I take this opportunity to thank in particular the Joint Committee on Statutory Instruments for its reporting on both SIs, acknowledging that there were drafting errors in SI 2020/1029 and the Speaker’s letter being late for SI 2020/1059. We aim to meet our obligations to Parliament, the public and the statute book in making these regulations.
I have heard the numerous concerns from noble Lords. I commend the efforts of the usual channels to programme the business of the Chamber. I believe that these regulations are proportionate and necessary to protect the public from the spread of coronavirus. I beg to move.
Amendment to the Motion
Lord Bethell (Con)
My Lords, I start by saying a massive hurrah to my noble friend Lady Fox of Buckley. I thank her for a rousing maiden speech, literally the best maiden speech that I have ever heard. She made a very clear case against cancel culture. She has identified herself as a free spirit, something that this Chamber values enormously, and has staked her claim as a champion for the transition from the EU. I know she joins many good friends in that cause here in the House.
I completely and utterly endorse the strong and heartfelt opinions expressed by the noble Lord, Lord Hunt, the noble Baroness, Lady Barker, and my noble friends Lady Altmann and Lady Neville-Rolfe on the hospitality industry. I have been part of the hospitality industry for a lot of my career. I care about it greatly and the sight of it ailing distresses me. I know those people who depend on casual labour from the hospitality industry to pay the bills; I have been one of them. I have no doubt about the profound impact at every level of society, from those who are poorly paid to those who own the businesses, of the restrictions that put those businesses under massive pressure—for some, maybe even terminal pressure. It would be completely inhuman of me not to address the economic and psychological distress of the result of that. I completely endorse their concerns on that matter.
However, I have to challenge some of the assumptions that seem to be in the ether. I have clear, positive evidence for the impact of Covid in late-night drinking. I wonder: what is the alternative, the counterfactual, that is being suggested in this debate? Is anyone really suggesting that late-night drinking is in some way conducive to social distancing? If so, they have very different memories from mine of times in the pub. Is anyone suggesting that late-night drinking somehow enhances the rule of six and brings discipline and a strict regime to people’s social lives in the pub after 10 pm? Is anyone suggesting that pubs somehow get cleaner after 10 pm, with the virus somehow evaporating like Cinderella at that time, instead of actually getting dirtier and more contagious? Is anyone really suggesting that post-pub socialising somehow reduces, the more you drink and the later it gets? None of those things was my experience; nor is it the experience of those who have put these regulations together.
My noble friend Lady Altmann is quite right to ask for an impact assessment. I guide her towards PHE, which has published a really clear assessment on the direct and indirect impacts of Covid-19, written by the ONS, the Department of Health and other government people, and approved by SAGE. It is important reading. It spells out in clear terms the impact on mortality, on the economy and on secondary health outcomes, and I highly recommend it.
I shall address some of the many worthy and valuable questions asked in this debate. The noble Lord, Lord Adonis, asked, slightly off-topic but very importantly, about schools. He is right: it a source of concern that there is a balance to be struck between the discipline and requirements of keeping infection out of schools and the importance of keeping those schools going full-time. As a father, I can say that two of my children are out of school at the moment and there is a huge amount of pressure on the disciplines. I reassure the noble Lord that we are working intensively with teachers, schools, councils and the Chief Medical Officer’s office to put together guidelines that can accommodate these very difficult situations.
I applaud my noble friend Lord Blencathra’s commitment to consent but I remind him that we have hardened the legal framework; in fact, we were here discussing that a few hours ago. However, I utterly reject his characterisation of the NHS. Instead, I pay tribute to the doctors, the nurses and indeed the bureaucrats who keep the show on the road under extremely difficult circumstances. I warn everyone that any virus as vicious as Covid will be a huge challenge to any health system. I am extremely proud of the way that the NHS has stood tall in the face of this storm.
My noble friend Lady Stroud lifted the debate, characteristically, with extremely wise words on prosperity, trust and personal responsibility. These are very much the values that we seek to apply in our response to Covid. However, I remind her that we need to balance personal freedom with the public health imperatives, of which there are two in particular: first, my health affects your health; and, secondly, we can beat this virus only by acting together. It is by balancing those two imperatives—personal freedom and public health—that we go about our business.
I was extremely surprised by my noble friend Lord Balfe’s comments, coming from someone who is normally such a sensible source of grounded wisdom. He somehow made the case for the thinking classes and the commentariat as if they should be running government policy—God forbid. In fact, I remind him that, as the noble Lord put it, these restrictions are working, they have had an impact on the spread of the disease, they are massively supported by the public and, as he knows, the alternative is a meltdown of our health service, and potentially hundreds of thousands of deaths.
My noble friend Lord Bourne is right to raise the difference between weddings and funerals. I can explain it briefly but I am happy to write to him in more detail: weddings are considered to be relatively voluntary but funerals are completely involuntary. That is why we allow a larger number of people at a funeral than at a wedding.
I would like to end on a note of optimism. My noble friend Lord Moynihan asked whether we were still focused on the actual care of people. I reassure him and the Chamber that we have made massive strides in the development of therapeutics to help us treat those with Covid. We understand more and more about the impact of long Covid, which is a terrible threat, and we understand better and better the ways in which we can diagnose this awful disease.
My noble friend Lord Bourne and the noble Baroness, Lady Jolly, both mentioned Taiwan. I share their respect and admiration for the way in which that small democratic island has gone about its public health challenge. There is a lot to learn for all of us.
I reassure the noble Lord, Lord Bilimoria, who has become an even greater evangelist for mass testing surveillance than me, that we are making massive strides. I pay tribute to the innovators around the world, but particularly the British innovators, who are bringing us incredible new testing technologies, and we are applying them at speed.
Finally, I ask the noble Baroness, Lady Jolly, to weigh heavily the tremendous commitment that we have to working with councils. In response to the noble Baroness, Lady Thornton, I do not think that I ever said that the discussions were easy or wonderful; I said that they were energetic. She has a point—these relationships are difficult and, as we speak, just how difficult some of them are is being played out. However, that does not mean that we do not care or that we have not tried. In fact, I hope that we can build on this engagement to create not only a stronger response to Covid but, ultimately, a stronger democracy. In that spirit, I ask the noble Baroness to withdraw her amendment.