Grand Committee
Arrangement of Business
The Deputy Chairman of Committees (Baroness Healy of Primrose Hill) (Lab)
My Lords, the hybrid Grand Committee will now begin. Some Members are here in person, others are participating remotely, but all Members will be treated equally. I ask Members in the Room to respect social distancing. If the capacity of the Committee Room is exceeded or other safety requirements are breached, I will immediately adjourn the Committee.
Body Mass Index
(3 years, 8 months ago)
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Lord Addington
To ask Her Majesty’s Government what assessment they have made of the effectiveness of Body Mass Index as a medical guideline.
Lord Addington (LD)
My Lords, this is a subject of which I have spoken in the past, but what inspired this debate in my name was the report and subsequent publicity from the House of Commons Women and Equalities Committee, chaired by Caroline Nokes MP. The report points out that on an arbitrary line with an ideal point in the middle, when it applies to people, most are not at that middle point. When that is used to identify health, you are effectively saying that a lot of people are not healthy. That idea is suggested as a good guide to what one should be—I have spoken about it in the past. However, not everyone is in the middle. The guide says that one should be X height and X weight.
The report spoke about the damaging effect of body image, predominantly among the female population, particularly the young. It is yet another thing that says, “This is what you should weigh, look like and be.” But it should not be just like that. It is worth remembering that in the current environment this applies also to males. It is increasingly applied to all young people and, indeed, the whole population. There is an accepted norm. The internet has exacerbated a situation that has always been there.
Most of us in this debate will have spoken about retouching photographs and making sure that they are idealised versions of people. That is now taken to a new level. Some of the work that we have been doing was referred to in a debate on a Private Member’s Bill last week regarding restricting plastic surgery. These issues are adding to the problems, but if this approach is taken as a medical guideline, you are getting the wrong information on which medical procedure might be taken. Given the information that is put out, along with the press coverage, we should be worried.
I wish that I could have given some of my time to other noble Lords taking part in this debate. With conditions such as anorexia, someone can be told, “You are not light enough to receive help for that eating disorder, because you don’t hit a certain point on the graph.” Regardless of what that person’s frame or exercise patterns have been, by taking that decision, one is actually making someone’s medical condition more difficult to treat because somebody is looking at the guideline and saying, “This is where you should be.” This is a difficult situation for everybody. Certain medics will be better at this than others.
Here, I should probably say why I took an interest in this issue in the first place. According to this measure, I, like everybody I played rugby with, was dead a while ago. As somebody who once had somebody put a hand on his shoulder and say, “You were born to play prop forward,” I possibly have a bit of an axe to grind. To use myself as an example, I once had a neck injury and a chap—he became best man at my wedding and I was best man at his—looked at me and said, “You’ve got a neck injury? What neck?” We have to carry a bit of this.
This approach does not work for people like me. We are constantly told to lose weight. I remember being told by a doctor when I was having a check-up for some insurance, “Well, according to this, you are too heavy,” and in the same week being shouted at by a coach, “You’re not eating enough for my exercise programme.” Of the two, I know which one I listened to. But if you take this type of information that pays absolutely no attention to physique or exercise pattern, you will get bad answers, which do not help with any form of general public health pattern. You cannot say, “This is what you should be.”
I know that we are trying to move slightly away from this approach. I have heard people say, “Take certain measurements and get the relationship across.” If you do a calculation like that, you are still going to get it wrong, even if it is slightly more accurate slightly more often. Medical professionals should be looking at somebody individually. If they cannot do that, they should withhold an opinion. I know that it is more convenient to look at a chart and say, “You are X height, you should be X weight,” but it does not work. It never has.
I have done some work on this in the past. This approach was invented in the late 1950s, I think, although the noble Lord may have better information. It was thought that it would do as a general guideline. We have got bigger since, with higher protein diets, and are slightly taller and bigger-framed. It is out of date even for an active person who is not carrying any muscle mass. If you are any form of athlete or taking any form of physical activity, you will acquire some muscle mass and muscle is much heavier than fat. Get a person healthy and fit and make sure that they do not hit your medical targets: why do we still have this? It does not seem to work at any conceivable level. It is telling people to attain to something and repeating the messages, “Nobody is perfect” and “Do something else”. It encourages damaging behaviour. It gives wrong information to medical professionals, who often look at somebody and say, “Ignore it.” Why are we still using it? Can we not just take it out and ask for assessments? An assessment is looking at somebody and assessing their activity patterns. Otherwise, we are going to continue to have these problems.
This is either wasting printing paper or slowing certain people down from getting the help and treatment that they need. Adhering to it makes it more difficult to get early treatment for eating disorders. Everybody knows that you must get in early, establish the patterns of behaviour and convince that person to change those patterns of behaviour. Anything working against that should be removed.
I could go on at length, but the danger of being totally self-indulgent is looming towards me, so I will conclude my remarks by asking the Government just a couple of questions. First, if this was proposed to the Government now, would they use it? Would they take and use an arbitrary level that does not correctly assess anything other than for a small percentage of the population? Secondly, if the Government would not take on something like that now, what would they recommend to doctors to assess health and well-being in the general population? Would it be easier to administer or not? The answer is probably not, but a bit of effort might help us to get a better public health outcome.
Lord Brooke of Alverthorpe (Lab)
My Lords, I am grateful to the noble Lord for tabling the Question. We may be debating some of these broadly related issues in even greater depth in the future, because the facts of life are that we have one of the unhealthiest populations in the whole of Europe. We now have some opportunities to review what we have been doing and what we might need to do in the future to improve our health. I have been given a good briefing by Diabetes UK, and I express my gratitude to it because I am one of those on the cusp of developing type 2 diabetes. That has been identified by two factors: a blood test and a BMI measurement with my doctor.
Without any doubt there are problems for those with eating disorders, and we need to address them, but we must be careful to ensure the right balance in dealing with the country’s health problems. The reality is that we have a greater problem—the numbers are much bigger—with people with excess weight than with those with too little weight.
While we acknowledge that there can be challenges in using and interpreting BMI as a measurement, as the noble Lord pointed out, the call for it to be scrapped could negatively impact on the care of those such as myself who are at risk of diabetes. Used appropriately, BMI can provide valuable information for care focused on individuals that does not discriminate against anyone. It is important that healthcare professionals take a person-centred approach to discussing weight and health, use appropriate language and consider the use of BMI based on individual circumstances. There are instances where the use of BMI may not be appropriate, so healthcare professionals should take a person-centred approach to weight and health. We hope that the integration of care outlined in the White Paper will boost the role of personalised care.
BMI is also an important tool for monitoring the population’s overall health and informing policy decisions. If we do not have that, we have to know what the alternative is to be able to make such assessments about the state of the nation’s health. Most recently, BMI data has been fundamental in the rollout of the QCovid population risk assessment, which identified 1.7 million people at increased risk of hospitalisation and death from coronavirus and enabled them to be added to the shielding list in March 2021. Without the use of BMI, that kind of population-based intervention would not have been possible and many lives would have been put at risk. I argue that we must retain what we have at the moment until something better is found.
Baroness Jenkin of Kennington (Con)
My Lords, I am grateful to the noble Lord for introducing the debate. BMI is used globally as a tool to assess a person’s size. It is a quick and cheap way to make estimations about an individual’s potential risk of disease or poor health. However imperfect a measure of health it is, I doubt that our discussion here, or the Select Committee’s report, will change the way doctors measure their patients and the risks to their health. The overall message of the report, however, drawing attention to the damaging nature of weight stigma and the consequences it can bring, is of course important.
Whatever measure used, what is also important is for healthcare professionals to feel able, without embarrassment, to discuss patients’ health and weight with them and, by using appropriate language, explain the long-term consequences of an unhealthy lifestyle. People need knowledge, support and encouragement, as well as a healthier environment, to make the changes necessary to improve their own lifestyles and thus take pressure off the health system.
Excess weight is one of the few modifiable factors for Covid, and our high obesity figures are one of the reasons why this country has been so badly hit. But even before the virus, it was clear that the unhealthy lifestyles so many in this country now lead were resulting in preventable diseases such as type 2 diabetes, liver disease, heart disease, some cancers, arthritis, the wearing out of hip and knee joints, and the discomfort of general ill health. Many of these conditions can be reversed by changing to a healthy diet. People need—and polling of up to 80% approval shows that they want—informed choices. The Government’s population-wide Better Health agenda is crucial to providing this. I commend them for the bold approach in the obesity strategy and urge them to stick to it.
Advertising works. If it did not then the food industry, particularly the ultra-processed and fast-food industry, would not do it. A KFC “Mighty bucket for one”, apparently the perfect meal for one person, contains 1,155 calories—over half the suggested intake. It is currently advertised everywhere. Young people are bombarded by paid influencers via social media. This needs to stop for their health’s sake.
Calorie labelling is crucial to success. Most people are unaware and polling shows that they want to know. Surveys show that 80% of adults do not know the calorie content of common drinks, which is substantial. A large glass of wine, for example, has around 200 calories, about the same as a doughnut. Unless people are supported and encouraged to move to a healthier lifestyle—and BMI is an important tool in the journey—with a better diet, a healthy weight and regular exercise, it will not just be Covid which affects them because the NHS, already under strain, will be unable to cope with the tsunami of obesity-related health issues coming down the track.
Baroness Wheatcroft (CB) [V]
My Lords, I am grateful to the noble Lord, Lord Addington, for introducing this debate and delighted to follow the noble Baroness, Lady Jenkin of Kennington. She takes food extremely seriously. I remember going to dinners with her when she took her own meagre dinner with her, because she was raising funds for charity by living on a very small amount to demonstrate not only that it is possible but the miserable lives that so many lead.
When we think of that sort of poverty and lack of food, to think of people in this country deliberately starving themselves is particularly difficult. Nevertheless, BMI is only part of identifying eating disorders. It is, however, a very important public health measure, and I agree with the noble Lord, Lord Brooke of Alverthorpe, that we should not throw out a measure which works helpfully as a public health guide. For instance, the shielding during Covid that was brought into play for those who had a particularly high BMI has proved effective.
Nevertheless, when GPs or other specialists use BMI it should be only part of an armoury of tools at their disposal. It is certainly not the only way in which eating disorders could or should be discovered. What is painfully clear is that people with anorexia are obvious just on sight; no GP needs to look at a BMI reading to spot anorexia. All too often, though, I fear that GPs are reluctant to diagnose eating disorders, in part because of the lack of services to deal with those conditions quickly when they need to be dealt with immediately. Anorexia is one of the most, if not the most, pernicious forms of mental illness and extremely hard to treat, but it is better caught early, as with so many diseases. Doctors use judgment and have to be relied upon to use it when wielding BMI as part of their armoury of tools.
Most important, though, is coping with the outbreak of obesity that has now hit this country, as the noble Baroness, Lady Jenkin, pointed out. Excess weight is a huge problem and really needs to be dealt with as a matter of urgency for this country. It was highlighted by Covid but it will become much worse, as many have put on weight during the lockdowns. BMI will be part of the measures for dealing with that.
Lord Moynihan (Con)
My Lords, the noble Lord, Lord Addington, will not be surprised if I turn to sport to assess the effectiveness of BMI as a medical guideline. Ashling O’Connor, one of the finest sports journalists of her day, wrote at the turn of the century about the need for the Ministry of Defence to take note of modern sports science after its long-held physical standards for new recruits were excluding exceptional candidates, including top rugby players. The Army’s weight limit, based on the BMI classification, was based on a calculation that divided height in metres squared by weight in kilograms. That would have discounted many Olympic gold medal winners.
Much was made at the time of the case of the two finest Olympians this country has produced. Sir Matthew Pinsent would not have been admitted to the ranks, as he weighed more than 17 stone, because, standing 6 foot 4 inches, his BMI would have been above the limit of 28. Sir Steve Redgrave—five times rowing gold medallist in an exceptionally tough endurance sport and in my opinion the finest athlete this country has ever produced—would only have sneaked in under the bar, with a BMI of 27.6. Ray Stevens, winner of a silver medal in judo in Barcelona in 1992, would definitely not have qualified at 6 foot and 15 stone, despite being able to bench press for 25 reps and run competitive half marathons. It is therefore not surprising that the English Institute of Sport discounts the outdated BMI test in favour of a more sophisticated method, such as skinfold callipers which squeeze subcutaneous tissue, and dual energy absorptiometry and body scanners measuring bone density.
Of course, we should place BMI in context, which, with slight variations over time, is your weight in pounds times 703 divided by your height in inches squared. Being based simply on height and weight, it takes no account of body fat percentage, muscle mass, bone thickness or genetic disposition to a certain frame. It assumes that everyone has the same percentage of lean tissue and fat tissue and it takes no account of those athletes who clearly have much more lean muscle mass than the average person. These facts seriously challenge the base assumptions behind the BMI formula. It exaggerates thinness in short individuals and fatness in tall and muscular individuals. The higher muscle content—in other words, lean mass—in athletes skews BMI, as lean mass is approximately 22% denser than fat tissue.
Although BMI has been adopted by the WHO as an international measure of obesity, it lacks a theoretical basis, and empirical evidence suggests that it is not valid for all populations. What can be said in its favour is that it is simple: it is a rough and ready calculation to an indirect health indicator of obesity or being overweight. I would expect the use of BMI to decline as a useful test and new measures such as the Bod Pod and hydrostatic weighing to take prominence, not least by the World Health Organization.
Having heard my noble friend Lord Addington’s speech, I have no doubt that all his points, and those made by other speakers, will be taken into consideration by the Government. I look forward to hearing from the Minister.
Lord McNally (LD)
My Lords, when I entered this House, 25 years ago, it was my noble friend Lord Addington’s body mass that aided the House of Lords in becoming unbeatable in the annual tug of war with the House of Commons. I am very pleased about that.
Yesterday’s Question Time in the Lords gave us a dry run for some of the issues being raised in today’s debate when the noble Lord, Lord Robathan, drew attention to a report by the World Obesity Federation linking obesity and deaths from Covid. The full range of the debate about obesity was on show, from those advocating making obesity not socially acceptable to the noble Lord, Lord Bethell, making it clear that it was not the Government’s intention to shame those who are overweight.
If obesity is the health challenge that I believe it is then we need to get the science right. We have heard from my noble friend Lord Addington and the noble Lord, Lord Moynihan, reasons why we should give credence to the advice of Caroline Nokes and the Women and Equalities Committee on not using the body mass index for weight shaming and recommending that it should be scrapped. But as the noble Lord, Lord Brooke, indicated, we have also had advice from Diabetes UK, which says,
“while we acknowledge that there can be challenges in interpreting and using BMI as a measurement, the call for it to be scrapped could negatively impact on the care of those living with or at risk of diabetes.”
So the Committee will be interested to hear the Minister’s assessment of the validity of BMI in assessing weight and health risks.
I would also be interested in the Minister’s response to the challenges raised yesterday and today regarding poverty and obesity in both parents and children as well as the problems caused by the promotion, particularly to young women, of unrealistic ideals of body image, which all too often can lead to anorexia and other health harms. We must not lose sight of the fact that obesity brings with it ill health and threats to life, but countering it requires sensitivity and understanding as well as practical help based on sound science. It is a difficult path to tread. I look forward to hearing about that in the Minister’s reply.
Baroness Redfern (Con) [V]
I thank the noble Lord, Lord Addington, for introducing this short debate on the effectiveness of the body mass index. I am pleased to have the opportunity to contribute.
My focus will be to highlight the effect of childhood obesity, which we know is significantly increasing. This is where the Government urgently require further action in tackling significant inequalities in physical and mental health outcomes. It also represents a major challenge for the Government’s levelling-up agenda with regard to opportunities and outcomes for our young people.
The effects of weight bias and obesity stigma can be particularly severe for children. They can experience a greater chance of being bullied, leading to low self-esteem and poorer academic performance, which can severely affect their life chances. It is tragic, too, that many children growing up will also have associated health risks, such as type 2 diabetes, cancer and heart disease.
When used appropriately, body mass index can provide valuable information for care focused on individuals that does not discriminate against anyone. It is important that healthcare professionals take a person-centred approach to discussing weight and health, use appropriate language and consider the use of BMI based on individual circumstances.
There are also clear opportunities for highlighting the contents of food. Retail outlets also must step up and support a move towards much clearer food labelling, particularly with additional nutritional and calorific labelling on the front of packaging in our supermarkets, cafés, restaurants and takeaways. Let us not forget all those highly calorific soft drinks, which must be addressed. We need stricter guidelines regarding rules on advertising. Evidence shows that children who are already classed as obese or overweight eat more in response to advertising.
Weight loss has been shown to bring undeniable health benefits, so does the Minister agree that, in any new plans, front-line services should provide obesity support in all the right cases?
Finally, I support BMI measurements in the context of them being used for informed, holistic and person-centred care where appropriate and where they can provide valuable information for care.
Baroness Parminter (LD) [V]
My Lords, I thank the noble Lord, Lord Addington, for his passionate introduction to this debate.
I applaud the Women and Equalities Committee’s work highlighting the impacts of the use of BMI on eating disorders and people’s mental health by disrupting their body image. Eating disorders are not niche. The 2019 NHS health survey found that
“16% of adults … screened positive for a possible eating disorder”.
Covid has increased the pressure on eating disorder services hugely, with referrals across the country increasing by 75% on average.
There is still an overreliance on BMI by GPs when diagnosing eating disorders to determine who is unwell enough to access treatment. Hope Virgo’s “Dump the Scales” campaign has literally hundreds of people, mainly young women, sharing how damaging it was to be told that they were not thin enough for treatment. It drives them deeper into this pernicious illness, which I know about from our family’s experience. Indeed, the evidence shows that early intervention is far better and offers the best hope of recovery.
The Government and the NICE guidelines are clear: BMI should not be used on its own as an arbiter of whether to offer treatment, yet GPs are still doing this. Why? First, there is inadequate training for GPs and other health professionals about eating disorders. The issue was identified by the Parliamentary and Health Service Ombudsman in his report on eating disorder services in 2017, in the follow-up report by the Public Administration and Constitutional Affairs Committee in 2019, and in the Cambridgeshire and Peterborough coroner’s prevention of future deaths report last month, to which the Secretary of State has to respond formally by next Wednesday. Will the Government now lead a strategy to improve eating disorder education in the medical profession, including embedding it in the curriculum? For GPs already in surgeries, a screening tool should be produced to ensure that, instead of relying on BMI, they ask the right questions of patients, with clear guidance on the language to use.
Secondly, GPs are using BMI to ration access to services as demand hugely outstrips supply. I welcome the Government’s recent investments in mental health funding, but it is mainly for children and young people, and only one in six eating disorder patients is under 18. Given the rise in demand, significantly exacerbated by Covid, without ring-fenced funding BMI will continue to be used to limit access to eating-disorder services, resulting in further unnecessary deaths.
Lord Bourne of Aberystwyth (Con) [V]
My Lords, it is a great pleasure to follow the noble Baroness, Lady Parminter, who spoke cogently on this subject, as she always does. I also congratulate the noble Lord, Lord Addington, on securing this important debate.
The past year has highlighted the importance of health and, specifically, of weight as a determinant of health. Just yesterday, as the noble Lord, Lord McNally, reminded us, the Minister stressed the importance of combating obesity and the historic challenge we have in our country in tackling obesity. Apart from age, it is the single most important factor in tackling Covid-19, for example.
I also welcome the broader message that the Minister has given out on more than one occasion about the importance of preventive healthcare and the accent we should all place on a healthy diet, an exercise regime, such as walking and cycling, and maintaining a healthy weight in so far as one can. I welcome any rebalancing of our approach to health in this way for the future. I think that is important and welcome.
I appreciate, as others do, that BMI is not a perfect guide to a healthy weight—far from it. For example, as we know, muscle is denser than fat, so somebody who has a muscular build will be heavier than somebody who does not, and different people may be susceptible to some diseases and so on. BMI clearly needs to be used alongside other factors—that is crucial.
However, from the perspective of getting the basic message across, there is no doubt in my mind that in tackling obesity the use of BMI is the right call to arms, although I accept we need to be very much alive to the mental challenge of the eating disorders that confront many people. It is undoubtedly the case, as the noble Baroness, Lady Parminter, has just said, that pressure from Covid-19 has increased problems in relation to finding treatment for eating disorders. I would welcome the Minister saying something on this when he sums up.
I also look forward to hearing from the Minister about what specific actions Her Majesty’s Government are looking at around whether to nudge people with incentives, or at least opportunities, to exercise across the country; whether to take action to influence diet, for example, through school meals, hospital meals and meals in other institutions; how we are going to control excess sugar and salt in our diets, possibly through restrictions; and how we are going to control the advertising of unhealthy foods and drinks. These are important issues that we need to confront for the future and one of the lessons that we can clearly learn from the Covid pandemic.
Baroness Altmann (Con)
My Lords, I too congratulate the noble Lord, Lord Addington, on securing this debate. I also support calls from the Obesity Health Alliance to extend calorie counting information to cafes, restaurants and takeaways, both to inform the public and to encourage providers to offer both healthier options and perhaps—one element that is little talked about—reduced portion sizes.
Curtailing the promotion of foods high in fat, sugar and salt is essential. A recent survey cited by Diabetes UK in its helpful briefing reports that 74% of the public support not showing advertisements for junk food before 9 pm, on TV or online. Why only 9 pm? Why should such foods be promoted for adults? Type 2 diabetes is one of the fastest-growing health problems. It accounts for 10% of NHS spending already, and obesity accounts for 80% to 85% of the risk of getting diabetes, with 12.3 million people estimated already to be at risk.
As others have said, Covid carried particular risks for people who were obese. There are significant other health risks as well, including heart conditions, some cancers and respiratory problems. BMI may be a handy starting point, a quick and cheap way for estimating the number of those at risk of health problems. It is crude—the noble Lord, Lord Addington, and my noble friend Lord Moynihan are correct that sports people will have particular muscle mass and bone density advantages which turn into disadvantages when measured on a BMI basis—but this issue needs to be built on. As we know, BMI is just one basic measure. It does not account for individual differences.
Of course, body image issues contribute significantly to mental health and well-being. They can bring on or reinforce a sense of inadequacy. Fat shaming, anorexia and bulimia tend to be indicative of mental health problems. BMI therefore needs to be supplemented by blood pressure, ECG, cholesterol and muscle mass assessments, as well as, crucially, mental health assessments that can spot problems that may otherwise soon lead to health issues.
Lord Thomas of Gresford (LD) [V]
My Lords, I congratulate my noble friend Lord Addington on securing this debate. Having played rugby with him—and you cannot get closer to the noble Lord than being in the second row pushing against his noble backside— I suppose that, according to his opening remarks, I should be dead.
I share my noble friend’s concern about the misuse of and over-reliance on the BMI. To create a lifestyle that is dependent on staying within its limits is a mistake. It depends where your fat is stored. If your weight is around your waist disproportionately, you may well be within the BMI range but nevertheless at risk of heart disease, diabetes and other conditions. Studies instituted by Mark Hamer at Loughborough University some three or four years ago demonstrated that waist-to-hip ratio was a far better body indicator of health and longevity than the BMI.
I thoroughly agree with the views expressed by the noble Lord, Lord Moynihan, and the expert research to which he referred. It shows, in short, that if you need braces as well as a belt to keep your trousers from slipping below your knees, you are in trouble—which I know, because that was my condition before I was diagnosed with Hodgkin lymphoma a couple of years ago. I have just now returned from my daily 7,000 paces with four inches off my waist and no braces. I cannot wait to get back on the water in a rowing eight—I hope that the noble Lord, Lord Moynihan, will share my desire.
Life expectancy is increasing, but that does not necessarily mean an increase in healthy life years; it may be extra years of chronic ill health. The Scottish health survey published in the British Medical Bulletin in 2011 showed that, in the 10 years between 1998 and 2008, waist circumference increased by 5 to 10 centimetres in both sexes at ages between 50 and 70 years without a corresponding increase in BMI. It was thought to indicate an unfortunate circumstance of gain in visceral fat mass and loss of lean tissue. Both are major determining factors of ill health in the elderly.
The Women and Equalities Committee in the other place was right to find that BMI has turned into a justification for weight shaming and body image anxiety among the young. But, as I have said, it can be equally misleading as a guide to a healthy old age and, for this reason as well, the use of BMI as a measure of healthy weight should stop.
Baroness Thornton (Lab)
My Lords, I congratulate the noble Lord, Lord Addington, on this debate, which has already raised many interesting issues. Indeed, the report of the Women and Equalities Committee into body image is not new. Over 40 years ago, Susie Orbach wrote Fat is a Feminist Issue; she challenged body mass index as a measure of—as she said—“nothing useful” and pointed out how it affected women’s self-image. On the 40th anniversary of FIFI, as many of us know it, she said:
“When you grow up absorbing the idea that food is quasi-dangerous, it is hard to know how to handle it. There are no end of experts selling their wares whose books and products end up generating enormous profits … So, too, with other food and diet fads. The desperation that exists to be at peace and dwell in our bodies clashes with the knowledge that such schemas promote or reinforce confusion about appetite and desire.”
The fact is that, 40 years on, it is still pretty grim:
“It’s a story of … destabilising the eating of many western women and exporting body hatred all over the world as a sign of modernity”,
as a way of medicalising and pathologising
“people’s relationship to food and bodies so successfully that vast industries would grow up to treat problems that these industries had themselves instigated.”
What is clear from this short debate is that it should come as no surprise that BMI as a single measure would not be expected to identify cardiovascular health or illness; the same is true for cholesterol, blood sugar and blood pressure. As a single measure, BMI is clearly not a perfect measure of health, but it is probably a useful starting point for important conditions when a person is overweight or obese.
The Select Committee said that it was
“not satisfied with the use of BMI as a measurement to evaluate individual health.”
On the other hand, as other noble Lords have said, Diabetes UK says that it provides
“valuable information for care focused on individuals that doesn’t discriminate against anyone.”
I dispute that, but it also goes on to say that it has been an important tool for monitoring the population’s health and informing policy decisions and has been fundamental in the rollout of the Covid population risk assessment, which identified 1.7 million people at increased risk of hospitalisation and death from coronavirus. Without that use of BMI, a population-based intervention would not have been possible.
The challenge for the Minister is how to reconcile these issues. I look forward to hearing his answer.
The Parliamentary Under-Secretary of State, Department of Health and Social Care (Lord Bethell) (Con)
My Lords, I too am enormously grateful for the successful efforts of the noble Lord, Lord Addington, in securing this important and insightful debate. Any debate on our weight, health and fitness is extremely personal and bound to arouse emotions. It certainly does in my household, and so it does in this Room. I very much welcome, though, a national conversation about these issues. It is the right time to be having it.
As noble Lords have pointed out, we face two major challenges. The first is that too many people are overweight or living with obesity. I have already spoken this week about this grave challenge faced by this country, which was clearly outlined by the World Obesity Federation report on Covid death. That is a real wake-up call. The Government have already swung into action to a degree. More is planned. We are trying our hardest to address the knotty problem that few countries have ever completed successfully.
The second issue that the country faces is that too many people have eating disorders that make their lives a misery and threaten their health. I am grateful to noble Lords who have spoken movingly on this subject. Although she did not speak this afternoon, I reference the noble Baroness, Lady Bull, who recently arranged a stakeholder session with me that gave me first-hand testimony from those seeking to address these important issues.
I fear that poor old BMI, the much-maligned metric and subject of this debate, has in some ways become a surrogate and a scapegoat in a battle between two groups that see these two big issues—obesity and eating disorders—as somehow in conflict with each other. I do not want to take sides in any such battle. While I always welcome policy dialectic and the battle of ideas to hammer out the most sensible policy on complex issues, I do not think this should be a zero-sum game with winners and losers on opposing sides. Instead, I would like to work towards finding a way through, because it is imperative that, as policymakers, government Ministers understand the impact of our policies in one area on our policies in another area and somehow find a way of tackling them both in a complementary fashion.
Before I try to do that, let me say a few words in defence of the poor old maligned metric, BMI. It is, as noble Lords have pointed out, a very simple calculation—body weight divided by the square of height. It has been used by the National Institute for Health and Care Excellence, the World Health Organization and countless health organisations around the world for decades as just this: a simple first step to establish if individuals might be carrying too much or too little body fat for their long-term good health. To answer the noble Lord, Lord McNally: as risk assessments go, BMI has proven value year after year, study after study, in countries around the world, for predicting premature death and many chronic diseases, including type 2 diabetes, some cancers and some heart disease. As my noble friend Lady Jenkin rightly pointed out, it is simple to measure and highly reproduceable. It does not require specialist equipment or clinical training, unlike many methods of assessment noble Lords mentioned.
None the less I recognise, as the noble Lord, Lord Addington, pointed out, that it is not perfect for all people. Muscly athletes are considered too fat, and it is problematic for the very old. It is not unique, and, as the noble Lord, Lord Thomas, pointed out, a measuring tape around the waist is also very insightful. But it works for most people very well. The reality is that most people who have a high BMI are also at risk of ill health and premature death. When establishing an individual’s health risk, the noble Lord, Lord Brooke, is right: health professionals must use follow-up measures and assessments as well, such as waist circumference. NICE is crystal clear about this and, as my noble friend Lady Wheatcroft pointed out, BMI is just the recommended first step in the assessment pathway.
I hear the noble Baroness, Lady Parminter, loud and clear. I have read the stories to which she referred. I am extremely disappointed by them. It is not right and it is not recommended in the eating disorder commissioning guide. I agree that we need to listen to patients much better. I agree completely with my noble friend Lady Altmann that, in such cases, mental health assessments are absolutely essential. Similar safeguards apply to assessing whether someone is underweight, and of course it is absolutely true that conditions such as anorexia and other eating disorders require specialist assessment. NICE is looking at ways to improve the metric for ethnicity and other factors. None the less, given the large international evidence base underpinning BMI, its simplicity and its wide international use, I do not see it as likely that there will be wholesale change.
BMI is an essential tool in our battle against obesity. We have a huge problem in this area: six out of 10 adults and more than one in three children aged between 10 and 11 are overweight or living with obesity. In my briefing, I have page after page on the impact of obesity on the lives and futures of British families. It has a huge impact on the NHS, the causes of cancer and the causes of diabetes. It has an impact on women: obese women are 12.7 times more likely to develop type 2 diabetes and three and a half times more likely to have a heart attack than women who are a healthy weight. I could go on and on.
As the noble Baroness, Lady Redfern, rightly explained, it is children who are overweight or living with obesity who are sometimes affected the most. In particular, many experience bullying, low self-esteem and a lower quality of life. They are more likely to continue to be overweight or living with obesity into adulthood, which in turn increases their risk of type 2 diabetes, cardio- vascular disease and other chronic illnesses. We must do something to address this issue.
As the noble Lord, Lord Brooke, and my noble friend Lady Jenkin rightly said, during the pandemic we have seen a stark illustration of the impact of living with obesity. That is why we are acting. To answer my noble friend Lord Bourne, we are tackling the nation’s obesity with a new strategy. Published in July last year, it set out measures to get the nation fit and healthy, protect against Covid-19 and protect the NHS.
As my noble friend Lady Jenkin pointed out, there are many nudges in shops, on TV, on computers and on phones that encourage us to buy less healthy food. The Government are committed to restricting further the advertising of less healthy food on TV, and we are considering online restrictions on the promotion of less healthy food in shops. We are also committed to calorie labelling in restaurants and improving front-of-pack labelling on pre-packed foods. These actions are about helping people to make healthy choices.
At the same time, there is another issues that we must face: the national crisis around body identity and self-confidence, which, in some, manifests itself as extreme eating disorders or as mental health challenges. The Women and Equalities Committee report put it extremely well. Acute anorexia is a particularly distressing mental health condition that can ruin lives and cause horrible worries for the families of those concerned. That is why our mental health recovery plan is putting £500 million into work to ensure that we have the right support for people with mental illness, and I am encouraging further policy on positive body imagery.
I want to make my point clearly: I am concerned that there is a perception that these two agendas are somehow at odds with each other—that if we put calorie counts on menus, we will somehow trigger mental health episodes for those with eating disorders or reinforce a damaging body image culture, or that if we push our message on healthy lifestyles too much, we will stigmatise those with sensitivities about their body image. I simply do not accept that this needs to be the case. While I do not discount people’s lived experiences, it is important that we know what we are buying. The calorie count of everyday food available in fast-food chains is often absolutely shocking. The food we grab on the go or have delivered to our homes is now a big part of our diet, yet there is huge ignorance about what that food contains.
Collectively, we need to somehow work a way through this. The maths of it are really simple: there are 725,000 people with eating disorders in the UK. That number may be higher, as I recognise that some struggle to seek support and are not included in the figures. We must do everything we can to bring them the clinical support they need to address their significant mental health issues, so that they can live resilient lives and deal with the stresses of everyday living. At the same time, there are millions of schoolchildren and young people living with poor mental health. My DCMS colleagues are doing everything they can to address the challenges of social media in their lives.
In addition, there are 28.9 million adults in England who are either overweight or living with obesity. Somehow, we need to inspire those people to take on board a healthy lifestyle, which means changing their diets and taking more exercise. These are tough decisions that people can only make for themselves. It is not our business to deal in shame; we are dealing in honesty. That is where the BMI comes in, because it is a simple, unequivocal and, for most people, accurate predictor of risky lifestyles.
It is not beyond our intellectual capabilities to find a way through this conundrum. I am hugely grateful to the noble Lord, Lord Addington, for bringing us the opportunity to debate these sensitive subjects, and I hope very much that we can work together to find an answer to this challenge.
The Deputy Chairman of Committees (Baroness Healy of Primrose Hill) (Lab)
The Grand Committee stands adjourned until 3.30 pm. I remind Members to sanitise their desks and chairs before leaving the Room.
Arrangement of Business
The Deputy Chairman of Committees (Baroness Healy of Primrose Hill) (Lab)
My Lords, the hybrid Grand Committee will now resume. Some Members are here in person, others are participating remotely, but all Members will be treated equally. I ask Members in the Room to respect social distancing. If the capacity of the Committee Room is exceeded or other safety requirements are breached, I will immediately adjourn the Committee. If there is a Division in the House, the Committee will adjourn for five minutes.
Alcohol Harm Commission: Report 2020
(3 years, 8 months ago)
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Baroness Finlay of Llandaff
To ask Her Majesty’s Government what assessment they have made of the report by the Commission on Alcohol Harm 2020 ‘It’s everywhere’—alcohol’s public face and private harm, published on 14 September 2020.
Baroness Finlay of Llandaff (CB)
My Lords, I had the privilege of leading a group of 16 experts to investigate one of the most pressing issues of the day: the harm caused by alcohol. I extend my sincere thanks to each of those 16, who gave their time and expertise so generously in their dedication to reducing alcohol harm. The findings of the Commission on Alcohol Harm were stark. One cannot overstate the sheer scale of the harm caused by alcohol every day to individuals, those around them and society. Alcohol is linked to 80 deaths every day across the UK and, most worryingly, it kills people when they are young. Alcohol is responsible for more years of working life lost than the 10 most frequent cancers combined.
However, the commission found that alcohol harm extends beyond health. We heard a great deal about the impact on families: 200,000 children are estimated to live with an alcohol-dependent parent, making them five times more likely to develop eating disorders and three times as likely to consider suicide. Some children are harmed even before they are born. Exposure to alcohol in the womb can cause foetal alcohol spectrum disorder, a lifelong developmental condition found in up to 17% of UK children.
The links between alcohol, violent crime and anti-social behaviour are strong. Alcohol fuels almost 40% of violent crimes and half of domestic violence. Drunk-driving causes almost 9,000 casualties and 260 deaths a year. Police Sergeant Mick Urwin told us that
“delivering a death message to a parent, brother, sister, son or daughter to inform them that someone has been killed by a drink driver is not something I ever got used to”.
The burden falls on all society, particularly public services. There are 1.26 million alcohol-related hospital admissions annually and alcohol costs the NHS £3.5 billion. The cost of alcohol-related crime is even higher, at £11.4 billion per annum. That is why sentencing to alcohol abstinence and monitoring is so important, with its high compliance rate allowing people to face and tackle their harmful drinking, and it has been shown to decrease repeat offending.
The extent of these harms is truly shocking but is no surprise, as alcohol is ubiquitous. That is why we titled the commission’s report It’s Everywhere—a quote from a witness. We heard how alcohol is all around us: at social gatherings, on TV, in supermarkets, card shops and the workplace, and at all times of day or night. People told us they could not escape from alcohol; “relentless” was a word we heard repeatedly. Although national consumption has fallen from 2004’s historical high, especially as more young people abstain, the increases in measures of harm and deaths persist.
Alcohol’s harm is often hidden in plain sight, leaving people to deal with it alone, unsupported. The stigma of harmful drinking makes people conceal their problem. Children instinctively understand that they are expected to keep quiet about their parents’ drinking. To quote another witness:
“Families and children like us didn’t and won’t discuss it for fear of being separated, being taken away from parents, being singled out ... feeling embarrassed, scared of repercussions and fear of retribution”.
The alcohol industry’s “personal responsibility” framing blames individuals for their drinking. Stigmatisation makes it harder to seek help. Blame lies within the product itself: alcohol is addictive. It can turn people’s lives upside down, as anyone listening to “The Archers” at the moment will know. It warrants careful regulation, hence the commission’s recommendations.
First, we call for an alcohol strategy. The last was almost 10 years ago. Revision is urgently needed—last year, alcohol deaths reached their highest level since records began. The updated strategy needs to include evidence-based policies to reduce the affordability, availability and marketing of alcohol. These tools, recommended by the World Health Organization, proved effective at tackling tobacco use. Let us look at each in turn.
Alcohol harm and price are directly linked. The alcohol duty system is inconsistent and perverse—white cider at 19p a unit feeds addiction. Affordability has grown significantly in the last four decades, driven by low prices in off-trade settings. Cuts to alcohol duty at the annual Budget have not helped—beer duty is now 21% lower than in 2012-13 according to the Institute of Alcohol Studies. We urgently need minimum unit pricing in England, as already introduced in Scotland and more recently in Wales. Tax should be proportionate to the harm caused.
The commission heard from witnesses how the constant availability of alcohol affects those who drink. One individual told us:
“My dad can’t help drinking. Every day we need bread, milk etc from the shop next to our house. When he goes in, the temptation is too much for him. It’s not his fault when it’s staring him in the face. Maybe if we didn’t live near a shop he wouldn’t be able to get drink as easily.”
Local authorities told us that they struggle to reduce availability under the current licensing regime. The UK Government could follow Scotland to allow local authorities to consider public health as a distinct licensing objective when assessing licensing applications.
Advertising and marketing set the tone for our relationship with alcohol. The alcohol industry spends hundreds of millions of pounds on advertising, much of which can be seen by children and vulnerable individuals, such as those with addiction. Children’s exposure to alcohol marketing makes them more likely to consume alcohol and to start consuming it at an earlier age. Opinion polling carried out for the Alcohol Health Alliance showed that 75% of the public support reducing children’s exposure to alcohol advertising. Many countries, such as France, restrict such marketing to better protect their populations. We should follow suit.
Consumers have a right to know what they are drinking. It is bizarre that currently there are fewer legal requirements for information on a bottle of wine than on a carton of orange juice. Unlike soft drinks, alcoholic drinks do not have to list their calories or sugar content or ingredients. Consumer information is grossly inadequate, as there is no statutory requirement for drinks to carry a health warning, warnings about alcohol in pregnancy, or the weekly guideline for low-risk consumption. Without label information, consumers are unaware of the risks and cannot make informed decisions.
Time does not allow me to cover the toll on the NHS and social care, where the burden of alcohol harm ultimately falls. Suffice it to remind your Lordships that alcohol is the leading risk factor for death, ill health and disability in 15 to 49 year-olds in England. It was causal in almost 12,000 cancers in 2015—that is 33 people a day—particularly cancers of the mouth, pharynx, oesophagus, larynx, breast, bowel and liver. It is also a factor in over 200 other diseases and injuries, including hypertension, heart disease, stroke, gastrointestinal disorders, brain damage and mental illness. Deaths from alcohol liver disease have increased 400% since 1970.
The Government have tackled tobacco harms and shown in their recent obesity strategy a willingness to take bold action to protect the public’s health. With an estimated 1.6 million adults in England having some degree of alcohol dependency, I hope that the Government will show the same boldness and heed our report’s recommendations.
Lord Brooke of Alverthorpe (Lab)
My Lords, I am most grateful to my noble friend Lady Finlay for her powerful introduction. I declare an interest as one of the members of her commission, which she so admirably steered to producing such a wonderful report.
In the limited time that we have, I want to focus on calories. I have been banging on about calories since the Labour Government were in power and about the need for calories to be shown on labels for alcohol. Why is the drinks industry exempt from telling people what they are consuming and what it might do to them?
I am pleased that we are starting to make some progress. There is a firm recommendation in this report and I hope that the Minister will be positive. One of the old excuses for why we could not do anything was that we were in the European Union and legislation and regulations there prevented us from acting unilaterally. We have now come out of Europe and we now have the freedom to do as we choose. I look to see whether the Minister will take sides on this issue, now that he has the freedom to do so, if required.
I had a useful conversation this morning with Sir Keith Mills, who has been appointed by the Prime Minister to review the way in which incentives might be used to encourage people to reduce their weight and exercise more. He is looking at new technologies; there are some developments taking place that are of some significance. I see that the Minister is nodding in agreement, so perhaps when he comes to respond he might say a little more about that. A change would allow an app, on our mobile or on our wrist, to tell us, for all items that have calories marked on them, just what we are purchasing. We would know what is in our shopping basket while still in the supermarket. That would be a big change. We should not permit the drinks industry to be exempt from that change.
I hope that the Minister will assure us that the consultation will be concluded soon and the Government will come out with a strong indication that, for the first time ever, we will have formal labelling on alcoholic drinks.
Baroness Randerson (LD) [V]
My Lords, I declare an interest as co-chair of the All-Party Group on Liver Health, for which this is a very relevant debate. I thank the noble Baroness, Lady Finlay, for all her work in this field.
What do we need to make inroads on this problem? Obviously, first, we need better access to treatment. Secondly, Scotland’s minimum unit pricing saw a net reduction in off-trade sales by 4% to 5% in its first year. That is worth while, but it is not enough in itself.
Recent research by Cardiff University—I declare an interest as chancellor of that university—has demonstrated the link between food purchases and alcohol purchases. Buying the food for our meal literally prompts us to pick up the bottle of wine or beer from the next aisle of the supermarket. This research suggests that food and alcohol sales need to be separated and not part of the same trip to the till. Many other countries do this. I recall that in Australia the same supermarket sold both sets of items, but you went to a totally separate section and paid a separate bill for the alcohol. Finland, Sweden, Canada and some parts of the US apply similar rules. The Government should explore this.
We need further controls on the advertising of alcohol. Finally, we need more information on labels and when we buy alcohol in the pub. If we buy a lemonade or crisps or a bar of chocolate, we know the calories and contents. When we drink a glass of wine, we deserve to have access to the same information on calories and the number of units.
Baroness Jenkin of Kennington (Con)
My Lords, as another of the commissioners, albeit a rather absentee one, I am grateful to the noble Baroness for instigating this debate and to all those who participated in the report either as witnesses or by taking evidence. Its findings were powerful and worrying.
The noble Baroness, Lady Finlay, and I worked together in 2011 to persuade the Government to legislate for compulsory sobriety tagging for alcohol-related crimes. The alcohol abstinence and monitoring requirement, which checks offenders’ intake every 30 minutes, was piloted successfully and is now rolled out across the country. There is a clear connection between problematic alcohol consumption and crime, particularly heavy drinking or binge-drinking and violent crime. The most recent findings, from the Crime Survey for England and Wales in 2018, estimate that the proportion of violent incidents where the victim believed the offender to be under the influence of alcohol was 39%. The estimated total social and economic cost of alcohol-related harm in 2018 was £21.5 billion.
Reducing alcohol-related crime will mean fewer victims, save taxpayers’ money and have a positive impact in communities and on individuals. The legislation to introduce this solution to alcohol-related crimes took more than 10 years from conception, when Boris Johnson as Mayor of London first asked for it, to final implementation. It is a common-sense, effective, value-for-money solution. Why did it take so long?
In the time I have left, I, like others, commend the Government for their commitment to calorie labelling of alcoholic drinks as part of the obesity strategy. Polling shows that the UK public are overwhelmingly supportive of health and nutritional information on alcohol labels. It is clearly absurd that alcohol-free beer, for example, shows nutritional information but ordinary beer does not. This has to change. It is another common-sense, effective policy and I urge the Government to stick to their plans.
Baroness Masham of Ilton (CB) [V]
My Lords, I chaired a committee for the Home Office in 1987 on young people, alcohol and crime. Many of the recommendations in this report, ‘It’s Everywhere’ - Alcohol’s Public Face and Private Harm, are similar to those in the 1987 report.
After the report in 1987, I learned that advertising for the alcohol industry is powerful, vigorous and effective. To balance that, it is vital that there should be a forceful, effective education policy to alert everyone, especially the young, to the dangers of unwise drinking. I had two goddaughters who died of alcohol harm, and my mother-in-law, who was an alcoholic, also died early. I spent many years working with young offenders and alcohol was one of the problems involved their lives. Alcohol causes so much violence and family stress.
Recently, university students have died after rugby initiation drinking games. It appeared that they did not know of the dangers associated with drinking large amounts of alcohol over a short period of time. There should be far more forceful warnings about the dangers of excessive alcohol consumption across the country if we want to save lives. I thank my noble friend Lady Finlay of Llandaff for this report and I hope that the Government respond positively.
The Lord Bishop of Carlisle [V]
My Lords, I too congratulate the commission on its work in highlighting the harm caused by the abuse of alcohol. I wish to focus my brief remarks on the relationship between alcohol and domestic violence.
The statistics make this clear. Home Office figures indicate that alcohol is involved in up to 50% of cases of domestic abuse, as we were informed earlier by the noble Baroness, Lady Finlay. Though not necessarily a direct cause, it is frequently a significant contributary factor. What is more, when alcohol is involved, the abuse affecting children, as well as adults, is more likely to be serious, increasing the risk of physical, emotional and psychological harm. This has, of course, been a particular problem during the last year with the various restrictions that have been imposed to counter the coronavirus pandemic. The commission’s findings on this, as well as several other types of harm, must surely cause Her Majesty’s Government to rethink the statement made in January 2020 that they
“are not planning a stand-alone strategy”—[Official Report, 21/1/20; col. 1043.]
for alcohol. It would complement, rather than cut across, proposals made in the NHS Long Term Plan.
The commission strongly recommends a strategic approach that would not only address the link between alcohol abuse and domestic violence but take into account some of the factors that frequently accompany harmful alcohol consumption. These factors include educational exclusion, social deprivation, financial distress, employment worries and psychological pressures. I wholeheartedly commend the commission’s proposal that the domestic abuse commissioner role, which is being created as part of the Domestic Abuse Bill, must have a duty to have regard to the link between alcohol and domestic abuse in its work.
Lord Rennard (LD)
My Lords, introducing minimum unit pricing for England was a key recommendation of the commission. A strong evidence base for this was provided by a wide range of organisations, including the Children’s Society, the Association of Directors of Public Health, Cancer Research UK, the British Medical Association and several local authorities. A 50p minimum unit price in England has been estimated to lead to almost 22,000 fewer hospital admissions and 525 fewer deaths per year when in full effect. This would save the NHS £1.3 billion annually. As hospitals deal with the consequences of Covid-19, freeing up capacity is essential. People who live in poverty are more vulnerable to the effects of alcohol abuse. It is estimated that nine in 10 lives saved by minimum unit pricing would be from low-income groups. Yet the spokespeople for some business groups and right-wing organisations oppose minimum unit pricing, citing their previously rarely expressed concerns about poverty, when their real concerns are simply about profits. We need to remember that alcohol has a major impact on the public’s health.
Alcohol can cause over 200 conditions including cancer, heart disease, liver disease, stroke and mental health problems. When I asked a Question about this issue three years ago, the noble Lord, Lord O’Shaughnessy, then the Health Minister, cited evidence that
“in 10 years, minimum unit pricing could on an annual basis reduce alcohol-related deaths by 356, alcohol-related hospital admissions by 28,515, and crime by 34,931 crimes.”—[Official Report, 28/2/18; col. 654.]
But we were told to wait for more evidence from Scotland and elsewhere. We now have that evidence. The policy is working in Scotland; it is being introduced in Wales. We should not have to wait any longer in England.
Lord Smith of Hindhead (Con)
My Lords, I add my thanks to those offered to the noble Baroness, Lady Finlay, for initiating this debate. I refer the Committee to my interests as set out in the register.
I want to make just one quick point today: my belief that we need to be more careful about how we talk about the negatives of consuming alcohol and the need to be balanced in the advice given. Throughout this pandemic, we have seen the effects which lower socialisation has had on people’s health and mental health. I have always believed that a society which socialises together is stronger and healthier. Although alcohol does not have to be integral to a healthy social life, moderate alcohol consumption undoubtedly plays a large part in British culture and the social lives of many millions of people who enjoy pubs, clubs, bars, restaurants or indeed entertaining at home.
It is widely acknowledged that the comments made by the previous Chief Medical Officer, Dame Sally Davies, when she said that women should think about the risk of breast cancer every time they reach for a glass of wine, were misjudged. They were ultimately rebutted and reworded, but the horse had already bolted. Another, more recent example is from Drinkaware, which advised people getting their Covid-19 jabs not to drink in the two days before the jab and for up to two weeks afterwards. That advice then had to be dismissed by Ministers and the UK’s Medicines and Healthcare products Regulatory Agency, not least because not one study has tested any correlation between alcohol and the efficiency of either of the vaccines on offer in the UK today, a fact that even Drinkaware acknowledged.
Questions should be raised with Drinkaware about how this irresponsible advice could ever have been given, not least by the drinks industry, which for some reason continues to fund it. The problem caused by this type of nonsense advice is that it helps create a sense that all advice on alcohol consumption is nonsense. It undermines sound and sensible advice given by Governments and related health industries. Yes, of course overconsumption of alcohol is unhealthy, but our modern-day temperance movement needs to temper creating fear and to start acknowledging that most people have common sense and just enjoy a modest drink.
The Deputy Chairman of Committees (Baroness Healy of Primrose Hill) (Lab)
As the noble Baroness, Lady Boycott, has withdrawn, I call the next speaker, the noble Baroness, Lady Fox of Buckley.
Baroness Fox of Buckley (Non-Afl)
My Lords, there is always a danger when addressing lifestyle choices that policymakers indulge in overreach. The relentless war on alcohol emanating from public health over recent years is no exemption. This can mean the state trampling on individual agency, a point well made by the noble Lord, Lord Bethell, in yesterday’s Question on obesity. There is another danger when reports are commissioned to look at harms: that they see only harms and see harms everywhere. This can mean a disproportionate focus on risk and a loss of balance.
My concern about the direction of this report is that it moves away from the sometimes exaggerated health harms of individual alcohol use into the broader social and economic realms. In doing so, it may deploy guilt by association by linking alcohol and drinkers with reprehensible behaviours such as domestic abuse, family neglect, crime and child suicide and with a financial burden on public services. There is also the danger of conflating causation with correlation. This can mean that harms associated with a small minority are projected population-wide. Indeed, the proposed illiberal solutions, such as minimum pricing, treat everyone as a potential problem drinker and alcohol per se as a harmful substance.
Surely we need balance. Alcohol is a legal and enjoyable part of human engagement and relaxed sociability for millions of people. The direction of this report could disproportionately penalise and unfairly demonise the vast majority of those who drink responsibly.
Finally, can we remember the hospitality industry? With lockdown, some 10,000 pubs, clubs and restaurants were forced out of business in 2020. That awful loss of jobs and livelihoods looks set to continue. We have seen curfews and pubs open but with alcohol banned in Scotland and Wales. This smacks of a joyless puritanism. I appreciate that I am almost a lone voice here, but there is no democratic mandate for “Temperance UK”. Policy interventions should be targeted, discreet, and aware that alcohol can be harmful but usually is not, and that grown-ups should be free to choose how they use alcohol regardless of risks.
Baroness Walmsley (LD) [V]
My Lords, alcohol harm requires a cross-departmental response because of the range of harms that alcohol can cause. That is why I support the call of the noble Baroness, Lady Finlay, for a coherent, cross-government strategy.
The commission says, “It’s everywhere”, and it is. Drama can often explore complex issues in real life. The writers of Radio 4’s “The Archers” know that, hence their recent storyline about Alice’s struggles with alcoholism.
There are parallels with the obesity crisis, and there the Government have at last recognised that regulation has a part to play. The same goes for alcohol. We live in an obesogenic and alcogenic environment, and regulation can help. For example, people often do not know how much they are drinking or how strong a drink is. I have been asking for two decades for all alcohol to have its calories and alcohol units clearly labelled, but that still does not happen. I hope that will change now.
Services are thin on the ground. When police are called to an event of domestic violence, they should be able to link the perpetrator to therapeutic services and the children to social services. But this does not happen because the services are not there. This is crazy because, putting aside the human cost, money could be saved if they were. Are GPs and antenatal clinics confident to ask questions and refer people to alcohol services, where appropriate? Probably not.
Finally, the report says that, in Scotland, deprived groups are six times more likely to be admitted to acute hospitals and 13 times more likely to be admitted to psychiatric hospitals for alcohol problems than the least deprived groups. So the matter is often related to poverty. However, poor people can afford alcohol—because it seems to make things better; it is an escape from the misery of people’s lives. If we banish poverty, introduce minimum pricing and provide services, we can go a very long way to solving alcohol harms.
Lord Ribeiro (Con) [V]
My Lords, I declare an interest as a fellow commissioner on the Commission on Alcohol Harm.
We are all too aware of the impact of alcohol on adults and the increase in liver disease and premature deaths as a result. But it is important to recognise that the genesis of this addiction to alcohol may start with the very young. Our focus should therefore be on the negative effects of alcohol advertising on children.
Professor Yvonne Kelly of the department of epidemiology and public health at UCL looked at social media and its impact on alcohol consumption in 6,700 British youngsters. Among 10 to 15 year-olds it was found that those who log on for one to three hours daily were 44% more likely to drink alcohol, while those who log on for more than four hours per day were 89% more likely to drink often. But those with no social media profile were 59% less likely to consume alcohol than those using social media, even those using it for less than one hour per day. Professor Kelly noted that
“the pattern…among 10 to15 year-olds in our study is particularly striking, given that the purchase of alcohol for this group is illegal, coupled with the potential problems associated with the introduction of alcohol from an earlier age.”
More must be done to protect children from alcohol promotion, including online and via sport sponsorship, as has been done successfully with tobacco advertising—a campaign that focused on the impact of smoking on children. We must now apply those lessons learned to alcohol. Will the Government take note of the WHO recommendation for the enforcement of comprehensive restrictions on alcohol marketing and apply them in the UK?
Baroness Jolly (LD) [V]
My Lords, for such an excellent report, two minutes will not do it justice. The commission report that we are debating does not pull its punches and I would have been disappointed if it did. “It’s everywhere”—walk through any town or city centre in the UK from midday onward and it is difficult to miss those sitting on benches, amiable but often addicted to alcohol, drinking their cheap booze, which is often cider. At just over £1 for a litre of a supermarket’s own brand, that is a cheap way to get drunk. For the most part, they make no trouble early on; later, they can become rowdy and, after closing, violent. Local authorities license outlets—pubs, corner shops and supermarkets. Is it really necessary to have five outlets within a three-minute walk for a town with a population of just over 9,000?
This all comes at a cost, but, for many, after time, there will be an impact on their friends and families. Addicts are not easy to live with and relationships suffer. Health suffers too. Service providers need to be aware that primary services for those dependent on alcohol need to be fairly close to places of work or home for those who need them. Funding for services for addicts is from local authorities. Can the Minister guarantee that local authority public health services will still be funded through the future health and social care Bill? To move addiction services to the NHS would be a retrograde step.
There is also a woeful lack of psychiatrists training in addiction psychiatry in England. Can the Minister confirm that there is a nationwide drive to attract trainees?
I realise that there is no instant fix, but how successful are the Government in encouraging young health professionals to train in these areas?
Baroness Thornton (Lab)
My Lords, I thought I would read out all the recommendations very quickly. They are:
“1. A new comprehensive strategy… 2. Alcohol harm should be a specific part of the remit of the new Domestic Abuse Commissioner … 3. All professionals who have regular contact with children and families must have a core competency to intervene and provide support in cases where alcohol harm is evident … 4. Action to prevent, identify and support Foetal Alcohol Spectrum Disorder … 5. Reduced price promotion of cheap alcohol through increased alcohol duty and minimum prices with regular reviews of prices in relation to inflation and income … 6. Restrictions on availability of retail alcohol through reduced hours of sale and reduced density of retail outlets … 7. Comprehensive restrictions on alcohol advertising across multiple media, including restrictions on sponsorships and activities targeting young people … 8. Alcohol labelling to provide consumers with information about alcohol harm … 9. Treatment and care for alcohol use disorders and co-occurring conditions … 10. Brief psychosocial interventions for people with hazardous and harmful alcohol use, with appropriate training for providers at all levels of healthcare … 11. Action to reduce drink driving”.
Almost every one of those has been mentioned in some way or other during this brief debate, so I hand them all over to the Minister, asking whether the Government agree with them. Will they enact them, and in what timeframe?
The Parliamentary Under-Secretary of State, Department of Health and Social Care (Lord Bethell) (Con)
That is a tremendous challenge by the noble Baroness. I will do my best, but before I do, I congratulate the noble Baroness, Lady Finlay, on securing this important debate. I commend her on her commitment to reducing alcohol-related harm and I pay tribute to her and her team for spearheading the excellent report of the Commission on Alcohol Harm. I welcome the report’s recommendations and the opportunity to debate them. Before I make progress, I shall make a disclosure that my wife is a director of the company Diageo.
I acknowledge the report’s emphasis on wanting to change the conversation within society about alcohol and challenge alcohol’s position in our culture. Alcohol is not something which affects only the “weak” or “irresponsible”. It affects many people. We know that most people drink responsibly. I take on board the warnings of the noble Lord, Lord Smith, and the noble Baroness, Lady Fox, that we must be careful about overstating the specific dangers of alcohol or demonising those who drink responsibly. There is some good news in this area: we are seeing an overall decrease in the amount of people drinking, especially young people, which is highly encouraging. But we cannot avoid the fact that there are still those who drink at very harmful levels and where alcohol misuse leads to significant harms for the people involved and their families. I speak as one whose mother died of her alcoholism when I was of a young age, and I know from personal experience the huge impact that alcoholism has on those concerned and their families.
We recognise that there is still much work to be done. I completely agree with the rapporteurs that alcohol has large impacts on society that include costs to health, lost productivity and poor quality of life. Excessive alcohol consumption is the biggest risk factor attributable to early mortality, ill health and disability among 15 to 49-year olds in the UK—full stop. It is considered to be the third-largest lifestyle risk factor for preventable diseases in the UK, after smoking and obesity.
The Government are committed to supporting the most vulnerable at risk from alcohol misuse. We have an existing agenda on tackling health harms from alcohol, and I would like to touch on some of that today.
I completely hear the call of the noble Baroness, Lady Finlay, for a new government alcohol strategy. The Government have committed to publishing a new UK-wide, cross-government addiction strategy. This will consider a range of issues, including drugs, alcohol and problem gambling and will involve many departments at the same time. While each comes with its own set of issues, there are large amounts of common ground and significant benefits in tackling addiction in a comprehensive and joined-up way. The scope of this addiction strategy is still being developed, so this debate is most timely as we consider what more can be done to protect people from alcohol-related harms.
On alcohol labelling, the Government completely agree with the noble Baroness, Lady Randerson, that people have a right to accurate information and clear advice about alcohol and its health risks to help them to make informed choices. We have worked with the alcohol industry to ensure that alcohol labels reflect the UK Chief Medical Officer’s low-risk drinking guidelines. The industry has committed to complying with this requirement, and we are closely monitoring progress. As part of the Government’s latest obesity strategy, we committed to consulting on the introduction of mandatory calorie labelling on pre-packed alcohol and alcohol sold in the on-trade sector. This consultation will be launched this summer.
My noble friend Lady Jenkin raised the shocking statistic on alcohol-related violence, and I completely agree with her analysis. It is shocking to me that between 2016 and 2018 alcohol was a factor in 66% of violent incidents that took place in the street, pub or club and on public transport; this compares with 30% of violent incidents in the home. Between 2017 and 2019, one in five homicide suspects is recorded as being under the influence of alcohol at the time of the homicide, as is a similar proportion of victims. I have a deep wad of statistics that make extremely grim reading on this matter.
On the specific issue of domestic abuse, we are making progress. We know there is frequent co-existence of domestic abuse, mental health problems and the misuse of drugs and alcohol. Research indicates that in 34% of incidents of domestic violence, the victim perceived the offender to be under the influence of alcohol. The Domestic Abuse Bill will see better protections for victims and more effective measures to go after the perpetrators. We will reflect the importance of joining up domestic abuse, mental health and substance misuse services in the supporting statutory guidance. One action of this important Bill is to establish in law the office of the domestic abuse commissioner, with strong powers to tackle domestic abuse. The description of the commissioner’s role states that they must adopt a specific focus on the needs of victims from groups with particular needs, which could include mental health or substance misuse.
My noble friend Lord Ribeiro asked about restrictions on alcohol advertising. I remind him that there are already substantial restrictions on the advertising of alcohol, but we are working to review and improve them. The Government are working with industry to address concerns over irresponsible promotions, advertising and marketing relating to alcohol. Material in the Committee of Advertising Practice and Broadcast Committee of Advertising Practice codes relating to the advertising and marketing of alcohol products is extremely robust already, recognising the social imperative of ensuring that alcohol advertising is responsible and, in particular, that children and young people are protected. None the less, the Government are reviewing how online advertising is regulated in the UK, taking into account the many serious points made by my noble friend Lord Ribeiro and looking at how well the current regime is equipped to tackle the challenges posed by the development of online advertising.
The noble Baroness, Lady Masham, spoke so movingly about children and family life. The evidence is absolutely clear that growing up in a family affected by parental alcohol dependency can cause significant harm to children’s well-being and their long-term outcomes. Thanks to the personal testimony and campaigning of many noble Lords in the Grand Committee today, the Department of Health and Social Care and the Department for Work and Pensions have together invested £6.5 million on a package of measures, over three years, to improve outcomes and support for children whose parents are alcohol-dependent.
The noble Lord, Lord Rennard, asked pressingly on minimum unit pricing. There are no current plans to implement MUP in England. MUP has been in place in Scotland for less than three years and the Scottish Parliament will not consider its extension until April 2024, when much more will be known about the overall impact on consumption. We will continue to monitor the evidence as it emerges from Scotland and Wales. In the meantime, we are committed to reducing alcohol-related harm and so have already banned alcohol sales below the level of duty plus VAT. This means it will no longer be legal to sell a can of ordinary lager for less than 40p.
I close by reiterating the Government’s commitment to supporting the most vulnerable at risk from alcohol misuse. We already have a strong programme of work under way to address alcohol-related harms, and the new UK addiction strategy will provide an important opportunity to consider what more can be done. This activity will be informed by the best available evidence, including the report from the noble Baroness, Lady Finlay. I thank her very much for pushing so hard on this important issue and securing such a thoughtful, interesting and passionate debate today, and I thank all noble Lords who have taken part.
The Deputy Chairman of Committees (Baroness Henig) (Lab)
My Lords, the Grand Committee now stands adjourned until 4.30 pm. I remind Members to sanitise their desks and chairs before leaving the Room.
Arrangement of Business
The Deputy Chairman of Committees (Baroness Henig) (Lab)
My Lords, the hybrid Grand Committee will now resume. Some Members are here in person, others are participating remotely, but all Members will be treated equally. I ask Members in the Room to respect social distancing. If the capacity of the Committee Room is exceeded or other safety requirements are breached, I will immediately adjourn the Committee. If there is a Division in the House, the Committee will adjourn for five minutes. The time limit for this debate is one hour.
Covid-19: Poverty and Mass Evictions
(3 years, 8 months ago)
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Lord Bird (CB)
My Lords, I am grateful for this chance to talk about something which has caused me a lot of sleepless nights. Thirty years ago, I started the Big Issue. In the past 30 years, including through the Covid period, we have been working with in the region of 7,000 to 9,000 homeless people a year. With some notable exceptions, they are people who were socially prepared, almost from birth, to fall into some kind of crisis. The most common thing among them—apart from the fact that a lot of them have depression, drug and drink problems, social problems such as the breakdown of relationships or come from the working poor, the long-term unemployed or broken homes—is that they did very badly at school. We have 7,000 to 9,000 people. It used to be a bit more in the days of Mr Cameron, but it seems to have gone down a bit, which is a good sign because I do not want one vendor of the Big Issue, to be quite honest. Those people have been socially prepared, and I mean that in the nicest sense of the word; I am not blaming anybody. I am just saying that if you meet them you know that their circumstances are often wretched but they come from wretchedness. Often their family are working poor and their grandparents were working poor and all that, so you could say they have been socially engineered to become the army of people who are homeless.
Last year, when in the region of 35,000 people were taken in from the streets it was wonderful—absolutely marvellous. It was enough to make you cry, and I say that with full sincerity. The way that the Government put their arms around homeless people was incredible. I have never known anybody do that in such a large and manifest way. The figures were that something like 3,000, 4,000 or 5,000 people were expected but it turned out to be nearer 35,000 people. If you look at the profile of where they come from, you can expect the result that could lead to the streets. As an ex-street person, I was socially prepared from a very early age. This does not mean that everybody born into poverty has to end up as a John Bird sleeping rough and in the prison system and all sorts of things like that, but a majority of people come from that profile.
Covid-19 has introduced us to a much more frightening reality. We have those people—quite a small number in the region of 50,000 to 60,000—who are rough sleepers throughout the United Kingdom but there are in the region of about 250,000 to 300,000 people who fall into what is called homelessness, whether they are sofa surfers, in hostels or temporary accommodation, with a small cohort to be found on the streets. So you could say that there is in the region of about 300,000. I am not one of those persons who is going to stick with any figures because I have heard contradictory figures from all sorts of people and organisations. If you believe some of the figures, you get up to nearly 300,000; if you believe another lot, you would think that it was 500,000. Anyway, the point I am trying to make is that you have socially prepared people who have failed at school and failed in many ways. They have all sorts of problems around drink and drugs—a cocktail of problems.
Covid-19 has thrown up a completely new group of people. If 2 million people are expected to lose their jobs—we know that the Government are trying to do wonderful things there—and a large amount of people fall into homelessness because of Covid-inspired evictions, you have a completely different group of people. In many senses, it will include middle-class and professional people—people who have had all sorts of support in their lives and should never have become homeless but for the problem of Covid-19. Now, not the socially prepared people—the people I come from; you could say that we kind of half expected it—but people who are not prepared, and whose families and children have fallen into depression, are in this group.
The Government’s response, especially in moving the goalposts, so to speak—that is, moving the eviction ban back to the end of May—has been a series of stopgap actions. We all know that we are in the middle of an emergency; we are not out of it yet. When working in an emergency and trying to move on, saying “We’re going to do this for a bit longer, we’re going to do that for a bit longer” actually undermines the well-being of the people who as yet have not manifested as homeless and presented themselves as such.
We will potentially have hundreds of thousands of homeless people. If we take the 400,000 people living in rented accommodation, not to mention the people who are behind with their mortgages and have had a number of mortgage holidays, and the nearly 400,000 people who are at least nine months behind in their rent—if they pay £1,000 a month, they are £9,000 behind —we could have hundreds of thousands people presenting themselves as Big Issue vendors. I certainly could not handle an enormous amount of people like that.
We have to move beyond the emergency. We have to have a road plan from the Government because it is unnerving people who are caught in this position. We also have to take account of the fact that 60% of people who live in rented accommodation are renting from people who have only one or two flats or houses, and letting is their pension or income. All the big landlords cover the other 40% but it is mainly backbone people in the community and all that.
Today, we have launched a campaign. We are making a film for the 30th anniversary of the Big Issue and it will be about this crisis. We hope the crisis does not happen, but we have to find a way of convincing the Treasury that, for all the money it has spent, if it does not spend money now on preventing people falling into homelessness, the cost could be anywhere between £20,000 and £100,000 per person who does. The cost to the National Health Service if we let hundreds of thousands of people slip into homelessness is untold. So, now is the time for the Government.
I and all the other people working in homelessness prevention will do whatever is necessary to help the Government through this sticky situation. I know, and everybody knows, this is not easy. We have to keep people in their homes, we have to pay their rent or mortgage and we have to support them through the emergency. The emergency might be over in three weeks, it might be over in three months, it might be over in three years, but we have no alternative. Otherwise, the cost will double and treble because it is sometimes four times more expensive to keep people in homelessness than to prevent it. That is what I am asking the Government to do.
I realise that a lot of people will say that we cannot dump this cost on the future generation. I was born in 1946, and I, with many of my contemporaries, finished paying for the Second World War in 2007. Let me tell noble Lords: this is very similar to the Second World War.
Baroness Andrews (Lab) [V]
My Lords, I congratulate the noble Lord, Lord Bird, on securing the debate and on the uniquely powerful way he has introduced it. The Government will have a lot of help on hand to answer the first question the debate raises: the assessment of the risk of mass evictions. In all the statistics we have from the many agencies in the field, the Government point to the cliff edge, which has been postponed yet another month to the end of May. Much of what I say will build on what the noble Lord, Lord Bird, said.
The National Residential Landlords Association estimates there will be 800,000 people in arrears, the people the noble Lord described, who have never contemplated or imagined homelessness. They now face a real possibility of eviction for failure to pay rent. Fifty-eight percent of them have never had rent debt before, and almost one-fifth have debts of more than £1,000. Most at risk are the 11% of private renters who are now unemployed. As we know, Covid has hit the youngest hardest, taking their jobs and job prospects away. They will feel the full force of homelessness. The lucky ones will be able to retreat to the safety of the family home or squash in with friends, but there will be many who will not be able to do that.
It is significant that the NRLA has made common cause with housing charities. They have urged the Government to prepare a long-term strategy, rather than fight fires month to month. The NRLA estimates that about one-third of landlords will leave the market anyway or reduce their holdings. The Minister for Justice said on Monday in this House that it was nothing to do with him and that it is a housing problem. Of course, it is, but it sits urgently within a long-term structural problem of a failing housing market that can be solved only by making a priority of affordable and social housing. I am sure the Minister will tell us how much money has gone into supporting tenants and mortgages. Very well done, but it is absolutely the right thing for the Government to spend their money on.
The second exam question today is: what next? What is the long-term plan? What will it consist of? How will it address housing needs and costs and welfare benefits? When will it be announced? These are the answers the House of Commons Housing, Communities and Local Government Select Committee has asked for. It has asked for a strategic, resilient exit plan for the sector to transition out of the pandemic into stability and, specifically, for a modest financial package of discretionary housing payments of between £200 million and £300 million.
I therefore have a few questions for the Minister. When do the Government plan to respond to the Select Committee report and this proposition? When will the Government make a decision on the future of the £20 weekly uplift to child benefit? When will the Government bring forward their long-anticipated renters reform Bill? If the Government still do not know what to do, will they make a start by following the example of Wales and creating longer term security for tenants?
Lord Shipley (LD) [V]
My Lords, I should remind the House that I am a vice-president of the Local Government Association. This is the second time this week that we are debating this matter. On this occasion, it is an opportunity to discuss government policy approaches, or rather the absence of them, because just extending the temporary ban on evictions once again, as was agreed on Monday, is not sufficient, and I thank the noble Lord, Lord Bird, for enabling us to keep pointing out the need for workable solutions from the Government.
The noble Baroness, Lady Andrews, has drawn attention to the report of the House of Commons Housing, Communities and Local Government Select Committee, and I want to quote a little more from it. On 31 March, the Select Committee said that:
“The Government will eventually have to come up with a policy response, because it cannot keep extending the evictions ban forever more.”
It went on to say:
“We call on the Government to deliver a specific financial package —we prefer discretionary housing payments—to support tenants to repay rent arrears caused by covid-19, in consultation with the Local Government Association and appropriate bodies representing renters and landlords. We received an estimate that this package will likely cost between £200 and £300 million. Given the number of potential evictions this would prevent, it would likely save the Exchequer a substantial amount in homelessness assistance.”
What is the Government’s response?
The Resolution Foundation has estimated that the rates of rent arrears across all tenures were
“at least twice the level of arrears observed going into the crisis.”
It further estimated in January that more than 750,000 families were behind with their rent.
The Secretary of State committed a year ago that no one would be forced out of their home because they had lost income as a result of coronavirus. He also said that no landlord would face unmanageable debts. Landlords’ organisations and renters’ organisations have come up with a plan for a government-led rent relief scheme. The Select Committee has come up with a plan too. Many thousands of tenants and landlords are now extremely worried, so when will the Government decide what action to take?
Lord Young of Cookham (Con)
My Lords, I am grateful to the noble Lord, Lord Bird, for initiating this short debate. He mentioned that it was 30 years ago that he launched the Big Issue. I was the Housing Minister at that time, which was the first time that I met the noble Lord, and it is a pleasure to join forces with him again this afternoon in the campaign to prevent homelessness.
This debate follows on closely from Monday’s debate on the prevention of eviction order, answered by my noble friend Lord Wolfson. When he replied to that debate, he very modestly said that he was a humble Justice Minister and that many issues raised were for MHCLG, hence the welcome opportunity to follow up those issues this afternoon.
I welcome the Government’s decision to extend the ban on most evictions in effect until mid-June, which aims to strike a balance between the needs of tenants and those of landlords. I also welcome the generous support that the Government have extended to renters: the LHA increase, the UC uplift, the one-off payment of £500 and the increase in discretionary housing payments. These will enable the majority of tenants to cope, with some forbearance from their landlords.
However, as noble Lords have said, when the temporary arrangements come to an end, there will be a problem. Of course, each time the Government for understandable reasons extend the eviction ban, the greater the amount of arrears that are likely to build up. This is a particular problem for the 56% of families with arrears who are not in receipt of benefits and therefore are precluded from discretionary housing payments.
The noble Lord, Lord Shipley, had some estimates. Roughly one-quarter of a million social tenants and the same number of private renters were estimated by the Resolution Foundation to be behind with their rent in February. This poses a particular problem for the courts, which are already under pressure due to the pandemic backlog, but much more important is the problem for families facing eviction.
I know that Scotland and Wales are different, but the problems that confront private tenants with Covid-related arrears are basically the same wherever they live. The Welsh scheme was launched last autumn. The tenancy saver loan scheme is repayable over five years with interest at 1% and is operated by credit unions. It is paid direct to the landlord, and is available only if the credit union believes it is affordable. Once tenants have applied for the loan, they can access support and advice services to help them manage their financial situation. It was welcomed by housing charities and landlord representatives alike. In Scotland, they have a very similar scheme, launched last September. Its tenant hardship loan fund offers interest-free loans to those unable to access other forms of support for their housing costs.
I know there is an argument for grants rather than loans. They are simpler to administer and avoid adding to debt, but they are more expensive for the taxpayer and unfair to those tenants who made sacrifices to pay their rent while their neighbour next door, who made no such sacrifice, may get a grant to wipe out the debt. Loans avoid that moral hazard. I do not expect the Minister to change government policy when he winds up, but will his department carry out a quick review of the Welsh and Scottish schemes to see whether there are any lessons which we might learn in England?
Lord Loomba (CB) [V]
My Lords, this is an important debate and I thank the noble Lord, Lord Bird, for securing it. The lockdowns and the shutdown of economic activities caused a loss of income for many workers and were especially difficult for those whose livelihoods depend upon daily wages. At the start of the March 2020 lockdown, the Government put in place a package of emergency housing measures to keep people safe in their homes during the pandemic. The Housing Secretary, Robert Jenrick, pledged
“no renter who has lost income due to coronavirus will be forced out of their home”.
Figures from the Ministry of Housing, Communities and Local Government indicate that rent arrears have tripled to affect almost 700,000 over the course of the pandemic. Hundreds of thousands of renters have fallen into rent arrears. Sadly, many of these people are widows and partners who have lost the breadwinner in the family as a result of Covid-19. They have no income and cannot afford to pay rent for their accommodation. Under the current regulations, evictions are paused but will resume from June onwards. Therefore, will the Government provide financial support to these women, who have lost their spouse or partner as a result of Covid-19 and have no source of income, to save them from being evicted from their homes? Furthermore, will the Government clear their debts built up during the pandemic? I am afraid that these vulnerable women will otherwise become not only homeless but the victims of many heinous crimes.
Baroness Warwick of Undercliffe (Lab)
My Lords, I declare an interest as chair of the National Housing Federation, the trade body for housing associations in England. I congratulate the noble Lord, Lord Bird, on securing a most timely debate.
The Government took speedy and decisive action to bring in the ban on evictions, introduce the universal credit uplift and deliver the “Everyone In” initiative. That was well done. This package undoubtedly saved lives and prevented people losing their homes and being plunged into poverty at this most difficult of times. The Minister knows that the worst impact of the pandemic has not been evenly distributed across our society. People on lower incomes have had higher contraction and mortality rates. Many of them have lost jobs or are stuck in precarious employment. Things for them have got worse in the past 12 months, and the future is not looking bright.
Research from the National Housing Federation shows that since the start of the crisis the number of social rented households in England claiming the housing element of universal credit has increased by 39%. In addition, around 60% of households that claim universal credit are in rent arrears. This picture is just for the housing association sector, which has put in place robust measures to support residents. For people in the private rented sector, the situation must be a lot bleaker.
Housing associations pledged from the start that no one would be evicted because of financial hardship caused by the pandemic. They set up schemes across the country to help residents get access to the vital financial support they needed through the welfare system. For example, Sovereign Housing, which operates in the south-east, has retrained 75 members of staff to help residents who are facing a drop in income. It has partnered with local businesses to help these residents find employment. Unfortunately, such initiatives alone will not be enough. Many families now stand on a cliff edge. What will prevent them falling off?
As the country’s economic and social recovery starts, we must not leave people who are already struggling even further behind. The eviction ban is, of course, not sustainable in perpetuity but I hope the Minister will acknowledge that we face a real and present danger of unravelling the complex support system that is keeping people’s heads above water. We must learn the lessons from this crisis—that a safe, affordable and decent home, with effective government support where needed, is the bedrock of a compassionate society.
With strong government action and leadership, we can prevent hundreds of thousands of people facing long-term financial hardship. Can the Minister commit to preventing those families falling off that cliff edge by keeping the support packages currently in place, including the £20 increase in universal credit? Can he also tell us what assessments his department and the Government have made of the implications of withdrawing this package for the housing situation of individuals and families?
Baroness Gardner of Parkes (Con) [V]
My Lords, I was shocked to read that Citizens Advice had published a report which said that 58% of those who have now fallen behind on their rents were not in arrears before the Covid pandemic. Total arrears in January 2021 were estimated at £360 million. This has a knock-on effect on landlords, with 60% of them saying that they have lost income. Many are reliant on that rent as their only income. I declare my interests as set out in the register.
I have repeatedly welcomed the ban on evictions as introduced by this Government because it is of critical importance during such uncharted times that people retain their homes, as that gives them stability and confidence when they face such uncertainty. In the latest renewal of the protection from eviction regulations, I queried with the Minister whether 31 May 2021 was too early. I appreciate that there needs to be a balance for the landlords who are carrying the burden of non-payment of rent because they are not bankers and, in many cases, are suffering hardship themselves through non-payment of rent. However, I doubt that mass evictions will help either tenants or landlords.
Logic tells me that there needs to be further help or the courts will be bombarded with eviction hearings, while local authorities will find that they are forced to help rehome people who have lost their homes. In effect, the problem is merely being shifted to local councils, which will often be forced to used unsuitable temporary accommodation. Can the Minister outline what range of measures the Government are looking to introduce that will help meet the arrears, even if only in part, avoid the rush to the courts for evictions and help local authorities not to be swamped with homelessness cases? Without those measures, it is a bleak picture ahead for those in arrears.
There is emotional turmoil for tenants in losing their homes. The stresses and strains from being in rent arrears pale into insignificance when compared to the emotional breakdown of being evicted. To be able to seek local authority help, a tenant has to go through all the heart-wrenching court proceedings of being evicted in order to produce a court order to prove that they have been made homeless.
I know that myriad suggestions have been made—from loans to help meet arrears, to hardship grants by local authorities. While not ideal, perhaps there should be some form of wiping the slate clean arrangement, whereby landlords are provided with some compensation for rent arrears while keeping the tenant in place, thus avoiding mass evictions, with housing benefit to cover. I should add that the local housing allowance needs to be retained at the 30th percentile or increased.
I commend the noble Lord, Lord Bird, for bringing this debate to the Committee as I know that he has done much to help the long-term homeless and speaks from the heart in seeking to avoid yet more homelessness. His contribution to this House and on the street, particularly with the Big Issue magazine, has been enormous.
Baroness Blower (Lab) [V]
My Lords, I welcome the opportunity to speak in this short but important—and, indeed, urgent—debate secured by the noble Lord, Lord Bird. I am grateful to Generation Rent and Shelter for their excellent briefings, on which I will draw in my remarks.
The package of support put in the place by the Government in March 2020 was of course welcome, as the noble Lord, Lord Bird, said. It clearly helped to keep people safe. However, over the course of the pandemic, many have fallen through the net. Thousands of renters are now in arrears, private renters have been evicted illegally, and those with no recourse to public funds who have lost their jobs through no fault of their own have no safety net at all.
I believe there are five things that the Government could, and should, do. The first relates to benefits, which have been mentioned. The Government should remove the benefit cap, make the uplift in universal credit payments permanent and unfreeze the local housing allowance.
The second measure would be to put in place a funding package to help to clear rent arrears that have built up over the pandemic—the “wiping the slate clean” idea mentioned by the speaker immediately before me, the noble Baroness, Lady Gardner. Then, of course, the Government should urgently bring forward a renters’ reform Bill to end Section 21 no-fault evictions.
The third measure would be to suspend the no recourse to public funds condition, which has pushed many into homelessness and destitution. This condition should be suspended for at least the remaining period of the pandemic.
Fourthly, local councils must be funded to resource tenancy relations services. This would help to prevent unlawful evictions, which have continued to occur and remain at a high level.
Lastly, the Government should invest in a new generation of social housing to lift thousands out of homelessness and poverty into affordable, permanent homes.
In conclusion, it should go without saying that any premises offered for private rent should be, at the very least, fit for human habitation. It is a matter of utter shame that any private renter lives in premises that fall below that standard.
Baroness Greengross (CB) [V]
My Lords, during the Covid-19 pandemic, the eviction ban was an important measure that the Government were right to take as part of the national response to this public health emergency. We know that, without it, many thousands of people would have been evicted from their rental properties with nowhere to go. The ban was always a temporary measure that would inevitably come to an end, but this should not mean that, when it ends on 31 May, things should return to how they were before the pandemic.
I thank the noble Lord, Lord Bird, for his introduction to this debate. He is a tireless campaigner on these issues. Evictions from rental properties are an issue of intergenerational fairness—a policy area in which he has been very active. I declare my interest in the register as chair of the Intergenerational Fairness Forum.
According to 2020 figures from the ONS, adults aged between 35 and 45 are three times more likely to rent and not own a home than they were 20 years ago. According to Generation Rent, the number of people in rent arrears has tripled since the start of the pandemic, with one in 10 renters now behind on their rental payments. With more than 700,000 eviction notices issued since March this year, we risk a real crisis once the eviction ban is lifted at the end of next month.
At the start of the Covid-19 pandemic, the Government took steps to find accommodation for all homeless people, but homelessness is something that we have grown to accept in recent years. The crisis of the past year has proved that we can house the homeless when there is political will. With the increase in remote working during the pandemic, we know that many office blocks will sit empty for the foreseeable future. Given both these points, it would be unacceptable for the number of homeless people to increase after the ban is lifted.
We also know that homelessness is not the only risk once the current eviction ban is lifted. Overcrowded and substandard living situations are a concern, especially as we continue to live through a public health emergency. We know that housing is a public health issue, and any increase in homelessness or in the number of people living in crowded and substandard accommodation will put at risk our actions to stop the spread of Covid-19. The evictions ban must inevitably come to an end, but it should not mean a return to how things were prior to the pandemic. We have an opportunity to rethink our housing policies and, specifically, our policies regarding rental accommodation. Let us do so as a matter of urgency.
Lord Whitty (Lab) [V]
My Lords, the noble Lord, Lord Bird, in his unique way of introducing this debate, has drawn to our attention the fact that many of the invisible victims of the pandemic are private sector renters. They have been hit badly. They are twice as likely to have lost their jobs; they are twice as likely to have reduced income, and most of them have never been in serious arrears before. He was right that this could become a new phenomenon if we do not prevent some of these evictions.
The Government of course recognised the plight of these people and introduced a block on evictions, but they did not block the deeply anxiety-inducing process of notice that can eventually lead to eviction. Generation Rent estimates that nearly 700,000 Section 21 processes have been started over this last terrible year. That means that, when the protection ends, a potentially huge number of people will for the first time in their lives face homelessness.
Of course many of the solutions mentioned today are necessary. We will need to extend the ban on evictions beyond the end of next month and to provide legislation which changes the ease with which people can be evicted. We also need to address the problem of their short-term and long-term security through our social security system.
However, as the noble Baroness, Lady Blower, hinted, there is also a longer-term problem here, and that reflects the colossal strategic failure of housing policy in general over the past few decades. We have reverted to a situation which existed at the beginning of the last century, when a large proportion of the lowest-paid, lowest-income families lived in private rented accommodation. With the lack of access to owner-occupation and the loss of so much council housing, this is likely to increase. Unfortunately, though there are very good landlords and very good institutional landlords, there are also serious problems in respect of small landlords who do not really have the resources to provide decent homes and decent accommodation for those several hundred thousand people. The landlords face a problem themselves, in that they are operating at the economic edge brought about by this pandemic.
Unless we see this issue as part of a longer-term problem, the short-term fixes will not help. We need to restore the security of tenure that proper social housing used to provide, yet we have cut the net number of council homes and the net amount of social housing and reduced access to it. We need to address the immediate problems, but also to reverse the direction of much of the development of the wider housing market—and to do so now.
Baroness Grender (LD)
My Lords, I congratulate the noble Lord, Lord Bird, on his moving opening speech, on securing this all-important debate and on his work during this pandemic, in particular the Ride Out Recession Alliance. As he rightly said, the greatest danger of homelessness is among people leaving the rented sector, particularly the private rented sector, but I align myself totally with the comments of the noble Lord, Lord Whitty, and the noble Baroness, Lady Blower, about the all-important safety net of housing for social rent.
On Monday, in this very Room, we debated the latest piecemeal approach to evictions—or “stopgap actions”, as the noble Lord, Lord Bird, described them. While there is a stay on bailiffs enforcing evictions at present, it is the mere tip of the iceberg. According to Generation Rent, as the noble Lord, Lord Whitty, just said, around 700,000 people have received an eviction notice since March 2020. Can the Minister tell us what information he is using to ensure that only the most egregious cases are currently ending in eviction? When Tim Farron MP asked for a process, such as a register of evictions from landlords, he was told that that was not an option. Why not?
Gemma Marshall, who lives in the West Country, has recently been served with her second Section 21 in two years. She has an autistic son aged nine who struggles with change. She and hundreds of thousands like her have been forced to move during this pandemic. What advice does the Minister have for those tenants, and when will we see an end to this arbitrary eviction process?
Finally, arrears are now one of the most significant challenges for both tenants and landlords, as we heard from the noble Baronesses, Lady Warwick and Lady Gardner of Parkes, and the noble Lord, Lord Whitty. Citizens Advice tells us that it would take an average of seven years for the people who come to it to pay off their debts. They desperately need a financial package; I support the noble Lord, Lord Young of Cookham, in asking for an investigation into the viability of the kind of packages that we have seen in Wales and Scotland. As the noble Baroness, Lady Andrews, and the noble Lord, Lord Shipley, said in reference to the Commons Select Committee, this modest financial package of between £200 million and £300 million pales into insignificance in comparison with the subsidy for home owners during this period. As the Resolution Foundation has pointed out, the majority of tenants now in arrears do not qualify for the current system of DHP support. By the way, on DHP, the £180 million has not been increased since the pandemic began.
We will hear some arguments about balance between landlords and tenants where the Government are somehow acting as the honest broker. I dispute that because, as the National Residential Landlords Association says, this Government are clearly breaking their promise that
“no renter who has lost income due to coronavirus will be forced out of their home.”
It is time to fulfil that promise and, as the noble Lord, Lord Bird, said, deliver a long-term plan.
Baroness Wilcox of Newport (Lab) [V]
My Lords, I refer to my entry in the register. I add my thanks to those of other noble Lords to the noble Lord, Lord Bird, for securing this important debate. I also thank Generation Rent and the LGA for their excellent briefings.
Evictions are paused but will resume from June onwards. To prevent a spike in evictions from June, the Government must provide financial support for tenants who have lost income due to coronavirus and permanently end Section 21 no-fault evictions; the protections end on 31 May. Tenants with more than six months of rent arrears are not covered by the ban. This is despite Robert Jenrick’s pledge in March 2020 that
“no renter who has lost income due to coronavirus will be forced out of their home.”
Since the pandemic hit, rent arrears have tripled, which risks driving evictions. There is no doubt that the effect on household finances will exacerbate this further unless we see urgent action.
We came into this crisis with a staggering 253,000 people in England homeless and living in temporary accommodation. This includes almost 130,000 homeless children—almost double what it was in 2010. The truth is that, after a decade of this Government weakening the very foundations of our economy and eroding home security, at the start of the pandemic, way too many families were already on that precipice. The Government have not been nearly quick enough to confront the issue or respond to how the pandemic has exacerbated the threat of homelessness. The current ban on evictions is not working; loopholes mean that hundreds of people have already been evicted during lockdown.
I reiterate what some of my noble friends have already said in this debate. We need a Government who will end Section 21 no-fault evictions and update reporting mechanisms to provide a better picture of homelessness and rough sleeping across the country. They must end the debt crisis and bring forward the renters’ reform Bill to prevent a rise in evictions, together with raising the local housing allowance to cover median local rents; this would prevent shortfalls occurring and prevent debts building up. They should scrap the household benefit cap, ensure that families are able to access the higher LHA rates and create a Covid rent debt fund to clear tenants’ debts built up in the first wave of the pandemic. Before the pandemic, renters spent around a third of their income on rent; these arrears will take seven years to pay off.
The Government must introduce the renters’ reform Bill and permanently end no- fault evictions, as pledged in April 2019, to ensure that all renters have access to a stable and secure home. Without these measures, the Government’s promise that nobody will lose their home because of coronavirus is utterly meaningless. If we can do it in Wales, why can you not do it in England?
The Minister of State, Home Office and Ministry of Housing, Communities and Local Government (Lord Greenhalgh) (Con)
My Lords, I thank the noble Lord, Lord Bird, for securing this important debate. I express my gratitude for his continued dedication in seeking to prevent homelessness, as well as for highlighting the risk of Covid-19-related poverty faced by our communities. The noble Lord was poignant in outlining the drivers of what causes people to sleep rough on our streets. I also thank noble Lords for their thoughtful contributions. I am glad to have the opportunity to update your Lordships on the Government’s assessment of the risk of mass evictions and our action to support renters.
The Government have taken unprecedented action to protect renters from eviction and homelessness during Covid-19. In March 2020, we introduced longer notice periods and worked with the judiciary to implement a six-month stay on possession proceedings. Legislation remains in place until 31 May to ensure that bailiffs do not serve eviction notices or enforce evictions, except in the most serious circumstances. Landlords are still required to provide six months’ notice, except in the most serious cases. This means that tenants served notice now will not have to leave their homes until October 2021.
To ensure that our measures are working, the Government have commissioned robust assessments on the risk of evictions resulting from the pandemic. For example, the English Housing Survey’s household resilience study was set up specifically to investigate household resilience in the light of Covid-19, with the wave 2 data published only yesterday. We do not consider that there will be mass evictions. The data continues to support this: the vast majority of private renters—91%–were up to date on their rent when surveyed in November and December last year. These figures are similar to the NRLA’s. The key is that these data also show that, of those in arrears, the vast majority have arrears of less than two months’ rent. In fact, the NRLA data also showed that, on average, the arrears were in the order of magnitude of £251 to £500, and that only 18% had rent arrears of more than £1,000.
We continue to encourage landlords and tenants to manage rent payment obligations sensibly so that they do not become an avoidable burden or cause avoidable disputes. We are grateful to landlords for their forbearance in supporting tenants during this time, and our interventions are preventing evictions. I know that some data has been presented by Generation Rent; we do not have official data, however. Ministry of Justice statistics show that reported applications to the courts for possession by private and social landlords between October and December 2020 were down 67% compared with the same quarter in 2019; and that only 548 repossessions were recorded between April and the end of December 2020, compared with 22,444 over the same period in 2019.
The Government are collecting, publishing and assessing robust statistics on homelessness, which include prevention and relief duties carried out under the Housing Act 1996. Statistics published today show that there has been a 40% decrease in households owed a homelessness duty due to the end of a privately rented tenancy, compared with the same quarter last year. The number of families in temporary accommodation is now at the lowest level it has been since 2016.
Overall, there has been a reduction in the number of people needing support from statutory homelessness services. This is driven by a reduction in the number of families threatened with homelessness as a result of the action that we have taken to protect renters. Our protections are working, and they strike the right balance between supporting tenants and landlords. They provide assurance to tenants but also support landlords to progress the most egregious cases, such as anti-social behaviour, more quickly.
The noble Lords, Lord Bird and Lord Shipley, the noble Baroness, Lady Andrews, and my noble friend Lord Young all want to know: what next? As we move along our road map to recovery, we are considering the best way to transition out of these emergency measures, taking into account public health advice, and we will provide more detail shortly. The noble Lord, Lord Bird, has rightly raised the financial pressures faced by tenants during the pandemic, highlighted by the Big Issue’s Ride Out Recession Alliance campaign. I am heartened by the shared commitment that we all have to preventing such hardships wherever possible.
To this end, the Government have supported workers so that they remain in employment, with the job retention scheme extended until the end of September. The Government have also provided billions of pounds in welfare support to help people pay their housing costs. This included £1 billion to increase local housing allowance rates last year, so that they cover the lowest 30% of market rents, as mentioned by my noble friend Lord Young. These rates are being maintained in cash terms throughout the current financial year until 2022, meaning that claimants renting in the private rented sector will continue to benefit from the increase.
In response to the noble Baroness, Lady Andrews, I say that the Government have also extended the £20 a week uplift in universal credit until the end of September and provided a one-off payment of £500 to eligible working tax credit claimants. For those who require additional support, the discretionary housing payments are available. We have made £140 million of funding for discretionary housing payments available to local authorities this financial year to support renters with housing costs in the private and social rented sectors. This builds on the £180 million available in the last financial year.
For those who become homeless or find themselves at risk of homelessness, we are providing local authorities with £310 million through the homelessness prevention grant. This funding represents a £47 million increase on the previous year’s funding and can be used to offer financial support for people to find a new home, to work with landlords to prevent evictions, or to provide temporary accommodation to ensure families have a roof over their head.
Looking to the future, and when the urgencies of the pandemic have passed, the Government are committed to introducing reforms to deliver a fairer and more effective rental market. This will be achieved by legislating to remove Section 21 of the Housing Act 1988—as we have pledged as a Government and as the noble Baroness, Lady Wilcox, mentioned—to provide tenants with more security, but also to strengthen the grounds for eviction to ensure that landlords have confidence that they can gain possession when it is fair to do so. This will represent a generational change to tenancy law in England, so it is only right that such legislation is balanced and properly considered to achieve the right outcomes for the rented sector.
May I refer to some of the specific points that have been raised this evening by noble Lords? The noble Lord, Lord Shipley, and the noble Baroness, Lady Andrews, mentioned the HCLG Select Committee report. All I can say is that we will respond in due course to the committee’s report on Protecting the Homeless and the Private Rented Sector: MHCLG’s Response to Covid-19; I am afraid I have no news on that.
I thank my noble friend Lord Young for raising what we can learn from Wales and Scotland, as did the noble Baroness, Lady Wilcox. I will encourage my officials to look at what we can learn from the devolved Administrations, though I would say that there is a choice around whether it is right to offer loans, which in effect provide additional debt for an individual, as opposed to what we have tended to prefer, which is to widen our financial support. There is a choice and you cannot necessarily do both, but we will look at that in some detail.
The noble Lord, Lord Loomba, my noble friend Lady Gardner of Parkes, and the noble Baroness, Lady Blower, all raised various forms of direct financial support measures to pay rent arrears, which is not currently government policy. I do not propose to introduce government policy in this debate, but I have to say that everybody who they mentioned is eligible for the support that I have outlined—it is open to them.
With regard to no recourse to public funds, which was raised by the noble Baroness, Lady Blower, the rules have not changed. Eligibility is determined by local authorities, which have to use their judgment in assessing what support they may lawfully give to each person on an individual basis. We do not propose to change that at this point.
I assure noble Lords that the Government will continue to support renters affected by the pandemic. The measures that I have highlighted are in addition to existing commitments to deliver a fairer and more effective rental market for all. I am grateful to the noble Lord, Lord Bird, for raising this important matter on the 30th anniversary of the founding of the Big Issue, which he can rightly be proud of, and I extend my thanks to the considerable number of noble Lords who have participated in this debate.
The Deputy Chairman of Committees (Baroness Henig) (Lab)
My Lords, the Grand Committee now stands adjourned until 5.30 pm. I remind Members to sanitise their desks and chairs before leaving the Room.
Arrangement of Business
The Deputy Chairman of Committees (The Earl of Kinnoull) (Non-Afl)
My Lords, the hybrid Grand Committee will now resume. Some Members are here in person, others are participating remotely, but all Members will be treated equally. I ask Members in the Room to respect social distancing. If the capacity of the Committee Room is exceeded or other requirements are breached, I will immediately adjourn the Committee. If there is a Division in the House, the Committee will adjourn for five minutes. The time limit for this debate is one hour.
Biodiversity Emergency
(3 years, 8 months ago)
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Lord Teverson
To ask Her Majesty’s Government what plans they have to declare a biodiversity emergency.
Lord Teverson (LD)
My Lords, I declare my interest as chair of the Cornwall and Isles of Scilly Local Nature Partnership. One thing that I cannot take any credit for is the fact that this debate has landed up on Earth Day, which is incredibly useful and quite appropriate because it is about is one of the crises of our planet. The Question is straightforward: what are the Government doing about declaring an emergency on biodiversity? I am going to give the reasons why they should do just that.
First, obviously, it is because there is an emergency. We often think about this as a global issue. One may be away from the shores of the United Kingdom, particularly if regarding the rainforests of South America, large mammals such as tigers, or coral reefs and coastal mangroves. There is a crisis throughout the globe but it is equally so here in the United Kingdom. If we look at the various reports there have been around the state of nature, we will have seen that some 40% of species are in decline, 15% are under threat of extinction and, the one that struck me most, there has been a 13% fall in the abundance of nature since 1970. I can remember that year and since then our volume of nature has declined by over 10%—by 6 % in the past six years.
What also struck me in a report that came out earlier this week from the Woodland Trust was the great news that forest cover in the UK had doubled since the beginning of the last century. That is taken away from by the fact that only 7% of that forest and woodland is in good order and, even there, biodiversity has greatly declined. Of the 20 Aichi targets adopted back in 2010 at the Convention on Biological Diversity in Japan, the UK missed 14 of them. NGOs would suggest that we met only one. Globally, none of those targets were met, sadly, but that decline in nature is continuing. That is why we have an emergency on this planet and in this country.
The second reason why we need an emergency to be declared is because biodiversity is vital. Those many services provided by nature, often called ecosystem services—I was trying to avoid saying that during this debate because the world outside would look blankly at me—include genetic pool, pollination, soil fertility, clean air and water, the food chain, protection against disease and protection against pests. Indeed, we have found over the past year, so important during the Covid-19 emergency, that there is a help to the mental health and well-being of human beings. Without those ecosystem services, mankind will not survive.
My third reason for an ecological and biodiversity emergency is that the world outside this building has to notice it. At the moment, there is little recognition or understanding of it outside. If we compare it to climate change, it has taken perhaps two decades for the world, and the wider population of its citizens, to understand that challenge. Part of that has meant that it has overshadowed biodiversity. My opinion is that it is an emergency and we have to declare it, because we have to say that it is important and the rest of the world has to notice.
My fourth reason for declaring an emergency is that it needs to drive government policy. We have seen how this is working well, and I give credit to the Government today on climate change, our various objectives and targets and the way they are supposed to guide the action of all ministries and departments. We need that similar drive for biodiversity. At the moment, it seems to be only Defra that takes an interest. I give the Treasury all credit for the Dasgupta report, but it does not seem to have been particularly excited by it. I hope to be proven wrong when we finally get a response to it from the Treasury.
My fifth reason for an emergency is that this is much more complex than climate change. I could put my tongue in my cheek and say that climate change is dead simple because all we have to do is reduce greenhouse gas emissions. We can measure them, and we know all the solutions. The only problem is doing the road map to get there. Climate change is straightforward but biodiversity is much more difficult. We do not know all the answers, we certainly find it difficult to find suitable measures and metrics to follow and, even if we know them, to measure them is also difficult. It is complex and we need to concentrate far more on it.
My sixth reason is that it is the twin of climate change. They are both emergencies; one cannot be solved without the other. We cannot solve biodiversity challenges without climate change action—and without climate change action, biodiversity will continue to decline. We have that common agenda on, in particular, nature-based solutions and carbon sequestration. They work together and we cannot have one without the other.
What is my seventh reason? I have only three more to go. My seventh is that it needs a global champion, to be frank, and the UK could and should take on that role. We have the biodiversity conference—COP 15—at Kunming in China, now happening in October. This is the big opportunity for the United Kingdom to take a lead globally, give real profile and exercise the other powers that are coming to that conference so much more. At the moment, all the targets of the big conference back in 2010 have not been met.
Eighthly, it is the right time. Covid-19 and the crisis showed us so well how when people need to get out and enjoy the outside when it is so restricted nature and biodiversity are important to them. That is recognised much more now than it has been in the past. We need to build back better, and part of that needs to be through the biodiversity emergency. I believe we would have far more public backing than ever before. The time is ripe now.
Lastly, now is the right time for an emergency. It should be declared because we have the opportunity to do so in the Environment Bill. We have waited a long time for that Bill to come to this House. That Bill could become even more credible when it becomes an Act if a biodiversity emergency was declared as part of it.
Those are my reasons. This is a true emergency and something that Britain could lead on if it wishes to, and it should. Will the Minister say who will represent the British Government at the Kunming conference? More importantly, will he ensure that now or, as the Environment Bill becomes an Act, we as the United Kingdom will declare a biodiversity emergency?
Baroness Young of Old Scone (Lab) [V]
My Lords, I declare my interests as chairman of the Woodland Trust and president or vice-president of a number of environmental charities.
As the noble Lord, Lord Teverson, said, the biodiversity emergency is a real threat to our economy, our ability to meet climate change targets and our very survival globally. The Woodland Trust’s recent report, State of the UK’s Woods and Trees 2021, is a startling indictment of the perilous state of our native woodlands and their biodiversity. As the noble Lord said, despite increasing tree cover over the past 100 years, only 7% of our native woodlands are in good ecological condition and woodland wildlife species are in steep decline.
Defra’s 2020 biodiversity indicators report for England shows a chilling wider picture of decline: farmland and wetland birds are declining and the percentage of water bodies in good ecological condition is declining, to name but a few. The only things that are increasing are invasive non-native species and the rate of importation of plants and trees from abroad—both of which are bad—so it is official: there is a biodiversity emergency here in the UK.
If the UK is to show that strong international leadership that the noble Lord, Lord Teverson, talked about, it has to be exemplary here at home. It must start in the Environment Bill with those legally binding biodiversity targets. The soon-to-be-published English tree action plan must be bold and ambitious in tackling the challenges outlined in the State of the UK’s Woods and Trees report, including by creating incentives for effective woodland management. Investment in the UK and Ireland saw the UK and Ireland sourced and grown assurance scheme, the expansion of UK tree nurseries for safe trees and legislation, at long last, for statutory protection for ancient woodland. This is an emergency.
The Earl of Caithness (Con)
My Lords, for biodiversity to be diverse and flourish in the UK, it needs habitat, species protection where appropriate, the provision of winter food for birds and animals and sensible predator control. Given all the protection and proscription that we have enacted over many years for habitats and species, one must ask why biodiversity is still in decline. Clearly our policy has failed. We are not good at providing winter food due to farming methods and efficient modern farm machinery. Hopefully ELMS will help with that. More importantly, we are increasingly bad at management, including sensible and humane predator control.
Mankind has changed the environment in which all species live. There has been the removal of apex predators, the introduction of alien species, the loss, degradation and fragmentation of habitats and pollution. Nature will always find a balance but, often, it is not the balance that we want and leads to a reduction in biodiversity, as the noble Lord, Lord Teverson, and the noble Baroness, Lady Young, said.
Take, for example, Auchnerran farm in Aberdeenshire, owned by the Game & Wildlife Conservation Trust and managed for biodiversity. This year alone, two-thirds of the lapwing nests have already been destroyed by badgers. This is a property that is farmed for biodiversity. Similarly, at the trust’s property in Allerton, Leicestershire, there have been no hedgehogs for seven years and no waders for 10 years because of predators.
The noble Baroness, Lady Young, mentioned trees. Of course, trees are suffering hugely from a deer problem. Deer are notorious browsers and are bad for coppicing. They reduce the understory, which is bad for nightingales, primroses, primulas, nesting birds, butterflies and other species. Of course, it suffers from grey squirrels too.
We have a severe problem, not an emergency, but we can solve that problem if we and the Government get our policies right.
The Earl of Devon (CB) [V]
My Lords, happy Earth Day. Many thanks to the noble Lord, Lord Teverson, for securing this important debate.
As a land manager responsible for biodiversity in a small part of Devon, I am interested to know what the declaration of a biodiversity emergency entails. What is the geographical extent of this emergency? Should we declare a global emergency or a UK emergency or, as environmental policy is devolved, should we consider only England? Given that we have competence over only England and our overseas territories, should that not be the limit of our ambition? To pronounce wider and beyond our jurisdiction smacks of imperial overreach.
Secondly, what are the implications of such a declaration? What impact would it have on policy? Given the huge upheavals under way in agriculture and environmental land management, yet further changes could be confusing and mix up the message.
Thirdly, by what metrics is this emergency to be assessed? Is there a common standard that the Government would apply? Speaking from personal experience only, I am not convinced that 2021 constitutes such a biodiversity emergency in England.
To some embarrassment, I grew up with middle name Peregrine. I remember being given a painting of a peregrine as a child and being told that it was the only likelihood of me ever seeing the bird as they did not exist in southern England. Now we see them regularly off the red cliffs of Dawlish. Similarly, we now see ravens, goshawks and egrets, which were never present in my youth. I vividly recall camping out at night to see a rare badger in the woods. Now, dead badgers litter the roadside and the hedgehogs have gone. We have a hedgerow at home that was about the only place in England to see the Jersey tiger moth in the 1980s. Now, they are common across the south-west. Finally, as we have heard, on a macro scale, we have seen considerable reforestation of our country since the nadir of the First World War, albeit that much of it is admittedly coniferous monoculture.
The point I seek to make is that, on many metrics, through responsible land management, biodiversity has increased in recent decades while continuing to provide cheaper food to an ever-expanding population. The declaration of a biodiversity emergency now might ignore that important work.
Lord Jones of Cheltenham (LD) [V]
My Lords, I thank my noble friend for initiating this debate. We are in the midst of a sixth mass extinction, the only one caused solely by mankind. Since 1970, the worldwide human population has doubled, yet at the same time species have been wiped out faster than ever. What is this Government’s policy on population?
Up to one million species, plant and animal, are at risk of extinction due to human activities. David Attenborough is right when he says that we are the invaders affecting plants, animals, insects, oceans and ecosystems all over the planet. Half of our pollinators are in decline, and that is a real threat to food supply. If apple tree blossom is not visited by bees or other pollinators, there will be no apples. That is why it is vital to make biodiversity a priority of our lifetimes.
We know that well-planned and generously funded conservation and restoration projects work. I ask the Government to work with other countries where endangered animals and plants exist. Pangolins—beautiful, gentle creatures—are under threat because some idiots think their scales contain health-giving properties. These same people think the same about rhino horn, which is made of the same substance as human toenails. Let them set up a toenail industry and leave our rhinos alone. More than half of people in some Far Eastern countries think that ivory is a mineral rather than the teeth of living, sentient, intelligent animals, now poached in such numbers that elephant deaths exceed births. It is our duty to make amends for the generations of mankind who, often through ignorance, have exploited and persecuted wildlife and ravaged landscapes to destruction.
Extinction is permanent. Once a species is lost, it is lost for ever. Let us not lose any more.
Lord Lucas (Con) [V]
My Lords, if we are to make a difference to the trend in biodiversity, we need to make a difference to all our children. We need interest in biodiversity, familiarity with biodiversity and the value of biodiversity to be things that our children grow up with. At the moment, they are leading much more restricted lives than we did—certainly, very much more restricted lives than our parents did—in their ability to interact with nature and to get a real understanding and appreciation of what nature is and what humans can get from a relationship with it.
At the moment, there is a proposal from OCR for a natural history GCSE that has been in the DfE’s inbox for about six months. I know that the DfE is busy, but everybody in this climate and biodiversity emergency has to make their contribution. I hope my noble friend will be able, at some quiet moment, to emphasise to his colleagues in the Department for Education that it matters that they do their bit too, that they let this GCSE through and let us start the process of getting children back in touch with nature. That is where, over the long term, we can make a difference to this. If we all live in cities with our backs turned to nature, we are never going to want to spend the money and time that will make the difference.
Baroness Jones of Moulsecoomb (GP) [V]
My Lords, happy Earth Day. Well done to the noble Lord, Lord Teverson, for getting this debate. We have passed legislation in the past year at the most incredible rate; a year ago, we would have said that it was impossible, unconstitutional or just plain ridiculous. Parliament and the Government have shown that they can act fast in an emergency. Covid has been an interesting case study, because it shows how fast we can move. We have declared a climate emergency, and it is self-evident that an ecological and biodiversity emergency is ravaging the world. We have to act on that as well.
This Queen’s Speech, I believe, is the fourth time that the Queen will read out that we are going to have an Environment Bill. That shows the lack of urgency in the Government’s response, which is a real problem. When we compare it with the speed, volume and sheer intrusiveness of the dozens of pieces of Covid legislation that have passed in the last year, it reaches a point of embarrassment. However, I know that the Minister understands the problem as well as I do and possibly better. I would like to know how much longer the Government will let the emergency roll on before they finally respond.
Targets are great, and I welcome better and higher targets, but they are not met without a plan. It is not enough to talk. We must act. The Dasgupta Review and the Climate Change Committee’s sixth carbon budget have given us a pathway to doing exactly that—to declaring a biodiversity and climate emergency, acting on it and reducing our impact on the natural world. Plus, of course, there is the Climate and Ecological Emergency Bill, which was introduced by Caroline Lucas MP in the other place last year. That offers the UK an unparalleled opportunity to provide much-needed global leadership. I very much hope that the Government will take those options and make life better for all of us.
Lord Sikka (Lab) [V]
My Lords, the Climate and Ecological Emergency Bill annual risk report for 2020 ranks biodiversity loss as the third most impactful risk facing the global economy and the fourth most likely to actually occur. The Intergovernmental Science-Policy Platform on Biodiversity and Ecosystem Services estimates that between $235 billion and $577 billion in annual global crop output is at risk as a result of pollinator loss. Bee populations are declining because of pesticide use, habitat degradation and reduction, global warming, agricultural practices and a lack of floral diversity. A recent red list showed that out of a total of 1,101 species of bee in the EU, about 15% are threatened with extinction or near-extinction.
The Government need a joined-up approach to dealing with the impact of biodiversity loss. Section 172 of the Companies Act 2006 requires directors to promote biodiversity. Business performance measurement models are distorted by a focus on shareholder wealth maximisation and environmental degradation and neglect of biodiversity by companies. This neglect is further perpetuated by the Government’s current consultation paper on corporate governance reforms, which clings to a shareholder-centric model of corporate governance.
A first step for dealing with the challenges is for the Government to promote a stakeholder model of corporate governance so that diverse voices are empowered. Hopefully, the Minister will give us that commitment in his response.
Lord Cameron of Dillington (CB) [V]
My Lords, I declare interests as a retired farmer, a landowner and chair of the UKCEH.
We do have a crisis. We have made a total Horlicks of this issue over recent years. It will take decades to put it right. It will not be easy. However, we have to step back. These days, good land managers provide many outputs and services: food to keep us healthy and our nation secure; landscape and access for tourism and healthy exercise; renewable energy; buildings for rural businesses; timber for carbon capture and storage, and for buildings; and, yes, habitats and wildlife management for the biodiversity that we desperately need. In doing all this, we have to minimise our carbon footprint.
It is a tough call to maximise the services from your piece of land and still stay in business, but we must never again prioritise one output at the expense of all the others, which is what we have been doing. We must get everything in perspective and take a balanced view of what the land can produce. Every piece of land will have its own solutions. We will need to carry out research as well as prod, train and incentivise all land managers, both urban and rural.
On our Somerset farm, we have a 50-acre solar park. Some 10 years in, our FWAG officer visited the site and said that he had rarely seen 50 acres with more biodiversity, with every kind of insect and butterfly, voles, field mice, hares, barn owls, kestrels, partridge, plovers and even hen harriers. My point is that land can be multi-purpose. However, we need the research, training and incentives to maximise the possible outputs on all our land.
Baroness Miller of Chilthorne Domer (LD) [V]
My Lords, I congratulate my noble friend Lord Teverson on securing this debate on Earth Day. I want to talk about earth, but the sort of earth that is under our feet: the soil.
A healthy soil is full of living things, including microbes, bacteria, amoebas, mycelium and invertebrates. I remember the late Lord Peter Melchett, a great champion of the soil, talking about the soil food chain and saying that moles are to the soil what lions are to the Serengeti. Given that soil is so much the base for a healthy ecosystem, has the situation improved with regard to the number of academics working on soil? If we are to have environmental land management, we will need people to analyse, measure and make sure that the targets and remedies are correct. In 2017, when I asked the Government about the number of soil scientists, there were just five professors in the whole of the UK working on soil science and 25 academic staff in total. Can the Minister tell me what the situation is now? We will need to assess the biology of the soil. If there are so few experts, who is to do so?
Those advising farmers and selling products to them—agronomists and agricultural product retailers—are good on chemical analysis and telling whether the soil is compacted, but they are not so good on soil biology. If we are to transform our terrestrial biodiversity, we must be able to recognise that good soil, in all its richness, is a food source to those higher up the food chain as well as a means of producing food for ourselves.
Baroness McIntosh of Pickering (Con)
My Lords, regardless of whether there is a biodiversity emergency, there is a crisis of nature. We are seeing species disappearing, even in our own land. We need to keep species under constant review and achieve a balance in the ecosystem. Badgers, bats and grey squirrels need to be kept under control, and other species that are dwindling need to be promoted.
In responding to the debate today, will my noble friend the Minister give a guarantee that farmers will be given a role to play in nurturing wildlife, flora and fauna, in particular through the environmental land management scheme that other noble Lords have spoken about, but with a proviso that tenant farmers will be enabled to benefit? Farmers, and tenants in particular, understand that they are close to nature and best placed to promote and nurture it.
Turning to marine life, will my noble friend give a further assurance that the biodiversity of our marine environment, in particular of the North Sea, will not be substantially damaged by the building of offshore wind farms? We are effectively seeking an urbanisation of the sea through offshore renewables, raising issues of energy generation at sea. We need to take every opportunity to ensure that our sea and marine life—including mammals such as dolphins, porpoises and others—are protected. I hope he will agree that it is for the industry which benefits from this form of energy generation to contribute to the research on how to protect our marine life going forward.
Baroness Ritchie of Downpatrick (Non-Afl) [V]
My Lords, I congratulate the noble Lord, Lord Teverson, on submitting this Question on the biodiversity emergency for debate today. Like him, I believe that the climate emergency is the twin of biodiversity and that there is a symbiotic relationship between them, because one has an impact on the other. They cannot be addressed in isolation and require urgent and immediate attention.
Every Government, every business, every organisation and every individual must play a part in reducing greenhouse gas emissions; assisting in the adaptation to climate change; halting biodiversity loss; and restoring habitats and species through changes in laws and regulations, policies, behaviours and lifestyles at local and national levels. In my own local area, there is one company doing that through one individual at True Harvest Seeds, which is looking to ensure that the local, indigenous seeds of the island of Ireland are protected and allowed to germinate. It is trying to deal with a lot of the invasive species that are destroying our local biodiversity.
This is an extensive subject and I hope that the Environment Bill will give the Government the opportunity to deal with biodiversity loss and the biodiversity emergency. I would very much like to see the Minister give us answers today about the future content of the Environment Bill. Can he also indicate what actions will be taken to ensure that the national infrastructure bank is pivotal in facilitating the financing of nature restoration and nature-based solutions to climate change?
The Deputy Chairman of Committees (The Earl of Kinnoull) (Non-Afl)
I call the noble Lord, Lord Bradshaw. Lord Bradshaw? No. I regret that we will have to go on then. I call the noble Baroness, Lady Jones of Whitchurch.
Baroness Jones of Whitchurch (Lab) [V]
My Lords, I thank the noble Lord, Lord Teverson, for tabling this timely and important debate. As has been said, it fittingly coincides with Earth Day, when global citizens are taking a stand right across our world on the climate and biodiversity emergency.
Today, noble Lords have provided a depressing indictment of the Government’s record on biodiversity. We are now more aware than ever of the fragility of our own ecosystems. By their own admission, the Government are failing to meet two-thirds of the biodiversity targets agreed at the Convention on Biological Diversity in 2010, while 41% of our species are in decline and 10% face extinction. But here in the Lords, we have a real opportunity not just to talk about biodiversity but to act upon it.
Amendments to the forthcoming Environment Bill could allow us to introduce legally binding targets to halt and reverse declines in nature by 2030. The Bill could allow us to set meaningful baselines against which progress could be measured but also enforced. It could enable us to determine that biodiversity net gain should be a fundamental principle running through all future government investment, without exception. It would enable us also to put the biodiversity crisis on an equal footing to the climate crisis, recognising that action and resources on both are necessary to deliver a sustainable planet.
If we take these actions now, and provide the resources to make them happen, we can go to the CBD in China later this year with credibility to ask others to follow our lead and deliver a radical global programme for action. I hope that the Minister can confirm that he is indeed ready to deliver a more radical version of the Environment Bill which can reverse the decline in nature and produce bold new targets and deliverables by 2030. I look forward to his response.
Baroness Bakewell of Hardington Mandeville (LD)
My Lords, I thank my noble friend Lord Teverson for securing this debate and for his passionate introduction. I am currently reading James Rebanks’s book, English Pastoral: An Inheritance. The Rebanks family have farmed in Cumbria for over 600 years. His latest book details the massive change in farming practices and the devasting effect that such change has had on biodiversity. The removal of stone walls, destruction of ancient hedgerows and accelerated use of chemical fertilisers and weedkillers have all taken their toll on plants, insects and birds.
The Government have produced numerous plans to remedy the loss of biodiversity. In 2011, Defra produced a strategic plan for England, Biodiversity 2020. An evaluation in 2019 showed insufficient progress against its targets. In January 2018, the 25-year environment plan appeared. December 2020 saw the development of a new strategy for nature to replace Biodiversity 2020. The Environment Bill’s First Reading in the Commons was in January 2020; it will eventually arrive here. In March 2021, the Prime Minister said that tackling climate change and biodiversity would be his number one international priority. For all this rhetoric, there has been no actual progress.
The Woodland Trust has produced a report on the state of our woods and trees which finds that only 7% are in a good ecological condition. However, some local authorities have risen to the challenge. Bristol City Council has declared an ecological emergency and has a plan to redress the decline by 2030. We hope that others will follow suit.
It is estimated that 75% of the world’s land surface and 66% of the ocean has been significantly altered and degraded by human activity. One million species are threatened with extinction. Are we going to wait until we, as humans, are also threatened with extinction before we take this matter seriously? Will the Minister press the Government to declare a biodiversity emergency now and take stringent action?
The Deputy Chairman of Committees (The Earl of Kinnoull) (Non-Afl)
My Lords, we have been able to reconnect with the noble Lord, Lord Bradshaw, whom I therefore call.
Lord Bradshaw (LD) [V]
Thank you, Lord Chairman. I wanted to say that all of us, I think, are members of the National Trust, wildlife trusts, national trails, the CPRE or the RHS. I implore of the Minister that, whatever new arrangements are brought into being in the Environment Bill, the huge army of volunteers in all those organisations can be empowered. This needs some money and some professional leadership, but if that is provided, a lot more work will be done, much of it to restore biodiversity.
The other subject that I wanted to raise, of which I gave notice, is the horticultural use of peat, about which I am still extremely worried. I have raised this with the Minister before. I am anxious for there to be a goal of stopping the use of peat for horticultural purposes. It is not good practice, but it is very expensive at the moment to use anything else.
The Minister of State, Department for the Environment, Food and Rural Affairs and Foreign, Commonwealth and Development Office (Lord Goldsmith of Richmond Park) (Con) [V]
My Lords, I thank noble Lords for their thoughtful contributions to this hugely important debate.
It should not need to be said, but we cannot reasonably expect to be able to destroy the natural world in the manner that we are without paying a terrible price. There is no doubt that that is what we are doing. I will not rehearse all the facts and figures of destruction, as noble Lords will be depressingly familiar with many of them, but it is worth reminding ourselves that we are currently losing around 30 football pitches-worth of forest every single minute; that a million species face extinction, including two in every five of the world’s plants; that the grim illegal wildlife trade is now the fourth biggest criminal sector; and that, just as we are stripping the ocean of life at a terrifying rate, we are filling it with trash just as quickly. And all this against the backdrop of an increasingly destabilised climate.
There is an abundance of science telling us that we are heading for disaster. But you do not need to be a scientist to understand that these trends cannot continue without appalling consequences. When ecosystems fail, so too do the multitude of free but hopelessly undervalued services that nature provides—services that each and every one of us depends on. Turning this trajectory around is, without a doubt, the most important challenge that we face by far.
To some extent, that is already happening in relation to the low-carbon revolution. The cost of renewables has tumbled, and zero-emission vehicles are on the cusp of going mainstream. Who would have predicted that the cost of solar would fall by 90% in the 12 years since the banking crisis? To be clear, I am not suggesting complacency: we are asking every country in the world to ramp things up as we head towards COP 26. When it comes to attaching a value to nature and a cost to its destruction, we have barely left the starting blocks, and that has to change because technology alone will not save us.
To put it simply: there is no pathway to tackling climate change that does not involve protecting and conserving nature on a massive scale. Nature-based solutions, like trees and mangroves, could provide a third of the most cost-effective solutions we need to mitigate climate change, as well as helping species recover and helping communities to adapt to become more resilient to the impacts of climate change. But despite that huge contribution, nature-based solutions currently receive less than 3% of total global climate finance. That makes no sense.
It is right that we in this country have put nature at the heart of our response to climate change, domestically and internationally, through our presidencies of both the G7 and COP 26. We are leading by example. Very soon after entering Downing Street, the Prime Minister committed to doubling our international climate finance to £11.6 billion. More recently, just a few weeks ago, he committed to spending nearly a third of that—around £3 billion—on nature-based solutions to climate change. We are encouraging other donor countries to do similarly. On the back of that commitment, we are rolling out a pipeline of ambitious new programmes. There is a new £500 million blue planet fund, for example, which will help to protect fragile marine ecosystems, and we are growing our magnificent “blue belt” of marine-protected areas around our overseas territories, which now cover a protected area the size of India. There is a new £100 million landscapes fund to link threatened ecosystems, providing safe passage for wildlife and green jobs for people. We are trebling funding for our extraordinary Darwin Initiative to £90 million. With other donor countries, we are developing right now an offer for forest protection that exceeds anything that we have seen so far.
We are also investing £30 million to protect species from the grim illegal wildlife trade, which I hope reassures the noble Lord, Lord Jones of Cheltenham, who made this point very clearly. I share his concern about pangolins and was delighted—as I am sure he was—when the Chinese decreed recently that pangolins can no longer be used in traditional medicine. He may also be pleased to know that, in addition to funding via the Illegal Wildlife Trade Challenge Fund, the UK played a defining role in getting proposals past CITES in 2016 that ensured that all eight species of pangolin received the highest possible level of protection from international trade.
We know that change is possible and that nature protection works. It works for people and it works for the planet. Look at Costa Rica: it has doubled its rainforest in one generation, putting more than half the country under canopy and growing its economy alongside its nature. We are leading global alliances to protect at least 30% of the world’s land and oceans by 2030, and we are pursuing an ambitious new UN treaty to establish mechanisms to protect ocean beyond national jurisdiction.
In answer to a question put to me by the author of this debate, the noble Lord, Lord Teverson, we are working as closely as possible with the Chinese as hosts of the next biodiversity conference in Kunming. Although our representation will be confirmed closer to the meeting, we are doing more heavy lifting than perhaps any other country. We are pressing hard for the highest possible ambition and, crucially, we are pushing for inclusion of mechanisms to hold Governments to the promises they make, which currently is lacking.
We know that public money alone is not going to be enough, so Governments need to identify and use the powerful levers that they uniquely hold to remove the perverse incentives that drive environmental destruction. Consider, for example that the top 50 food-producing countries spend $700 billion a year supporting often destructive land use. That is four times the world’s aid budgets combined. Imagine the impact if that public support could be redirected to help farmers transition to climate-friendly, nature-positive land management. In a world first, that is what we are doing in the UK, and we are building alliances of countries committed to doing the same.
Commodity production is responsible for the vast majority of deforestation, so we are building a global coalition of countries committed to cleaning up commodity supply chains. We are also calling on the large multilateral development banks to nature-proof their entire portfolios. There is no point in having bits of investments here and there in nature if the rest of the portfolio is taking us in the opposite direction. That point was made well by the noble Lord, Lord Sikka, in relation to the private sector, where the point stands just as strongly. We are pulling every lever we have to get private finance flowing, including by accelerating progress towards high-integrity carbon markets.
There is no doubt in my mind that we are driving the agenda internationally, and that is recognised by other countries around the world. However, as a number of noble Lords have said, we need to get our own house in order. We have seen shocking biodiversity loss in recent decades. Last year’s State of Nature review found that 41% of UK species are declining. We have seen an increasing intensity of flood damage caused at least in part by poor land use. We know that meeting our net-zero emissions obligation will require heavy lifting on a scale that we have never seen before.
I know that the noble Earl, Lord Devon, questions the need for us to declare an emergency but I hope that my opening remarks, as well as this bleak picture of declining biodiversity in the UK, persuades him otherwise. I could add that our indicator of pollinator distribution has fallen by 30% since 1980. Our indicator of farmland bird abundance has fallen by more than 50% since 1970. That case was made extremely well by the noble Baroness, Lady Young of Old Scone. As the noble Lord, Lord Cameron of Dillington, said, no matter what we do now, improvements will take time to materialise. In answer to the noble Earl’s question, biodiversity is devolved; however, all the regions are in broad agreement on the need to act. That is a good thing.
We have a packed agenda. The noble Baroness, Lady Jones of Moulsecoomb, asked for precise targets and a clear plan, a point also made by the noble Baroness, Lady Bakewell of Hardington Mandeville. The recently published Dasgupta review provides an extraordinarily important backdrop, and we will be responding to it properly and thoroughly soon. Our plans to boost biodiversity and improve the environment within a generation are set out in the 25-year environment plan. We set the world’s most ambitious climate change target into law to reduce emissions by 78% by 2035, compared to 1990 levels, an announcement made just a couple of days ago.
We are setting out plans for a bold net-zero strategy to demonstrate how we will cut emissions and create new jobs across the whole country. Our upcoming Environment Bill will deliver improvements in waste, air quality, water, nature, biodiversity and more. It lays the foundation for the nature recovery network and creates duties and incentives, such as biodiversity net gain for all new developments, which is also a world first. The Bill establishes spatial mapping and planning tools to deliver nature recovery, creates new nature covenants for the long-term protection of land—another world first—and creates a new body to hold government to account.
The noble Baroness, Lady Jones of Whitchurch, asked about biodiversity targets in the Bill. It creates a power to set long-term, legally binding environmental targets, and we will want to ensure that for biodiversity these targets at least align with international targets to be set through the CBD. We are continuing work on that suite of targets, including in the priority areas of biodiversity and improving the state of nature.
We are switching our land-use subsidy system so that the payments are conditional on good environmental outcomes, just as we are asking the world to do. That, too, is a world first. Incidentally, the noble Baroness, Lady Miller of Chilthorne Domer, raised the underappreciated but hugely important issue of soil health. I can tell her that soil health has been identified as a priority for our environmental land management scheme. My noble friend Lady McIntosh of Pickering asked if the scheme would support farmers to play their role in reversing nature decline. Absolutely. That is the entire purpose of the environment land management system.
In another world first, we are legislating to require big companies to remove deforestation from their commodity supply chains to help shrink our international footprint. Again, we are asking other countries to do the same. We know that to meet net zero we need to establish record numbers of trees, so we have committed to planting 30,000 hectares a year across the UK by 2025, using the new £640 million Nature for Climate Fund. We want to unleash the extraordinary power of natural regeneration as well. Anyone who has seen the wonders of NEP will know why that matters.
In answer to my noble friend Lord Caithness—the noble Baroness, Lady Ritchie of Downpatrick, also raised this—we will be investing in methods to control deer and grey squirrel numbers as part of our efforts to protect new and existing native woodlands. To further protect them, and in answer to my noble friend Lord Lucas, we will be emphasising the huge and critical importance of not only species diversity but genetic diversity. Incidentally, he raised the importance of educating children, and I could not agree more.
Alongside our tree commitment, we have committed to restoring 35,000 hectares of peatland. The noble Lord, Lord Bradshaw, asked about the use of peat in horticulture. I can tell him that we are committed to phasing it out in England. We told industry that if we had not seen enough movement by 2020, we would look at further measures that could be taken. We are now considering those future measures. We also have ambitious plans to protect our threatened pollinators, a point made well by the noble Lords, Lord Jones of Cheltenham and Lord Sikka. All this goes alongside plans to greatly improve the health and protection of our precious marine environment.
It is often said that we need to weave the environment into our economics but, as Professor Dasgupta’s seminal study explained, that is the wrong way round. Ultimately all economic activity is derived from nature. Without nature, we have nothing and we are nothing. Reconciling our lives and economies with the natural world on which we all depend is really the defining challenge of our age. I am absolutely convinced that this can be the year that change begins in earnest.
The Deputy Chairman of Committees (The Earl of Kinnoull) (Non-Afl)
My Lords, that completes the business before the Grand Committee this afternoon. I remind Members to sanitise their desks and chairs before leaving the Room.
House of Lords
Arrangement of Business
The Lord Speaker (Lord Fowler)
My Lords, the Hybrid Sitting of the House will now begin. Some Members are here in the Chamber, others are participating remotely, but all Members will be treated equally. Oral Questions will now commence. Please can those asking supplementary questions keep them brief and confined to two points? I ask that Ministers’ answers are also in the same spirit.
Overseas Development Assistance: Budgets and Awards
(3 years, 8 months ago)
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Lord McConnell of Glenscorrodale
To ask Her Majesty’s Government when they will publish a list of the reductions in Overseas Development Assistance budgets and awards for (1) 2019/20, and (2) 2020/21.
Lord McConnell of Glenscorrodale (Lab)
My Lords, I draw attention to my entry in the register of interests and beg leave to ask the Question standing in my name on the Order Paper.
The Minister of State, Foreign, Commonwealth and Development Office (Lord Ahmad of Wimbledon) (Con)
My Lords, UK official development assistance—ODA—in 2019 and 2020 was: £15.2 billion, of which £11.8 billion was spent by the FCDO; and £14.5 billion, with £10.7 billion spent by the FCDO respectively. The full detailed breakdown of ODA spend for 2019 was published on 24 September in the Statistics on International Development. The final 2020 spend will be published in the same final UK aid spend statistics in the autumn of this year and will contain detailed breakdowns of the UK’s ODA spend for 2020, including an activity-level dataset.
Lord McConnell of Glenscorrodale (Lab)
My Lords, the Government have today published their planned expenditure for 2021-22. This Conservative Government won the 2019 election and their manifesto said:
“We will proudly maintain our commitment to spend 0.7 per cent of GNI on development”.
Today they are breaking that promise and breaking the law of the land. As a result, fewer girls will go to school, fewer vaccinations will cost lives and the UK will cut its support for conflict prevention by more than half. This cruel and callous plan shames our country. Will the Government do the right thing and put it to a vote?
Lord Ahmad of Wimbledon (Con)
My Lords, I first put on record that I note the sentiments of the noble Lord and the excellent work that he does in this area. However, I am sure that he, equally, will recognise that the UK economy is today 11.3% smaller than it was last year and undergoing its worst contraction for 300 years. The deficit this year is projected to be double its peak during the financial crisis. This does require difficult decisions, they have been taken and the Government have committed to restore the 0.7% as soon as the fiscal situation allows.
Lord McCrea of Magherafelt and Cookstown (DUP) [V]
My Lords, many see the announcement of quite major cuts to the overseas development assistance budget as a tragic blow to the poorest and most marginalised people in the world. It seems that the Government have not even spared countries that have been ravaged by disease, war and poverty. How does the Minister answer these charges, at such a critical time of pandemic? Is not this investment in such countries money well spent?
Lord Ahmad of Wimbledon (Con)
My Lords, I agree with the noble Lord’s final point. Any money spent in respect of alleviating the suffering of humanity, wherever that may be, is money well spent. On his challenge to me to justify this, I can point no further than to the support we have given throughout the Covid-19 pandemic to helping countries directly. We are also the people who put the architecture in place for the COVAX facility, which is now helping people with vaccinations globally, through a contribution of £548 million made by the UK.
Lord Herbert of South Downs (Con)
My Lords, is it not an irony that the ODA budget was one of the most scrutinised in government, where outcomes are actually tracked by the Independent Commission for Aid Impact? Would that other government programmes had such scrutiny. Is it not a further irony that this budget has been subject to cuts, with the harsh effects that we have now seen, when it would already have fallen because of the contraction in the size of the economy? Will my noble friend confirm that that is the case, and by how much the budget would have fallen anyway before this action was taken?
Lord Ahmad of Wimbledon (Con)
My Lords, I agree with my noble friend’s final point. As I said in my original Answer in response to the noble Lord, Lord McConnell, we saw a contraction in last year’s budget, where there was a real drop in the actual spend on ODA resulting from the economy contracting in the manner that it did. I also agree with my noble friend on the importance of scrutiny of ODA. That is why the Government have committed to working with ICAI on its valuable work, and that will continue to be the case.
Baroness Hayman (CB) [V]
My Lords, I declare my registered interests in malaria and neglected tropical diseases. Both these areas are already feeling the devastating effects of cuts in UK funding, for example the cessation of drug treatments as part of the highly successful Ascend NTD programme and the cut to UKRI funding for research at Imperial College into infectious diseases such as malaria. Where exactly does this leave the Government’s other manifesto commitment to
“lead the way in eradicating … malaria”?
Lord Ahmad of Wimbledon (Con)
My Lords, first, I know how much work the noble Baroness has put into fighting malaria. The noble Baroness and I have worked together, particularly on issues in this area that relate to the Commonwealth. We remain very much committed to research and technology. Indeed, there are specific allocations as well as allocations across the piece. On the issue of fighting various diseases, we remain very much committed to Gavi, CEPI and supporting the work of the World Health Organization in fighting any kind of disease, anywhere around the world.
Lord Anderson of Swansea (Lab)
My Lords, some of the relevant reductions in ODA are already available and are alarming. For example, Yemen has the greatest humanitarian crisis in the world today and one would expect it to be spared the full effect of the cuts—but no. We know that in the year 2021-22 the UK plans to provide “at least £87 million”. Last year, 2020-21, £164 million was pledged and £207 million was dispersed. It is little wonder that Sir Mark Lowcock of the UN accused the Government of having decided to
“balance the books on the backs of the starving people of Yemen”.
Lord Ahmad of Wimbledon (Con)
My Lords, I know Sir Mark Lowcock well. I do not share his opinion. As the noble Lord himself has said, we remain very much committed to Yemen, both in terms of political settlement and the support we are providing through the UK aid pledge of £87 million for 2021-22.
Lord Purvis of Tweed (LD)
What are the fiscal conditions that would allow a return to 0.7%? The Minister said the economy has shrunk by 11%. Why are the Government cutting bilateral aid by 50%?
Lord Ahmad of Wimbledon (Con)
My Lords, I am sure the noble Lord would acknowledge the contributions the Government have made to various challenges that we face domestically. That has called for hard decisions, including looking at ODA. As I said earlier, we will look to restore 0.7% at the earliest opportunity.
Baroness Fall (Con) [V]
My Lords, through our aid budget we are able to insure ourselves against mass migration, terrorism, pandemics and environmental destruction, as well as standing by our commitment to the world’s poor. Our cut to 0.5% from 0.7% is, as others have said, a double whammy alongside a shrinking economy. It also means that when we return to 0.7%, as the Government have committed, when the fiscal outlook improves there will be a windfall. What will the Minister spend that windfall on? Is it to go to many of the programmes that we are going to cut today, and does that not speak to short-termism at the expense of the British national interest?
Lord Ahmad of Wimbledon (Con)
My Lords, let me assure my noble friend that, while have had to make reductions in ODA, we will remain very much focused— as the WMS that we laid last night indicates—on key priorities, including the issues of humanitarian preparedness and climate change. Priorities for the future will be determined at that time, but there are projects that we are invested in for the long term and that will continue.
Lord Collins of Highbury (Lab)
My Lords, the Minister mentioned scrutiny of the budget. The chair of the IDC, Sarah Champion, said yesterday:
“To say the statement”—
on planned spending—
“is scant on detail is an understatement.”
We are still awaiting guidance on country-by-country allocations. Can the Minister confirm exactly how much the cuts will affect the FCDO’s bilateral nutrition portfolios? If he is unable to answer, can he confirm when the House can expect a precise figure?
Lord Ahmad of Wimbledon (Con)
My Lords, we will be announcing the particular detail that the noble Lord has requested in the very near future.
Baroness D’Souza (CB) [V]
My Lords, like so many others I was taken aback to learn that the cuts were to be across the board and would include very recently established programmes. A careful assessment of priority programmes is of course time consuming, but does this mean that cutting assistance for starving and wounded Yemeni children is to be equated with, let us say, cuts to training videos? Do the cuts have to be so unthinking?
Lord Ahmad of Wimbledon (Con)
I assure the noble Baroness that a lot of thought has gone into the reductions we have had to make.
Baroness Warsi (Con) [V]
[Inaudible.]—the specific application of funding for a Covid response by sitting this as part of the now much-reduced health allocation. Is it, in effect, a double hit against basic health and survival nutrition programmes? Can my noble friend explain why the Covid response does not sit outside this allocation, as an exceptional response to a particular and exceptional humanitarian issue?
Lord Ahmad of Wimbledon (Con)
My Lords, I am sure that my noble friend will recognise that all countries, not just the United Kingdom but globally, have readjusted their own spend in-country to respond to Covid. It is a pandemic like no other that has gripped the modern world. It is therefore right that, when we look at our health outcomes and indeed our health spending, the Covid challenge cannot be ignored and is part and parcel of the integrated perspective in tackling health issues around the world.
The Lord Speaker (Lord Fowler)
My Lords, the time allowed for this Question has elapsed.
E-Scooters
(3 years, 8 months ago)
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Baroness McIntosh of Pickering
To ask Her Majesty’s Government what assessment they have made of (1) the use of e-scooters, and (2) the number of (a) offences, and (b) casualties, caused by their use.
The Parliamentary Under-Secretary of State, Department for Transport (Baroness Vere of Norbiton) (Con)
My Lords, e-scooter rental trials are under way in 31 regions across England, with the purpose of assessing their safety, benefits and wider impacts. Trials in London will begin in May. Evidence gathered from all 32 trials will inform a decision about future legal sales of e-scooters. We have made no assessment of their use, or the number of offences or casualties caused by their use, at this stage; these issues will form part of our overall evaluation, later this year.
Baroness McIntosh of Pickering (Con)
I understand that e-scooters are illegal in London, so how is it that they are terrorising our streets and pavements, endangering and imperilling other road users and those using pavements, particularly vulnerable older pedestrians, young families and the disabled, as well as the sight-impaired? The most recent statistics that I have seen include pedal bikes, covering e-bikes and e-scooters. In 2019, 379 pedestrians were hit by pedal cyclists; four were killed and 122 were seriously injured. The questions to my noble friend are: what is the current framework for enforcement? Who is monitoring the use of e-scooters to ensure that they are limited to private land outside London and what penalties are imposed for their illegal use?
Baroness Vere of Norbiton (Con)
My noble friend highlights the intricacies of the different micromobility interventions that we have, of which e-scooters is but one. She is right that the private use of e-scooters on public highways is illegal. A person can be fined up to £300 or get six points on their licence, and their e-scooter can be impounded, so we have tools at our disposal. Local enforcement activities are operational decisions for local police forces.
Lord Shinkwin (Con)
My Lords, barely a day passes when I am not passed, in my wheelchair, on my way to the House, by someone riding an e-scooter on the pavement. Given the danger that e-scooters pose to disabled people, particularly those with visual impairments, and given the tools at the disposal of the authorities, which my noble friend the Minister has just mentioned, what reassurance can she offer disabled people that those tools will be used?
Baroness Vere of Norbiton (Con)
My noble friend is right that it can be a frightening prospect, particularly for vulnerable people using the road or pavement, to be terrorised by e-scooter users. But that does not mean that we should not proceed with trials that will establish exactly what the risks are and build an evidence base, as to how they might be successfully used. I take note of his comments and will make sure that colleagues in the Home Office are aware of the concerns about enforcement against the use of e-scooters on pavements.
Lord Snape (Lab)
Is the Minister aware that Birmingham is one of the cities selected for the e-scooters trial, and that representatives of the blind and partially sighted community have expressed widespread concern about the number of these wretched things that have been abandoned in the city centre as a result of this trial? Does the Minister anticipate ditching her ministerial car to use one and can she see the Peers’ car park being packed with e-scooters at some time in the future? Finally, can she reflect on replacing the private car with these sorts of machines? We have heard it all before, so will e-scooters go the same way as the Sinclair C5 or Segway?
Baroness Vere of Norbiton (Con)
My Lords, the Government believe that e-scooters, if used in the right way, have great potential and could encourage modal shift away from the car. That is why we are doing these trials. I am delighted that Birmingham has decided to be forward-thinking, as I would expect of it, and to take up the opportunity for a trial. A lot goes into place when a trial is established; there is careful liaison with the local police and the operator. A key concern is to make sure that the scooters are put back where they belong, and we are very focused on that with each of the operators.
Baroness Randerson (LD) [V]
My Lords, will the Minister undertake to introduce lessons on the safe use of electric scooters as part of road safety education in schools, when the Government get to the point of making decisions on how they should be operated in the future? Can she also undertake that charities representing the disabled will be fully consulted before the Government make final decisions?
Baroness Vere of Norbiton (Con)
I can certainly guarantee the latter: we will be consulting all sorts of people, when we make the final decision on the trials. As I noted, the trials are in place. I cannot go into the hypothetical of what might happen if the Government might do something in the future. However, at the moment, users of the trials get instructions from the app about their use. There are stickers on the scooters reminding people to stay off the pavements and about the areas where the scooters can be used. Some operators have advanced training modules and incentives for users to complete them.
Lord Rosser (Lab) [V]
The Government have provided for a number of e-scooter trials around the country, as the Minister has indicated. What will constitute positive and negative outcomes of an e-scooter pilot exercise?
Baroness Vere of Norbiton (Con)
That is a very specific question, to which I probably cannot provide an answer. As the noble Lord knows, when it comes to road safety, there are always benefits and significant risks to be carefully looked at together. As we go through these trials, evidence will come forth, which we will look at and make a decision accordingly.
Lord McColl of Dulwich (Con)
My Lords, it is not surprising that there have been so many serious injuries, because the combined weight of a miscreant and their scooter is over 100 kilos. They often break the speed limit at over 40 mph. Will the Government encourage local police forces to enforce the law, so that injuries and death can be avoided? Blind people are particularly vulnerable, of course.
Baroness Vere of Norbiton (Con)
My noble friend has identified for your Lordships’ House the difference between illegal use of private e-scooters on public roads and the trials. To date, there have been 2 million journeys on e-scooters within the trials. They have travelled the equivalent distance to the moon and back 13 times, which is 5 million kilometres. In all that time, there have been zero fatalities and zero people hospitalised as in-patients. There have been 11 injuries that could be called serious, but were not hospitalisation injuries, and 62 slight injuries, such as a sprained ankle—from 2 million journeys. The noble Lord mentioned that they can go up to 40 mph. Again, that is impossible for a trial e-scooter, which is limited to 15.5 mph. It is important that we continue with these trials, embrace technology and innovation, assess the risks and make the right decision.
Baroness Uddin (Non-Afl) [V]
My Lords, while this is expensive, it is sold without any guidance or rules. I spoke to 10 scooter owners on my street, over a few days. They were of various ages and all male. Not one was aware of the restriction on public use or had been issued advice on licensing or insurance at the time of purchase. I tried it in my back yard, and it is fun. Does the Minister agree, regardless of what she is saying and the assurance she has made, that ambiguities about the rules of their use remain? When can we expect a government direction to be made available to all retailers and manufacturers? Is it time for the Government to consider a public information campaign?
Baroness Vere of Norbiton (Con)
When one purchases an e-scooter, the vast majority of retailers say that it is for use on private land only. I will take the noble Baroness’s comments back to the department to see what else we can do.
Lord Whitty (Lab) [V]
My Lords, given the dangers to pedestrians, particularly disabled pedestrians, how come there are scooters on the pavement within a few hundred yards of the Palace of Westminster and elsewhere, when it is against the law to be on the pavement anywhere? How come there have been so few prosecutions and that you are still allowed to buy and sell these scooters when, in the trial areas, you must use those provided by designated renters only?
Baroness Vere of Norbiton (Con)
I have probably addressed many of the issues that the noble Lord points out. I will take that point about enforcement and what more we can do back to the Home Office. E-scooters should never be on the pavement, as is the case with bicycles. The OECD’s international transport forum analysed various global studies of e-scooter safety and concluded that they are broadly equivalent to cycles. That may or may not be reassuring to the noble Lord.
The Lord Speaker (Lord Fowler)
My Lords, the time allowed for this Question has elapsed.
Covid-19: Pupil Referral Units
(3 years, 8 months ago)
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Baroness Lawrence of Clarendon
To ask Her Majesty’s Government what support they have given to students in Pupil Referral Units during the COVID-19 pandemic; and whether such students received the same treatment and prioritisation as those in other education settings.
The Parliamentary Under-Secretary of State, Department for Education and Department for International Trade (Baroness Berridge) (Con)
My Lords, it will be no surprise to noble Lords that, on the 28th anniversary of the death of her son, Stephen Lawrence, the noble Baroness, Lady Lawrence, is here asking a Question on behalf of others, and I pay tribute to her for that. The Government recognise that education is a key protective factor for vulnerable students, and we therefore prioritise those in alternative provision. These settings remained open throughout the pandemic. Support included last summer’s £7.1 million alternative provision transition fund for year 11 pupils to make a successful transition to post-16 education, additional support through the workforce fund and, most recently, increased levels of funding for mass asymptomatic testing.
Baroness Lawrence of Clarendon (Lab) [V]
My Lords, I thank the Minister for talking about my son, Stephen. Since the pandemic, have pupils in pupil referral units been supported and prioritised, as those in other educational settings have? What is the impact on their education? Are they being monitored to return to mainstream school? As we know, the majority of people in pupil referral units are boys from the black community.
Baroness Berridge (Con)
The Government were keen to ensure that alternative provision got additional support, so the Covid catch-up fund was triple the amount put into mainstream provision—£240 per pupil rather than £80. An additional £730 million has been put into the high-needs budget this year. The Government are acutely aware that in these settings are some of our most vulnerable young people. I also draw attention to the amazing staff who, during the pandemic, did much to protect them.
Baroness Blower (Lab) [V]
My Lords, I salute my noble friend Lady Lawrence on Stephen Lawrence Day. In a statement at its recent conference, the NEU said that it is a symptom of poverty and racism that the majority of those in pupil referral units are working-class and black students. Does the Minister agree that, as the pandemic has laid bare the extent of racial inequality, to begin to tackle this in education schools need resources to prevent exclusions, including smaller classes and engaging a flexible curriculum, and much more investment in pastoral systems?
Baroness Berridge (Con)
My Lords, the cohort within alternative provision is incredibly mixed, and only just over 40% of those in such settings have been permanently excluded from mainstream education. Of those, 70.7% are white British, an overrepresentation, since 65.4% of the population is white British. However, the noble Baroness is right that 3% are of black-Caribbean heritage, while they represent only 1% of the population. Also, 3.7% in alternative provision are Asian, while 11.4% of pupils are of British-Asian heritage. Who is currently in alternative provision is a complex picture.
The Lord Bishop of London
My Lords, we welcome the increased level of catch-up funding for pupil referral units, but will the Minister tell the House how the Government will ensure that the funding alleviates the pressure on staff and students that they faced during the pandemic?
Baroness Berridge (Con)
My Lords, as mainstream state-funded provision, the staff costs are still paid regardless of attendance. The initial feedback is that the £7.1 million in transition funding, which enabled the staff to ensure that AP ends at 16 and there is a successful transition into post-16, was successful. We are looking at whether that can be extended for a further year.
Lord Polak (Con)
My Lords, Stephen Lawrence’s memory should be for a blessing. I commend JW3’s Gateways programme, which provides integrated education and vocational provision for vulnerable young people and those experiencing mental health challenges within the Jewish community. Additionally, the trustees of JW3 should be congratulated, since they are in the process of establishing the first PRU in the Jewish community after consulting a wide range of Jewish schools in north-west London that are desperate for such a PRU to exist. Can the Minister consider how the department could assist the trustees to ensure that the new PRU becomes a centre of excellence?
Baroness Berridge (Con)
My Lords, it is pleasing to hear of that kind of community response to these issues. Noble Lords may remember that there are, of course, non-maintained special schools, which apparently include some alternative provision. Many of those that remain are Jewish or Catholic in their religious ethos, but it is open to any community to open a registered provider within the independent sector. I will be pleased to write to my noble friend to outline how that might be possible within the state-funded alternative provision sector.
Baroness Garden of Frognal (LD)
My Lords, PRUs cater for some of the most disadvantaged, disturbed and sometimes dangerous students. I taught in one for a while, and it was an unforgettable experience. The NEU found that there was a 17% rise in the number of pupils with education, health and care plans in pupil referral units last year. How are the Government ensuring that every child with an EHCP is being educated in the most appropriate setting for them?
Baroness Berridge (Con)
My Lords, there is a very high level of those with not only EHCP but SEND generally. Around 80% end up in some form of alternative provision. The AP settings are part of the SEND review so that they can be considered together. We recognise that this is often not the most appropriate place for young people to end up, and we will look at how to change the dynamic that is operating.
Lord Hastings of Scarisbrick (CB)
My Lords, given the proven likelihood that PRUs can be highways to hopelessness, driving vulnerable young people towards long-term criminality, what is the Government’s assessment of why PRUs tend not to lead to successful educational and social outcomes? Also, given the opportunities of the Oasis Restore secure school, funded by the Ministry of Justice and opening in Medway next year, how involved will the Department for Education be in defining and inspecting the curriculum, as well as underpinning the well-being of all those educated in this new, remarkable school?
Baroness Berridge (Con)
My Lords, our aspirations are the same for all young people, regardless of where they are being educated, but it is true that some young people who end up in alternative provision are, for instance, of secondary school age but with only a primary school reading age. Therefore, the classic traditional measures of educational performance must be looked at in terms of the progress which that young person can make. Many of the AP settings are acutely aware of the safeguarding of their students. Many work closely with the 18 violence reduction units to safeguard their pupils, and I will write to the noble Lord about the first secure school, which is within the Ministry of Justice’s provision.
Lord Watson of Invergowrie (Lab) [V]
My Lords, I add my tribute to my noble friend Lady Lawrence of Clarendon, for the great strength of character that she has shown following the callous murder of her son, and for the work that she has done in establishing the Stephen Lawrence Charitable Trust.
Many pupil referral units have been forced to cut services for vulnerable and disadvantaged pupils because of the severe reduction in funding following the drop in referrals during the pandemic. There is real concern in the sector that the increased level of recovery funding for PRUs announced by the Government is unlikely to be sufficient to meet the anticipated surge in demand. Does the Minister accept that the Government must heed those concerns and review the per-pupil element of the funding formula to ensure consistency and parity of funding with mainstream schools?
Baroness Berridge (Con)
My Lords, obviously some young people are dual registered, so they are mainstream as well as AP funded. During the two formal lockdowns when schools were closed, the guidance from the department to local authorities was that they should pay the top-up element that they pay to these provisions. If a pupil referral unit that is still an LA-maintained unit is in financial difficulty, obviously it goes to its local authority; in relation to the other alternative provision—the just over 40% of the sector that is academised—I can assure the noble Lord that we are keeping a close watch on the financial situation of that provision.
Lord Addington (LD)
My Lords, does the Minister accept that many children who end up in these units come from backgrounds where they do not have supportive families and people who are keen on education? Does the Minister also accept that these are the groups in which undiagnosed special educational needs—I remind the House of my declared interests in this field—do not get spotted until much later, if at all, and probably in the prison system? Do the Government have any process by which to pick up on the backlog of identification caused by the pandemic and the missed school experience?
Baroness Berridge (Con)
My Lords, it is precisely for those reasons that we must consider AP in the context of the SEND review and work out why some conditions are not being spotted early enough. For instance, it seems that in an all-through setting—we now have some all-through schools—spotting it in early years or reception is vital to the educational progress of those young people. As I have outlined, we need to look at why so many young people with these needs are ending up in alternative provision and with late diagnosis of conditions.
The Lord Speaker (Lord Fowler)
My Lords, the time allowed for this Question has elapsed. We now come to the fourth Oral Question.
Transparency of Lobbying, Non-Party Campaigning and Trade Union Administration Act 2014
(3 years, 8 months ago)
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Lord Tyler
To ask Her Majesty’s Government what plans they have to review and update the Transparency of Lobbying, Non-Party Campaigning and Trade Union Administration Act 2014.
The Minister of State, Cabinet Office (Lord True) (Con)
My Lords, the Government are already conducting post-legislative scrutiny of Part 1 of the transparency of lobbying Act, which established the register. The post-legislative scrutiny was announced in 2020, and earlier this year Ministers met stakeholders to seek their views.
Lord Tyler (LD) [V]
My Lords, I recall that during the passage of the transparency Bill I quoted Mr Cameron as saying:
“Sunlight is the best disinfectant.”—[Official Report, 13/1/14; col. 29.]
Will the Government now implement the recommendations from the Public Relations and Communications Association to strengthen the Act? As the Minister will know, I and my colleagues secured a promise to include special advisers when the legislation had settled down and to examine the case for the inclusion of in-house lobbyists. Given the widespread public perception of Tory sleaze, will the Government now take action to ensure that the Act recognises the danger of privileged access for their prominent political supporters?
Lord True (Con)
My Lords, the noble Lord asks a wide range of questions there. In my contention, I believe that we have very high standards of integrity in public life in this country, and indeed in our Civil Service. But wherever there is the possibility of wrongdoing it should be investigated, and where it is uncovered it should be addressed. The Boardman review has been announced, and that work will be taken into account in any relevant post-legislative scrutiny work that is continuing.
Baroness Hayter of Kentish Town (Lab)
I am back. On 13 January 2014, an amendment from the noble and learned Lord, Lord Hardie, my noble friend Lady Royall and me would have extended the lobbying Bill to include in-house lobbyists and so cover, for example, David Cameron’s lobbying on behalf of Greensill. His then Government defeated that amendment by 185 to 218—two Not-Contents, of course, being from the noble Lords, Lord True and Lord Tyler. In the light of recent events, will the Minister now support a full register of all professional lobbyists? Will he take it from me that we will judge the forthcoming Queen’s Speech on whether it includes measures to outlaw the invidious, secret, back-channel lobbying that is so undermining of good governance?
Lord True (Con)
My Lords, I make a practice at this Dispatch Box of not throwing stones, and I think everyone in every party should be cautious about throwing stones. In response to what the noble Baroness said—I am sorry that she is in her place, but it is good to see her—on the question of in-house lobbyists, it is true that the Government did not pursue that in 2014. There are issues involved. It obviously will be considered currently. Such an approach would require thousands of businesses, charities, NGOs and trade bodies to pay a registration fee of £1,000 a year to write or speak to Ministers. That could be detrimental to the public interest, but I note what the noble Baroness says.
Lord Wallace of Saltaire (LD)
My Lords, I take my share of responsibility for the last Act. It is now clear that we have to extend further the coverage of lobbying activities. Will the Minister accept that these should include greater transparency for political think tanks, including full declaration of their sources of funding? As he will know, Conservative MPs are concerned about the Runnymede Trust. Others of us are concerned about the Institute of Economic Affairs and Policy Exchange, for example, which declare on their websites their access to Ministers and their influence over government policy.
Lord True (Con)
My Lords, the noble Lord makes a further suggestion. Since 2010, with the help of the party opposite, we have brought in a statutory registration of consultant lobbyists and a new routine of regular government transparency publications on spending, salaries, contracts and tenders. We are implementing the recommendations of the Boardman review on procurement. We have banned the practice under previous Governments of quangos hiring lobbyists to lobby the Government. We have made sure that taxpayer-funded government grants are not used for lobbying purposes and have provided for greater transparency on trade unions. We have done a number of things. That does not mean that more may not need to be done. I accept that work is ongoing to consider these matters.
Lord Grade of Yarmouth (Con) [V]
Does my noble friend the Minister agree that there is a much simpler solution to the lobbying problem than that being discussed? What is being discussed would require a written definition of what constitutes lobbying or who is or is not a lobbyist, which can lead only to endless arguments about interpretation. Is not the neatest and most effective solution to require all civil servants, serving Ministers and spads formally to log all and any lobbying approaches, however informal, and prescribe that they must respond by requiring the lobbyist to “put it in writing”? No one will ever stop people trying to lobby, so the onus should be on the recipient of any lobbying to respond in the correct manner.
Lord True (Con)
My Lords, I agree that transparency is important; that has been a standard across the House. Ministers’ and Permanent Secretaries’ appointments are published. Obviously, there is ongoing review of this work, not only by the Government but by a number of parliamentary committees. I am sure what my noble friend said will be noted.
Lord Sikka (Lab) [V]
My Lords, while it is right to constrain the power of lobbyists and former Ministers renting themselves out, the real cancer at the heart of our politics is corporate money and power, which fund political parties and legislators to gain unfair advantage in public policy-making. Is the Minister concerned? If so, what legislation will he propose?
Lord True (Con)
The noble Lord is the antithesis to capitalism. The remarkable success of private companies in procuring vaccines for the safety of our people is something for which I am profoundly grateful.
Baroness Barker (LD)
What changes will be made to the code about lobbying for government contracts directly via a Minister’s WhatsApp account and text?
Lord True (Con)
My Lords, all these matters are currently under review. I declare myself guilty occasionally of sending and receiving WhatsApp messages, in common with millions of other people in this country. I wonder which is the way to the guillotine.
Lord Norton of Louth (Con) [V]
My Lords, my question complements that of my noble friend Lord Grade. Given that the 2014 Act did not increase transparency and was focused not on lobbying but on lobbyists—the people, not the activity—will my noble friend commit to looking at ways to ensure that details of all representations made to government on Bills and ministerial policies are released at the same time that those Bills and policies are published?
Lord True (Con)
Again, my Lords, the noble Lord raises a specific point, as have a couple of other noble Lords who have spoken. I repeat that the Government have significantly increased transparency. There is post-legislative scrutiny of the Act and the Government will be going further to review and improve business appointment rules and increase transparency in procurement. We need to maintain high standards in public life—I agree with all noble Lords who have spoken.
Lord Dubs (Lab) [V]
My Lords, does the Minister agree that nobody should be a Member of either House of Parliament who is a paid advocate for a particular cause?
Lord True (Con)
My Lords, we have long had a paid-advocacy rule in your Lordships’ House, and it is a good rule.
Lord Lansley (Con)
My Lords, my noble friend will recall that I took charge in the Commons of the passage of the transparency of lobbying et cetera Act. In my view it was wrong then and is wrong now to include in-house lobbyists, because many thousands of people working in companies will have to register simply to speak on behalf of their own company.
My noble friends Lord Grade and Lord Norton of Louth have it right. There has never been a sufficient level of openness about who Ministers receive lobbying from, or indeed receive any communication from. That should be published. It was not sufficient then and it is not sufficient now.
Lord True (Con)
My noble friend puts his finger on a key issue that I alluded to in my reply to the noble Baroness opposite, in terms of the scale of the undertaking that would be required. I agree—government publishes data on meetings between Ministers, Permanent Secretaries and external interests. Regulation must balance the need for transparency on third-party lobbyists while not preventing engagement by the voluntary and private sector. These issues require and will receive very careful consideration. I can assure all noble Lords that the matter of integrity in public life is something that this Government take profoundly seriously.
The Lord Speaker (Lord Fowler)
My Lords, the time allowed for this Question has elapsed and it brings Question Time to an end.
Arrangement of Business
The Earl of Courtown (Con)
My Lords, on behalf of my noble friend the Chief Whip, I thought this would be a convenient time to confirm the plan for the Summer Recess. Subject as is always the case to the progress of business, we will rise for the summer in the conclusion of proceedings on Thursday 22 July and return on Monday 6 September. A copy of these dates will be made available in the Royal Gallery. Further recess dates will be confirmed in due course.
Russia: Alexei Navalny
(3 years, 8 months ago)
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Lord Walney
To ask Her Majesty’s Government what representations they have made to the government of Russia regarding the treatment of imprisoned Russian opposition leader, Alexei Navalny.
The Minister of State, Foreign, Commonwealth and Development Office (Lord Ahmad of Wimbledon) (Con)
My Lords, on 19 April the Foreign Secretary underlined that Russia is responsible for Alexei Navalny’s deteriorating health, and that Mr Navalny must be given immediate access to independent medical care and released from his politically motivated detention. We continue to raise Mr Navalny’s case regularly with Russia, most recently through the British embassy in Moscow on 15 April, and to work with partners to hold Russia to account in multilateral fora, including via the OPCW.
Lord Walney (Non-Afl)
I thank the Minister for that Answer but let us be clear what is happening here: Vladimir Putin is directing the slow murder of his main rival as the world looks on. This is not simply an internal matter. The Russian troops amassed on the Ukraine border point to the consequences of letting Putin think he can trample on the rule of law without comeback. Will the Government undertake to increase the number of individuals—Putin’s cronies—being sanctioned by the UK every day until Mr Navalny is released?
Lord Ahmad of Wimbledon (Con)
My Lords, I agree with the noble Lord. It is a rather perverse situation, with the ruling of 2 February meaning that the very person fighting for democratic rights, who was himself a victim of a direct attack by the Russian state, is now being imprisoned. I agree about increasing pressure and we are doing just that bilaterally and through multilateral fora. On the specific issue of sanctions, I cannot speculate on the future but, as the noble Lord will acknowledge, we have already taken quite specific sanctions against six individuals and an institution because of the poisoning of Alexei Navalny.
Lord Collins of Highbury (Lab)
My Lords, Alexei Navalny’s life is in danger for his campaign against corruption. Up to half of all money laundered out of Russia is still done through the United Kingdom. We have a responsibility, yet there has been no action on golden visas nor powers to sanction corrupt officials and, three years after the Salisbury attack, the Government have failed to fully implement any of the recommendations set out in the Russia report. Also, is the Minister not concerned that, from when David Cameron became leader of his party, almost £5 million has been received by it in Russian-linked donations?
Lord Ahmad of Wimbledon (Con)
My Lords, as the noble Lord is aware, we are taking quite specific steps to fight corruption and illicit finance. Indeed, he will be aware that we are in the process of looking at broadening the sanctions application to include illicit financing and corruption. On the specific issue of the Russia report, among other steps, I assure him that we will introduce new legislation to provide Security Service and law enforcement agencies with the tools that they need to tackle the evolving threat. On visas, we are reviewing all tier 1 visas granted before 5 April 2015.
Baroness Northover (LD)
My Lords, what liaison are the Government having with our European allies over Mr Navalny’s case? Does he agree that we must ensure that sanctions are comprehensive and effective, and that at the moment they are neither?
Lord Ahmad of Wimbledon (Con)
My Lords, as the noble Baroness will be aware, the sanctions that have already been imposed on the individuals that I mentioned in my response to an earlier question were done in conjunction with our European Union partners. We continue to sustain those sanctions. I think the fact that Russia has taken note and looks to react to this shows the effectiveness of those tools. I repeat once again, and I know the noble Baroness agrees, that whatever we do with sanctions we must continue to work with our close allies, including those in the EU.
Lord Garnier (Con)
My Lords, I agree with the noble Lord, Lord Walney, and the noble Baroness, Lady Northover. I want to ask a question that is a variant of the one that I asked on Monday about Hong Kong: what practical and effective steps can the United Kingdom take, both alone and with our allies, to ensure that, first, Mr Navalny is not murdered or left to die in prison; secondly, that Russia’s nascent democracy is not snuffed out; and, thirdly, that the Russian Government are not tempted to distract from their domestic, political and economic problems by foreign adventures calculated to destabilise their neighbours?
Lord Ahmad of Wimbledon (Con)
My Lords, my noble and learned friend raises some important points. I assure him that the United Kingdom is taking actions quite directly, including, as I have alluded to, with sanctions, which include asset freezes and travel bans. We are acting with our key partners to ensure that a clear message is sent to the Russian state, most recently on 19 April. The Foreign Secretary issued a statement asking for the immediate release of Mr Navalny from detention. We are working through key multilateral organisations. The UK led a G7 statement. Today we are awaiting statements due to be issued as a response at the OCPW. There are OSCE statements today on Mr Navalny and media freedom, and a European human rights ambassadors statement today covering this issue.
Lord Wigley (PC) [V]
My Lords, will the Minister spell out in detail what new steps are being taken to stop money laundering from Russia through London? That, more than anything, will probably hit hardest those who need to have their minds focused by this outrageous issue.
Lord Ahmad of Wimbledon (Con)
My Lords, I have already detailed some of the steps that we are taking and will continue to take. I agree with the noble Lord that far too much of such money comes through the City of London, and we must seek to ensure the robustness of our regime so that such illicit finance and money does not pass through our country’s capital.
Lord Campbell of Pittenweem (LD)
My Lords, while I acknowledge, as we must, that Mr Navalny is a political prisoner, does the Minister none the less accept the relevance of the proposition that
“the treatment of crime and criminals is one of the most unfailing tests of the civilisation of any country”?—[Official Report, Commons, 20/7/1910; col. 1354]
If so, he will be in very good company; it was first articulated by Winston Churchill in July 1910.
Lord Ahmad of Wimbledon (Con)
My Lords, I agree. Further, I agree with the great, respected and revered Winston Churchill.
Lord Cormack (Con)
My Lords, following the point made by the noble Lord, Lord Walney, when he asked his Question, why do we not take sanctions against a given number of people every week until Navalny is released from his appalling jail? Although we know that the Russians veto things at the Security Council, that is no reason for not having an internationally publicised debate on this issue.
Lord Ahmad of Wimbledon (Con)
My Lords, on my noble friend’s second point, we are doing just that, if not necessarily at the UN Security Council. I mentioned the OPCW earlier. There is a specific debate with the Russians, in a constructive fashion, saying: “There was a poisoning of Mr Navalny. Answer the case.” The Russians have not been forthcoming. On the issue of sanctions every day or what may happen in future, there are good reasons why we do not speculate, one of which is that an evidential threshold needs to be met. Anyone or any institution that is sanctioned has the right to appeal, and we need to ensure that the sanctions we impose are robust.
Baroness Ritchie of Downpatrick (Non-Afl) [V]
My Lords, UN human rights experts have urged Moscow to let Alexei Navalny be medically evaluated abroad. Can the Minister confirm what discussions are being held with the United Nations to ensure that all pressure is put on Moscow to allow an external medical evaluation to take place?
Lord Ahmad of Wimbledon (Con)
My Lords, there are two points in response to the noble Baroness’s question. First, we are calling for that kind of independent access to make that medical assessment with our key partners, within the context of our various representative bodies, such as the UN and the OPCW, as I suggested. Secondly, Russia is part and parcel of the Security Council. It is a P5 member. It has signed up to its responsibilities. It now needs to be seen not just to act but to act in this instance.
Lord Balfe (Con)
My Lords, the noble Lord, Lord Collins, asked some very good questions and the Minister outlined some measures that may be taken. What is the timetable for undertaking the measures he outlined? Secondly, one person’s political prisoner is not necessarily another’s. Can the Government have a quiet word with the Russians and point out that it is not a particularly good image if people die in custody, as I found out when I served in the European Parliament and Bobby Sands died?
Lord Ahmad of Wimbledon (Con)
My Lords, on the noble Lord’s second point, it was particularly interesting to hear the Russian Ambassador on UK media saying that Russia would do its utmost to ensure that that would not happen. On the specifics of the earlier question, I acknowledge that all the questions I get from the noble Lord, Lord Collins, are extremely good and challenging and that is the way it should be. I alluded to the fact that we have taken specific actions, including the review of tier 1. In pointing to the future, I have said that there will be specific legislation and when that is timetabled I will, of course, share that with my noble friend and your Lordships’ House.
Lord Mackenzie of Framwellgate (Non-Afl) [V]
My Lords, the mistreatment of Alexei Navalny on what appear to be trumped up charges ironically mirrors the treatment of Mr Magnitsky himself, after whom the sanctions are named, and could end with the same result. Resolute and firm action is required in conjunction with our many democratic allies throughout the world. Can the Minister confirm that such discussions are taking place and that the message is given to Russia in no uncertain terms that such behaviour has consequences?
Lord Ahmad of Wimbledon (Con)
My Lords, I agree with the noble Lord and assure him that such discussions are taking place. We have seen co-ordination through the OSCE, work through the G7 and today at NATO there was a statement on a related subject: the expulsions by the Czech Republic of the Russian diplomats implicated in actions there. The individuals identified by the Czech Republic are the very same ones who carried out the Salisbury attack, so there is a lot of co-ordination.
Let us not forget that it is not just the international community. We have seen protests in 100 cities across Russia. The protests continue to be suppressed. We also need to stand up for the people of Russia: they are also asking for Alexei Navalny to be released. It is about time the Russians listened not only to the international community but to their own citizens.
The Deputy Speaker (The Earl of Kinnoull) (Non-Afl)
My Lords, all supplementary questions have been asked.
Lord Parkinson of Whitley Bay (Con)
My Lords, I am afraid we must wait until the time shown on the Order Paper for the next business. I beg to move that the House do now adjourn for two minutes.
Arrangement of Business
The Deputy Speaker (The Earl of Kinnoull) (Non-Afl)
My Lords, the Hybrid Sitting of the House will now resume. I ask Members to respect social distancing.
Highgate Cemetery Bill [HL]
Prisons (Substance Testing) Bill
Thursday 22nd April 2021
(3 years, 8 months ago)
Lords ChamberRead Full debate Prisons (Substance Testing) Act 2021 View all Prisons (Substance Testing) Act 2021 Debates Read Hansard Text Amendment Paper: Consideration of Bill Amendments as at 12 March 2021 - (12 Mar 2021)
Baroness Pidding (Con)
My Lords, I understand that no amendments have been set down to this Bill and that no noble Lord has indicated a wish to speak in Committee. Manuscript amendments are not possible at present. Unless, therefore, any noble Lord objects, I beg to move that the order of commitment be discharged.
Botulinum Toxin and Cosmetic Fillers (Children) Bill
Thursday 22nd April 2021
(3 years, 8 months ago)
Lords ChamberRead Full debate Botulinum Toxin and Cosmetic Fillers (Children) Act 2021 View all Botulinum Toxin and Cosmetic Fillers (Children) Act 2021 Debates Read Hansard Text Amendment Paper: Consideration of Bill Amendments as at 12 March 2021 - (12 Mar 2021)
Baroness Wyld (Con)
My Lords, I understand that no amendments have been set down to this Bill and that no noble Lord has indicated a wish to speak in Committee. Manuscript amendments are not possible at present. Unless, therefore, any noble Lord objects, I beg to move that the order of commitment be discharged.
Animal Welfare (Sentencing) Bill
Thursday 22nd April 2021
(3 years, 8 months ago)
Lords ChamberRead Full debate Animal Welfare (Sentencing) Bill 2019-21 View all Animal Welfare (Sentencing) Bill 2019-21 Debates Read Hansard Text Amendment Paper: Public Bill Committee Amendments as at 3 February 2021 - (3 Feb 2021)
Lord Randall of Uxbridge (Con)
My Lords, I understand that no amendments have been set down to this Bill and that no noble Lord has indicated a wish to speak in Committee. Manuscript amendments are not possible at present. Unless, therefore, any noble Lord objects, I beg to move that the order of commitment be discharged.
Education (Guidance about Costs of School Uniforms) Bill
Thursday 22nd April 2021
(3 years, 8 months ago)
Lords ChamberRead Full debate Education (Guidance about Costs of School Uniforms) Act 2021 View all Education (Guidance about Costs of School Uniforms) Act 2021 Debates Read Hansard Text Amendment Paper: HL Bill 176-I Amendment for Committee - (13 Apr 2021)
Forensic Science Regulator Bill
Thursday 22nd April 2021
(3 years, 8 months ago)
Lords ChamberRead Full debate Forensic Science Regulator Bill 2019-21 View all Forensic Science Regulator Bill 2019-21 Debates Read Hansard Text Amendment Paper: Public Bill Committee Amendments as at 11 November 2020 - (11 Nov 2020)
Lord Kennedy of Southwark (Lab Co-op)
I beg to move that the Bill do now pass. In moving this Motion, I wish to make a few brief remarks. I would like to place on record my thanks to my good friend the honourable Member for Bristol North West in the other place, Mr Darren Jones, for skilfully steering this Bill through the House of Commons and asking me to take the Bill up in your Lordships’ House. I also want to thank Dr Gillian Tully, the recently outgoing Forensic Science Regulator, for understanding that this Bill was necessary to support the regulator and place them on a statutory basis. I also want to pay tribute to both the Science and Technology Committee of this House and of the Commons for pushing for this change. I thank the Government, and particularly the noble Baroness, Lady Williams of Trafford, for recognising a problem and supporting this important measure.
I also thank all noble Lords for not being tempted to table amendments to make a good Bill an even better Bill. As we all know, Private Member’s Bills risk falling due to the pressures of time. Clearly, more will need to be done in this area, but this Bill is a big step forward. It will make a real difference in ensuring that the highest standards are in place across forensic science services. As we debated during Second Reading, it is important for victims, defendants and the community to ensure that forensic science of the highest standard helps everybody receive the justice that they deserve.
Arrangement of Business
The Deputy Speaker (The Earl of Kinnoull) (Non-Afl)
My Lords, the Hybrid Sitting of the House will now resume. I ask Members to respect social distancing.
National Security and Investment Bill
Thursday 22nd April 2021
(3 years, 8 months ago)
Lords ChamberRead Full debate National Security and Investment Bill 2019-21 View all National Security and Investment Bill 2019-21 Debates Read Hansard Text Read Debate Ministerial Extracts Amendment Paper: HL Bill 183-I Marshalled list for Report - (12 Apr 2021)
The Parliamentary Under-Secretary of State, Department for Business, Energy and Industrial Strategy (Lord Callanan) (Con)
My Lords, I start by expressing my gratitude to noble Lords from across the whole House for their contributions to the passage of the Bill. In particular, I thank my noble friends Lord Grimstone and Lady Bloomfield for their steadfast help, guidance and support throughout its passage. I also place on record my thanks to the noble Baroness, Lady Hayter of Kentish Town—my commiserations on the results of the Lord Speaker election—and to the noble Lords, Lord Grantchester and Lord Rooker, for their constructive attitude and helpful challenges from the Opposition Front Bench throughout the passage of the Bill. I also thank the noble Lords, Lord Fox and Lord Clement-Jones, for their customary ability to ask the most difficult questions at totally wrong times during the passage of the Bill.
It would also be remiss of me not to thank some of my noble friends who have taken a particular interest in ensuring that we get the Bill right. I am thinking in particular of my noble friends Lord Lansley, Lady Noakes, Lord Hodgson of Astley Abbotts, Lord Leigh of Hurley, Lord Vaizey of Didcot, Lady McIntosh and others.
Noble Lords from across the House have rightly held the Government’s feet to the fire in a number of areas, in the finest traditions of this House, and I can honestly say that the Bill leaves the House in a better state as a result of that scrutiny. I extend my particular thanks to parliamentary counsel for their exemplary drafting and to the clerks and all the House authorities for shepherding us through these exceptional times. The smoothness with which proceedings flow masks the sometimes immense and exceptional logistical operation going on behind the scenes.
I also extend my thanks to the officials and lawyers within my department, who have worked tirelessly on the drafting and subsequent passage of the Bill, for their immense patience in explaining some of the difficult concepts to a mere simpleton such as myself. In particular, I thank Dr Sarah Mackintosh, Mike Penry, Danny McCarthy, Arash Abzarian, Alex Midgley and George Kokkinos, who embarked on their NSI journey before I was even a Minister in this department. In my view, they act in the finest traditions of our civil servants, and I am very grateful to them for all their expert help, support and guidance. Finally, I thank the wonderful Melissa Craig, in my private office, and the immense Yasmin Kalhori in the Whips’ Office, who is ever-helpful in feeding forward suggested speaking notes—not all of which I can use in this House.
I said at Second Reading:
“This Bill will keep the British people safe.”—[Official Report, 4/2/21; col. 2335.]
In the meantime, we have had lengthy discussions on fishing, lectures to insolvency practitioners and—in one memorable case—the makeup of a particularly hawkish rugby front row. These discussions and others have made me certain that the Bill will go a long way in ensuring that the UK’s defences are fighting fit, both now and long into the future.
I am heartened that, in the finest traditions of this House, all parties have recognised the Bill’s importance, even if we have disagreed on some of the detail. In that sense, it has genuinely been a cross-party effort, and I am grateful to all noble Lords who have participated. I beg to move.
Lord Grantchester (Lab)
From these Benches, it is a pleasure to thank the Minister, the noble Lord, Lord Callanan, for the way that he handled this important Bill and steered it through your Lordships’ House, so ably supported by the noble Lord, Lord Grimstone, and the noble Baroness, Lady Bloomfield. At the end of a long season and Session, it is very rewarding to examine the legislation of the noble Lord, who, with his team, engaged so positively with us and the House. This resulted in real and productive improvements to the Bill—especially on new public guidance, the expert panel and turnaround times, among other features, being included in the annual report.
I am grateful to the Bill team, ably led by Mike Penry, and the department, for their exemplary attention and courtesy shown to us at all times. The broadcasting team were excellent and managed our hybrid proceedings throughout without a hitch. I am also grateful to my lead and boss on the Bill, my noble friend and colleague Lady Hayter, who was disappointed that she could not see it through all its stages to the conclusion.
I would not have been able to step up to the grade without the support my very able legislative assistant in our office, Dan Harris, who, with Ellie Robson, was able to guide me over the hurdles, draft our amendments and take the negotiations with the Public Bill Office completely out of my clumsy hands. I am very grateful to them.
Our team is especially grateful also for assistance that came from outside the House—from the Russell group of universities, the CBI and the Wellcome Trust, as well as the Henry Royce Institute, the BioIndustry Association, the Law Society and the Law Society of Scotland. They have all provided insights and appreciation of the Bill’s likely workings and omissions, which proved invaluable to our attention within the House.
A clear feature of the Bill is how co-operatively the Minister and his team have worked with us and the House throughout, to understand and accommodate the pertinent issues in the Bill from our perspective. Of course, there is one clear divergence of opinion between the House and the Government, which we are sending to the Commons for their consideration. For the achievement of that task, I am very grateful to the front row team, marshalled into a complete scrum by our admiral, my noble friend Lord West, at roll call on Report. I am also grateful to my noble friend and colleague Lord Rooker, who guested as a heavyweight on the Front Bench for the occasion. It is very good to see him back in the Chamber and back to good health.
I trust that the positive engagement from across the House—including the Lib Dem and Conservative Benches —and the commitment shown by all noble Lords to a successful outcome, will give the Bill a fair wind to find safe harbour in the Commons.
Lord Fox (LD)
My Lords, there has never been any doubt that the Bill’s aims were supported across the whole of the House, and that has added to the quality of the debate from the start. That said, actually delivering a balanced approach to protecting the UK’s security, while ensuring that the necessary flow of investment will not be interrupted, will be a challenge. The debates that we have had have underlined the subtlety of that challenge.
However, the stakes are high. The UK has arguably been one of the most open economies in the world, and it is clear that this openness has let through some transactions that, in retrospect, should not have been permitted. The onus is now on the Government to act in such cases.
The skeletal nature of the Bill has informed quite a lot of the debate that we have had, and it is clear that, from the outset, the Government have sought to keep their options open. To my mind, phrases such as “We will take things on a case-by-case basis” have popped up too often. So I hope that, over time, there will be fewer “case-by-cases” and fewer exceptions—because people need clarity, and that clarity needs to be supported by strong communication. People need to understand how the decisions will be made. If this unit acts as a black box, that will not happen, and investment will definitely be discouraged.
Finally, before the long thank-yous, I apologise for coming back to the amendment on Report that set out the importance of climate change with respect to national security. I will say—with all due respect—that the Minister grudgingly went along with the thesis, but only to the minimum extent necessary. Perhaps his natural combativeness prevented him really appraising or acknowledging the risk.
Therefore, before the Minister moves from this Bill to his next important project, I recommend that he reads an op-ed in Politico by the NATO Secretary-General, Jens Stoltenberg, which came out today. In it, he says that it is clear that climate change
“is making the world a more dangerous place”,
with,
“rising sea levels and more extreme weather … increasing competition for scarce resources and fueling tensions and conflict.”
He states:
“Climate change threatens global security”.
Please note, Minister. That should be reflected in the activities of the new unit.
Of course, one outstanding issue between us remains, symbolised by the flankers here—the noble Lords, Lord West and Lord Campbell—and I hope that the Minister and the Secretary of State will see some sense on that. Otherwise we will be back for ping-pong.
That said, the passage of this Bill has been efficient, and, as the Minister has said, the overall quality of the Bill has been improved through that process. I commend the openness of the noble Baroness, Lady Bloomfield, the noble Lord, Lord Grimstone, and the noble Lord, Lord Callanan, who has shown his characteristic empathy in the process. The noble Lord listed the very considerable Bill team and all the support that has delivered the Bill, and I second, indeed third, that, because without them there would certainly be no Bill—and, of course, without many of them there would be no unit to make the Bill a reality.
I also thank the noble Baroness, Lady Hayter, and the noble Lord, Lord Grantchester, for their engagement in this process, and I thank particularly the Members opposite. There are two representatives of them here—the noble Lords, Lord Leigh and Lord Lansley—but there are others, such as the noble Baroness, Lady McIntosh. They must have added to the pressure that the Minister feels: when the noises are coming from behind as well as in front, it makes it harder to resist.
As for the home team, I hope that my colleagues will not mind if I single out, first, Sarah Pughe in the Lib Dem legislative team, who has done a magnificent job supporting us. Among Members, I would mention the noble Baronesses, Lady Bowles, Lady Berkhamsted, Lady Northover and Lady Smith of Newnham, the noble Lords, Lord Bruce of Bennachie, Lord Campbell of Pittenweem, Lord McNally and Lord Purvis of Tweed, and, last but no means least, my noble friend Lord Clement-Jones, who has been here in support. I hope that we do not have to come back—I hope the Government see sense on that amendment. That said, the Bill leaves this House in a much better state than it arrived in.
Lord Bilimoria (CB) [V]
My Lords, from the Cross Benches I join previous speakers in thanking all the House of Lords officials and the Bill team.
As we have previously outlined, the Bill has a valid and important principle at its heart: the protection of national security and the lessening of economic interference in industrial control by hostile actors. Nobody would disagree with that intention, and the business community is no different. The CBI, of which I am president, supports those principles and stands ready to help make a success of the new regime. We have heard from a wide range of businesses likely to engage with the regime, many of which have complex international supply and value chains and all of which recognise the need for such regimes and already comply with counterpart regimes across the world.
However, to make a success of such a regime in a manner that reflects the approach of many of our international counterparts, the concerns of a wide subsection of the business community should continue to be heard. As I have noted previously, the extra- territoriality of the Bill, combined with no set de minimis function, could inadvertently lead to a real rise in bureaucracy at micro level and slow inward investment at macro level, so it is critical that the Government continue to engage with business and industry on the practical application of the regime. The fast-track processes and expert advisory panels that have been discussed are a very welcome move. The amendments moved by the noble Lord, Lord Callanan, on future reporting on the progress of the regime and on omitting the 15% threshold for significant control are also welcome.
Business welcomes the Bill, and I give credit to many noble Lords who have taken part, including the noble Lord, Lord Leigh, the noble Lord, Lord Clement-Jones, the noble Baroness, Lady Noakes, the noble Lord, Lord Lansley, and the noble Lord, Lord Hodgson —I could go on. The more detailed reporting requirements provide more clarity on the average processing or decision time for notifications, whether mandatory or voluntary. Business has been concerned about the transparency of the statutory process, so we welcome the Government’s reflection of that in the Bill. Moreover, the removal of the 15% threshold for significant control is welcome, as, while such a percentage may represent a critical investment in other areas, it is unsuitable when applied to significant control more widely.
Looking ahead, the spirit of dialogue that has allowed such amendments to be moved should continue to ensure that both business and government are equipped to make a success of the regime. This Bill shows the House of Lords at its best: it has greater strength by far in depth and breadth of world-class expertise than any other Chamber in the world. This Bill has seen this skill applied on a cross-party basis, enabling this House to play its role as a revising Chamber to help change legislation for the better. This can only happen, however, if the Government are prepared to listen—which they have. We are grateful to the Government, and long may the spirit of collaboration continue.
Lord Callanan (Con)
I thank noble Lords for their kind words and renewed support for the Bill. Empathy is not something I normally get accused of—I am sure that the noble Lord, Lord Fox, did not have his tongue in his cheek, so I will take that as a compliment. As I said earlier, there has been genuine cross-party enthusiasm for the Bill and, with the exception of one important detail, I have been heartened by the House’s desire to get it on the statute book. The debate has been excellent and shows the finest traditions of this Chamber.
I will certainly take up the suggestion made by the noble Lord, Lord Fox, for my considerable reading list. My in-tray is very high at the moment, but I will look at the article he referred to, and I am sure that it will enhance my understanding of the subject. For a final time, therefore, I beg to move.
Terrorism Act 2000 (Proscribed Organisations) (Amendment) Order 2021
(3 years, 8 months ago)
Lords ChamberRead Full debate Read Hansard Text Read Debate Ministerial Extracts
Baroness Williams of Trafford
That the draft Order laid before the House on 19 April be approved.
Instrument not yet reported by the Joint Committee on Statutory Instruments
The Minister of State, Home Office (Baroness Williams of Trafford) (Con)
My Lords, this Government are committed to taking all necessary steps to protect the people of this country. Tackling terrorism in all its guises is a key element of that mission. The threat level in the UK, which is set by the independent Joint Terrorism Analysis Centre, remains at “substantial”. This means that a terrorist attack in our country is likely.
The constantly evolving nature of terrorism means that we continuously consider whether new action is necessary to ensure that our response is adapted to the threat picture. There are growing concerns about the spread of extremist ideologies, such as white supremacism, and their pernicious influence, particularly on children and young people. The danger posed by terrorist organisations varies from one group to another. There are those that recruit, radicalise, promote and encourage terrorism as well as those that prepare and commit terrible acts of violence against innocent members of the public.
In the internet age, extremist and terrorist groups can more easily and rapidly influence those vulnerable to their recruitment tactics. At the click of a button, they can spread their abhorrent world views to other groups in different countries, encouraging them to take up their mantle and engage in violence. We have a duty to our allies, as well as to our own people, to tackle those groups that inspire and co-ordinate international terror. While we can never entirely eliminate the threat from terrorism, we will always do all we can to minimise the danger it poses and keep our public safe.
Some 76 international terrorist organisations are currently proscribed under the Terrorism Act 2000. Thanks to the dedication, courage and skill of counterterrorism policing and our security and intelligence services, most of these groups have never carried out a successful attack on UK soil. Proscription is a powerful tool for degrading terrorist organisations, as noble Lords know.
The groups we now propose to add to the list of terrorist organisations, amending Schedule 2 to the Terrorism Act 2000, are Atomwaffen Division, or AWD, and its alias, National Socialist Order, or NSO. AWD is a predominately US-based white supremacist group active under that guise between 2015 and 2020. NSO is the alias of AWD, has claimed to be AWD’s successor group and remains active. The group’s actions, which seek to divide communities and stir up hatred, are entirely contrary to the interests of our nation.
Given the wide-ranging impact of these powers, the Home Secretary exercises her power to proscribe only after thoroughly reviewing the available evidence on an organisation. This includes open-source material, intelligence material and advice that reflects consultation across government, including with the intelligence and law enforcement agencies. The cross-government Proscription Review Group supports the Home Secretary in her decision-making process. Her decision to proscribe is taken only after great care and consideration of the particular case, and it is appropriate that it must be approved by both Houses.
Having carefully considered all the evidence, the Home Secretary believes that AWD, including through the activities of its alias, NSO, is concerned in terrorism and the discretionary factors weigh in favour of proscription. Although, as noble Lords will know, I cannot comment on specific intelligence, I can provide the House with a summary of the group’s activities. AWD celebrates a collection of noxious essays that advocate the use of violence to bring about a fascist, white ethnostate by initiating the collapse of modern society by means of a race war. This ideology has become known as “accelerationism”. AWD’s online propaganda has encouraged and promoted terrorist acts, and this content likely remains influential among accelerationist terrorist groups. We know that AWD has inspired, at least in part, several loosely affiliated franchise groups abroad, including Feuerkrieg Division, which was proscribed in 2020.
In March 2020, AWD claimed that it had disbanded following pressure from US law enforcement agencies. In July 2020, NSO announced itself online as AWD’s successor. NSO adheres to the same abhorrent ideology and has similar accelerationist aims as it did when it was called AWD. Under the name NSO, the organisation has publicly dedicated itself to bringing about white- power Governments “by any means necessary”, and it is the Government’s belief that it is almost certain that “any means necessary” is intended to be understood as endorsing violence.
Our strategy to combat terrorism looks at the full spectrum of activity. It is absolutely right that this includes confronting, square on, the threat from groups who call for violence and mass murder, and who unlawfully glorify horrific terrorist acts, so that they are prevented from continuing to stir up hatred. When groups without a physical presence in the UK are proscribed, particularly groups such as AWD which have an established online presence, it is important to consider the wider impact that proscription has. By proscribing white supremacist, accelerationist terrorist groups with like-minded ideologies, such as Sonnenkrieg Division, Feuerkrieg Division and Atomwaffen Division, we underline our commitment to ensuring that the UK is a hostile environment for individuals involved in white supremacist or accelerationist terrorism.
Our objective is to ensure that there are no safe spaces online for terrorists to promote or share their extreme views. In proscribing AWD and NSO, we send a clear signal that the dissemination of the group’s online propaganda is unacceptable. The Home Office continues to work closely with law enforcement, our international partners and tech companies, including through the Global Internet Forum to Counter Terrorism, also known as GIFCT, to collaboratively tackle the spread of terrorist content online. We know that proscription of groups helps tech companies to better tackle terrorist material on their platforms. I believe that there is a strong case for the Government to proscribe AWD and list NSO as an alias. It will build upon the robust action the Government have already taken by proscribing National Action, Sonnenkrieg Division and Feuerkrieg Division.
Our message is clear: we will always take every possible action to counter the threat from those who hate the values that we cherish. The safety and security of the public is our number one priority, and I commend this order to the House.
Lord Morris of Aberavon (Lab) [V]
My Lords, my comments will be brief. As a law officer, I had to take an interest and advise on many aspects of terrorism matters. We are debating a very narrow order, otherwise I would have raised questions following the Joint Committee on Human Rights’ report as far back as 2009-10 on special advocates, who I appointed for the first time. I chose them very carefully. The Joint Committee was critical of their ability to operate properly. I would have asked for an update, but I presume that they are still there and there will be another occasion when I can seek to do this.
The noble Baroness carefully spelled out the objects of the order, and I am grateful to her. I welcome the updating of the names of organisations from which we are in danger. If we are to have an efficient system of proscription, it is important that it is, first, speedily updated; secondly, relevant and accurate as far as names and descriptions are concerned; and lastly, achieves the object of being preventive. It is the preventive nature of the order that I particularly welcome.
We are referring now to three organisations named in accordance with Section 3 of the Terrorism Act. Some 24 orders have been laid already, two of them in 2019, and in accordance with Section 3, those we wish to add are named. I deliberately will not give the advantage of further publicity to the activities of the one organisation that caught my eye in particular, Sonnenkrieg Division. We are dealing with the activities of such organisations today. Therefore, I will not give any additional publicity to the matters that have already been set out. I welcome the order very much and I support it.
Lord Paddick (LD)
My Lords, I thank the Minister for introducing this order, but I confess to being somewhat confused. Before I get on to that, I pay tribute the work that our security services and police do to keep us safe in the face of a substantial threat.
On 27 February 2020, the Government brought forward a similar order, proscribing the white supremacist group Sonnenkrieg Division—Sonnenkrieg means “sun war” in German—or SKD. My confusion is because SKD is apparently the British branch of Atomwaffen Division—Atomwaffen means “nuclear weapons” in German—which is based in the southern United States and is heavily influenced by extremist Islamist ideology in that it encourages neo-Nazis to kill and die for the cause. As I said almost 14 months ago in this House, the overlap between extremist Islamists, who advocate the violent overthrow of democracy and liberal values, and neo-Nazis is worrying. One of Atomwaffen Division’s followers apparently sees ISIL as preferable to multi- culturalism and liberal values.
As the Minister said, it recruits young people and has been active on university campuses in the United States. Some members of the British SKD convicted of terrorism offences were teenagers. Will the Minister explain why the Government are only now proscribing an organisation—Atomwaffen Division—that even Wikipedia says is also known as National Socialist Order, whose British branch was proscribed 14 months ago?
In the Explanatory Memorandum, the Government say that an instrument such as this
“which imposes duties that are significantly more onerous than before should not usually be brought into force earlier than 21 days after it is made … However, any significant delay between the laying and coming into force of the Order would alert the organisation to its impending proscription and may result in pre-emptive action by the organisation’s members designed to circumvent the provisions of TACT and/or the criminal law.”
Can the Minister explain, given that the British branch of Atomwaffen Division was proscribed 14 months ago, and that the National Socialist Order is named in Wikipedia as an alias, why it would come as a surprise to anybody that the parent organisation is now being proscribed? The only surprise is that the parent organisation, the British branch of which was proscribed 14 months ago, is only now being proscribed.
I accept that one of the factors considered by the Secretary of State is the extent of the organisation’s presence in the UK, but another is the need to support international partners in the fight against terrorism. Surely, the United States of America is one of those partners. Bearing in mind that Atomwaffen Division is based in the southern United States, why was it not proscribed at the same time as the British branch of the same organisation, the Sonnenkrieg Division, 14 months ago? Indeed, the Explanatory Memorandum says:
“The Home Secretary believes that AWD is almost certainly now operating under the name NSO in the United States”
in the same way as Atomwaffen Division was operating in United States between 2015 and 2020. Yet it is only now that Atomwaffen Division is being proscribed—more than a year since it claimed to have disbanded following pressure from US law enforcement.
Of course, we support this order, but we also have serious questions as to why it has taken so long to proscribe Atomwaffen Division and its alias, National Socialist Order.
Lord Kennedy of Southwark (Lab Co-op)
My Lords, on behalf of the Official Opposition, I want to make it very clear that we offer our full support to the Government on all matters of national security and public safety and in ensuring that the public and our communities are safe. Combating terrorism, no matter where it comes from, will always have the full support of these Benches.
It is right that the organisation before us today is outlawed, and we welcome and support this order proscribing it. It sends a strong message that racism, fascism and the glorification of terrorism will simply not be tolerated on our streets and in our society. Like others, I pay tribute to our security services, the counterterrorism police and others for all the work they do to keep us and our communities safe. We will never know all the work they do to keep us safe and we very much thank them for that.
This order will give some clarity and direction to the counterterrorism police for the work that they do. As the Minister set out, this organisation—Atomwaffen Division or AWD—is a white supremacist organisation. In recent years, we have seen a proliferation of these organisations and groups turning up in the UK, and it is right that we deal with them. Just hearing what the Minister has told us is disturbing enough, along with the material that they write about bringing about a “white ethnostate” instigated by the collapse of society through a race war. Everything we stand for as British citizens—our country and our values—is opposed to these ideas. It is vile propaganda, and I am delighted that the organisations will be outlawed today.
The noble Lord, Lord Paddick, made a fair point about the different forms of the organisation, asking why we did not deal with all of them at the same time. If the Minister could help us out, it would be interesting to hear the explanation. I accept that the organisations try to change—like a chameleon—by having one name first and then changing to something different, but it is fair to ask why they were not all captured at the same time. I accept that the Home Secretary has to look at a number of factors, and perhaps that is the reason why, but that is the only question I have for the Minister. We very much support and welcome the order today, and offer the Government our full support.
Baroness Williams of Trafford (Con)
My Lords, I thank all noble Lords who have spoken in favour of this proscription. The noble and learned Lord, Lord Morris of Aberavon, made the pertinent point that these actions are preventive—and, my goodness, the security services have certainly prevented some terrorist action over the last few years. Like the noble Lords, Lord Paddick and Lord Kennedy, I pay tribute to them.
The noble Lords, Lord Kennedy and Lord Paddick, pressed me on why we are bringing these measures forward now. Obviously, there is information that the Home Secretary receives that I cannot discuss, and she will make decisions based on the intelligence and legal information that she receives. On the point made by the noble Lord, Lord Paddick, we do not think that SKD was actually the British branch of AWD. It might have been influenced by AWD, but we understand that it is not the same group. They are all equally awful, but we do not think that those links are there. With that, I beg to move.
Arrangement of Business
The Deputy Speaker (Lord McNicol of West Kilbride) (Lab)
My Lords, the Hybrid Sitting of the House will now resume. I ask Members to respect social distancing. The time limit for the following debate is five hours.
Integrated Review of Security, Defence, Development and Foreign Policy
(3 years, 8 months ago)
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Lord Ahmad of Wimbledon
That this House takes note of the Integrated Review of Security, Defence, Development and Foreign Policy.
The Minister of State, Foreign, Commonwealth and Development Office (Lord Ahmad of Wimbledon) (Con)
My Lords, I am grateful for the opportunity to open this important debate in your Lordships’ House on the integrated review of security, defence, development and foreign policy.
As noble Lords will be aware, the Prime Minister published the review on 16 March this year. It is the product of more than a year’s work across government in consultation with a huge range of academics, allies and external organisations. It is the most comprehensive articulation of foreign policy and approach to national security published by a British Government in decades. It also sets out the Prime Minister’s vision for a stronger and more prosperous union in 2030 and outlines the actions we will take at home and abroad to realise that vision.
The integrated review outlines how the nature and distribution of global power is changing. It identifies evolving trends in the world that will shape the next decade, including geopolitical and geo-economic shifts, such as China’s increasing power and assertiveness and the growing importance of the Indo-Pacific region, which are subjects we discuss quite regularly in your Lordships’ House; the increasing competition between states over interests, norms and values, with authoritarian states and malign actors seeking to undermine the democratic systems and openness that underpin our way of life; rapid technological change in areas such as artificial intelligence, cyber and data, which is totally reshaping the threats we face and the wide scope of opportunities that lie ahead; and, finally, the transnational and existential threats to our climate, biodiversity and health, illustrated so acutely by the challenge of the Covid-19 pandemic. These threats affect everyone everywhere, and they risk reversing decades of shared progress.
Faced with this clear analysis of the trials we face today and the challenges of tomorrow, we cannot turn inward as a country and hope to prosper. We must be energetic and build alliances to counter and overcome these challenges, demonstrating the full capabilities of global Britain. To do this, we will focus on four key areas where the United Kingdom can make a difference.
First, we will grow the UK as a great science and technology power. We will ensure that our current strategic advantage translates into a mastery of the technologies that are central to geopolitical competition and our future prosperity, including, of course, areas such as artificial intelligence and renewables. To achieve this, we are backing talent and expertise across the country. We are supporting scientists, researchers, investors and innovators. We are working with regulators and standards bodies to help shape international norms. We are leveraging talent and ideas from academia and the private sector, helping manufacturers take their innovations through to market. In this respect, we are investing at least £800 million to set up an independent body for high-risk, high-reward research. The advanced research and invention agency will back breakthrough technologies and basic research through experimentation. We are growing our global network of innovation partnerships, putting science and technology at the heart of our alliances and partnerships worldwide, from security to free trade agreements.
Our second priority is to reinvigorate the international order in support of the interests of open and democratic societies. We will play a more active part in international institutions to reinforce and reshape the international order of the future, extending it in areas such as cyberspace and space, while protecting and strengthening democratic values. We will promote trade, because it creates jobs and prosperity at home and abroad and offers the developing world a more compelling model of growth. We are also pursuing a values-driven trade policy to make the world stronger, safer and more prosperous. In less than two years, we have already secured trade agreements with 66 countries, and we have signed a trade and co-operation agreement with our allies and neighbours in the European Union. We are also very much deeply committed to multilateralism. The United Kingdom is proud to have played its part, both as one of the UN’s founding members and as a permanent member of the Security Council. Indeed, noble Lords will recall that, earlier this year, we hosted Secretary-General Guterres and his team—in what turned out to be, unfortunately, a virtual visit—to mark the end of UN 75.
Thirdly, we will defend the British people by taking a more robust approach to security and deterrence, by defending British people abroad and by building up better governance abroad. We are increasing our investment in defence to 2.2% of GDP. Our Armed Forces will be more persistently engaged overseas and better prepared to meet emerging threats with full-spectrum capabilities, including in space and cyberspace. We will take a more integrated approach to government work on conflict and instability, addressing the drivers of conflict such as bad governance and strengthening the resilience of fragile countries to external interference.
Finally, and equally importantly, global Britain will be a force for good in the world, building resilience both at home and overseas as a defence against the threats we all face. Tackling climate change and biodiversity loss is now our top international priority, supported, as noble Lords will recognise, by the £11.6 billion we have committed to international climate finance, and our 10-point green plan to reach net zero by 2050. We will use COP 26 in Glasgow later this year to encourage direct action to reach a zero-carbon global economy, to protect and restore biodiversity and to help vulnerable countries adapt and boost their resilience to climate change.
I mentioned the Covid-19 pandemic; we are working collaboratively with key partners and agencies and the United Nations to beat Covid-19 by using our G7 presidency to accelerate equitable access to vaccines, therapeutics and diagnostics across the world. We are also seeking reform of the World Health Organization, but this is not just about calling for reform; it will be supported by our 30% increase in core funding over the next four years, which will take our contribution to the World Health Organization to £340 million. We are establishing a global hub to provide countries with a single source of intelligence on the human, animal and environmental risks they face.
As a force for good, we will also continue to stand up for open societies and democratic values: the values and issues that matter to us most, such as freedom of speech, freedom of thought and freedom to choose. We will continue to defend press and media freedom, and we will strengthen and promote freedom of religion or belief, including through an international ministerial conference scheduled to be held in the UK in 2022. We were the first European country to announce sanctions against the regime in Belarus, and we have introduced measures to ensure that British organisations are not complicit in, or profiting from, human rights violations in Xinjiang. More widely, we will continue to promote effective governance, democratic institutions and the rule of law, including by bolstering our support for election observations and by introducing a new global sanctions regime on corruption.
We will use our leadership on international development to help tackle global poverty and achieve the sustainable development goals by 2030. We will continue to work for gender equality and our target of getting 40 million more girls into school in low and middle-income countries by 2025. By creating the Foreign, Commonwealth and Development Office, we have combined our aid with our diplomatic clout and are focusing our spending on where the UK can make a difference, while delivering on wider objectives that serve our national interest.
No single country could achieve these objectives alone; as I have often said from the Dispatch Box, collective action with our allies and partners is vitally important. We will lead by example where we have unique or significant strengths and identify other goals where we are better placed to support and work constructively and collaboratively with our allies. These alliances will help sustain an international order in which open societies and economies can flourish.
The wisdom of this joined-up approach was evident during my recent visit to India. From Chandigarh to Chennai, I saw how our ambitious vision of global Britain, coupled with a clear-eyed analysis of the UK’s place in the world, is setting the tone for a productive and progressive alliance with a key strategic partner. Increasing our engagement in the Indo-Pacific region is a major priority that we have identified in the review, including through our ambition to become a dialogue partner to the ASEAN group of nations.
We will also develop stronger partnerships around the world. Building from the bedrock of our traditional alliances with the United States and Europe, and as the leading European ally within NATO, this includes our current work with allies and through NATO to deter Russia, particularly with regard to Ukraine to de-escalate the situation.
We also believe in being a partner of choice in Africa, from deepening trade and business links that support quality jobs, at home and across Africa, to working together to champion girls’ education as a way to unlock opportunity. When you educate a girl, you change the future for her family, her community, her town or city and for her country.
We will foster thriving relationships in the Middle East based on trade, green innovation and science.
The UK has had the privilege of serving as Commonwealth chair-in-office since 2018—as Minister for the Commonwealth, this has been a particular priority for me. The Commonwealth is a constellation of 53 sovereign and equal member states and remains an important institution in supporting an open and resilient international order. It brings together states with a national interest in promoting democracy and ideals and values that we share, sustaining individual freedoms, driving sustainable development and enabling cross-border trade.
We will do more to adapt to China’s growing impact, managing disagreements, defending our values, and co-operating where our interests align—and, yes, that includes pursuing a positive economic relationship, while also tackling global challenges such as climate change.
We are clear-eyed about the challenges we face, but we are also optimistic about our future. We are an active European country, with a global perspective, bringing nations together to solve the problems that matter most to our people, and to improve their lives and those of citizens around the world.
In conclusion, the integrated review sends a message about what the United Kingdom stands for as an independent actor on the global stage. It is our commitment to work with our allies and partners as a force for good.
To reflect on the past year alone, we have introduced a UK Magnitsky sanctions law to target individuals guilty of the most serious human rights violations abroad. I acknowledge the contribution of many in your Lordships’ House that has strengthened our work in this area and built the momentum behind the introduction of that law. We took the bold step to issue an invitation to this country to the people of Hong Kong oppressed by Beijing. Again, I know that that is an important priority for many in your Lordships’ House. We set an example to the world with our contribution to COVAX, the global vaccine programme for the developing world. We have continued to be one of the most generous contributors of foreign aid, and we were the first industrialised nation to set a legally binding national target to reach net-zero carbon emissions by 2050.
This is global Britain. The integrated review builds on this foundation. It unleashes our independent foreign policy outside the European Union and sets out our vision for the next decade, based on our values and grounded in the UK national interest. This is our mission: global Britain as a force for good in the world. I beg to move.
The Deputy Speaker (Lord McNicol of West Kilbride) (Lab)
Before I call the next speaker—the noble Lord, Lord Tunnicliffe—the noble Lord, Lord Parkinson, the Chief Whip, will say a little about speaking times.
Lord Parkinson of Whitley Bay (Con)
My Lords, as this is a time-limited debate with a large number of speakers, I remind noble Lords in advance of the four- minute speaking limit for Back-Bench speeches.
Lord Tunnicliffe (Lab) [V]
My Lords, when the integrated review was announced by the Prime Minister, we welcomed it. We wanted it to succeed, to keep our citizens safe and to secure Britain as a moral force for good in the world. But, after its publication, the chorus of concern has only grown. To put it simply, it is a plan for fewer troops, fewer ships and fewer planes. There is no assessment of current or future capability, no strategic principles and nothing about how the Ministry of Defence should be structured to best provide national security.
For this speech, I will focus on defence, and my noble friend Lord Collins will focus on the foreign and development policy components—but, of course, they are interrelated. On defence, I start with the Prime Minister’s comments. He said that the integrated review would end what he described as an “era of retreat”. The review and subsequent defence Command Paper made it clear that the threats facing the UK are “increasing and diversifying”. Despite these promises and expanding threats, the review is set to repeat the mistakes of the past.
The Prime Minister even broke an election promise by announcing that the size of the Army specifically will be cut by 10,000 by 2025. We urge the Government to think again. Former military chiefs, including the noble Lord, Lord Dannatt, and the noble and gallant Lord, Lord Richards, have said that further cuts to the Army would mean that the UK was
“no longer taken seriously as a military power”
and would
“damage our relationship with the US and our position in NATO”.
A slew of Navy and RAF retirements have been announced. These include “at least” two Type 23 frigates, well before new frigates will be brought into service, Typhoon tranche 1 aircraft and Hawk T1 training aircraft. We urge the Government to think again.
I will also touch on threats. The review outlines a number of threats to the UK, but fails to present a coherent strategy for deterring them. Rightly, the Command Paper names Russia as the
“greatest nuclear, conventional military and sub-threshold threat to European security.”
This is evidenced by the build-up of 100,000 Russian troops on the border of eastern Ukraine but, despite their own warning, the Government still have not fully implemented any of the Russia report’s 23 recommendations, 18 months after the report was completed. I ask the Minister a simple question: why?
With the integrated review, Ministers are making the same mistake—responding to increasing threats with more cuts. Of course, we must develop new technologies in domains such as cyberspace and artificial intelligence, but new technologies have always been harnessed to strengthen our Armed Forces; they will never entirely replace the need for boots on the ground.
Baroness Northover (LD)
My Lords, we waited a long time for this review. What arrived has some extraordinary omissions, contradictions and, frankly, double-speak. The words on the page do not square with the actions that the Government are taking.
We are, of course, a smaller player outside the EU, more dependent on the US and their interests and buffeted by China. The review says that we are in a multipolar world—indeed so. One of those poles is the EU, and yet there is an EU-shaped hole here. The review rightly emphasises that we achieve more by working with others. Why then is there nothing here on how we work with the EU properly or rebuild our relationship?
The review emphasises an “Indo-Pacific tilt”. Of course, this region will be very important for trade, and challenging with the rise of China, but being in the EU never stopped trade with China, or India or Indonesia, and would have given us a stronger base for tackling China’s threats.
The review was pre-empted by the merger of the FCO and DfID, without having worked out any strategic reason for this. Then, during the pandemic, which demonstrates how interlinked we are globally, there was the decision to cut ODA. Both actions undermine our outstanding previous reputation in international development and poverty reduction. Much of the review was clearly written before that cut was decided, and this undermines the rhetoric throughout.
There is something of an industrial strategy here, at the same time that we learn that we are not really going to have one. It says that we need to be a science and technology superpower. That was at the heart of the 2012 industrial strategy and helped to lay the foundations for our strength in the biotech sector, but those cutting ODA clearly did not know how it supported the science and tech sector, and that cuts would savagely undermine the review’s claims.
See, too, soft power. The review rightly recognises both the British Council and the BBC. It says:
“The BBC is the most trusted broadcaster worldwide”.
Yet the British Council is closing offices because of cuts and the BBC is under systematic attack from the Government.
The review does not even try to define global Britain, which is what the Government say we are post Brexit. I quote:
“What Global Britain means in practice is best defined by actions rather than words.”
Indeed: we have cut aid, threatened to break international law and lost allies. Our effort on
“global leadership on reducing space threats”
amounts to a UN General Assembly resolution. We appointed
“the UK’s first Special Envoy for Famine Prevention”,
but cut assistance to Yemen, as Mark Lowcock said, to
“balance the books on the backs of the starving people of Yemen”.
The review says that we will uphold human rights, but we have agreed an unconstrained FTA with Cambodia, despite human rights abuses, in contrast to the EU’s approach.
The review says that
“the UK will remain deeply invested in the security and prosperity of Europe”,
but we have slashed support to the Balkans. There is a chapter entitled “Arms control, disarmament, and non-proliferation: our commitment to international treaties”—and then it says that we will increase our nuclear warheads. George Orwell would have been impressed.
I welcome this review for being useful, as we are better able to hold the Government to account on what they say that they want to do. What is extraordinary is the contrast between that rhetoric and the reality of the Government’s actions.
Lord Stirrup (CB)
I start by saying that the integrated review is a good piece of work. It sets the strategic scene well and I agree with many of the conclusions that it draws. There are inevitably areas of detail that merit more examination and further debate but, alas, there is no opportunity for that today. Given the short time available, I shall make just two points.
First, despite the much-discussed tilt to the Indo-Pacific, the review correctly identifies Russia as the most immediate threat to our security. The maintenance of our commitment to NATO, the associated transatlantic relationship and the continued development of our military capabilities, including in new fields such as cyber, are therefore crucial. But we will continue to face challenges from Russia below the threshold of conventional war. Success with these requires robust international responses, particularly among our European neighbours, but such responses will become increasingly difficult to agree, as issues of security become more entangled with those of trade and supply, and short-term national concerns trump regional solidarity. Nord Stream 2 and its possible effect on Europe’s ability to respond effectively to Russian adventurism is a case in point.
How do we rise to this challenge? The integrated review says that the UK will work with its European partners “where our interests coincide”. Surely there can be no greater example of mutual self-interest than the peace and stability of our own continent. But our ability to influence our European partners has undoubtedly been weakened by Brexit. We are no longer directly involved in the engine rooms where EU foreign and security policy proposals are developed, and our high-level relationships with our neighbours are subject to the tensions and frictions that will arise from time to time, as a consequence of our divergence from previously common positions. These are now inescapable facts of life that will require determined and sustained effort if we are to counteract them, but the review has little or nothing to say about how this is to be done.
My second point concerns China. The review says:
“We will continue to pursue a positive trade and investment relationship … while ensuring our national security and values are protected.”
This is likely to prove an almost impossible balancing act and we need to be clearer about the choices we will have to make and where our true interests lie. China patently does not wish to be constrained by the post-1945 global order. Whether it wants to dictate the course of other nations may be open to question; that it wants to be free of constraints imposed by others is beyond doubt. We are now engaged in a global contest to determine the rules by which international behaviour will be governed for most of the remainder of this century. The outcome of that struggle is crucial to our national interest.
The Government have rightly said that the UK should help to shape those rules, but this will mean opposing China. It will require us to be part of a grouping that can muster sufficient economic strength, military power and technological advantage to influence decisions in a way that runs counter to China’s purposes. As a proud and modern superpower, China will not take such opposition lying down. There will be consequences. We should, of course, seek to trade with China and to engage with it on important issues such as climate change, but we should also expect our stances on global governance and human rights to disrupt those efforts, perhaps severely. Our strategy should make clear that we place long-term benefit over short-term advantage and that we are prepared to face up to the difficulties that this will cause.
Baroness Anelay of St Johns (Con) [V]
My Lords, the International Relations and Defence Committee, which I chair, has discussed the proposals in the integrated review. My comments today reflect the views expressed on just three issues.
We welcome the drive to achieve better co-ordination and consistency between Britain’s international departments. Foreign policy should balance the interests and values of the UK. That objective is evident in the Government’s overall approach—[Inaudible]— prosperity, security and democracy. We feel, however, that the review itself is too broad-brush, failing sufficiently to prioritise and give a clear indication of where and when the UK will expend both time and resources. That is even more vital at a time when the Government have decided to break the UK’s statutory commitment to spend 0.7% of GNI on ODA. The review states:
“We will continue to support stability in Afghanistan, as part of a wider coalition”
and:
“Under persistent engagement, our armed forces will continue to … provide support to the Government of Afghanistan”.
In the light of the announcement that UK troops will leave Afghanistan in September, plus the reduction in ODA spend, what are the consequences for the Government’s commitments in the review? What priority will the Government give to support for the Afghan Government?
We are also concerned by a lack of consistency in sections of the report. The tilt to the Indo-Pacific was heavily briefed before publication, but the review identifies Russia, not China, as
“the most acute direct threat to the UK”.
There are some standard lines on support for NATO and European partners, but the review offers little on the importance of working alongside like-minded countries with which we share a neighbourhood. As economic pressures build, of course we understand why the Government are rushing towards an Indo-Pacific focus and new partners further afield. However, it is essential to nurture our alliances with nearer friends too.
There is also a lack of consistency in the approach to relations with countries in Africa. The regions of Africa prioritised in the review are not consistent with the Government’s evidence given to our committee about their strategic approach focusing on security in the Sahel. There is a glancing reference to the Sahel in half a sentence and two brief mentions of Mali, but that is it. We are not given reasons for the change in focus. It is east Africa which is prioritised; this is new. The case for closer engagement in east Africa would not be difficult to make, but the Government simply do not do so.
A final matter of concern is the decision to increase the UK’s nuclear stockpile. There could hardly be a worse time to do so, just months before the RevCon of the nuclear non-proliferation treaty. If there is a plausible rationale for that significant policy change, perhaps based on maintaining the credibility of our nuclear deterrent, the Government should make that case. They have not. Their decision undermines Britain’s leverage to encourage other nuclear weapon states to exercise restraint in their modernisation programmes.
I hope that the more detailed plans which should surely flow from the review will focus better on prioritisation and resourcing to deliver the Government’s ambitions for a global Britain. We all need that to happen.
Lord Reid of Cardowan (Lab) [V]
My Lords, I will confine myself to making three points on nuclear deterrence, a policy I have long supported both inside and outside government. I did not hear the Minister mention it today, but I have concerns about the review in this area, some of which reflect what the noble Baroness, Lady Anelay, has just said. First, page 76 of the integrated review approximates to our present policy by saying:
“The UK will not use, or threaten to use, nuclear weapons against any non-nuclear weapon state party to the Treaty on the Non-Proliferation of Nuclear Weapons 1968.”
However, it then goes on to say, no more than two sentences later:
“However, we reserve the right to review this assurance if the future threat of weapons of mass destruction, such as chemical and biological capabilities, or emerging technologies that could have a comparable impact, makes it necessary.”
This raises a question. Does it actually mean that we hold open the use of nuclear weapons in response to any form of aggression, including, perhaps, through technology or cyber? Will the Minister explain the meaning of this section? In asking that, I understand that ambiguity has a part to play in nuclear deterrence but, if ambiguity is stretched so far that it becomes ubiquitous, it is in danger of becoming confusing and, frankly, incredible. That, in turn, then undermines rather than reinforces nuclear deterrence.
Secondly, as the noble Baroness, Lady Anelay, just said, and as my noble friend Lord Browne recently and accurately pointed out, by raising the cap on the numbers of our nuclear arsenal we have effectively abdicated our leadership role in nuclear disarmament, not least by announcing a policy change that runs completely counter to President Biden’s commitment to reduce the role of nuclear weapons in national security policies. In the integrated review, the Government have provided for fewer soldiers, fewer planes, fewer ships, but more nuclear warheads. Perhaps the Minister could tell the House, first, what the rationale is for that and, secondly, what consultation took place with the Biden Administration on this change?
We live in an age in which the threats and dangers are more complex and interrelated than ever before. Only this week US Strategic Command warned:
“The spectrum of conflict today is neither linear nor predictable. We must account for the possibility of conflict leading to conditions which could very rapidly drive an adversary to consider nuclear use as their least bad option.”
In this context, will the Minister explain how the decision to increase our nuclear stockpile, and to potentially extend the threat of a nuclear response to an apparently unlimited range of conflict situations, is supposed to strengthen nuclear deterrence?
Finally, I draw the Minister’s attention to a paper issued this week by the European Leadership Network, which pointed out:
“The ability for the leaders of nuclear-weapons states … to communicate personally, unambiguously, and with certainty in all conditions has eroded as their number … has increased”
and technology has evolved. Astonishingly, in an age when any nuclear crisis or conflict could not be contained with certainty to two states, there are currently no multilateral communication lines that can be trusted. All major nuclear risk reduction efforts under way ahead of the NPT review conference have recommended that the permanent five work on improving crisis communication technology. What have the Government done to assist this process?
The Deputy Speaker (Lord McNicol of West Kilbride) (Lab)
Before I call the next speaker, the noble Lord, Lord Purvis of Tweed, it might be helpful to read out the scratches so that the speakers who follow them will be aware and can make plans. The noble Baroness, Lady Sheehan, has scratched, as has the noble Baroness, Lady Sugg, the noble Lord, Lord Clement-Jones, the noble and learned Lord, Lord Woolf, and the noble Lords, Lord Sarfraz, Lord Walney, Lord Hannan, Lord Berkeley and Lord Desai.
Lord Purvis of Tweed (LD)
My Lords, the telling phrase is in part V of the review. On page 97, paragraph 2, it says:
“‘Integration’ is not a new theme in the UK’s approach to national security, although the language used to describe it has varied over time.”
Language is important. On development co-operation, the language of a United Kingdom Prime Minister, at the start of this, described UK development assistance as
“a great cashpoint in the sky”.
That was the message from this Government to the world. On page 5, the language on aid is
“we will return to our commitment to spend 0.7% of gross national income on development when the fiscal situation allows.”
I have asked the noble Lord, Lord Ahmad, three times, including today, what these fiscal criteria are, and there has been no answer. The Government either know and are refusing to tell Parliament—which is an undemocratic outrage—or this is just more disingenuous language that warrants no trust.
Only one part of the integrated review has been underpinned by law, and the Government are acting unlawfully in contradiction to it, by halving UK bilateral aid assistance. How integrated is it, when the Government say it will be a soft power—as my noble friend Lady Northover indicated—but, in the preceding three years, the Government said the soft power strategy was imminent, only for it ditched as Brexit made it inconvenient?
The Africa strategy that the noble Baroness, Lady Anelay, referred to was imminent but was never published. Theresa May promised that the UK would be the largest investor in Africa. China took note because of its strategic debt policy. China noticed even more when Boris Johnson ditched that approach. What is our approach to investment in Africa? What guides us on this? Annex B, on evidence and engagement, says in paragraph 2 that
“we undertook a systematic programme of engagement, analysis and challenge.”
On the breaking of the law and cutting UK bilateral aid by the greatest amount ever, the statement is not true—especially on Yemen. On 3 March, I asked the Minister what impact assessment had been carried out on halving support for Yemen. The noble Lord, Lord Ahmad, refused to answer. On Tuesday, Chris Bold, the development director for Yemen at the FCDO, told the Commons committee:
“We haven’t done an impact assessment.”
Halving support for the poorest people in the world, during the worst humanitarian crisis on earth, is a moral stain on this Government. Nothing in this integrated review means anything if we can do this without an assessment of the impact on them, our global reputation, and our partners, by the resignation of leadership. If one of the richest countries in the world can halve support to the poorest people in the world, there is no moral compass to guide anything else in this review. We are not just cutting aid; we are cutting co-operation. We are not just cutting by half our position as a donor; we are a less reliable partner to all those we have worked with to this point.
Lord Ricketts (CB) [V]
My Lords, I declare my interest as a strategic adviser to Lockheed Martin UK. I know how hard it is to conduct a review such as this, having co-ordinated the equivalent document in 2010. I pay tribute to Professor John Bew and to all the officials who produced it. I agree with the Minister that it is the most comprehensive survey yet of the UK’s national security challenges. It also gives a convincing analysis of a world that is fracturing into blocs and heading towards systemic competition. I welcome the confirmation that European security, NATO and Britain’s partnership with the US will, as the noble and gallant Lord, Lord Stirrup, said, be at the heart of our foreign policy.
The Indo-Pacific passage turned out to be more measured than the advance hype suggested. Some increase in diplomatic activity, economic engagement and military presence makes sense, but we have to be realistic: Britain will only ever be a secondary player in Asian security. The passage on China recognises that we must treat the country both as a strategic competitor and a necessary partner on trade and climate change. I agree that that is the difficult balancing act we need to perform.
I want to underline three areas that I see as main weaknesses in the review. First, it is an impressively wide-ranging document, but it is not a strategy. The US historian John Lewis Gaddis defines strategy as
“the alignment of potentially unlimited aspirations with necessarily limited capabilities.”
This review suggests British leadership in a whole series of areas but, as the noble Baroness, Lady Anelay, observed, it makes no effort to set priorities. In the 2010 and 2015 reviews, we published a prioritised list of the risks facing Britain, which at least offered some guide to resource allocation. This review is, in effect, a long laundry list of worthy goals, leaving the real choices to be made by Ministers later.
Secondly, it is not truly integrated. There is a large gap between the words of the review and the Government’s actions. This is clearest in the ambition for the UK to be a “soft power superpower”. That is a noble aim, but the problem is that the Government’s actions are undercutting it. Take development policy: DfID was a great soft power ambassador for Britain; it showed that we were practising the values we preached. Reducing the aid programme to 0.5% of a smaller GDP means making more than £4 billion of cuts from one financial year to the next. It is the speed as well as the scale of those cuts that is going to have such a disruptive impact. Since the UK already has some long-term commitments to multilateral organisations such as the World Bank, the burden will fall heaviest on the bilateral programmes in countries in desperate need, such as Yemen, Sudan, Somalia and Syria. I felt that the Foreign Secretary’s Statement yesterday disguised the extent of those cuts, but they are inevitable. They will mean stopping projects for humanitarian support, clean water, education and nutrition. Once staff are sacked it will be very difficult to get them restarted.
At the same time, the British Army is to create new Ranger battalions to train and mentor the armed forces of less advanced partners. I fear we risk cutting development spending and increasing military presence in the same regions, if not the same countries. The Minister might wish to explain how that is an integrated approach.
Thirdly and finally, in two sentences, we are proposing to work with European partners but not the EU. How can we credibly aspire to be a superpower in soft power, science and technology, reshaping the world order, if we do not have a functional relationship with the EU? We will not have a real national strategy until we can overcome this taboo.
Lord Howell of Guildford (Con) [V]
My Lords, your Lordships should be well pleased by one aspect of this review, because it reflects and draws on two seminal House of Lords reports, Persuasion and Power in the Modern World in 2014 and UK Foreign Policy in a Shifting World Order in 2018, which urged policymakers and the then Foreign & Commonwealth Office to reappraise the UK’s position in a totally changed world landscape.
I welcome especially the review’s recommended tilt to Asia, including not just China but Japan, India and all the ASEAN counties, in terms of trade and security—a shift which some of us have been urging for decades, long before Brexit, to what is now by far the most vibrant region on the planet. The balanced approach to the tricky China containment issue, which has already been referred to, is also welcome, instead of some of the shotgun-like Sinophobia that has been served up to us from both sides of the Atlantic, which China simply brushes off. Almost every democracy, and almost certainly every Commonwealth member state, is looking for the right balance in dealing with the Chinese. Incidentally, I hope that New Zealand is not going wobbly on this need for developing a robust common approach.
The review is also good on recognising how technology has changed, the nature of warfare and defence—how, in the age of drones, cyber and artificial intelligence, troop power will have to be more skilled but with fewer numbers on the ground—and how soft power and smart power now play a central role in UK foreign policy in a networked and multipolar world, just as we urged seven years ago. The whole of society is now involved in a permanent kind of warfare, requiring entirely new kinds of defence, which some critics frankly do not yet seem to have grasped. Incidentally, I have to ask why the biggest modern soft power network of all, the modern Commonwealth, which the Minister has served so supremely well, gets so very little acknowledgement and no serious appraisal in this review until page 61.
Where the authors go wrong is in not understanding the full nature of the changed relationship with the United States. There is still far too much of a tone of the old followership with America, rather than partnership in the network age. The review seems far too influenced by US think tanks, with their dated obsession with great power dominance and rivalries. Power, trade and even dollar dominance are shifting away from the West, but not much of that seems to come through in the review at all.
Lastly, it has to be asked who on earth decided to put the lifting of the nuclear warhead cap, which goes flatly against NPT doctrine, in with the publication of this review. That inevitably distorted its public reception and its main messages. It really was a very unwise thing to do and spoiled a good, if belated, contribution to our reappraisal of Britain’s position in a transformed world order.
Lord Hain (Lab) [V]
My Lords, as this review sadly confirms, rather than emerging from Brexit as global Britain, the country now inhabits a kind of diplomatic limbo. The omission, at the UK’s insistence, of foreign policy and defence from the trade and co-operation agreement with the EU, together with the failure to agree a trade deal with the US reflecting the Biden Administration’s concerns about Brexit and its potential consequences for the island of Ireland, mean that the Government are left aspiring to a global role without having secured the alliances or the resources they need.
The Government say that they want to tilt their international relationships in the direction of Asia—a region that has recently provided about 20% of the UK’s trade, as opposed to almost half with the EU. The PM’s cancelled visit to India was planned for this purpose. However, outside the huge EU single market, the UK frankly ranks as a mid-sized power and lacks negotiating leverage. Britain is just 18th on the list of trading partners with India, a traditionally protectionist economy.
In view of the current massing of troops at the Ukrainian border, the review rightly identifies Russia under Vladimir Putin as an active threat. However, the Conservative Party continues to accept donations from London-based Russian oligarchs, and it has failed to implement any of the recommendations of the long-delayed Russia report of the British Intelligence and Security Committee of Parliament, finally published in July last year.
By contrast, despite major human rights violations in Hong Kong and Xinjiang, China is described in the review as merely a “systemic challenge”. The decision to go for a hard Brexit, which cuts off trade links with the EU, increases incentives to trade with China. The Government have been using heavy-handed tactics to block the genocide amendment to the Trade Bill and the Foreign Secretary has been hinting off the record at double standards in trying to secure certain trade deals. Compromising our common values on China would likely further damage the prospects of close co-operation with the United States. Indeed, at last week’s US-Japan summit there was pressure by the US on Japan to decouple supply chains from China.
The concept of Britain punching above her weight also seems nostalgic, especially with a £17 billion defence equipment budget hole and day-to-day defence spending being cut by 2.7% in real terms over the next four years. Instead of reducing our stockpile of Trident nuclear warheads to 180, the Government’s unexplained intention is to increase the cap to 260—a violation of the UK’s international non-proliferation treaty commitments. With the urgent need to invest and re-equip our health and care services after Covid, how on earth can we afford money-wasting spending on weapons of mass destruction when we have enormous capability anyway? The Government’s disgraceful decision to cut foreign aid from 0.7% of GDP to 0.5% will damage the UK’s leadership of the G7 and the climate summit later this year.
Britain’s credibility is also being damaged by threats to our own UK union and by the current dysfunctional relationship with the EU, our largest trading partner and the biggest, richest market in the world right here on our doorstep. Global Britain? More like parochial, shrunken Britain under this Government, sadly.
The Deputy Speaker (Baroness McIntosh of Hudnall) (Lab)
The noble Baroness, Lady Sheehan, has withdrawn, so I call the noble Lord, Lord McDonald of Salford.
Lord McDonald of Salford (CB)
My Lords, unlike many noble Lords, many allies have welcomed the integrated review. I will make just three points from listening to this debate.
First, the most consequential meeting the United Kingdom will organise this year—even more important than the G7—is COP 26 in November. Our guests in Glasgow are entitled to ask what our contribution is. This week’s announcement of a 78% reduction in CO2 emissions by 2035 compared with 1990 goes a long way to answer that question, but 90% of the combined biodiversity of the UK and OTs is found in the OTs. What contribution will the OTs make to our climate objectives?
Secondly, I agree with the noble Lords, Lord Reid, Lord Howell, and Lord Hain, and others that raising the cap on our stockpile of nuclear warheads looks odd. I understand that a continuous at-sea deterrent needs us to be able to deploy two boats from time to time. The new ceiling allows both boats to be fully armed. But that does not increase deterrence. It is expensive and incompatible with our obligations under the nuclear non-proliferation treaty. In 1968, the non-nuclear weapon states accepted that as their permanent status in exchange for two things: the sharing of the benefits of peaceful nuclear technology, and that nuclear weapon states would work towards nuclear disarmament. The Government assert that the objective is untouched, but the announcement is a step away from its achievement.
Thirdly, on organisation, I agree with my noble friend Lord Ricketts that we need institutional arrangements with the European Union. Internally, things are clearer. The merger of the Department for International Development and the Foreign and Commonwealth Office last year was an essential step to increase and maximise the coherence and impact of the UK’s overseas policy-making and policy delivery. Cutting the aid budget at the same time has made acceptance of this merger more difficult within the new department, but I still believe that it is the right thing to do and that we should go further—I hope that, before long, trade will fall under the authority of the Foreign Secretary.
Lastly, I have an organisational suggestion for the Opposition. In order to succeed, the FCDO needs everyone who works for it to buy into the new ministry. Some colleagues will feel justified in treating it as temporary for as long as there is a shadow Secretary of State for International Development. I urge the Opposition to correct that anomaly.
Lord Risby (Con)
My Lords, the very first world leader to have a personal meeting with the new US President was the Prime Minister of Japan. The posture of China has understandably increased nervousness and alarm in Japan, Korea, Taiwan and elsewhere. That meeting underlined the significance of the renewed emphasis of our own commitment to the Indo-Pacific region, but this assessment in our integrated review also needs to be put in the context of our commercial considerations.
Japan chairs the CPTPP, the Trans-Pacific Partnership, an area of rapid economic growth and opportunity, and is supporting our bid for membership. This is very important, as we need a strong economic power base to protect our own future prosperity and security. Japan is committed to a free and open Indo-Pacific region. In the face of the current undermining of the rules-based international order, I ask my noble friend how we can assertively promote our own long-standing commitment to such an international order, given its immense importance.
British geostrategy has been largely based on the Euro-Atlantic theatre. Our newly emphasised commitment to the Indo-Pacific region does not preclude Britain being at the very heart of the security of the Euro-Atlantic region, where the bulk of the UK’s security focus will remain—and with reason.
I chair the British Ukrainian Society. The massive build-up of Russian armed forces on the country’s border reminds us of Russia’s continuing aggression. It is truly astonishing that Nord Stream 2 will increase dependence on Russian gas supplies, which have been operated with pricing mechanisms according to purely political criteria. It is of course most damaging to the Ukrainian economy, which will now be bypassed. I ask my noble friend, given that the review describes Russia as the most acute direct threat, how in practice we can deal with the serious challenge it is presenting?
Furthermore, in Europe we must assert the absolute necessity of defence burden sharing. We can be grateful to the United States for continuing to pay 70% of NATO’s budget. Without this, our vulnerability in the European continent would be much greater.
The review recognises Euro-Atlantic interconnectivity with the Indo-Pacific, where Britain will establish a greater presence than any other European country—most welcome to our friends in the region and the United States.
Since independence, India has sought to pursue a foreign policy not linked to any particular international grouping. India is crucial as an investor in this country. I hope that democratic India can play its role increasingly in protecting the Indian Ocean. Through our enhanced naval capability, notably HMS “Queen Elizabeth”, I hope we can work with India to effect this. Additionally, our ambition to enhance our scientific capacity can be shared with the high digital skills base in that country.
I very much welcome the clear emphasis on science and technology. Our inventive genius has not always been matched by subsequent commercial success. Building on this vital area and helping explicitly to combat climate change must remain key pillars as we recommit to a more focused role in the world.
Lord Godson (Con) (Maiden Speech)
My Lords, it is conventional on these occasions—a maiden speech—to pay tribute to the officers and staff of this House. Having spent much of my professional career in journalism and think tanks debunking the conventional wisdom, it is now delightful to be able to break the habit of a professional lifetime to sing their praises with enthusiasm —the one thing that truly unites us all. I am delighted to do so today for the welcome they have afforded. The expertise and counsel has been very much appreciated by me, as I know they are by many other newcomers here, so I thank them for that.
I also thank my supporters, my noble friends Lord Strathclyde and Lord Howard of Lympne—known well to many here, of course, as a distinguished former Leader of the House and a path-breaking Home Secretary. Their advice and counsel through years have been much appreciated by me as well. I say this particularly because one of my noble friends is a hereditary and the other a life Peer. There has been some harsh criticism from the fourth estate, of which I was once part, of both hereditaries and life Peers. I place on the record here and now my appreciation for the welcome, counsel and wisdom of life Peers and hereditary Peers from all segments of this House. I look forward to learning more and hearing more of their wisdom in the years to come. I say this because the caricature in some portions of the fourth estate and the wider country and society of what has been going on in this House is utterly at variance with what I have experienced.
I say this because I am a Briton not by birth but by choice. I find the caricature of this country in certain quarters of debate as a mean-spirited and bigoted polity, again, utterly at variance with what I have experienced. I place on the record that and the pleasure I derived, in the greatest honour of my public life, from being able to swear allegiance to the sovereign and her successors. The welcome afforded in this country to a newcomer, an immigrant such as me, has always rested on my consciousness, and I am profoundly grateful for it.
I mention this because we are of course here today to discuss the integrated review. As its title suggests, with one of the words about an era of competition, we are of course facing competition from really mean-spirited polities, unlike this country—the critique we hear sometimes in certain quarters. I am grateful that Policy Exchange, the think tank for which I work, has, with its Indo-Pacific report, played its part in shaping debate on the integrated review.
Several things need to be said. The report commanded the attention of many figures in the Indo-Pacific region. It was chaired by Stephen Harper, with a foreword from Shinzo Abe. Commissioners included several Members of this House—the noble Lord, Lord Robertson of Port Ellen, and the noble Baroness, Lady Falkner—who are here today. Alas, the traditions of this House prevent me acknowledging them in parliamentary terms as friends, but I have benefited from their counsel and insight through the years.
Several things should be noted about impact of the Indo-Pacific report and the wider integrated review. The first is that there was a tremendous welcome from the distinguished group of commissioners on the Indo-Pacific Commission for Britain’s tilt—to use the term of art—towards that region again. The idea that we had become an irrelevance post Brexit could not be further from the truth.
Another point that I think has been omitted at times is that this is not a backward-looking report; it is not nostalgic. It is forward-looking, putting space policy at the heart of an integrated strategy. Moreover, it puts space policy beyond the confines of Europe and into the UK’s greater role in the wider world. The National Cyber Force is another obvious example, alongside a tech envoy to increase our presence in Silicon Valley and beyond. All these things are scarcely evidence of a backward-looking or nostalgic policy.
I look forward to playing a further part in these debates and learning from noble friends and noble Lords across the House. Although criticisms have been levelled today, there is still the serious possibility of dialogue and of recreating some kind of consensus for the future. The integrated review shows the potential that exists there. I look forward to hearing further from noble Lords and to learning more in the days and weeks to come.
Lord Robertson of Port Ellen (Lab) [V]
My Lords, it is more than an ordinary pleasure to follow the noble Lord, Lord Godson, making his maiden speech. In Scotland, one of the great put-down lines is “I kent his faither”. When I say it today, it is the opposite of a put-down and instead a recognition of the legendary Joe Godson, who would rightly be so proud of his son today. The noble Lord made a fine maiden speech. That should be expected, as he brings to the House a wealth of experience in journalism, authorship and, of course, as director of Policy Exchange, now one of Britain’s most highly regarded and influential think tanks. We will look forward to his future, well-informed contributions.
The integrated review is well written, comprehensive and surprisingly comprehensible. The authors have done a good job constructing what looks like a coherent, ambitious strategy for post-Brexit Britain. In some areas, such as its focus on domestic resilience, it captures new and important ground. Territorial defence will inevitably matter more in the future, as the current invasion by Covid-19 has shown us only too well.
I can, I fear, make only a few brief points in the time limit. First, I believe the review lacks a critical path—a prioritised route to implementation. A plan without that ingredient is in danger of being lost in the governmental undergrowth.
Secondly, the importance of diplomacy is still underestimated. Our Diplomatic Service has been relentlessly cut back in recent years, yet the rest of this review depends on the wise insights and intelligence coming from the Diplomatic Service in the Foreign Office. Reviving and investing in diplomacy will be crucial for the success of the review.
Thirdly, the trade-offs in the defence section between investing in combating the new threats and the continuing ones will remain open to serious debate. If we are to retain our place at the leadership edge of NATO, as we aspire to, our contribution has to rest on more than just the 2.2% statistic.
Fourthly, if we are, as the review asserts, to lead by example in the world, that ambition will, as others have said, be badly damaged by the cut in the legally mandated aid budget of 0.7% of GNI. That cut is hardly an advert for a law-abiding global Britain upholding the rules-based order, and it has been widely noticed.
There is much more to be said about this large and important review, but more is time needed by all of us here and elsewhere to say it. The sooner we get that opportunity, the better.
Lord Alderdice (LD)
My Lords, first, I welcome the noble Lord, Lord Godson. It is very good to have him here, not only for his expertise, but because one thing that I think unites Members across this House is the need to improve our reputation with the fourth estate. I have no doubt that he will bring to the inside some of his experience from the outside and enable us to do that. I remind the House of my registered interest as the director of the Centre for the Resolution of Intractable Conflict at Oxford University.
I welcome the idea of an integrated review of this kind and much good work has been put into it. As the review makes clear, we face extraordinary and difficult challenges, requiring complex of approaches to address them properly. However, I found that there was a disjunction between two different approaches within the report. I would like to speak to them in two ways.
The first is general. On the one hand, the report—in some very thoughtful and properly troubling passages—describes how the international rules-based order has been breaking down. It makes it clear that, rather like Humpty Dumpty, it will not be possible to put it back together again. However, at the very beginning of the report, one gets the sense that everything is wonderful, we are doing marvellously and we are going to capitalise on our place in the rules-based international order. These two things do not seem to fit terribly well together. It appears that there is a real need to struggle intellectually with putting them together because we have major challenges.
The second area is more troubling and more immediately so. As I said, the draft by the Prime Minister at the beginning is very positive and upbeat. One can see his very particular phraseology in it and feels like saying “Rah, rah, rah!” at the end of it—until one reads the rest of the report and compares it with one’s knowledge of what is going on. This is profoundly troubling.
I have warned repeatedly in this House that we are already into the third global conflict in cyberspace and it is emerging in other spaces too. Let me give two examples of the urgency. First, Margarita Simonyan, editor-in-chief of the state-funded Russian media outlets RT and Sputnik, said that war with the US is inevitable. She believes that the conflict will break out when, not if, Vladimir Putin seizes more territory from Ukraine. Within the last two weeks she has said that there will be a kind of war driven by hacking and the forced disruption of internet access. She said:
“I do not believe that this will be a large-scale hot war, like World War II, and I do not believe that there will be a long Cold War. It will be a war of the third type: the cyber war.”
Turning now to the second example, as is known, I am a psychiatrist, and I have watched with bemusement what I can describe only as the mass hysteria in the response by many leaders, including European leaders, to the question of the vaccine. But the reasons became clear to me in the last few weeks when I had my friends do some research. AstraZeneca is being targeted by large-scale malign influence campaigns conducted by the Russian Federation, using bots to advance its economic and foreign policy goals. The Russian operation has been successful in having France and others disqualify the AZ vaccine from use in their populations. Russia has been adversely influencing things, as it has been in elections and the gilets jaunes campaign. If we do not inform our populations that this is going on, we can scarcely be surprised if they do not appreciate it.
Lord Houghton of Richmond (CB)
My Lords, time is short so I will not waste too much of it on congratulations. I also think a huge amount of the review is to be welcomed. It presents a largely compelling view of the global security context and the defence and security challenges we face. I wholly agree about the character of a far more competitive world—one that exists in a perpetual state of aggressive, but primarily non-kinetic, rivalry below the threshold of what we have previously viewed as formalised warfare.
In principle, I do not take issue with the theory of achieving military advantage through technological superiority, though I worry that the seductive nature of technical novelty has led to a premature gamble on a further reduction in military capacity. I suspect that the true state of the defence budget is the reason for this gamble. I applaud the further moves to integrate action on multiple fronts and the need for a strategy of persistent engagement. I regret the review’s lack of emphasis on allies.
I have more serious reservations about the review. To explain them requires a short digression into some military doctrine: specifically, the three subordinate components of what we call fighting power. They are: the physical component, the means to fight—tanks, planes and ships; the conceptual component, by which the physical capabilities are coherently employed—strategy, operational art and tactics; and the moral component—the ability to get people to fight, which I abbreviate as the integrity of leadership combined with the moral superiority of purpose. The military doctrine of our nation believes that the full potential of fighting power is realised only when all three of these components are working in harmony.
I believe you can apply those components to an assessment of this review. The review is pretty good at the physical component. Indeed, historically the outcome of many reviews has been judged on that element alone: is the right amount of money being spent on the most appropriate equipment, human capability or departmental activity? Where the review lacks clarity is in accepting that in the context of our two principle threats, China and Russia, our most important weapons are not physical ones: rather, they lie in the cognitive domain. We need a more compelling narrative that better justifies our sense of moral authority and the superiority of the values that we promote and defend. This is why the moral component is so important, but I fear it is the moral component of our nation that is currently damaged because our national integrity is under threat. Brexit, the state of the union, tensions over race, the alienation of politics from society, the continued maldistribution of wealth and opportunity, and sleaze: all these things combine in varying degrees to undermine our integrity, and therefore our moral superiority, in a war of ideas.
The review has described some of the conceptual component, but the description is somewhat abstract and short of explanation as to how ideas are operationalised in practice. For example, what is the ethical, moral and legal framework within which we deploy autonomous weapons, harness artificial intelligence, destroy space-based targets and initiate or threaten offensive cyberattacks? In the battle of competing narratives about what is normal and legitimate, how do we successfully attribute the false claims and illegal acts of our enemies? How does our political leadership sustain legitimacy for its actions? How much of what is envisaged will be disclosed to society? Does the requisite of government even exist to fight this war? Who are the architects of the enduring strategy? Who are the authors of the competing political narratives, and how are the narratives disseminated? Can the NSC really achieve all this sitting for an hour every other Tuesday?
I suppose my fundamental question is: having identified through this review the Government’s best estimate of the character of future war, have we both the machinery and the mentality to prosecute the necessary campaign successfully? Are we both ready and organised for what we have apparently just discovered? My fear is that the war has started and that, at least for now, we are firmly on the defensive.
Baroness Armstrong of Hill Top (Lab) [V]
My Lords, I will start by paying tribute to someone who I know would have been speaking in this debate if he had been able to. Lord Judd, who died last weekend, spent his life devoted to peace and justice internationally. He would tell me of being with his father, who was the first ever director of the United Nations Association in this country, where he met my father, who had set up a branch in the north-east. Frank and my father later became colleagues in the Commons, and both had a driving commitment never to return to the horrors of the war that they had seen.
I went to Kenya at about that time with VSO for two years, and Frank later became its director. We both remained strong advocates of that organisation, and it is that which inspires me today. Frank was horrified at the way in which the Government changed the legally binding commitment of 0.7% of our GDP going to development aid and the manner in which VSO was being treated: the lack of clear decision-making, and arbitrary cuts leading to massive uncertainty and insecurity for all the people involved. However, it is clearly about more than this. It injures our reputation abroad, certainly in those developing countries where promises have been broken and programmes abandoned, and with those countries and organisations where partnerships have been forged but where the UK is no longer able to fulfil its commitments. It is not clear to me that the Government really understand the full extent of that.
It is of course the Government’s right to reset the UK’s position in the world, and the report we are discussing today has many ambitions within it. However, these ambitions depend on the countries that we seek to work with, and the international agencies we want to be a partner in, trusting us and believing that we will stick by our word. That is what is in danger of being lost.
I welcome the Foreign Secretary’s statement that he is looking to protect VSO, but what does this mean? Will the budget for volunteers for development be renewed at the original level of £16 million, or will the cuts of, in effect, 45% imposed so far on the short-term extensions be the extent of protection? Will the Government ensure that the programme, which they recognise as one of the most effective delivered by UKAID, is able to continue without the closure of work in countries where, even during the pandemic, real change around local communities’ response to Covid-19, protection for women and girls and working with local communities to build resilience against climate change in the most vulnerable countries have all been going on despite the cuts?
Soft power, as the Government have acknowledged, is an essential tool in modern international relations. Organisations such as VSO are the best soft power that the Government have. Will they therefore meet a very small, cross-party delegation to discuss this issue urgently?
Lord King of Bridgwater (Con) [V]
My Lords, I welcome my local noble friend Lord Godson and thank him for showing so quickly the excellent contribution that he is going to make to our discussions.
I welcome the integrated review. It is a very brave undertaking by the Government. It is a remarkable document with a very bullish foreword by our Prime Minister. Of course, it is not just a defence review; it carries a host of intentions and undertakings in security, defence, development and foreign policy. It is going to be pretty fertile ground for regular reviews by Parliament of the various aims and ambitions that it expresses.
It has been accompanied by a pretty extensive defence Command Paper. Ben Wallace, the Secretary of State, says in that paper that his core mission is
“to seek out and to understand future threats”.
In the brief time available, I will raise one threat that is referred to only briefly in the review, in connection with the nuclear deterrent, and pick up a theme mentioned by the noble Lord, Lord Reid. The integrated review restates the commitment to the goal of a world without nuclear weapons, but recognises that there is no early prospect of that, so instead announces the ordering of four new Dreadnought submarines to replace the Vanguards. So, far from the planned reduction of warheads, it announces an increase. That surprised me, and I understand the comments that others have made about that decision—and of course it includes the design of a new warhead. The review states:
“We will champion strategic risk reduction and seek to create dialogue among states possessing nuclear weapons, and between states possessing nuclear weapons and non-nuclear weapon states, to increase understanding and reduce the risk of misinterpretation and miscalculation.”
It is precisely that risk that I, like the noble Lord, Lord Reid, wish to highlight. The continuous at-sea deterrent operates in a totally different communications environment now from the safe, secure systems when it originally operated. We are living now in a world with ever-new developments, with cyberwarfare, ever-greater organised hacking systems, artificial intelligence, audio and videos called deep fakes and, on the side, an increasing interest by other countries in some of our undersea cables, which are important to some of our communication connections. The risk of misinterpretation and miscalculation is all the greater, and there is a vital need for effective hotlines at a top level between nuclear weapons states.
I have just learnt that France, as the new chair of the P5 process, has embraced the concept of strategic risk reduction and will make improving crisis communication technologies, such as hotlines, a key priority for discussion among the five permanent members of the United Nations Security Council ahead of and beyond the planned review conference of the nuclear non-proliferation treaty this August. I hope the Government will give this French initiative the greatest possible support and assistance. There is no question but that we live a more dangerous world at present, with the increasingly assertive role of Russia and China’s activities. It is a dangerous situation and nuclear miscalculation could be catastrophic. No time must be lost in addressing that.
Lord Empey (UUP) [V]
My Lords, I welcome my noble friend Lord Godson to the Chamber. He mentioned that he has been a member of the fourth estate, as he put it, for many years. Perhaps we will see circumstances where poacher becomes gamekeeper. We look forward very much to hearing more of his thoughts in the days ahead.
Broadly speaking, I welcome the fact that there is a review. I welcome many of the ambitious proposals it contains on science and technology issues and cyber issues. All these things are very important and very valuable. We have seen how small a place the world has become, particularly in the past year when disease knows no boundaries.
However, one issue continues to worry me. I do not believe that we have succeeded in matching our resources, particularly in terms of defence, to our policy objectives. We have heard for decades about the black hole that exists in the MoD in its equipment and other budgets. When the noble Lord, Lord Hammond, was Secretary of State for Defence, we were told that this gap had been plugged. However, just as the 2010 review proved to be a major mistake, I think we are on the verge of making unnecessary mistakes this time.
I appreciate that we cannot look on defence purely in terms of numbers of troops and traditional equipment. The nature of warfare is changing, as many speakers have pointed out. However, I do not understand the idea that you can have all these international objectives—some of which I think are very good—but deliver them with a smaller army while getting rid of one of the principal mechanisms for moving troops and equipment around the world, the Hercules transport aircraft. If we are, quite correctly, trying to re-establish a footprint in the Indo-Pacific region, how that is to be achieved with fewer vessels at our disposal escapes me.
We still have not matched our resources. I do not believe that we can deliver these very valuable objectives within a remit of 2.2% of GDP. I just do not think it is possible. We have to rethink that all together. I do not like budgets that are ring-fenced by percentages: it has to be done on need and on a changing basis. We see that with the development budget, which so many speakers have already mentioned today. I feel, to put it colloquially, that our eye is bigger than our belly. We have these objectives, many of which are good, but we have not matched our financial resources to deliver them. I ask the Minister, particularly on defence, where I hope we will have further opportunities for more detailed debate, to bear in mind that with a shrunken military footprint we cannot deliver what are sometimes very valuable objectives.
Lord Browne of Ladyton (Lab) [V]
My Lords, I declare my interest as vice-chair of and consultant to the Nuclear Threat Initiative. In the other place, Tobias Ellwood, anticipating the visit of General Austin, the US Secretary of Defense, said:
“our special relationship requires work.”
Predicting warm words about the special relationship and our planned investment in
“special forces, cyber and space resilience,”—[Official Report, Commons, 14/4/21; col. 395]
he suggested that, in private, Austin would more candidly say our navy is way too small, conventional fighting capability should not be cut and nor should the F-35 order.
Although those words reflect Labour’s criticism of the integrated review, I want to focus on another aspect of the review and what it means for the relationship with the US. In doing so, I shall expand upon one of the issues raised by my noble friend Lord Reid. The meeting took place last Thursday, but I can find no reference to what was discussed on the MoD’s website. Five days later, the DoD carried a readout, which makes the usual positive noises about the relationship, mentions Russia amassing of forces on Ukraine’s border and an orderly end to the war in Afghanistan. It has a reference, expanded upon in a terse and matter-of-fact joint statement, to past and continuing consultation on the review and strategic alignment.
There is no reference to consultation with the Biden Administration but rather between the respective defence departments. That difference is not lost on those who have been commenting on the gaping disparity now between our new nuclear weapons posture and that of President Biden, who has spoken of a national security imperative and moral responsibility to manage and eliminate the threat posed by weapons of mass destruction.
UK officials have been briefing on the review in the US. One, asked whether the removal of the cap had been discussed with the Biden Administration, responded that the Government wanted to report to Parliament first. As our current nuclear posture is more an echo of the Trump Administration’s 2019 posture review than the aspirations of the new President, was prior discussion with the DoD under the previous Administration? An increase in the cap on our nuclear weapons stockpile to more than 260 warheads is a significant reversal from the long-standing position on reducing numbers while maintaining a minimum deterrent force.
Equally concerning to Biden must be that while Russia and the US publicly declare their numbers, we will no longer publish details of our operational nuclear stockpile and deployed warheads and missiles. This is a significant blow to transparency. The justification so far is thin and unconvincing. The review lacks a compelling rationale for raising the warhead cap. There is a brief reference to an
“evolving security environment, including the developing range of technological and doctrinal threats,”—
a reference to Russia’s new and planned nuclear systems. No explanation is given for how increasing the stockpile will provide a more credible deterrent, improve UK security or impress Moscow, whose nuclear force will continue to dwarf ours.
Now, we reserve the right to threaten nuclear use if a threat from chemical and biological weapons or “emerging technologies” makes it necessary. What does this really mean? This policy shift is not proportionate to the threat and under any circumstances is not credible. Would the UK ever use a nuclear weapon against a chemical, biological, or cyber attack? An expanded use policy for nuclear weapons is directly counter to Biden’s commitment to consult with allies about moving towards a “sole purpose” declaratory policy that the nuclear arsenal is only for deterring or retaliating against nuclear attacks.
Coming weeks after the announcement of the US and Russia agreeing to extend New START and to engage in successor agreement discussions, this flies in the face of this new opportunity to stop the nuclear arms race. When its closest ally moves in a contrary direction, it presents a significant barrier for the new Biden Administration. Will the Minister expand on the joint statement agreed between Ben Wallace and General Austin? When did consultation take place? What was the US response to what is universally now interpreted as an inexplicable abdication of the long-standing leadership role on nuclear disarmament by policy change, counter to Biden’s commitment to reduce the role of nuclear weapons and his commitment to sole purpose?
Lord Kerr of Kinlochard (CB) [V]
My Lords, I am very glad that the noble Baroness, Lady Armstrong, said what she said about Frank Judd. I associate myself with it and add only that he was an excellent Minister for Defence and Development and in the Foreign Office, and always a genuinely good man.
Foreign friends are relieved that the Government’s puzzling new definition of sovereignty, which has obliged us at such considerable cost to sever economic, commercial and social ties with our European neighbours, apparently does not extend to NATO or United Nations obligations, or to the rules-based international order. The review shows that rules are okay provided they are not European, which is still a bit puzzling but good news. I welcome the linkage of domestic and international aspects of security and the new emphasis on a whole-of-society approach to resilience.
However, I find the hubris grating and mourn the death of British self-deprecation. I recall Lord Carrington’s reaction when Helmut Schmidt, his German Defence Secretary counterpart, told him that what made the UK crucial to European security was not so much 55,000 combat-ready troops forward-based in Germany, but German certainty that we could be trusted; if the balloon went up, the Brits would be there, and there was German certainty that Moscow knew that too. Back then, we did not shout about it. We carried a much bigger stick than we now do, but we spoke much more softly and carried more conviction.
Does President Putin, with his troops massing against the Donbass, pause to ponder how we might act on our 1994 commitment to the Ukraine’s security? I doubt it. Does President Xi, as he contemplates Taiwan, worry about our carrier deployment? I doubt it. A rather small gorilla beating its chest risks looking a little ludicrous. The Carringtons and Heaths, the Callaghans and Healeys—the generation who knew war and understood security—would not have been quite so hubristic. Of course, they would have agreed that it makes sense to subordinate national sovereignty to allied solidarity, and autarchy to mutually agreed rules, but they would have warned that what matters most is to retain a reputation for reliability. The noble Lord, Lord Purvis, is right that brutal 50% cuts to bilateral aid hurt us as well as the world’s poorest, and we surely shock the world by passing a law to break international law and tear up a newly minted treaty, gravely damaging global Britain.
One cannot rebuild a reputation by shouting about what one intends. Actions speak louder than words. We must see ourselves as others see us, remember Helmut Schmidt’s tribute, and seek to rebuild trust. The fine words of the review cannot do that for us. Only our actions can.
Lord Bruce of Bennachie (LD) [V]
My Lords, I draw attention to my interests in the register of Members’ interests.
Security, defence, foreign policy and development should always be co-ordinated, but that does not mean that they must all be in one department, nor that the existence of DfID for the last 20 years has compromised the UK’s diplomatic reach. Indeed, I believe that the opposite has been the case. The UK has many strengths and we should play to them. We also have weaknesses and we should address them. That said, it is not clear from the review exactly what the UK’s positioning in the world will be. Talk of maintaining our commitment to and engagement with Europe, while apparently also wanting to increase our influence on the Indo-Pacific region, smacks of a yearning for a past that cannot be recovered.
The UK is a trading nation but our capacity to trade is weak. Our science and technology, much of which is truly world-class, lacks a manufacturing capacity to achieve the export strength that we need. Our success in helping to develop and roll out the Covid vaccines has been achieved through international co-operation, something the Government seem reluctant to acknowledge. Yet co-operation with the EU and the developing world is essential to eliminating the virus and protecting us against future pandemics. At the same time, a poor post-Brexit agreement with the EU has weakened our services base, which has been our strongest suit. The graphic on page 8 of the review is revealing of the blinkered and prejudiced mindset. It states:
“The UK has a seat in every major multilateral organisation”
and lists the 10 that it is referring to, but the EU is not one of them. Clearly, it is no longer an international organisation regarded as major by the UK Government. Relationships with China are crucial and delicate. How much of a stand are we prepared to make on the dismantling of democracy in Hong Kong and the exclusion of Taiwan from international organisations, not least the WHO?
The review presents the UK as footloose global Britain, able to dart in and out wherever our interests require it. Yet the decisions that this Government have taken will keep the world and UK citizens guessing. To have sustained influence requires co-operation, trust, consistency and respect. Looking at the UK from the outside presents a baffling and confusing identity. What cannot be gainsaid is that the Government have raised the defence budget’s share of GNI by 0.2 percentage points and increased our nuclear warheads, while, at the same time, official development assistance has been cut by 0.2 points. The message is clear: the UK is switching its emphasis from soft power to hard power. This is reinforced by the incorporation of DfID into the FCDO, subordinating aid spending to diplomatic leverage.
Prioritising east Africa and Nigeria must also make other African countries wonder where they stand. What does that mean for Ghana, Sierra Leone, the newly reborn Gambia, Malawi or Zambia? The cuts in aid have sent shockwaves through development NGOs and humanitarian charities. UK aid and development partners recognise that the aid budget does not exist for their benefit, but the Government know that the reach of our development programmes cannot be achieved without these partners.
Cuts on this scale, implemented at speed, will be highly damaging and disruptive not only to the development partners but, more importantly, to the beneficiaries. The cuts necessitated by the pandemic downturn, amounting to £2.9 billion, were severe enough, and are only now being felt. To add to those cuts an even more severe reduction will do incalculable harm. There is a need for more official development assistance, not less, if we are to make the world safe from the present and future pandemics, rebuild damaged livelihoods, end absolute poverty and leave no one behind. To achieve that, the UK will need expert partners, whose capacity will be seriously eroded by such savage and, so far, unspecified cuts. Such short-term twists and turns are no way to run a long-term aid strategy. This looks more like a disintegrated review.
Lord Balfe (Con)
My Lords, the document read to me as “how to fight the last war” rather than “how to face up to the future”. I have one or two comments about the soft power aspects in particular.
The Council of Europe, of which I am a member, has been looking at the 100th anniversary of the Geneva conventions. Very recently, the European Court of Human Rights brought in a very interesting judgment which people say has thrown everything into confusion, but I think has clarified it. It said that you cannot apply human rights while a conflict is in progress. It throws us back into looking at how the Geneva conventions will be applied at all, but it is common sense. If you have people shooting at each other in the street, you can hardly run out and say, “Excuse me, item 13 says that you must point that this way”. That is one way in which we will have to reclassify how we look at how we wage war.
Secondly, of course, is the long debate over the aid changes. I think the Government are wrong; they should not have cut the aid. But the aid agencies have had too soft a ride for too long a time. I talked to someone in the aid business about the Oxfam debacle and all they could say was, “Well, Oxfam got found out, you know, they are all up to it.” Instead of cutting back the aid budget, the Government should have got to grips with the way in which it was being used and spent, because that was, and remains, the real problem.
But let us not think of it as aid. We think of it as giving pennies to the poor, but it is not. It is investing in common sense. I am one of the few people in this House who are prepared publicly to say nice things about David Cameron, whom I worked for. David always insisted that the reason for increasing the aid budget was to make the countries we were assisting places where people wanted to live in preference to being refugees and trying to come to live in our country. He had quite a clear view. I remember when the proposal came out to increase the budget. Some asked—these were the words—“Why are you adopting a Labour proposal?” He said, “It is not a Labour proposal; it is a common-sense proposal. It is a proposal to make the countries better places for the people already living there, and it is a very wise investment of money.” The Government have been remiss in not carrying on with that.
Finally, we need to look a bit harder at NATO. For a time, I was vice-chair of the European Parliament’s sub-committee on defence. We discovered that NATO had enormous problems. It could not get its tanks over bridges. If it wanted to cross frontiers within NATO member states, it had to get permission, and it was made quite clear to us that, in some instances, that permission would not be granted. We tried, but what is now needed—HMG could well put some effort into this—is to get NATO operable and into a position where it can actually do something. At the moment, the restrictions on it stop it doing anything.
Lord Boyce (CB) [V]
My Lords, the integrated review, and its accompanying Defence Command Paper and industrial strategy paper, have gone some way to addressing the mistakes made in the awful 2010 defence review and the somewhat less disastrous 2015 strategic defence review. What is particularly to be welcomed is that the threat has been put very much to the fore, and for that much credit should go to the Secretary of State for Defence. We see cyber, artificial intelligence and space being given due and proper attention.
The review lays emphasis on global Britain, and in so doing recognises that forward deployment and persistent engagement need to be essential ingredients of the Armed Forces construct. As part of that, a refreshed maritime strategy is given appropriate prominence. There is a promising forward shipbuilding programme to support this, but in the short to medium term, we will see the frigate force shrink below its already emaciated size. Frigates are the key element in persistent forward presence. Once again, I ask what can be done to speed up the delivery of Type 26 and Type 31 ships currently in build and shortly to be ordered. It is incomprehensible that we will not see the first of the new ships operational until well into the second half of this decade. I hardly need say that any sort of attrition—a word, by the way, that is conspicuous by its absence in the review and is equally relevant to our land and air forces—would be a serious setback. What attention has been given in the review to the matter of attrition in general?
Regarding the review’s concept of forward deployment, it is encouraging to see the strong manifestation of this with the deployment of the carrier strike group to the Indo-Pacific this summer. I hope the Minister will confirm that, among other things, opportunities will be sought to strengthen our alliances out there, such as the Five Power Defence Arrangements, the FPDA; to look for ways to create bonds with the Quadrilateral Security Dialogue, the Quad; and not to shy away from exerting our right to freedom of navigation through the South China Sea. Such things have important relevance to global Britain.
To pick up on the intention set out in the review to increase the ceiling of our overall nuclear stockpile from no more than 180 warheads by the mid-2020s to no more than 260 warheads, this measure seems to have raised alarm in some quarters, but I applaud the Government’s courage and the wisdom of taking it. We profess to having the absolute minimum credible deterrent, but the word “credible” is valid only if the missiles can get to their target. With the potential opposition improving daily their nuclear capabilities, including anti-ballistic missile systems, this is a necessary measure. It does not involve building new warheads, although a replacement programme in due course is under consideration. I remind those who say that this sets a bad example that our good example of reductions in nuclear firepower over the past couple of decades has absolutely not been followed by any nuclear weapons state which may be unfriendly. In fact, it is quite the contrary: they have all significantly increased their nuclear arsenals and capabilities.
Baroness Bennett of Manor Castle (GP) [V]
My Lords, in many ways the integrated review acknowledges with greater force than we have seen before from a UK Government the arguments that the Green Party has made for decades—that security can be achieved only in a stable environment and that the climate emergency and nature crisis are a threat to all our futures. That is driven home today with the HadCRUT5 global temperature series showing that the average global temperature for 2020 was 1.3 degrees—plus or minus 0.1 degrees—above preindustrial levels.
Much of the overarching rhetoric of the integrated review could have been written by the intellectual thought leaders in this area: the Rethinking Security network. But, as many noble Lords have pointed out, the text fails to acknowledge or make difficult choices. It fails to meet its ambition to set a path for the next 10 years.
I will briefly pick up three elements the Minister highlighted in his introduction. First, on science and technology, the review talks about Britain being a world leader and innovator—something that the Government frequently major on—but in such a narrow range of fields. The Minister referred to artificial intelligence and renewables, and I cannot disagree with the last one. But ask a farmer, crucial to food security, or an ecologist, crucial to the nature-based solutions to the climate emergency that the Government like to talk about, what science they need, and it is not those. Protecting our soils, using agroecological systems for food production, managing our freshwaters and seas and understanding the complexity of life on earth are absolutely fundamental to security. There are an estimated 1.7 million undiscovered types of viruses in vertebrates. We have brilliant experts in this and many other fields; let us celebrate and fund them—not just to treat the diseases after they have arisen but to understand the underlying systems.
Secondly, the Minister spoke in an unqualified way about trade delivering jobs and prosperity. I fundamentally question that assertion. We have come to the end of a period of a massive explosion in global trade and are in an insecure, poverty-stricken and environmentally trashed world. The harm done by some trade is obvious. The Stockholm International Peace Research Institute tells us that sales of arms and military services by the largest 25 companies totalled $361 billion in 2019. Of course, included in that are our sales to Saudi Arabia, a regime with one of the worst human rights records on this planet and, of course, a key proponent in the dreadful war destroying Yemen.
Thirdly, I come to aid. I am really quite astonished that the Minister chose to highlight the Government’s prioritising of girls’ education on the day that Save The Children concludes that spending on education for girls will be reduced by 25% in 2021 compared to 2019-20. Perhaps the Minister can confirm whether that is correct. It is a long-time Green Party policy to lift that aid figure to 1%—clearly the direction of greater security.
Finally, I come to the astonishing and deeply disturbing changes in nuclear doctrine and practice. I associate myself particularly with the comments of the noble Lord, Lord Browne of Ladyton, and with others who questioned this. Some observers have pointed out that lifting a cap is not lifting numbers. If this is just an empty gesture, a rhetorical firebrand playing tough to a domestic audience in the culture war, then it is a truly dangerous and immoral one. If it is a real plan to increase the number of these hideous weapons of mass destruction, it is also deeply dangerous and immoral, as is the widening of the doctrine for their use.
This review is glancing in a new direction for security, and yet it firmly continues to wade forward through the swamp of inequality, militarism and environmental destruction.
Lord McConnell of Glenscorrodale (Lab)
My Lords, I should note my entries in the register of interests. I would also like to note that this integrated review is in many ways a development of the work of British Governments over nearly 20 years, in trying to bring together defence, diplomacy and development policy, strategy and implementation. It was begun under the last Labour Government, under both Prime Ministers, who not only tried to improve the way in which the British Government worked in relation to the integration of policy within the UK but spoke out for that internationally as well. It was developed under the Cameron Administration, particularly by the noble Lord, Lord Hague, and Andrew Mitchell, as Secretary of State for DfID, and it is welcome that we have another integrated review to take this forward. The disappointment is in the content, not in the concept.
While I welcomed this review after the election in 2019, at that time I was also welcoming the fact that the new Government were committed to 0.7% of GNI on official development assistance. While one promise has been broken, and potentially a law has been broken, in the other case, this review has failed to match the high ambitions that were perhaps initially set for it.
There can be no doubt that in any conflict situation around the world where our security interests are of concern, an integrated approach to policy is essential in securing investment in development with good, strong diplomacy supporting human rights, democracy and the values that we put forward as a country, alongside the need for military power, or at least the potential for military intervention. Whether we are in the Sahel or south-east Asia—in Myanmar at the moment—or anywhere else in the world, the integration of these three approaches is absolutely critical. There can also be no doubt that, in all these situations, conflict and instability is caused by poverty, poor governance and a lack of opportunity. The prevention of conflict and of security threats, has, at its core, dealing with those issues of poverty, lack of opportunity and poor democracy and human rights. It is simply not possible to bomb grievances, ideas and dreams out of people’s heads. We have to deal with the root causes of conflict and instability, which is why defence, diplomacy and development have to go hand in hand.
If Frank Judd, the late Lord Judd, had been with us today, he would have said that the key word here is not “integrated” but “interdependence”. The interdependence of our world today is seen more clearly in 2020 than perhaps ever before, in a pandemic that began with a virus, almost certainly in China, but ended up closing schools in every continent in the world, shutting down trade routes and travel and having an impact far beyond its origins. That interdependence surely leads us to think again, and I hope to think again about these cuts to official development assistance, where we have invested, as a country, in democratic institutions, human rights and better governance, as well as tackling the impact of extreme poverty and lack of opportunity.
The question in 2021 and beyond, and for generations that follow us, will be to look back and say: were the rich, powerful countries of the world willing to step up and bring the global community together after this pandemic, or were we willing to let it fall apart? On the key issue of development, alongside diplomacy and defence—not two and a half but all three together—this review falls short.
Baroness Meyer (Con)
My Lords, I too welcome the noble Lord, Lord Godson, to this House. He was once described as one of London’s most influential people. I look forward to his influencing Members of this House to like this country as much as he and I do, both of us being adoptive to this country.
I congratulate the Government on the publication of the integrated review. It is thoughtful and comprehensive. A review drawing together the threads of foreign policy, defence, national security and international development into a coherent whole was long overdue. The review has many original features. Its so-called tilt to the Indo-Pacific region has perhaps attracted the most public attention. We learn from the media that its first manifestation will be the despatch to the region next month of a carrier strike group, led by HMS “Queen Elizabeth”. Can the Minister confirm that the strike group will be deployed to the South China Sea to underline our attachment to the law of the sea and international freedom of navigation?
It is also reported that, en route to the Far East, a Royal Navy destroyer and frigate from the strike group will stop off in the Black Sea to offer support to the Government and people of Ukraine, who are yet again being placed under unacceptable pressure by the Russian Government, who have massed over 100,000 troops on Ukraine’s eastern frontier. As the Prime Minister’s first trade envoy to Ukraine—I hereby declare my interest—I warmly welcome our Government’s wholehearted support for Ukraine’s territorial integrity. We are playing a crucial role in helping Ukraine rebuild its infrastructure and defence capability. Only three days ago, our two countries signed an agreement to expand Operation Orbital, which provides for co-operation between our Armed Forces. It is, I hope the House will agree, a clear example of the UK putting its money where its mouth is—in this case, practical action to buttress democracy and national sovereignty in a friendly state.
Given that the integrated review named Russia as
“the most acute threat to our security”,
I suggest to the Minister that the dangerous situation on Ukraine’s eastern border urgently demands a twin-track approach to deter aggression—namely, not only a naval acte de présence in the Black Sea, but a determined British diplomatic initiative to help our French and German friends revive the Minsk II protocol, which is today all but dead.
Lord Hannay of Chiswick (CB) [V]
My Lords, the review we are debating today is an impressive and perceptive analysis of the threats, challenges and opportunities that this country faces as it charts its way in a new chapter of its history, following our departure from the European Union, so it should be welcomed. There are some blemishes, of course, including the silliness of the reluctance to mention the European Union except in passing. Less estimable, I suggest, is the fact that the cart of key security decisions—the merger of the FCO and DfID, the savage cuts in the overseas aid budget and the detail of defence spending over the next few years—has preceded the horse of the review. Those decisions should surely have been shaped by the review, not have pre-empted it.
One overall impression stands out: Britain can no longer hope to overcome these threats and challenges acting alone. We need allies and partners if we are to prevail. In the period following Brexit and four years of alliance disruption and disregard from President Trump’s White House, that is no small order. That challenge is underlined by last week’s decision by the US to withdraw its troops from Afghanistan by September, best characterised tersely by our own Chief of the Defence Staff as
“not a decision we hoped for”.
What should we think about the much-trumpeted tilt towards the Indo-Pacific? Leave aside the fact that the review does not even give geographical definition to that region. Does it begin in east Africa and extend to the western coast of Latin America? Does it include Pakistan, for example? Is it welcome to our closest ally, the US, or would it have preferred us to put more effort into Euro-Atlantic security and into Africa, where it has never been deeply engaged?
It is a pity more was not said about multilateral peacekeeping by the UN and by regional organisations such as the African Union. With the retreat from coalitions of the willing expeditions, such as those to Iraq and Afghanistan, there will inevitably be more demand for peacekeeping if some parts of the world are not to fall into chaos and insecurity. But that sort of peacekeeping needs to be made more effective and, as a permanent member of the UN Security Council, we have a responsibility to provide training, mentoring, specialised services, and equipment.
The sections of the review on nuclear weapons policy have been criticised by many others. I suggest that they lack any developed rationale, let alone any justification. Just when the two largest possessors of these weapons have frozen their strategic missile arsenals for another five years, we are going to head off in the opposite direction, thus undermining our capacity to pursue the objective of strategic stability at this year’s Nuclear Non-Proliferation Treaty Review Conference. The doctrine of “deliberate ambiguity” as to the numbers of our warheads and the purposes for which they might be used, which has been proudly proclaimed by the Government as a new kind of doctrine, does not strengthen our security at all. If all nuclear weapon possessor states practised that doctrine, would we be less at risk from nuclear war? I rather doubt that.
In conclusion, the review, if not some of its policy prescriptions, is welcome but we will soon see whether there is a gap between rhetoric and reality as it is put into practice. I fear there will be.
Lord McNicol of West Kilbride (Lab)
My Lords, I will focus my comments on aid and international development. Before I start, I declare my interests as listed in the register. I am a consultant for NDI, the National Democratic Institute, which offers training and support to fledgling democracies.
When it comes to international development, the integrated review confirmed many of aid sector’s fears. By ending the UK’s commitment to spending 0.7% of GNI on overseas aid, the Government are abandoning the world’s poorest and most vulnerable people when they need our support most. In doing so, the Government are not only breaking their own manifesto commitments but making it more difficult for the UK to achieve its foreign policy objectives. This benefits no one.
The review talks of the UK being a force for good in the world, but that simply cannot be reconciled with the decision to slash the aid budget. The cuts will mean a reduction of up to 60% of the support we give to Yemen, one of the worst humanitarian crises in the world, and by cutting programmes in Iraq and Syria, where the Foreign Secretary has previously accepted that humanitarian work is essential to the security efforts to counter ISIS, the UK could now be leaving fertile ground for future insurgencies.
As a country, we also have a unique responsibility as host of the crucial COP 26 climate summit in Glasgow this year to lead the way on tackling the climate crisis we face together. As Save the Children said yesterday, on hearing the first details of how the cuts will be imposed, these cuts are
“slashing aid to communities on the front line of that crisis.”
By cutting development programmes we are sending all the wrong signals to our allies and partners. We are undermining our diplomatic efforts—the polar opposite of what the strategic review was intended to achieve. Of course, these historic aid cuts follow the senseless decision of the dissolving of the world-leading Department for International Development. I have still not heard a coherent argument as to why that happened. As the noble Lord, Lord Hannay, said, decisions have been made that are shaping the review but which should have followed the review, not be made before it.
The Government’s failure to provide details of the impact that aid cuts will have on country-specific programmes means continued uncertainty for the aid sector and the vital projects that rely on the UK. The UK should focus its efforts on poverty alleviation, meeting the SDGs, and multiplier programmes such as education and nutrition. Above all, the UK needs a coherent approach to sustainable development and a clear vision that reflects the values we hold as a country. While the review offers a fleeting mention of a development strategy to be published at a later date, Ministers have not been able to give any information on when that will appear. Can the Minister confirm when the strategy will be published, and can she also confirm that the FCDO is fully engaging development NGOs in the drafting of the strategy? After all, it is only through meaningful engagement with civil society that government can benefit from those with the best-available knowledge, evidence and expertise on global development.
Lord Craig of Radley (CB)
My Lords, recent thinking and experience points to a growing third part to our defence and security, that which lies between active overseas participation and defensive preparation: the grey zone of hostile acts that fall short of open warfare but which are nevertheless profoundly troublesome and which must be countered in that grey zone.
One aspect of this has been the setting up of the National Cyber Force as an offensive unit. This introduces a new doctrine of offensive actions as well as, and apart from, the traditional role of intelligence gathering in all its methods, from SIGINT to HUMINT. I have raised this topic before, and the noble Baroness, Lady Goldie, kindly wrote to me to explain the new arrangement for control of the National Cyber Force. She said that the National Cyber Force commander
“will report to both Defence and GCHQ. The first Commander of the National Cyber Force is currently a civilian employee of GCHQ. They are not being named as, while National Cyber Force is publicly avowed, it is not public facing.”
There seems to be a distinct lack of a clear chain of command in this response. Perhaps that is not so surprising, since the new force is yet to bring together and blend what were clearly distinct areas of responsibility for two different Secretaries of State.
Nevertheless, a committee-type structure to run or oversee live operations, with all their potential hazards, is a recipe for mismanagement and divided, unclear responsibility. That is not satisfactory. While I recognise that we are at the early stages of setting up this new force, I was and still am concerned about the chain of command and responsibilities of the two Secretaries of State involved. It might at first blush be reasonable to assume that the offensive use employed is directly either a defence or a Security Service action. But if it is not already—very soon in cyber strategy terms—such a distinction will become blurred or non-existent.
While the examples quoted by the Government for offensive cyber action are clear-cut, there could, as capabilities mature, be abilities to disrupt national infrastructures, for example. While the possible targets should and must remain secret, the legal, human rights, ethical and political considerations cannot be ignored. Will the Intelligence and Security Committee be given an overwatch role on offensive cyber force operations? There is surely such a role for Parliament, and this should be clear from the outset.
Lord Anderson of Swansea (Lab)
My Lords, I thank the Minister for his very helpful introduction. This review is long-awaited and good in parts. I welcome in particular the establishment of the counterterrorism operations centre and the National Cyber Force. The review gives a correct analysis of the threat from both Russia and China. Russia is now massing more than 100,000 troops at the borders of Ukraine for what it calls an exercise. China poses the dilemma of how we strike an appropriate balance between competition and co-operation while being true to our values.
However, my first criticism of the review is that, despite it being overseen by a professional historian—the son of the noble Lord, Lord Bew—it lacks a historical perspective. There is no adequate appraisal of our reduced role since 1945 and our limited economic resources, with a clear need now to prioritise more carefully and see where we can add value. In my judgment, the review excessively reflects the personal views of the Prime Minister, who was unable, both in his introduction to the review in the House of Commons and in his foreword to the review itself, even to mention the words “European Union”, as if it were a four-letter word. His foreword ends with a typical nostalgic flourish, with a paragraph entitled,
“British leadership in the world in 2021”.
The Prime Minister’s attitude contrasts with that of the noble Lord, Lord Hague, with his soft Brexit approach. I noted particularly his article in last week’s Times, where he did not show any visceral hostility, but rather a recognition that, post Brexit, we still need a special relationship with our immediate neighbours. The Prime Minister claims a new independence, but this might, in fact, lead us more and more into the slipstream of the US, as we saw in the timing of our exit from Afghanistan.
We need to look more carefully at our strengths and weaknesses. Until recently, before the controversy over the Northern Irish protocol, we could cite our adherence to the rule of law as one of our key values. Now, as the noble Lord, Lord Ricketts, has argued elsewhere, we have lost the high ground in our criticisms of China over Hong Kong. We have a remarkable past, but are no longer in the Premier League, even if we are at the top of the Championship, with legitimate claims to be a soft power superpower.
Before the publication of the review, which was a worthwhile exercise in itself, we had the two changes: the folding of DfID into the FCO and the reduction of overseas aid. Both should have been seen at the same time as the review.
Other reflections include the tilt to the Indo-Pacific—a possible echo of east of Suez. Will it be welcome to the US, or would it prefer us to be closer to the northern Atlantic? A recent poll from the Institute of Southeast Asian Studies showed that only 3.7% of respondents saw the UK as their preferred strategic partner after the US. Will closer links to the Indo-Pacific region compensate for the loss of influence in Europe?
Some of our values, of course, are in the field of soft power, yet there are contradictions, such as the shabby way in which VSO has been treated. We used to pride ourselves on being a bridge between the US and the European Union, and being a gateway for foreign investment into the European Union—no longer. It is claimed that we have lost an empire and are searching for a role. On the basis of this review, we have left the European Union and are still searching for a role.
Lord Truscott (Non-Afl) [V]
My Lords, when, in 1992, Francis Fukuyama heralded the post-Cold War ascendency of western liberal democracy as “the end of history”, he was somewhat premature. Global democracy has looked pretty rocky of late, with the latest example being the coup in Myanmar. The western system of democracy is under attack and being undermined, as the integrated review suggests. A large number of millennials in the US, Europe and the UK are questioning the legitimacy of democracy, just as large numbers of Hong Kongers have fought for it. Around half or slightly less of the world’s population live in a democracy. According to the Economist Intelligence Unit’s measure of democracy, in 2016 the US was demoted from a full democracy to a flawed democracy.
The integrated review is part of our fightback. The rise of China does not mean the inevitable decline of the West and our values. I had the privilege of presenting the European Parliamentary Labour Party’s submission to the 1998 strategic defence review by the then Defence Secretary, now the noble Lord, Lord Robertson of Port Ellen, whom we heard earlier. The current integrated review claims to be the most significant foreign policy and security review since then.
I do not intend to repeat all the points well made by many noble and gallant Lords and experts in the field today. However, I agree that the integrated review lacks focus and a sense of prioritisation. It is, in a sense, too broad and too ambitious. Crucially, it is not at all apparent, even given the boost in defence expenditure, that this will meet the review’s stated aims, some of which appear contradictory.
I welcome the Indo-Pacific tilt as a case in point, as a recognition of the region’s growing economic and geopolitical importance. However, it is not clear how much resource will be allocated to the tilt to make it meaningful. The Indo-Pacific tilt also has implications for NATO, which the review says will remain the foundation of our collective security. Should this not result in NATO itself adapting to the new geopolitical reality of developments in the Indo-Pacific? HMS “Queen Elizabeth” will make its first deployment to the region, and that should be an opportunity for the UK to show its friends and allies in the region, including South Korea, Japan, Taiwan, Australia and New Zealand, that we are committed to free navigation in international waters and stand with them against any threats of aggression.
I must say something about cuts to the Army. Cyber and AI are very important, but they do not enable us to retake Port Stanley on the Falklands. For some operations you still need quite a few boots on the ground. The tooth-to-tail ratio, or combat-spear element, has been in decline since the First World War. That might result in better logistics, support and care, but the reality is that only about 20% to 25% of our troops do the fighting. With a force of 72,500, that leaves at best 18,000 Armed Forces personnel to do the actual front-line fighting on the ground. That is not enough to take and hold a small town.
Finally, the review overstates Russia’s capabilities and underestimates those of China. It has been a major geostrategic error to encourage Moscow and Beijing to seek an ever-closer union. On Russia, the immediate emphasis now should be on all parties implementing the Minsk agreements and standing down their forces on the borders, which I believe, in Russia’s case, has already begun.
Baroness Stroud (Con) [V]
My Lords, I congratulate the Government on the publication of the integrated review and on the repositioning of Britain, as we begin this next chapter in our nation’s history.
I applaud our commitment to facing up to the changing world in which we find ourselves and the determination to emerge match fit to face a more competitive world—but one in which we hold on to our own values of democracy and our way of life, freedom of speech and our commitment to the rule of law and voluntary exchange. I also applaud our commitment that these remain the best model for the social and economic advancement of humankind.
However, the review rightly notes that China’s growing international stature is by far the most significant geopolitical factor in the world today, with major implications for British values and interests and for the structure and shape of the international order. However, we appear to adopt two independently competing positions in our response to China. First, we declare China to be
“the biggest state-based threat to the UK’s economic security.”
However, secondly, we commit to “deeper trade links” and “more Chinese investment” in the UK.
As we witness China’s behaviour in Hong Kong and against the Uighurs, as we observe the breaking of WTO protocols in ongoing trade wars with our closest allies and as we uncover the threat to our intellectual property, we have to ask whether this is a sustainable strategy. If this is a holding strategy, at what point do the Government believe that this balancing act needs to come to an end, and what steps are the Government taking to ensure that we are match fit and not vulnerable if the time comes to change our position? If this is a long-term strategy, what action are the Government taking to protect the UK from the “biggest state-based threat” to our economic security?
I also draw attention to the review’s approach towards the continent of Africa. The review says,
“We will be active in Africa”.
Later, it says:
“We will work in partnership with South Africa, Nigeria, Kenya, Ethiopia and Ghana”.
However, there is then very little more in the review. Africa, as a continent, has huge potential: prosperity in Africa is at its highest ever level, the world’s ten fastest-growing cities are in Africa, and African cities make up 40 of the top 50. Growing these markets will be essential for the development of global economic openness and security initiatives in the region. Could my noble friend the Minister outline our strategy for the development of trade relationships and investment, where appropriate, in Africa?
My final comment is on the development element of the review. I welcome the commitment to supporting emerging nations to become self-sufficient through trade and economic growth, but I ask the Minister to consider a two-fold strategy. Our work on How Nations Succeed found that the most successful examples of development came in nations that took responsibility for driving their own transformation. This presents a raft of opportunities for the UK to devise a new approach to cultivating and supporting the development of prosperity in emerging nations as a new development strategy, which would then allow us to focus our traditional aid budget on crisis response, which is where the British people are so extraordinarily generous in responding.
There is much in this review that is outstanding, but I ask the Minister to consider the circumstances in which we would come off the fence in relation to China, the opportunities that exist for mutual relationships with the nations of the African continent, and a new approach to supporting the long-term development of nations.
Lord West of Spithead (Lab)
My Lords, the review rightly identifies that the risks of unsustainable population growth, pandemics, global warming and unconstrained migration are a backdrop to all the decisions that we are making. Taken in conjunction with harnessing rapidly changing technological advances, such as AI, quantum computing, the use of space, hypersonic missiles, robotics and unmanned combat vehicles, warfare is clearly changing.
The Defence Secretary is right in preparing for future wars, not past battles—but he is being economical with the truth when he calls this the biggest defence investment since the end of the Cold War. Notwithstanding the much-welcomed four-year uplift to defence spending, announced last November, the key driver of this review has been cost. Talk of
“giving us deployable, capable forces, equipped with next-generation capabilities”
is not able to disguise a further reduction in our nation’s overall military capability. Clearly, there needs to be investment in technology—space, cyber et cetera, as I mentioned—but this puts ever more pressure on an already overstretched budget. The plan as presented has a great deal of jam tomorrow but pain today. Should there be conflict in the short term—when you look around the world, you see that there might well be one—we would have to fight with what we have got.
One of the most striking aspects of the integrated review, mentioned by a number of speakers, was the change to UK’s nuclear posture. There are a number of sensible possible rationales for some of the changes but, without doubt, the increase in future holdings of warheads has huge a diplomatic downside. These changes need to be much more clearly explained. Under Putin’s direction, Russia has spent billions modernising its nuclear forces, but of more concern is its development of new, more devastating, nuclear delivery systems—some of them are quite horrifying—ditto China. This nuclear dimension is of greater concern in view of the collapse of international agreements to limit numbers of warheads, types of delivery systems and the complex confidence-building measures that used to be in place to avoid the risks of war by miscalculation. Again, this needs to be resolved and addressed.
The review quite rightly reinforces the commitment to, and importance of, the NATO alliance for UK and European security. France’s President Macron is looking forward to an entirely new transatlantic “security architecture” for the 21st century: his vision is an all-European defensive collective that is armed up and can act independently and ahead of, in his words, a brain-dead NATO. The idea is delusional and highly damaging both to NATO and the security of Europe. President Biden has made sweeping declarations that Europe and the United States must again “trust in one another”, but President Macron’s agenda seems to cross his bows, and our nation needs to be wary of being drawn into this European army defence quagmire.
I am delighted that the Government have recognised the importance of sovereign capability in procurement and its importance for national resilience and indeed the economy. The decision to base our defence and security on a maritime strategy is welcomed and absolutely the right thing to do. As you can imagine, it was music to my ears to hear the Prime Minister say:
“If there is one policy that strengthens the UK in every possible sense, it is building more ships for the Royal Navy”.—[Official Report, Commons, 19/11/20; col. 488.]
A highly capable and resilient globally mobile military will help to prevent a major world war far better than a heavy division deployed on to the continent.
However, one has to face the stark reality that our already embarrassingly small frigate force, as mentioned by the noble and gallant Lord, Lord Boyce, is going to shrink still further over the short to medium term. When will the next five Type 26 frigates be ordered—we have been waiting for ages for them to be ordered—and are we speeding up the delivery programme? The present programme is glacially slow and dramatically adding to the cost.
Lord Polak (Con)
I refer the House to my interests, as laid out in the register, and congratulate my noble friend Lord Godson—he is my friend—on his thoughtful maiden speech. I associate myself with the tributes to Frank Judd. We sat together on the Justice Committee; I am deaf in one ear and he was deaf in both; that is probably why we got on so well. I enjoyed sharing a birthday with him. May his memory be for a blessing.
On page 63, the very welcome review states:
“We will not hesitate to stand up for our values and our interests where they are threatened, or when China acts in breach of existing agreements.”
Before the ink has had time to dry on page 63, our resolve is being tested: when colleagues in this House and the other place are placed on a sanctions list by China, our values and interests are indeed being threatened. I would be very interested to learn from my noble friend the Minister what “not hesitating to stand up for our values” means in practical terms. The Chinese Communist Party’s genocidal policies towards their own citizens—the Uighurs in Xinjiang—are appalling, and, as I have stated over and over again, wringing our hands helps no one, least of all those suffering day after day.
While on the subject of wringing our hands, on 7 December, I spoke to the genocide amendment of the noble Lord, Lord Alton, raising the matter of the five alleged Rwandan genocide perpetrators living freely in Britain. Once again, I call on the Minister to ensure that this matter is dealt with before CHOGM in Rwanda in June. Could the Minister explain the delay? Rwanda is proud to host CHOGM and values its relations with the UK, but the report states:
“We will partner with the African Union on climate and biodiversity, global health security, free trade, crisis management, conflict prevention and mediation, the Women, Peace and Security agenda, and promoting good governance and human rights.”
This is a fine list, but if we talk about good governance and human rights, we should lead by example.
I am, however, sure that my noble friend the Minister will be hearing from the co-chairman of the newly established all-party war crimes group, led by the noble Lord, Lord Mendelsohn, and the right honourable Andrew Mitchell MP, which was set up specifically to remove this stain on Rwanda-UK relations.
The review rightly confirms that our interests and values are closely aligned, talking of
“a world in which democratic societies flourish and fundamental human rights are protected”.
In the light of these fine words, will my noble friend the Minister confirm that the UK will not attend Durban IV? As the right honourable Member for Chipping Barnet, Theresa Villiers, said in the other place, it is the anniversary of the 2001 UN conference against racism, which degenerated into hatred, anti-Semitism and disproportionate criticism of Israel.
The review rightly argues that poor governance and disorder are likely to increase the space for terrorists and extremist groups to operate in the Middle East. The report, however, says little about the intentional and malign efforts of the Iranian Government to sow disorder, enrich uranium, destabilise Governments and sponsor extremists and terrorists throughout the region. The Islamic Revolutionary Guard Corps’ terrorist proxy Hezbollah continues to hold the people of Lebanon hostage as their country faces economic collapse. The IRGC is menacing the Kingdom of Bahrain through arms exports to pro-Iranian militias and is prolonging the tragic war in Yemen through support for the Houthi rebels, who are directly attacking Saudi Arabia.
Does my noble friend the Minister agree with me, therefore, that the UK has an opportunity to play a significant role: to take a lead and bring about a more resilient Middle East by proscribing and therefore marginalising the Iranian revolutionary guard corps?
Lord Wallace of Saltaire (LD)
My Lords, parts of this integrated review read more like a party manifesto than a closely argued analysis of threats and capabilities. We learn a lot about the Prime Minister’s ambitious visions for the future but much less about how they are to be achieved.
Some sections invite satirical comment. Page 64 tells us:
“The UK is the nearest neighbour to the Arctic region.”
That will surprise the Governments of Norway, Iceland, Sweden, Finland, Canada and Russia—unless Boris Johnson is planning to imitate Donald Trump by making a takeover bid for Greenland.
Like others, I was struck by the many contradictions and inconsistencies in the document. It proclaims that Britain is a “soft power superpower” which benefits from the global reputation of the BBC, our world-class universities and the quality of our cultural life. It also underlines and emphasises the importance of integrating domestic and external policies. In domestic politics, however, Ministers are hostile to the BBC and dismiss and condemn university teachers, artists and writers as the core of the despised metropolitan liberal elite. Observers in other countries notice these attacks on such national assets, even if the Prime Minister’s vision is too short-sighted to recognise them.
There is a fundamental contradiction between the assertion of sovereignty as a core value and the representation of the UK as a champion of multilateralism, global order, human rights and international law. The Chinese are right to say that criticism of their treatment of the Uighurs is an invasion of their sovereignty. We defend global values against Chinese sovereignty. The British Empire could both assert its full sovereignty and impose its views on others, but we no longer have an empire and we cannot pretend to be world-leading in all the fields that the Prime Minister fondly imagines that we can. He should talk more about partnership and less about leadership.
The identification of Russia as the most direct threat to British security is undermined by the priority given to the Indo-Pacific. Almost the only reference to the European Union—as has been remarked—states that the UK will
“find new ways of working with it on shared challenges”
but it does not tell us what those new ways might be. Later, it says:
“We will also look for ways to work more closely with European partners, including France and Germany.”
Ministers should not have to look very far: the UK has had a bilateral defence partnership with France since 1998, although Conservative Ministers have done their best not to tell Parliament about it since 2010. Indeed, one Defence Secretary told me directly that he accepted close co-operation with France provided that Parliament knew as little about it as possible.
The claim that the UK will become the European power with the strongest presence in the Indo-Pacific is also an exaggeration: the French are there already with territories, citizens, armed forces and diplomats. In winding up, therefore, will the Minister commit the Government to informing Parliament about the current state of the Franco-British defence partnership and plans for its future development? A review that devotes so much more attention to relations with India than with our nearest continental neighbour—Europe’s other military and global power—is not an entirely serious document.
Baroness D'Souza (CB) [V]
My Lords, the integrated review is both comprehensive and strategic in its foreign policy intentions. The emphasis on recognising the strengths of our allies, and modestly aiming to lead where the UK is best placed to do so, is welcome.
That said, however, there are many potential contradictions and many issues to resolve before the strategy can begin to be implemented and we can begin to know what global Britain will actually look like in years to come. There are difficult issues, not least of which is the fact that we should perhaps be a little careful of being welcomed with open arms by all those nations with which we now seek much closer relations.
The Indo-Pacific pivot is predominantly about economic and security aspects. We all know, however, that democratic nations prosper better than autocratic ones in the longer term, so if economic growth is to be achieved in the Indo-Pacific region it has to be under- pinned by good governance, adherence to the rule of law and common international standards.
What might be the threats to these liberal democratic values, and how might they be limited? Clearly China and its foreign policies and actions represent a major challenge within the Indo-Pacific area. The PRC’s tactics for gaining influence are many and varied, including the belt and road initiative—seen at its most aggressive in the purchase of the Sri Lankan Hambantota deep-harbour seaport, now owned by the PRC—illegal actions in Hong Kong and Taiwan and military threats in the South China Sea.
However, there is as yet no coherent democratic alternative to combat these aggressive developments, and other nations in the region, such as Laos and North Korea, do not even begin to nod towards democratic norms. The UK will need to encourage and establish—urgently, I think—new forums for co-operation, the opportunities for which may well arise during the UK’s leadership of the G7 and the COP 26 meetings this year. A collective of south and east Asian countries, the US, the UK and other European states should agree on measures to strengthen sustainable rules-based order in the Indo-Pacific area, and, in the very near future, provide details of any plans for such informal or formal forums and with which allies they are to be formed.
Meanwhile, the UK should insist that the democratic nations in the region continue to demonstrate their own democratic credentials, such as press freedom, protection of minorities and upholding civil liberties, and the UK should itself closely follow a dual approach, involving equal measures of cautious collaboration with, and severe criticism of, the PRC.
Lord Davies of Brixton (Lab) [V]
My Lords, this has been an interesting and important debate. I just want to make a straightforward point on what appears in section IV of the review, “Strategic Framework”.
Under “Sustaining strategic advantage through science and technology”, the review refers to
“The rapid pace of change in science and technology”
that is
“transforming many aspects of our lives, fundamentally reshaping our economy and our society, and unlocking previously inconceivable improvements in global health, well-being and prosperity.”
So far, so good; soft power is of crucial importance in maintaining our security. However, it then goes on to refer to “systematic competition” between states and claims, somewhat tautologically, that
“countries which establish a leading role in critical and emerging technologies will be at the forefront of global leadership.”
The emphasis on the importance of science, and health in particular, is correct. We know this from the acknowledged success of developing and delivering the Covid-19 vaccine programme, which is so important in our return to anything like a normal life. However, the emphasis on competition in this context is simply wrong. Again, we know this from the vaccine programme, where co-operation between actors, public and private, from many different parts of the world, has been crucial to its success. It is a truly international effort, where co-operation, not competition, has been the foundation.
Unfortunately, this is part and parcel of the Prime Minister’s global Britain rhetoric—just sound and wind, with no substance. When he attributed the vaccine’s success to capitalism and greed, he was wrong. The idea that private ingenuity and naked competition produced the vaccines is a complete fantasy. The infrastructure that produced Covid-19 vaccines was nurtured in publicly funded universities, public institutes and heavily subsidised private labs.
The review itself demonstrates this lack of understanding of how science works. It claims that the UK is already a science and technology power, with references to
“the UK’s successful S&T base.”
It then fails to explore the basis for that success in any detail, because to do so would expose the Government’s mis-steps in this field.
A clear example of this is the Government’s wishful thinking in the box headed “Attracting global talent to the UK”. Having the right ambitions, appointing an office for talent, and relying on a yet-to-be-revealed, points-based immigration system are not enough, in practice, to provide the reassurance that top talent requires. It is not just about Brexit, but that hardly helped.
The Government also fail to provide the money to back up their claims. Having lofty ambitions is of nothing when insufficient resources are provided for our leading research institutions. The recovery from Covid will need research, for example on the mental health effects, in order to offer the better treatments and services that are needed.
In his introduction, the Minister acknowledged the importance of co-operation in the field of science. This is particularly important when it comes to health research. Co-operation is the way forward, not competition.
The Deputy Speaker (Baroness McIntosh of Hudnall) (Lab)
The noble Lords, Lord Sarfraz and Lord Walney, have withdrawn, so I call the next speaker, the noble Baroness, Lady Prashar.
Baroness Prashar (CB) [V]
My Lords, this review marks a step forward in defining the UK’s role in the world against the background of geopolitical shifts. It provides a comprehensive and nuanced framework for developing our road map and increasing our influence as a force for good.
The proposed, so-called Indo-Pacific tilt will inevitably give prominence to trade, defence and security, but to be effective it has to be all-embracing. It should include greater involvement in the region, through actions on climate change, promotion of common values and the rules-based international order, and initiatives, through cultural and educational institutions, to deepen understanding of countries in the region, particularly India, given its strategic salience in the region. While the relationship with India is historic, the time has come to recalibrate the relationship. This relationship should not be seen through an archaic lens but developed through greater knowledge sharing and brought into sync with contemporary realities.
Advancement of free trade, which is seen as the centrepiece of global Britain, will require the mobilisation of all our capabilities, particularly in science and technology, as fully recognised in the review, and all our soft power assets. There is no doubt that we possess a unique set of capabilities and soft power assets, but these need to be mobilised and adapted for the demands and opportunities of our modern world. Our approach has to be based on collaboration and mutuality. Again, the review recognises this, but this will have to be made a reality by ensuring that sufficient resources and capabilities are available in our institutions and government departments. We need to use all our soft power tools with skill and make creative use of new technologies and talent, if our role in the world as a force for good, as envisaged in this review, is to be realised.
We must not undervalue institutions such as the British Council, the BBC and other cultural assets. What they bring to the table should be an integral part of the thinking in developing our strategy and approach. Over the years, these institutions have helped to build trust in the UK. Currently, we are in the lead as far as soft power is concerned, but we retain only a slim lead. France, Germany, China, South Korea and Russia are now spending increasingly more on the promotion of their soft power. We ignore that at our peril.
The other network whose full potential is not sufficiently recognised in this review is the Commonwealth, which provides an effective forum for promoting common values and the flow of trade. To have credible moral authority to espouse the values that underpin liberal democracies, and to be an effective convener, the UK’s reputational resilience at home and abroad is vital to our international influence. Actions must speak louder than words. The review recognises that, in an interconnected, complex and multipolar world, prosperity and security at home is dependent on how we operate on the world stage. The Government’s commitment to restore 0.7% of GNI, and making clear that being a leading donor is central to their values agenda, is a signal in the right direction, but again we need an indication of when this will happen.
Post Brexit, we have started the process of developing a more positive narrative about our place and role in the world. This will require, as many have said this afternoon, setting our priorities, leading by example, shifting the mindset in many of our institutions, having humility in our approach, developing new capabilities and deepening our understanding and knowledge of the changing world—and not ignoring Europe. It will, therefore, be helpful to hear from the Minister what steps will be taken to set priorities, build on our currents strengths and develop new capabilities within government departments and other valuable institutions, which the realisation of this review will require.
Baroness Blackstone (Ind Lab) [V]
My Lords, the decision to produce an integrated review of foreign policy, defence, security and international development was brave, and it is to be welcomed. The UK’s role in the world must encompass all these areas, along with trade and international economic policies. They require a strategic framework under which they can operate in a seamless way without inconsistencies and clashes of objectives.
Unfortunately, the report does not match up to its ambitions and, therefore, should not be seen as more than a work in progress. It requires more refinement as well as more detail about how it can be resourced, particularly in areas such as cybersecurity in a context of rapid technological change. To implement its aim, it will also require sophisticated cross-departmental collaboration. Before it can be deemed to be a proper strategy, a rigorous review about what its priorities are is needed. There is a long list of aims, without assessment of how much importance should be attached to them. The danger of the something-for-everyone approach is that it can lead to a nothing-for-anyone outcome. Further detailed is also needed on the means as well as the ends, and I hope that this will include working with European countries that share our values and are our near neighbours.
Let me move from these general points to two areas where the report either disappoints or is misguided. They are development aid and the ratcheting up of our nuclear capability.
The decision to make a binding commitment in law to spend 0.7% of GNI on development aid reflected our values in wishing to help millions of people around the world out of poverty, as well as our interests to promote economic growth and technological advances in developing countries. This commitment should be seen as a defining element in what it means to be a global leader. It does not come through in the integrated review. Development gets short shrift. Will the Minister tell the House how the Government can drop the legal commitment to 0.7% without parliamentary agreement to amend the law? It simply will not do to reply that it all depends on the fiscal situation and what that allows. The Government will be breaking a law enacted quite recently.
There are many examples of aid programmes that will be decimated by deprioritising development as in the review. Let me just mention a couple. First, over the years, Voluntary Service Overseas has built for the UK a worldwide reputation on the use of volunteers in development aid. If the cuts the Government are threatening are imposed, VSO will have to withdraw from many countries in which it operates.
Secondly, in Yemen, the war has led to a humanitarian disaster in which millions of children are suffering from malnutrition and hundreds of thousands of people face famine. There is the strongest possible need to increase substantially our aid to Yemen, not to cut it by half. Can the Minister indicate why the Government are doing this? Can she at the same time explain how they are integrating continuing support for the Saudi-led coalition in this war with a diplomatic role in the UN in brokering peace and providing aid to the civilian population? That does not look like integration to me.
My final questions relate to the proposal to increase greatly the number of warheads in our nuclear stockpile. Since our financial position is being cited as reason for cutting our aid, how can it allow massive expenditure to increase our nuclear capability? Does the Minister also agree that the timing could hardly be more unfortunate? Later this year, the review conference on the nuclear non-proliferation treaty will take place. What will other countries participating make of the UK’s policies on disarmament—which presumably we are still pressing for—when we are rearming and not disarming? It makes a mockery of any claim to political or global leadership in this area.
Viscount Waverley (CB)
My Lords, I noted the carefully crafted messaging in the integrated review with regard to China. I had it in mind to offer a contribution today that addressed the challenges and opportunities, strategic and otherwise, with that state. However, for reasons that have been well rehearsed in this session, I should delay further consideration to the autumn. Suffice it to say at this stage that I believe the review struck an apt approach.
I do not automatically espouse the theory that the reduction in development aid funds necessarily presents a doomsday scenario. What is required more than anything is a combination of realism and innovation: a new-found approach incorporating zero tariffs and the opportunity to trade with the developed world to the benefit of all; and a phased adjustment in current tax and payments to source, rather than for ever having taxes paid by a corporation where they are tax-resident is worthy of consideration. A Cross-Bench debate next week will provide an opportunity to expand on that theme.
Many noble Lords have rightly referred to science and technology. It is my pleasure therefore to offer the Minister some potential low-hanging fruit. This would normally have been the gift of the noble Lord, Lord Browne of Ladyton, but he has focused our minds elsewhere, so I shall run with the baton.
The Government are not eligible to be a party to the International Science and Technology Center—ISTC—headquartered in Kazakhstan, due to the circumstances of Brexit. Association, however, would bring the benefit of having an oven-ready partner in the arena of non-proliferation in chemical, biological, radiological and nuclear threats, in addition to being a useful mechanism to implement the Government’s defence and security policies overseas. Its DG can add to the storyboard; renewed association would enable the UK to be a party to an existing international organisation for the exercise of non-proliferation and against world hybrid threats. The ISTC had several MoD projects that were being implemented and I understand that funds are still on account.
Countering state nuclear and security threats, in addition to having access to over 100 countries’ facilities, including a worldwide database of institutes and scientists, with their expertise, would be a useful asset to the United Kingdom. It would include access to antimicrobial resistance and disease surveillance, and other endemic medical and related threats, nuclear forensics, biosecurity experience and a useful mechanism to further R&D and S&T co-operation. Multilateral agreements, at the diplomatic level, are in phase for member countries that, when translated, would mean it not being necessary to negotiate separate bilateral agreements when wishing to implement a project in any country. The alternative would be to fund projects that meet our international non-proliferation and security objectives on a case-by-case basis.
The Deputy Speaker (Baroness McIntosh of Hudnall) (Lab)
The noble Lords, Lord Hannan, Lord Berkeley and Lord Desai, have withdrawn, so I call the noble Lord, Lord Bilimoria.
Lord Bilimoria (CB) [V]
My Lords, the integrated review of security, defence, development and foreign policy is an excellent document that covers all aspects of the UK’s place in the world. It went beyond the parameters of a traditional review, which is wonderful news. I welcome my friend—and I will call him my friend—the noble Lord, Lord Godson. It was wonderful to hear his maiden speech, but it is so sad about the noble Lord, Lord Judd, whom we will miss so much. He would definitely have been speaking in this debate.
The review covers geopolitical and economic shifts in particular, China and the challenges of climate change, health risks, illicit finance, serious and organised crime and terrorism, and it requires collective action, so it is spot on. Its emphasis on science and technology is fantastic. It talks about the US being our most important bilateral relationship, and the Five Eyes, to which we are glad to belong. It talks about Europe and says:
“The UK in the world: a European country with global interests”.
It says that we have a unique position among European countries. I always say this: we may have left the European Union, but we will never leave Europe. It is still our largest trading partner by far, accounting for 45% of our trade.
On the tilt to the Indo-Pacific, I am so glad that we are using that term, because we used to use “Asia-Pacific”. Speaking as a person of Indian origin, “Indo-Pacific” is the right term from India’s point of view. We are talking about the importance of that region, which includes countries such as India. The whole Commonwealth makes up less than 10% of our trade, but look at India: bilateral trade with India is worth £24 billion; with Canada, about £20 billion; with Australia, about £20 billion; and yet trade with China is worth £100 billion. The CPTPP, if we joined it, would be worth £110 billion.
The Prime Minister, in going to India, was going to announce an enhanced trade partnership to take trade with India up to £100 billion by 2030 and to make more of the Commonwealth. The Indian-origin people who live in the UK are the living bridge of 1.5 million, which the report talks about. When it comes to India, we need to have a strategic relationship. It is not just about trade and investment, it is about defence and security. India is a member of the Quad with the US, Australia and Japan. We need to be in those sorts of strategic defence relationships with countries such as India. Climate change, health, migration and mobility, education and science and technology are important issues.
Soon India is going to allow British universities to open there. Our high commission and embassy network around the world is very strong. We have one of the best networks in the world. It is a great element of our power. Universities are not specifically mentioned enough in the report, yet our universities are one of our strongest elements of soft power.
The report talks about science and technology. As president of the CBI, one of my priorities is to get businesses and universities working closely together, particularly with regard to science and technology, research and development and innovation. There is no better example than the Oxford AstraZeneca vaccine, a collaboration between a Swedish-British company, Oxford University and AZ, headquartered in Cambridge, in collaboration with the Serum Institute of India, the largest vaccine manufacturer in the world.
I am proud to be an honorary group captain in 601 Squadron of the RAF. It is good to see that the new Space Command, which will be within the RAF, has been announced. I think space will be a hugely important aspect in future and I am glad that it is covered in detail in the review. On the other hand, I am concerned that the Army is going to be cut. We need boots on the ground. There has to be a critical mass. Do the Government agree? I also see that diversity and inclusion are included, which is very important.
To conclude, we are at the top table of the world: NATO and the G7. This is a watershed year as we are hosting the G7 and COP 26, a great opportunity for the country. We are 1% of the world’s population and the second largest recipient of inward investment in the world.
Lastly, the report clearly shows that we have the best combination of hard and soft power of, I think, any country in the world.
Lord Sheikh (Con) [V]
My Lords, I welcome the integrated review and its ambitious vision to make the UK a stronger, safer and more prosperous country. The UK plays a role on the global stage, and I am glad to see that the Government will make tackling climate change and biodiversity loss their number one international priority. As we prepare to host COP 26 in November, that is very important as the climate crisis is one of the biggest threats to international security and stability.
This week, the Government announced that they will put into law the world’s most ambitious climate change target: to reduce emissions by 78% by 2035 compared to 1990 levels. That is commendable, but what plans do they have to make those targets a reality? This year, we have seen the creation of the Foreign, Commonwealth and Development Office, which has integrated diplomacy and development, and we have signed an increasing number of trade agreements. As someone who is actively involved in promoting trade in overseas countries, I can already see the benefits of this.
Greater trade and investment and more openness with other countries will reap many mutual benefits and help to drive prosperity. With that prosperity comes growth that leads to new innovations in technology that will protect people and the planet. Will the Minister tell the House when the Government intend to restore the aid budget to 0.7%, so that we can properly help to drive prosperity across the world?
The UK has unique soft power, which has been incredibly important in building relationships and domestic ties abroad as well as supporting the economy. I have a close connection with, and am a freeman of, the City of London. I know that the City is widely respected and recognised for supporting significant global trade and investment.
We very much appreciate the soft power exercised by the BBC and the British Council. When I travel abroad, I am told that the BBC provides reliable news. In my student days, I stayed for two years in a British Council residence. I am a great supporter of its work, which I have seen in person when I have gone abroad. The British Council helps to promote common values, understanding and knowledge so that different communities can live in harmony with each other.
As well as soft power, the UK has an impressive security and defence framework, which is perhaps one of our greatest strengths. I am very interested in the well-being of our Armed Forces, and I welcome the increase in defence spending to 2.2% of our GDP, which is the biggest increase in defence spending since the end of the Cold War and makes us the second-highest defence spender in NATO.
Lord Alton of Liverpool (CB) [V]
My Lords, the Foreign Secretary, Dominic Raab, rightly says that the UK’s ambition should be to emerge as “a force for good”, while in his introduction to the integrated review, the Prime Minister says that
“liberal democracy and free markets remain the best model for the social and economic advancement of humankind.”
In drawing attention to the all-party groups of which I am an officer and to the current inquiry of the International Relations and Defence Select Committee, on which I serve, I want to drill down into the review’s objective that we will tilt towards the insufficiently defined Indo-Pacific and how we will constrain the Chinese Communist Party.
The integrated review recognises China’s increasing assertiveness as
“the most significant geopolitical factor of the 2020s”
and
“the biggest state-based threat to the UK’s economic security.”
It describes China as a “systemic competitor” and says the UK
“is likely to remain a priority target for such threats”,
including “cyber-attacks, disinformation and proxies.”
Yet, conspicuously, the review does not even mention Taiwan, which recently recorded its largest CCP air incursion yet. Why not? Combined with Russia’s opportunistic sabre-rattling against Ukraine, these challenges by autocracies pose a serious threat to international order. The Foreign Secretary has described the CCP’s industrial scale violations against the Uighurs and we call out China’s violations, including CCP sanctions on parliamentarians exercising their duties and BBC journalists committed to truth telling. We say we will stand up for them and for our values but continue to conduct and increase business.
I ask the Minister directly: is it licit for a signatory to the convention on the crime of genocide to do business as usual with a state credibly accused of genocide? Given what we know about Xinjiang’s concentration camps and slave labour, what changes are we making to our supply chains? What are we doing to make the UK less dependent on China, especially in strategic sectors?
Recent reports by Jo Johnson and Civitas warn of infiltration of UK higher education, intellectual property theft and worse. In its report Inadvertently Arming China?, Civitas says that more than half of the 24 Russell Group universities have worrying links with Chinese military-based institutions, including agencies involved in developing weapons of mass destruction. It says the UK’s response is
“a picture of strategic incoherence.”
We need to do better than that.
The threat to our way of life is symbolised by the treatment of Dr Li Wenliang after he tried to warn the world about Covid and the CCP’s imprisonment of a courageous young lawyer and citizen journalist, Zhang Zhan, tortured for going to Wuhan to expose the truth. It is symbolised by the jailing of Hong Kong’s democrats and the genocide of Uighurs.
In response, the review rightly emphasises and urges a multilateral response and for the UK to aim to be:
“the European partner with the broadest and most integrated presence”.
What can the Minister tell us of the proposed D10 alliance of democracies and President Biden’s suggested summit of democracies? What would the UK’s role be? Might potential allies like Singapore and Vietnam be excluded by too-narrow definitions? Strengthening ties with established Asian democracies, such as Japan, South Korea, and Taiwan, and encouraging emerging democracies, such as Indonesia and Malaysia, and enhancing alliances with long-standing friends such as Singapore and India, will be key.
We must stand with those fighting tyranny in Burma and Hong Kong, and those like Australia who are sanctioned for speaking out. Note that China’s threat that Five Eyes countries should be careful lest their eyes be poked blind—their words—has been followed by New Zealand’s decision to leave Five Eyes. To achieve the review’s laudable aims, we must strengthen our alliances, stand with our friends and see how the frequently suborned multilateral architecture, especially at the United Nations, can be salvaged.
Lord Wei (Con) [V]
My Lords, I am thankful that we can have this crucial debate today and I declare my interests in the register. For some time, it has been clear that we are in the midst of an epochal shift, in which the old certainties of the post-war era are being eroded. In their place come times that are much more volatile and unpredictable, and in which our historical approaches may need to be adapted. I welcome the review and the Government’s determination to give birth to a more agile, inclusive and responsive approach to our national security that recognises new threats and rivalries, and the innovation needed to address them.
I want to focus my remarks on the issue of resilience and the role we can all play to help mitigate some of the shocks on the horizon. There will continue to be shocks, as the review correctly highlights, whether climate-related, a major hack or a drone attack on a major city or installation, or indeed another pandemic—manmade or zoonotic. Covid-19 has shown that it does not require a nuclear arsenal or an army, cyber or non-cyber, to effectively shut down large parts of the British economy and system; you just have to fill our hospitals with patients.
What is being done to tackle situations that, without much initial bloodshed, could bring our economy and society to its knees, through asynchronous attacks? How do we not just build resilience in our major institutions, with the usual contingency plans, resources and responses, but go further to make the structure of our government, society and services nearly pandemic, drone or weather-proof? It seems that a lot of this has to be about how we protect the internet from, for example, future quantum-based attacks, and how we use it in future to go beyond Zoom and video calling to enable our economy and services to function in a more decentralised away. It is also to do with how communities can cope if supply chains are broken or the internet and power supplies are taken down. What guidance will the Government give to civil servants, leaders and the public on how to prepare for such eventualities?
How can innovation and the private sector play a role, enabling more people like Kate Bingham to help reshape our services with the connections and insights they might have to go beyond any groupthink that might linger? Indeed, in healthcare the response so far is admirable, and we must praise those front-line workers who have sacrificed so much—including those in my own extended family here in Britain—to keep us safe. However, tough questions need to be asked about how resilient the NHS and healthcare is in this nation. In the initial wave of Covid, it looks like nearly one-third of patients caught it in hospital. Waiting lists have grown, in some cases to over a year, and death rates have increased for non-Covid-related causes, which may be due to people not accessing or being asked to access diagnosis and treatment.
Will a resilient NHS look to move more diagnosis, scanning and treatment away from hospitals and into the high street and community or even, using the latest technology, into our own homes? Will we continue to rely on a large hospital-based system that creates an easy target for enemies, human or non-human in nature, to bring us down? Will we consider creating perpetual trials to accelerate vaccine and drug development and to accelerate the adoption of new devices ahead of being hit by sudden and chronic health-related challenges, where the system would be overwhelmed and might struggle to respond from a standing start?
What about education or business? How can we ensure those who cannot work online are able to continue to operate on-site in safe ways in future pandemics? Should we encourage people to have both digital and physical work skills, so they can still have a job even if their digital or physical work environment is compromised? What does a resilient foreign policy look like?
Many other areas like these need looking at further. I believe that, in future, the winners may not just be those who are big or well-armed, or who have soft power, but simply those who can survive by being resilient enough to fight another day.
The Earl of Sandwich (CB) [V]
My Lords, anyone who follows developing countries will long remember Frank Judd for his advocacy of poverty reduction and sustainable development. Here, we miss him right now for his eloquence and the determination he would have brought to this debate.
Like the noble Lords, Lord Wei and Lord Bilimoria, I am generally impressed with the spirit of the review and the direction of travel, and even by the impatience with which the Government have raised their flags overseas. I do not go with buzzwords like global Britain, but I welcome their recommitment to the international and the multilateral. I am pleased that the FCDO wants to be a force for good—soft power is here to stay—although without enough visas. There is also a determination to deal with online harms, sexual violence and a range of human rights violations, and we see new approaches to science and technology, with phrases such as “building national resilience”. Some of these are either brave promises, far ahead of reality, or they are things the Government ought to be doing anyway.
All this laundry list, as the noble Lord, Lord Ricketts, dubs it, comes at a more positive time, when the new US leader, Joe Biden, is back with similar aspirations, scrubbing out policies left behind by his predecessor. Climate change, Covid and SDGs are all getting proper attention. Of course, I welcome the recommitment to aid and the sustainable development goals, but the cuts are damaging and unnecessary, and the departmental merger blurs the line further between aid, defence and diplomacy. The Government have ignored their own aid target and the Minister will, I hope, repeat the assurance that the legally binding 0.7% target will return next year. The Minister was rightly besieged with questions about this this morning and I am sure he will look forward to the debate brought by the noble Lord, Lord Alton, on this next week.
On the merger, I focus briefly on the Government’s intention to tighten up the cross-government Conflict, Stability and Security Fund. Was the merger really necessary, if we already had joined-up arrangements for that fund? The FCDO claims that the fund will receive £874 million for 2021-22, but Bond, on behalf of aid agencies, says that the fund has been cut by £363 million and that aid to conflict-affected states could be cut by between 50% and 90%. Could the Minister please confirm these figures? For states such as South Sudan and Yemen, a cut on that scale would be devastating. Could the Government not publish a breakdown of aid cuts by country and sector, so that we can all speak from the same statistics in future?
We are seeing the relaunch of Britain as a trading nation, with rollovers and FDAs signed almost every week. The question arises whether the new official enthusiasm for human rights is being properly translated into trade deals. The answer is that there is a formula of words in the explanatory memorandums and in some of these agreements, but we have yet to see consequent actions anywhere. On China, of course, we have a difficult and at times impenetrable way between sanctions on human rights and the benefits of normal diplomatic and trade relations. Meanwhile, what is happening to the Foreign Office post Brexit? Is it becoming submerged in trade and aid? The letters F and O surely need more attention.
Can we really be global without Europe? Chatham House puts it quite bluntly: the Government’s
“longer-term ambitions for relations with the EU are notably thin”.
We will be living under the shelter of the US again, and our policy towards Ukraine will follow NATO rather than EU initiatives. We may see reconciliation with Iran, but we must, as many have argued this afternoon, continue to work closely with our European neighbours on all these issues, even if we have—blindly, in my view—shut ourselves out of their meeting room.
Lord Lancaster of Kimbolton (Con) [V]
My Lords, I start by declaring my interest both as a member of the Army Reserve and, with specific relevance to this debate, chairman of the Reserve Forces 2030 review. It is a pleasure to be able to contribute to this timely debate and, in particular, to be able to follow the thoughtful contribution from noble Earl, Lord Sandwich, much of which I agreed with.
The announcement of the integrated review has been long anticipated, but from a defence perspective it is worth highlighting that the scene was set last September with the publication of the integrated operating concept, the first in a series of three announcements, with the integrated review the second and culminating most recently in the Command Paper. Taken together, these represent in grand strategic terms the ends, ways and means for defence over the next decade. Together, they set out a new approach as to how we will use our Armed Forces in an era of persistent competition and the rapidly changing nature of warfare. Representing the most significant evolution of UK military thought in several generations, it will lead to a fundamental transformation not only of the UK military, but how we use it.
The integrated operating concept articulates a clear distinction between operating and war-fighting, and reasons that, while ultimately we need a contingent capability for our military to defend the nation and fight a war, our military should also be out and about operating, helping to build alliances and responding to crises as opposed to simply training as a contingent force. The integrated review builds on this approach and makes clear that we must be prepared to be enduring in our commitment and forward deploy our Armed Forces. There is no better example of this being put into action than the recent forward deployment of both HMS “Trent” to be based in Gibraltar and HMS “Montrose” to Bahrain.
These deployments, along with similar commitments from both the Army and Navy, are not just symbolic. During my time as a Defence Minister, the one consistent message that I received from our partners across the globe was that, while the training and support that we offered were viewed as some of the best in the world, we would be there one minute and gone the next. This is why this move to persistent engagement will be central to defence’s ability to contribution to the global Britain agenda.
Shortly, the carrier strike group led by HMS “Queen Elizabeth” will undertake our most ambitious deployment for two decades, encompassing the Mediterranean, Indian Ocean and east Asia. If the vision the integrated review provides is that the security of our nation is where defence meets prosperity meets global influence, then this deployment, and those that will follow, will be flagship events for defence’s contribution to global Britain.
Despite this sequence of announcements, there is still one aspect of the “means” piece of the jig-saw missing, the yet to be published Reserve Forces 2030 review, and it is on this that I would like to focus my remaining comments. The review is important, as it will address many of the concerns expressed by noble Lords about the size of the regular Armed Forces. Building on the success of the Future Reserves 2020 review, which focused on growth and investment in the single service reserves, which has seen the size of the reserve grow over the last 10 years, the terms of reference for the latest review were different.
Rather than looking down and in at the use of reserves by single services, we were tasked with looking up and out. At its heart, the review is about people and skills and how defence, industry, government and wider society can share them. This means looking at how the Reserve Forces can provide capability across government departments, deliver networks into industry and academia and reinforce national resilience and homeland security, as well as renewing and strengthening the link with society in general.
The national experience of the Covid pandemic has demonstrated in no uncertain terms how the nation needs to pull together in times of crisis and how government, Parliament, state institutions, industry and the general public rely on each other. The vision the review describes is of empowered Reserve Forces—
The Deputy Speaker (Baroness McIntosh of Hudnall) (Lab)
We may have lost the end of the noble Lord’s remarks. I call the next speaker, the noble Baroness, Lady Smith of Newnham.
Baroness Smith of Newnham (LD)
My Lords, I am delighted to be able to speak in this debate and, in particular, grateful to the usual channels and the Ministers.
May I move down slightly? The reason I was trying to speak from there was because it is quite useful to be able to see the Minister, and I quite like the idea that the Minister is able to see me. The last two times I tried to speak in the Chamber, because I am so small, where I have been standing I could not be seen. The Table now has five screens and a mobile phone on it. Obviously, if I was standing where I was not audible that is also not desirable. It merely highlights the problem that I want to start with—other than thanking the Ministers—because I want to raise the issue of the hybrid Parliament very briefly.
I thank the Ministers for being willing to have today’s debate. What was happening, before half-term, was whole series of very short statements. In particular, the noble Lord, Lord West of Spithead, pointed out that there were a whole set of very short debates in which we got a minute to speak. So a five-hour debate is very welcome. However, even a five-hour debate meant a time limit of four minutes for Back-Bench speakers. That would be fine, except the rules about presence in the Chamber mean that several noble Lords had signed up to speak and found they were scratched because they had not worked out how to be in the Chamber when there were no seats for them. This debate is going to finish well within the five hours, but we lost 10 people who would have been speaking. It is regrettable that the current situation means that we are not able to debate quite as we would like.
We are in a situation where we have the integrated review and, as the noble Lord, Lord Lancaster, has just pointed out, a whole suite of other defence-related documents that are coming forward. This means that we have the opportunity to discuss a range of issues on more than one occasion.
The main focus of today is intended to be the integrated security, defence and foreign policy review, also including development aid—multiple, different topics, which, as several noble Lords have already pointed out, is not particularly integrated. It is a document that covers a huge range of topics, all very interesting, not necessarily integrated and scarcely strategic. It is noticeable that the former Minister, the noble Baroness, Lady Anelay of St Johns, who currently chairs the International Relations and Defence Committee, on which I had the pleasure of sitting until recently, pointed out some of the defects in this report.
Those were very similar to the defects in the Government’s policy on Africa, which is allegedly a strategy but in fact a whole set of disparate issues. That is very much a problem with the so-called integrated review. It talks a great deal about ambitions; it raises, slightly heuristically, as the noble Lord, Lord Kerr of Kinlochard, pointed out, the Prime Minister’s ambitions. It flags up some of the Government’s ambitions on defence, diplomacy and development, but it does not allow us to go into sufficient deal. There are lots of ambitions, but do the Government really know how they are going to deliver on those ambitions?
We had a statement on defence expenditure, as the noble Lord, Lord West of Spithead, pointed out: a welcome uplift, but for the next four years. Anyone who knows anything about defence procurement knows that four years is not very long for procurement. We have had calls to know when the frigates are going to appear. That is likely to be, as we have already heard, the late 2020s. So an uplift in defence expenditure for four years was welcome, but, as the noble Lord, Lord Hannay, pointed out, it is, to an extent, putting the cart before the horse, because it did not enable us to understand what defence commitments needed to be. In particular, when we heard about an increase in defence expenditure, nobody had any inkling whatsoever that the Government were suddenly going to pull a nuclear rabbit out of a hat and announce that they were going to raise the number of nuclear warheads.
Almost nobody in this debate has spoken in favour of raising the number of nuclear warheads. Only the noble and gallant Lord, Lord Boyce, suggested that this is desirable. He suggested that for us to have a deterrent, it needed to be credible, and that we perhaps need more warheads. But the vast majority of opinion in this debate has been quite different. It has reflected the view of the noble Lord, Lord McDonald of Salford, that there is a very real danger that we will potentially be in breach of international law and our own commitments under the non-proliferation treaty if the Government think of raising the number of nuclear warheads. So I ask the Minister what assessment she, the Secretary of State and anybody in the Ministry of Defence has given to our commitments under the NPT, and whether increasing the number of nuclear warheads is seen to be in breach of Article VI or any other aspect of the NPT.
When I asked the noble Baroness the Leader of the House a similar question when the announcement on nuclear weapons was made, she said that there was no issue in terms of our international obligations. Is that true legally? Beyond that, have the Government thought about what the ramifications are politically? One of the people who spoke most eloquently at the time of the announcement was Tobias Ellwood, chair of the Defence Committee in the other place. He pointed out that if this Government feel that the security conditions are so dangerous and that chemical and biological weapons somehow necessitate a situation where the United Kingdom needs to increase its nuclear capability, why is that not true for China or Russia? Why is it not true for Iran, which may wish to have nuclear weapons? What messages do the Government think the nuclear policy sends?
I think the Minister understands that it is very difficult for the Government to get anything through this House when the view across the Chamber is almost unanimous. She has done sterling service to your Lordships and, I hope, to decision-making on the overseas operations Bill by taking matters such as genocide, war crimes and crimes against humanity back to the Ministry of Defence and the other place, following a sense that we were united. There is a very similar view on nuclear, so please could she take that message back?
Beyond nuclear, money clearly matters in the context of development as well. Many noble Lords have focused on that, including my noble friends Lord Purvis of Tweed, Lord Bruce of Bennachie and Lady Northover, and they are right. There are serious moral issues. If we want to be global Britain and say that we wish to export our values, some of that is surely about what we do with our soft power. Saying that we are going to decimate our bilateral aid, particularly to a country such as Yemen, is completely unacceptable. Have the Government given any thought to the messages they are sending by saying that they will increase defence expenditure—which I welcome as our defence spokesperson—but are cutting aid at the same time? What message do the Government think that sends? Could the Minister tell us when she believes that the 0.5% will go back to 0.7%? I realise that this might be a little contentious within the governing party, but some sense that we will move back to 0.7% next year would be extremely welcome.
Beyond development and defence are the questions of diplomacy. As certain noble Lords pointed out, that seems rather lacking. We need to hear more about diplomacy and soft power generally. The Government talk about the BBC World Service but spend the rest of their time denigrating the BBC, so what is the message?
As we have heard from many noble Lords, this review seems in many ways to be disintegrated, not integrated. It seems to send mixed messages—about our soft power and about the threats, particularly how we deal with China. As my noble friend Lord Alton—and I do call him a friend—pointed out, there are questions about genocide and how we deal with a country such as China. This integrated review, like so many government statements, appears to send mixed messages.
Perhaps trade trumps defence and short-termism trumps long-termism and our values; I very much hope that it does not, but I would be grateful if, in her response, the Minister could tell us what values are most important to this Government. And so that we have a sense of strategy, not a laundry list, could she tell us what the Government’s priorities in this review will be?
Lord Collins of Highbury (Lab)
My Lords, I begin by congratulating the noble Lord, Lord Godson, on his excellent maiden speech, a convention I am also happy to follow. I really do look forward to hearing more of his contributions in these debates, particularly on international matters.
The review is welcome but, for it to be worth the paper it is written on, the Government need to end the contradictions and inconsistencies that have undermined our role on the world stage. In the past year, we have shown ourselves to be a compassionate nation, built on community solidarity and co-operation to bring our country through this pandemic—values that the Government should reflect in their foreign policy.
Being a force for good in the world means always taking a stand against injustices, human rights abuses and suffering, even when it is inconvenient to do so. Here, I also pay tribute to my noble friend Frank Judd. If he had been here today, he would have been making these points most powerfully. He was a man of principle and a good man.
Being a force for good in the world also means putting forward a vision for a more secure and prosperous future, delivering on the UN’s global goals and fulfilling our commitment to the world’s poorest and most vulnerable people. I say to the noble Lord, Lord McDonald: a common strategy does not require a big super-department—certainly, a strategy involving diplomacy, defence and development does not need a big department. Rather, it needs a commitment to work together across Whitehall. In respect of our position of shadow Secretary of State for International Development, one of the many reasons the excellent Preet Gill is in the shadow Cabinet is that she will champion, and is championing, the sustainable development goals—something that I think is missing from our Government at the moment.
One of the issues that has been a theme throughout this debate is the disconnect between the Government’s words and their actions. How can we be the champion of human rights while selling arms to Saudi Arabia, which has contributed to creating the world’s most desperate humanitarian situation? How can we aspire to be a world leader in international development while breaking our legal commitment to 0.7%?
To maintain our enormous influence on the world stage and be a moral force for good, we must be consistent in our approach. That means once again becoming a champion of the rule of law. The UN is almost alone in its popularity as a global institution—this is based on its track record of promising and providing stability and progress. As the noble Lord, Lord Ahmad, said in his introduction, we should take pride in our role as a founder and use our influence to put our principles into practice.
We must also stand unwavering in our support for NATO and strengthen our bond with our closest security allies. As my noble friends Lord Reid and Lord Browne and other noble Lords have made clear, in increasing the number of nuclear warheads the Government are not only undermining the non-proliferation treaty but recklessly out of step with our NATO partners. The Opposition are fully committed to the renewal of Trident to deter the most extreme threats to our national security, but we must also use our position as a nuclear power to support multilateral controls on these weapons.
As the review acknowledges, we will always be strongest when we work in tandem with our closest partners, including on our international obligations, but there is no question that our position as a bridge between Europe and the United States has been put under strain over the past decade. Together, the United Kingdom, the United States and Europe can provide an unrivalled united front for the values that we share. Beyond the US and Europe, we must also deepen our co-operation with other Five Eyes allies and look to emerging powers that share our world view.
This includes some in the Indo-Pacific, particularly fellow democracies, but this will require more than warm words, and the Government’s plans seem rather thin on detail. Do the Government see this as a relationship based on security, regional trade or values? Where are the resources to back up this proposal? Will the Government request partner status at ASEAN? Do they intend to work within existing structures only?
We must strengthen our ties with civil society too, and there is little of substance on this in the review. Women’s organisations, charities, faith groups, trade unions and other organised communities have all demonstrated that their role in geopolitics is indispensable. When nations fail in their most important task of providing safety, security and freedom for their people, it is always civil society that leaps first to their defence.
By breaking legislation and a manifesto commitment to spend 0.7% of GNI on ODA, the aid budget weakens our credibility, as we have heard in this debate. It will strip life-saving support from millions of people. I emphasise that maintaining 0.7% would not have avoided cuts—it would still have resulted in cuts to ODA—but it would have helped to maintain the order of priorities. That is where this review and the Government have got it wrong. When will the Government come to Parliament, present the change to legislation and put it to a vote?
Our commitment to the world’s poorest and most vulnerable also means spending on the right aid projects. That means supporting multipliers, such as nutrition, clean water and education, which have myriad development benefits. Unfortunately, today’s announcement has shown that the Government are cutting these exact schemes.
As we heard in the debate, analysis by Save the Children suggests that spending on education for girls—a government priority—would reduce by 25% compared with 2019-20 levels. The charity also estimated that spending on humanitarian preparedness and response would be cut by 44%. As the noble Lord, Lord Purvis, said, on Tuesday the FCDO Yemen development director told the Commons IDC that the decision to cut foreign aid to Yemen by more than 50% was made without any assessment of the impact on women, those with disabilities or internally displaced people. We have to assume that these cuts are being made with no coherent strategy or clear understanding of their impact.
I am pleased to see that the integrated review confirmed that a development Command Paper will soon be published, but there seems to be no timeline for when this will appear. Can the Minister confirm when the international development paper will be published?
As my noble friend Lord McConnell said, the cuts to ODA will make the world a more unpredictable and insecure place. Notwithstanding the moral and humanitarian case to alleviate poverty, this continued injustice will often manifest itself in national, regional and global threats if not addressed. Inequality can be one of the biggest drivers of insecurity.
Despite the review confirming that Russia poses the greatest threat to our security, the Government still have not fully implemented any of the Russia report’s recommendations. I repeat the question I put to the noble Lord, Lord Ahmad, earlier: can the Minister explain the Government’s failure to implement any of the Russia report’s recommendations? After all, it is 18 months since the report was completed and more than three years since the chemical weapons attack in Salisbury.
The Government’s inconsistency towards Russia must end, and the same can be said for China. The integrated review warns that China
“presents the biggest state-based threat to the UK’s economic security”,
yet the Government have refused a complete audit of our relationship with that state. The noble Baroness and the noble Lord, Lord Ahmad, often speak against the human rights violations in Hong Kong, yet the Government are reopening two UK-China government investment forums that closed when Beijing introduced the national security law. They are being reintroduced when that law is not only still there but being enforced, and people are being put in prison as a consequence of it. It does not make sense.
The Foreign Office sanctions officials for their persecution of the Uighur Muslims, but refuses—as the noble Lord, Lord Alton, said—to back Trade Bill amendments preventing deals with countries suspected of genocide. I hope the Minister will respond to the noble Lord’s specific questions on this point.
I will conclude. If the Government are truly to stand for our values as a nation, their actions must match their words. I repeat what the noble Lord, Lord Kerr, said: we need once again to become a reliable and trusted voice in the world.
The Minister of State, Ministry of Defence (Baroness Goldie) (Con)
My Lords, we have had another fascinating and thought-provoking debate today on the integrated review of security, defence, development and foreign policy. One of the challenges confronting anyone who has to wind up on such a debate is that I am confronted by a fragrant pot-pourri of issues relating to foreign affairs, international development, defence, global relations, global engagement and response to threats. It was a wide-ranging debate. I have a heap of notes here and will try to address some of the major issues that have emerged.
As usual, shining through the debate is the expertise your Lordships have in this area. In my opinion, the House of Lords is quite simply a centre of excellence. This was eloquently recognised by my noble friend Lord Godson in his excellent maiden speech. I thank all noble Lords for their contributions. I am very glad that the noble Baroness, Lady Smith of Newnham, found the debate welcome and that I am visible to her. It has never occurred to me that that was a particularly pleasing prospect to anyone but, none the less, if it affords her pleasure, it is certainly always a pleasure to see her.
I will touch shortly on some of the substantive points that have been made. However, I would first like to return to our starting point and remind colleagues of the context in which this review has been conducted. As the most comprehensive report into our defence and foreign policy since the end of the Cold War, our review paints a compelling picture of the complex, diverse and swiftly changing pace of the threats our nation faces. I welcome the recognition of the significance of the integrated review which my noble friend Lord Howell, among others, articulated. I also welcome the comments made about the review by the noble and gallant Lord, Lord Houghton, and the noble Lords, Lord Robertson and Lord Alderdice, albeit that they had questions to ask. I much appreciated the comments on the integrated review by the noble Lord, Lord Hannay. I think it is recognised, across the Chamber, that this is a significant piece of work.
We are living in an age of systemic competition. As events on the Ukrainian border remind us, we are confronting a resurgent Russia, whose threat to our security goes well beyond the conventional. Contrary to what the critics say—that this is an incoherent or a disintegrated review—it is the very opposite: it is demonstrably integrated. We live in a world where Iran and North Korea continue to destabilise their regions. An increasingly assertive China is modernising and expanding its military. All the while, globalisation and technological proliferation are challenging western security and paving the way for global competition over our trade, values and interests. Gone is the notion that our western scientific edge will always win the day. Today, cheap technology gives our enemies more options. Gone, too, is the idea that our competitors wage war only in open, large-scale conflicts. Instead, our adversaries seek to target our values and undermine our democracy through insidious activity in the grey zone. Instead of a binary state of peace and war, we find ourselves caught in a netherworld of constant competition
However, as my noble friend Lord Ahmad outlined so eloquently, the integrated review presents a bold strategy for British leadership and the domestic renewal that will strengthen our nation at home and abroad. It is a plan to use all the levers of state in unison, with defence playing a vital role. It is a plan not just to protect our people and interests but to invest in science and technology while using our international networks and global footprint to exert influence intelligently to deliver an effective impact.
Coupled with our integrated operating concept and the recent publication of our defence Command Paper, we have signalled the biggest shift in our defence policy for 30 years. Backed up by the Prime Minister’s additional investment of more than £24 billion, defence will now modernise to meet the dangers and deliver a bold vision for the United Kingdom. That vision will see our Armed Forces operating on both sides of the threshold of armed conflict, and see our people forward deployed, persistently present—my noble friend Lord Lancaster rightly emphasised the importance of that—and constantly campaigning to protect and promote the interests and values of the United Kingdom and her allies. The noble Lord, Lord Hannay, is absolutely right about the essential role of allies and partners. That is the only route to aggregate improved global security and collaboration. I am pleased to confirm that the UK’s tangible dynamism is generating global interest. I will now try and pick up on some of the specific and incisive points which have been raised.
The noble Lord Tunnicliffe, kicked off the debate in response to the Minister. I have the greatest affection and respect for him, but today I thought he was rather more of a glass-half-empty rather than a glass-half-full kind of chap. I felt that his reflection was an unjustifiably gloomy perspective. I would just say to him, as the noble and gallant Lord, Lord Boyce, pointed out, that our whole approach is predicated on threat. That is what determines what kind of defence capabilities we need. As I said, we have over £24 billion to reform and reduce our Armed Forces, the defence budget will grow consistently between 2019-22 and 2024-25, and it comfortably exceeds both the 2019 manifesto of a 0.5% increase per year and the NATO commitment of 2% GDP on defence. We are securing jobs, investing in UK industry, buying the next-generation capabilities and research, especially in cyber and space. I would therefore say to the noble Lord, Lord Tunnicliffe, that this is an exciting perspective. That is a defence future brimming with optimism and purpose, and this delivers what we need to meet the threat.
I suspect that the noble Lord, Lord Kerr, was trying to nip at my ankles like a wee Scottie dog. I do not agree that this is the vision of a small gorilla beating its chest. This outlines the vision of a country that reflects a serious global defence contributor.
The noble and gallant Lord, Lord Boyce, like the noble Lord, Lord West, raised the issue of the Royal Navy, which is exceedingly important. As they are both aware, our ambition is to grow to 24 frigates and destroyers in the 2030s on a continuous drumbeat of shipbuilding, strengthening the union and UK prosperity to become the foremost naval power in Europe. They will be aware of the exciting shipbuilding programme now in course.
At times I rather felt that the noble Baroness, Lady Northover, was looking through the rear-view mirror rather than gazing through a clear windscreen. She is absolutely right: of course the EU is important, and we seek a positive partnership with it, both diplomatically and in respect of defence. We are of course the biggest defence spender in Europe and the second largest spender in NATO. Separately from that, we have strong bilateral relationships with various EU countries and we certainly value these engagements. So there is no question that the EU and EU member states matter to us. The security of the EU directly impacts on the security of the United Kingdom and I wish to make clear that we are very conscious of that and will never overlook it.
The noble Baroness, Lady Northover, among others, including my noble friend Lady Anelay of St Johns, my noble friend Lord Balfe, and the noble Lords, Lord Purvis of Tweed and Lord McNicol of West Kilbride, raised the important matter of overseas development assistance. I have to say—I am probably repeating information already known to your Lordships—that we are having to pitch our ODA spend on the back of a UK economy 11.3% smaller than last year and undergoing its worst contraction for 300 years. The deficit this year is projected to be double its peak during the financial crisis. Against that backdrop, we have been forced to prioritise public spending, including temporarily—it is temporary—reducing ODA from 0.7% to 0.5% of GNI. However, we are still spending £10 billion on ODA in 2021 and we will return to 0.7% of GNI as soon as the fiscal situation allows. It may be worth reminding your Lordships that the UK remains a development superpower because, based on OECD data for 2020, the UK will be the third-largest ODA donor in the G7 as a percentage of GNI in 2021, spending a greater percentage of our GNI than the United States, Japan, Canada or Italy.
On girls, I say to the noble Baroness, Lady Armstrong of Hill Top, that this year the FCDO will invest £400 million in girls’ education in over 25 countries. I, too, was conscious of something missing today, which is simply Lord Judd, who was her close friend. He was an indefatigable contributor to our proceedings and it has been clear from the comments made during the debate just how much he is missed.
My noble friend Lady Anelay and the noble Lord, Lord Purvis of Tweed, asked questions about the approach to ODA. The approach marks a strategic shift, because it is putting our aid budget to work alongside our diplomatic network, our science and technology expertise and our economic partnerships in tackling global challenges. That is an important tandem to observe and will make sure that spend is more focused and, I hope, more effective in creating and achieving positive results.
The noble Lords, Lord Purvis and Lord McNicol, and others, raised the matter of Yemen. The UK has pledged at least £87 million of aid to Yemen, making us the fifth largest contributor in 2021-22. That is a floor; it is not a ceiling. The noble Lord, Lord McNicol, asked specifically about the development strategy. As he noted, the Government committed to publish a new international development strategy, building in the priorities set out in the integrated review. The strategy will be published this year.
The matter of Afghanistan was raised specifically by my noble friend Lady Anelay of St Johns. I reassure her that the UK remains committed to supporting Afghanistan on its path to a more peaceful and positive future. We are working closely with the United States and with our NATO allies and partners to support a secure and stable Afghanistan. That is a relationship—and interest—which endures beyond withdrawal. The focus now has to be on the political solution and political progress. That is the next phase of Afghanistan’s development, as the Secretary General of NATO so pertinently pointed out.
The matter of nuclear was raised by a number of your Lordships, including the noble Lord, Lord Reid of Cardowan, my noble friends Lord Howell and Lord King of Bridgwater, the noble Baroness, Lady Smith, and others. A number of issues arose. As a general observation, I would say that a policy of deterrence requires a deterrent which deters. It has to maintain that ability. That is why an increase in warheads was deemed necessary. In relation to the stockpile of warheads, we have consistently stated that we will both keep our nuclear posture under constant review in the light of the international security environment and the actions of potential adversaries. We will maintain the minimum destructive power needed to guarantee that the deterrent remains credible.
The modest 15% change to the nuclear stockpile ceiling and the decision about how we deploy weapons have been taken in the context of a darkening threat picture, and driven by changing judgments on what we need to deliver to achieve the required deterrent effect. So I say to the noble Lord, Lord Browne of Ladyton, that as a Government we need to make these judgments and we do not apologise for doing that. The noble Baroness, Lady Smith, specifically raised the issue of compliance with the non-proliferation treaty. We are fully compliant with the treaty and we are deeply committed to our collective long-term goal of a world without nuclear weapons under the framework of the NPT. That is only achieved by multilateral disarmament, not by weakening the deterrent.
My noble friend Lord King of Bridgwater raised an important issue about communications in these difficult times. We certainly live in a very different environment to what many of us were familiar with some years ago. We take the crisis communications very seriously. We are confident that our nuclear communications infrastructure remains resilient in the current heightened security environment.
In a slightly different context, my noble friend Lord Wei raised vital matters such as defence, security and resilience against new threats of pandemics and disease. How do we respond, and what is our pre-planning? It is a vital issue and reaches across several government departments, so I shall look at his contribution in Hansard and offer to write to him.
A number of your Lordships raise the important issue of climate change in general and COP 26 in particular. The noble Lord, Lord McDonald of Salford, specifically raised this issue and was interested in overseas territories, and the noble Baroness, Lady Bennett of Manor Castle, also raised the matter. I noted her comments, but I would argue that the UK is making major efforts in setting an example and, with COP 26, providing a vitally important forum for discussion later this year in the very attractive city of Glasgow.
My noble friend Lord Sheikh asked about climate change. It will be the UK’s highest international priority for the next decade, including biodiversity loss. This week we committed to set in law the world’s most ambitious climate change target, cutting emissions by 78% by 2035 compared to 1990 levels. As I mentioned a moment ago, the noble Lord, Lord McDonald, was interested in the particular position of the overseas territories. We have been working closely with all overseas territories in the lead-up to COP 26. We regularly meet representatives, and our officials engage with them, from the overseas territories to ensure that their unique perspectives are accurately represented.
A number of noble Lords raised the issue of China. I thought the noble and gallant Lord, Lord Stirrup, gave a fascinating analysis on China. He rightly identified the delicate and difficult balance of maintaining discourse and trade, but calling out wrong, however and whenever it arises. That is certainly the approach we would wish to pursue. The noble and gallant Lord, Lord Houghton, provided a thought-provoking commentary in relation to the United Kingdom articulating a moral authority. That is a profound and wise observation, and the integrated review reflects an aspiration by the UK to demonstrate, articulate and represent our values and principles and be a global leader for positive achievements in that respect.
The noble and gallant Lord, Lord Stirrup, and my noble friend Lady Meyer also asked about our attitude to China. I have to say that we see China’s increasing international assertiveness and scale as potentially the most significant geopolitical shifts in the 2020s, but continued co-operation is vital in tackling the most important international challenges of this generation, from climate change to biodiversity. We will always call out what is wrong. The IR reflects that we need to adapt to a more competitive world; we are clear that China is vital to solving global issues, so we must and will continue to find areas on which to collaborate.
The matter of the Indo-Pacific came up. Specifically, the noble Lord, Lord, Bilimoria, echoed by the noble Viscount, Lord Waverley, and the noble Baroness, Lady D’Souza, had an interest in that issue. I am particularly grateful to the noble Lord, Lord Bilimoria, not just for his positive reception for the integrated review but for his helpful commentary on the language we use when we describe it as the Indo-Pacific tilt. I am pleased that that resonates positively with him. The Indo-Pacific is critical to the UK’s economy, our security and our global ambition to support open societies. By 2030, the Indo-Pacific will represent more than 40% of global GDP. The noble Lord, Lord Collins, asked what the Indo-Pacific tilt means. I would say it is a healthy miscellany of objectives, because it means a commitment to long-term, integrated engagement to ensure that we safeguard UK economic and security interests, and that open societies and values are protected. That requires both a diplomatic and defence endeavour.
My noble friend Lord Risby raised the matter of Russia and how we are responding to Russia. NATO is the enduring guarantee of our security and we work continuously to strengthen alliance capabilities to defend and deter threats emanating from Russia. We will work with NATO allies to ensure a united western response, combining military intelligence and diplomatic efforts. UK forces have a leading role in NATO’s enhanced forward presence in the Baltic states to enhance Euro-Atlantic security, reassure our allies and deter adversaries.
My noble friend Lady Meyer asked about Ukraine. We are unwavering in our support for Ukraine’s sovereignty and territorial integrity, as we have demonstrated through sanctions on Russia since 2014, and we are monitoring the situation closely. Since 2017, our Russia strategy and cross-government Russian unit has brought together the UK’s diplomatic, intelligence and military capability to maximum effect. It is a working example of the key principles of the integrated review.
I think the noble and gallant Lord, Lord Craig, was the only Member to raise specifically the issue of the new structure for the National Cyber Force. I seem to have made a poor effort of reassuring him, so let me try and do slightly better. It is a partnership between Defence and GCHQ and the Defence and Foreign Secretaries have joint political accountability. Official level governance bodies engage the full range of departmental stakeholders in the National Cyber Force’s requirements, delivery and long-term development. The Ministry of Defence is providing the growth funding for the cyber force, so the MoD Permanent Secretary is the principle accounting officer who sits in defence and as part of strategic command. There is a well-integrated awareness of activity and a well-understood programme for activity.
I conclude by focusing specifically on defence issues. Let us be clear: the threats have moved on and we must move with them. The next decade will bring unprecedented levels of investment in defence, with more than £85 billion spent on new equipment and support in the next four years alone. There will be new ships and missiles for the Royal Navy, new fighter aircraft and sensors for the RAF and a more deployed and better protected Army. The threat is global; our reach with our allies and partners is also global. At home, our mission to protect our people and enhance our economy will extend to the very fingertips of the union. Even as we continue to support British industry and security to the tune of billions of pounds, we will keep strengthening our global leadership, shaping the open international order for the better and remaining a force for good in the world.
Above all in defence, we will continue backing our people. They are not just this nation’s finest asset but the best possible ambassadors for global Britain. In the midst of Covid, our brave men and women in the Armed Forces have shown their mettle. We will do more than give them the skills they need to adapt to a new age. We will do more to look after their families. We will do more to reach out to every corner of our country and create a military that truly represents us all. Our reforms will create a bolder force for a bolder Britain; a force both resilient and ready to confront the complex challenges of an era of constant competition.
This has been a fascinating debate. I repeat my appreciation of and gratitude to noble Lords who have contributed. It has been an important opportunity for an exchange of information and views and I thank noble Lords for their participation.
Arrangement of Business
The Deputy Speaker (Lord McNicol of West Kilbride) (Lab)
My Lords, the Hybrid Sitting of the House will now resume. I ask Members to respect social distancing. For the Motion on the Diocesan Boards of Education Measure, the time limit is one hour.
Diocesan Boards of Education Measure
The Lord Bishop of Durham
That this House do direct that, in accordance with the Church of England Assembly (Powers) Act 1919, the Diocesan Boards of Education Measure be presented to Her Majesty for the Royal Assent.
The Lord Bishop of Durham [V]
My Lords, the Diocesan Boards of Education Measure updates and replaces the Diocesan Boards of Education Measure 1991, which provides the legal framework within which the Church of England’s dioceses engage and work with church schools.
Church of England schools are an integral part of our state education system. There are currently over 4,600 Church of England schools attended by some 1 million children. To put this in context, one-quarter of primary schools and over 200 secondary schools are Church of England schools, and some 15 million people alive today went to a Church of England school.
This Measure is necessary to reflect a number of significant changes to the education landscape over the past 30 years. The key changes made by the new Measure before your Lordships’ House reflect the current and anticipated future educational environment in which diocesan boards of education are and will be operating.
First, the new Measure makes suitable provision in relation to academies and multi-academy trusts to reflect the development of the school system since 2010.
Secondly, diocesan boards of education will still be able to be independent charities and, like other such charities, to be either incorporated or unincorporated. However, the new Measure will also enable a diocesan board of education to be a statutory committee of the diocesan board of finance rather than an independent charity. The option to be a statutory committee of the diocesan board of finance regularises the position for a number of dioceses which, as a matter of practice, already have similar arrangements in place which they have found to be a useful governance arrangement.
Thirdly, under the new Measure, each diocesan synod must make a scheme designating a body as the diocesan board of education for the diocese and must send the scheme to the Secretary of State. This simplifies the current system which requires the Secretary of State’s approval. The Department for Education has been consulted and supports this change.
Fourthly, the new Measure makes express provision for joint diocesan boards of education for two or more dioceses. Although we do not yet know how many dioceses will pursue this option, it was considered important that the new Measure provides explicitly for how such joint boards should be set up, structured and, if necessary, unwound, to facilitate more joint boards being set up in future.
The Department for Education and the Charity Commission were consulted on the Measure and the amendments to it, and any points raised have been addressed. The Measure passed with comfortable majorities in the General Synod. The Ecclesiastical Committee of Parliament considered the Measure on 23 February 2021 and has reported that it considers the Measure to be expedient. It has issued a favourable report, which it has laid before the House. I beg to move.
Lord Jones (Lab) [V]
My Lords, I thank the right reverend Prelate for his incisive introduction and acknowledge the quality and helpfulness of the General Synod’s briefing and explanatory notes. I also acknowledge the fine, experienced chairmanship of our committee by the noble and learned Baroness, Lady Butler-Sloss.
One wishes the Measure well. It was interesting to hear from the right reverend Prelate the scale of the Church’s school numbers. I served for some 10 years as chair of a diocesan board of education and lifelong learning. For the board, our bishop was everything; the archdeacon too was always there for us. The small professional staff was vital. One saw first-hand the Church’s gift of schooling to those 19th-century far-flung settlements and communities of the heartland—cefn gwlad. The Church admits the humblest. We pioneered a first: a joint Roman Catholic and Church in Wales high school, which remains a success, in an urban industrial township. One’s education portfolio and three administrations in the 1970s were helpful in all this.
As a diocesan chair, one always paid tribute to lay members. Mostly female, our lay members brought much wisdom, insight, mature judgment and common sense—dedication indeed. With them, it was always a case of “Everything for the child”, for the child’s safety and for their future. There was also a shrewd understanding of the teaching force as well.
The right reverend Prelate might agree that paragraphs 101 and 102 in the comments and explanations on the right to attend and speak are relevant and of importance. The General Synod is illustrative of democracy. In paragraphs 127 and 128, under the heading “Final Approval”, we are given the bald, transparent voting figures for all three Houses. With more than 50 Westminster years’ membership, I appreciate good majorities.
In conclusion, my query to the right reverend Prelate as he delivers this Measure is: will he elaborate a little more on Section 18, which is headed “Guidance”? Here the references to the Archbishops’ Council come across as perhaps somewhat opaque, so could he please elaborate? Might he also say a little more about the right to attend and to speak? That is so relevant and so important.
Baroness Butler-Sloss (CB) [V]
My Lords, I am chair of the Ecclesiastical Committee. As the right reverend Prelate has said, this Measure came before our committee, and we considered it. It was extremely straightforward and, without any delay, we deemed it expedient.
Lord Bhatia (Non-Afl) [V]
My Lords, the comments and explanations document produced by the General Synod’s legislative committee explains that:
“The Diocesan Boards of Education Measure updates and replaces the Diocesan Boards of Education Measure 1991 … which provides the legal framework within which the Church of England’s dioceses engage and work with Church schools.”
Providing further explanation, the committee says:
“The Measure enables DBEs to be a statutory committee of their Diocesan Board of Finance and provides clarification of the existing two options for the constitutional form of DBEs”.
The Church of England has established many schools that have educated tens of thousands of students of all races and faiths. All the schools are charitable entities and are properly monitored by the charities board. I recommend that these schools should continue to operate as they have been set up.
The Lord Bishop of Durham [V]
My Lords, I thank the noble Lords who have spoken. The noble Lord, Lord Jones, asked about the Archbishops’ Council. The Archbishops’ Council is the standing statutory body established by the National Institutions Measure 1998 to co-ordinate the work of the Church of England more broadly, so it is a very suitable body to give guidance. If the noble Lord is content, I will write to him on the rights to attend and speak. I assure him, however, that those rights will continue to be upheld.
I thank the noble and learned Baroness, Lady Butler-Sloss, and indeed the whole Ecclesiastical Committee, for the work that they have done on this Measure and all the work that they do for us on Church of England Measures. I thank the noble and learned Baroness for her chairing—indeed, this measure was expedited very speedily when we presented it to the Ecclesiastical Committee.
I also thank the noble Lord, Lord Bhatia, for his kind comments on the Church of England schools and our role in education. The House may be assured that we are fully committed to maintaining this work and continuing to improve it in every way that we can while seeking to uphold the very highest standards of education in every area that we are responsible for. With my thanks to noble Lords for their comments, I beg to move.
Cathedrals Measure
The Lord Bishop of Durham
That this House do direct that, in accordance with the Church of England Assembly (Powers) Act 1919, the Cathedrals Measure be presented to Her Majesty for the Royal Assent.
The Lord Bishop of Durham [V]
My Lords, I beg to move the second Motion standing in my name on the Order Paper. The Cathedrals Measure provides a new statutory framework for the governance and regulation of 41 Church of England cathedrals and will replace the framework in the Cathedrals Measure 1999.
Our cathedrals are national treasures which it is both a privilege and a responsibility to care for. They play a key role in our national life, with some 10 million adults visiting them each year and around 330,000 children enjoying free educational visits to them. All our cathedrals are involved in work in their local community, and they contribute around £220 million annually to the UK economy, employing some 3,000 people. Above all, however, each cathedral serves its community as the mother church of its area and the seat of a bishop, and remains in use for its original purpose.
Through their presence, worship and varied work, cathedrals reach out to their local and wider communities in many ways. We have seen examples of this in recent days when cathedrals have been local centres of prayer, remembering and thanksgiving. It is, therefore, vital that the legislative framework in which our cathedrals operate facilitates and supports them in functioning in a manner that is fit for purpose in the 21st century.
As noble Lords may recall, a commission was established by the archbishops in the 1990s, chaired by Baroness Howe of Idlicote, whose work laid the foundation for the Cathedrals Measure 1999. However, best practice in charity governance, safeguarding and the heritage sector has moved on considerably since then. In January 2017 the Archbishops’ Council established the Cathedrals Working Group, partly in response to a request from the Bishop of Peterborough following a visitation at Peterborough Cathedral the previous year that had revealed a number of concerns about cathedral governance.
The Cathedrals Working Group was charged with taking a hard look at how the legislation governing cathedrals was operating and what improvements should be made. It was to have a particular focus on financial management, major building projects, safeguarding, accountability, oversight and scrutiny. In its final report in June 2018, the working group set out its recommendations for the future of cathedrals. The most significant of these related to the governance, structure and regulation of cathedrals. The General Synod endorsed the recommendation of the Cathedrals Working Group in July 2018. Legislation was introduced to give effect to the recommendations that involved legislative change. The result is this Measure.
During the progress of the legislation in the General Synod, those responsible for the Measure listened carefully to the cathedral community and consulted with the Charity Commission. A number of significant changes were made to the draft legislation during the synodical process. While the Measure before your Lordships’ House reflects the key recommendations of the Cathedrals Working Group’s report, those recommendations have been implemented in a way that is supported by those in the cathedral community. This is demonstrated by the strong support that the Measure received at final approval, with no General Synod members voting against it.
The principal changes that the measure will bring about are as follows. Cathedrals will be brought within the regulatory jurisdiction of the Charity Commission. Cathedral chapters will have a majority of non-executive members. Cathedrals will no longer be obliged to have a council undertaking certain statutory functions separate from the cathedral chapter. Instead, all trustee functions will be held in the same place and exercised by an expanded chapter. The Charity Commission was consulted on the Measure and on the amendments to it, and any points raised have been addressed. I thank the staff of the Charity Commission for their helpful comments and prompt responses, particularly given the additional pressures on them during the pandemic.
The Measure, like its predecessor, does not apply to the Cathedral Church of Christ in Oxford, because that cathedral is, uniquely, both a cathedral and a college of the University of Oxford. It is also a royal foundation, governed by an entirely different statutory regime in the form of statutes made under the Universities of Oxford and Cambridge Acts 1877 and 1923, and therefore outside the scope of this Measure. Although I am aware that some noble Lords have concerns in relation to Christ Church, I do not intend to comment on these matters, partly because they are outside the scope of the Measure.
I understand that any proceedings relating to the dean under the Clergy Discipline Measure are not technically subject to sub judice rules, but the Companion to the Standing Orders nevertheless states that
“it is recognised that Parliament should not generally intervene in matters where the decision has been delegated to others by Parliament itself.”
These matters are subject to a statutory process under the Clergy Discipline Measure, and I therefore intend to say no more about them.
This Measure is vital to provide cathedrals the governance structures that they need to support effective safeguarding, healthy finances and increased accountability going forward. The Ecclesiastical Committee considered the Measure on 23 February 2021, reported that it considers the Measure to be expedient and has issued a favourable report which it has laid before the House. I beg to move.
Lord Adonis (Lab)
My Lords, this Measure is unsatisfactory because it seeks to improve the governance of England’s cathedrals but, as the right reverend Prelate the Bishop of Durham has just said, it does not apply to the one cathedral whose governance has, for the last two and a half years, totally broken down: Christ Church, Oxford, which is both a cathedral and a college, and forms a substantial part of the University of Oxford. There is still no end in sight to this governance breakdown, and therefore it is essential to draw the situation to the attention of the House. I am glad to see that the right reverend Prelate the Bishop of Oxford is also in his place.
Christ Church is a complex undertaking. The cathedral serves a diocese of 2 million people across the Thames valley and includes a cathedral school. The associated college has 700 students, 70 academic staff and a total staff of 400. It has an endowment of £600 million and an annual income of more than £30 million. It also maintains a leading research library and a public art gallery with a renowned collection of Old Masters.
The chief executive of this hybrid institution is the Dean of Christ Church who, since its foundation by Henry VIII, has had to be a vicar of the Church of England. The problem is that, to all intents and purposes, there is not a dean at the moment, and there has not been for two and a half years, since the relationship broke down between the present dean and the governing body of Christ Church, which comprises both the cathedral canons and the university academic staff of the college.
I do not want to get into the reasons for this breakdown, which, as the right reverend Prelate just said, are the subject of ongoing proceedings, but the key point in terms of governance is that, after two and a half years, legal fees now in excess of £1 million and repeated votes of no confidence by the governing body in the dean, who is not undertaking his functions, there is still no resolution in sight, nor even an indication of who might provide such a resolution. This is because, under the Christ Church Oxford Act 1867, which still applies, while there is a so-called governing body for the management of the college, that body has no role in the appointment of the dean, which lies with the Crown alone, nor does the governing body have power to remove the dean, except in the extreme case of conduct deemed scandalous.
Furthermore, the dean’s appointment is not term-limited, and there is no external body that has the power to resolve the breakdown between the dean and the governing body. Neither the Church of England nor the University of Oxford has any legal powers of intervention, and while the Charity Commission has regulatory oversight, this does not extend to a power to resolve disputes of this kind, unless the commission deems charitable trustees, who in this case are the entire governing body of 70, to be in breach of their charitable trusteeships, which is not an issue here.
We have to hope and, indeed, pray that this paralysis can be resolved quickly and a solution found to the position of the current dean, but once that happens it is essential that there is a radical reform of Christ Church so that this byzantine structure does not continue. I suggest two obvious reforms that should take place before the appointment of a new dean. First, the cathedral and the college should be divided as institutions. Secondly, both should get modern leadership and governance: the cathedral should come under this governance Measure and the college should become a conventional university institution that appoints and supervises its own chief executive. The post should not be restricted, as now, to a vicar of the Church of England, which is deeply inappropriate for a university in the 21st century, as well as contradicting equalities legislation.
Christ Church, Oxford, is one of England’s world-class institutions. Its governance has collapsed and it needs sorting out urgently.
Baroness Harris of Richmond (LD) [V]
My Lords, my interests in this debate are recorded in the report on the Measure, particularly that I am high steward of Ripon Cathedral, which is mentioned in the Measure. I gave notice of my intention to speak when we were in the Ecclesiastical Committee meeting because I want to record my particular displeasure about how the Clergy Discipline Measure, the CDM, operates, and how two priests I know have been treated by the Church. Speaking to this Measure is the only way I can address my concerns and bring them to your Lordships’ attention.
The first case concerns a parish priest who was accused, wrongly and maliciously, of taking money from a parishioner. He was arrested, interrogated and put into a prison cell overnight. This was an absolutely horrendous experience, made worse because he had absolutely no idea what it was all about. He is still recovering from it some two and a half years later. To make matters worse, he was suspended from his ministry, his home was searched and his bank account frozen. He was without funds, unable even to hire a solicitor. It later emerged that personal and private details of his funding were passed between his bishop and archdeacon, the police and something called the core group, which was looking into so-called safeguarding matters in the case. This in itself is outrageous and a breach of data protection guidelines.
My friend’s suspension lasted long after the police decided there was no further action to be taken against him. No charge was ever brought, and by then they were pursuing the real culprits of the fraud. It was many months before he heard what was happening with his case, and in the meantime he was given little or no pastoral support from the diocese, in contravention of its own guidelines. I have given the right reverend Prelate the Bishop of Bristol a full account of this incident, as she expressed a willingness to understand what happened.
The President of Tribunals, who was dealing with a complaint from the archdeacon involving the case, dismissed it entirely in November 2020, noting that there had been serious failures of process and citing particularly the archdeacon but also the “inordinate time” that the diocese safeguarding report took to produce. This seriously damaged the quality and credibility of that report, which I understand contains a large number of significant factual errors.
I have some questions for the right reverend Prelate and would be happy for him to write to me if he feels that is more appropriate. Will this safeguarding report be removed from my friend’s blue file immediately? If it is not, this injustice continues and could affect the rest of his future ministry; he is still quite a young man. What are the core group’s terms of reference? To whom does it report? To whom is it accountable?
The CDM was never enacted in my friend’s case, yet the threat of it has hung over him since March 2020 and has only recently been lifted. It is seriously wanting and needs urgent replacement.
The second case concerns another priest—from the same diocese, as it happens—who has been and continues to be harassed and stalked by someone of whom the Church is well aware, yet it gives no support to the priest. It appears that the diocese has absolutely no policy that protects its clergy from this kind of stalking and obsessive behaviour. The perpetrator posts highly damaging allegations about this priest on the internet, which remain there as the diocese has declined to help. This priest—like any other I know—simply does not have the funds to bring an injunction against the person stalking him, so it goes on.
There must be many other shocking examples of how the Church fails to safeguard its clergy from these people, yet it has spent a lot of money getting in place a safeguarding policy against its clergy. I believe it needs to look again at how it supports its own and, at least in these two cases, quickly remedy its mistakes.
Lord Cormack (Con) [V]
My Lords, I begin with an apology. I have been speaking from within the Chamber for many weeks now, but because King’s Cross station is closed tomorrow and I had to get back to Lincoln, I am here. I thought I would be zooming in on your Lordships. In fact, I am speaking on a telephone because my computer has gone down, so a double apology.
I am tempted to follow the noble Baroness, Lady Harris of Richmond, but will not do so, although the temptation is all the greater because we have recently had our Bishop in Lincoln suspended for 20 months. He is now back, but as an example of natural justice it does not bear close examination.
I want to talk about the Cathedrals Measure. I had a wonderful compensation for not being with your Lordships tonight, because when I went across, as I thought, for evening prayer in our glorious cathedral in Lincoln, we were actually having the first service at evensong in our marvellous St Hugh’s Choir since early March last year and the first lockdown. It was a wonderful spiritual upliftment.
I will of course support this Measure. It has had unanimous support in General Synod, a body on which I served for some 10 years. But I will raise one or two points and would be grateful if the right reverend Prelate the Bishop of Durham would either reply this evening or write to me.
While I accept the logic of cathedrals coming within the jurisdiction of the Charity Commission, it has not had an easy time of late and I want to be completely satisfied that it will be able to cope with this extra workload. It is a matter that I raised on the Ecclesiastical Committee in February, but I remain a bit concerned.
I am also a little concerned about the abolition, after only 20 years, of cathedral councils. I know they had a variable record, but some cathedrals relied on them very much. I would like the reassurance of the right reverend Prelate the Bishop of Durham that cathedrals will be able to have councils or their equivalent if they so choose. I accept, with regret, that they will not be statutory, but hope that, where a functioning council is working well, it will be able to continue, perhaps under another name, if that is the wish of the dean and chapter.
I am also a little concerned about the senior non-executive who will chair the wider chapter in the absence of the dean. I hope that careful rules will be put in place to govern the selection of that extremely important person, who could give great help to the cathedral, but could also be divisive. I say that because we in Lincoln were one of the two reasons—Hereford being the other—for the Cathedrals Measure of 1999, following the investigation of the Howe commission. Lincoln had a bad period during the 1990s and I would not like to see the seeds of discord sown in this Measure. I hope that the right reverend Prelate the Bishop of Durham can make some reassuring comments.
As for delay, it is important that the new Measure comes into force speedily and expeditiously. Many of us will look to it to show that the Church of England can act in a seemly and speedy way, when necessary. The track record at the moment—I referred to the suspension of our bishop here in Lincoln—is not good, and the noble Baroness, Lady Harris, underlined the great deal of concern that there is in the country as a whole over the way in which the Church of England conducts itself.
I rest my case there. I wish the Measure every success and hope that it leads to better governance of our cathedrals. They are the glories of our land, the most important group of historic buildings in the country. They are priceless and must be maintained for future generations. I again apologise for having to address your Lordships’ House over a telephone line.
The Lord Bishop of Oxford
My Lords, it is a great pleasure to speak in this debate, to be here in person and to give my general support to the Cathedrals Measure, in the hope that it will be commended by your Lordships’ House as a significant step forward in improving the governance of our cathedrals.
I will take a few moments of the House’s time to respond to some of the concerns raised by the noble Lord, Lord Adonis, about the dual foundation of Christ Church in Oxford. In doing so, I declare an interest as the Bishop of the Diocese of Oxford, although I am not a member of the college or its governing body.
As has been said, Christ Church is unique as a cathedral and as a royal foundation, with many similarities in its governance and history to the royal foundations of Westminster Abbey and St George’s, Windsor. The monarch, rather than the bishop of the diocese, is the Visitor. For these reasons, it is right that it is exempt from this Cathedrals Measure. It is a matter of deep regret that the situation of Christ Church has remained unresolved for so long. I am grateful to the noble Lord, Lord Adonis, for his restraint in commenting on the details of the situation and I cannot, of course, comment myself, save only to say that the hurt and distress caused to individuals is very significant.
While the situation has continued for almost three years, which is regrettable, there have been a number of different issues such that this is not a single dispute. Throughout that period, there has been good liaison between the Church of England, Christ Church, the University of Oxford and the Charity Commission. Each party has been active in different ways in seeking to bring a resolution. I believe that the description by the noble Lord, Lord Adonis, of the governance arrangements is accurate except that the governing body now has some role in approving the appointment of the dean, but I will write to him on that subject to confirm. All of these parties and the governing body are agreed—and have been agreed for some time—that there must, indeed, be a comprehensive review of governance once a resolution has been reached. The proposals put by the noble Lord, Lord Adonis, though interesting and relevant to that debate and process, although it is likely, of course, that the different parties will argue for quite distinct reforms.
On 25 June last year, the Charity Commission issued a notice requiring the parties to the dispute in Christ Church to enter into a mediation process. We await the outcome of that process. The commission also requested that all parties refrain from public or private commentary while the mediation process takes place.
I am able to confirm that the excellent work of both college and cathedral has continued through this difficult period and through the demands of this Covid pandemic. In the cathedral, that is evidenced in the development of streamed worship services, much appreciated and widely taken up across the country and the world as well as the diocese, and in a new development with a school in east Oxford. I pay tribute to all within the foundation for working so very hard to focus on the mission of the charity: the advancement of religion, education and learning through the cathedral and the college.
Christ Church is a unique institution, with a long and distinguished history in one of the great cultural crossroads of the world. I would be very glad to continue conversations with the noble Lord, Lord Adonis, and with other Members of your Lordships’ House during this difficult period in its life. I support the Measure before us.
Lord Wilson of Dinton (CB) [V]
My Lords, I will contribute briefly to this debate in a positive spirit, very much in support of the Measure. First, I declare my own interest: I am chair of the council of Ely Cathedral, one of the bodies which, under Clause 2(3) of the Measure, is to cease to exist. This cancellation sounds rather dramatic, but I do not object to it in the least; I think it is the right thing to do.
When I was honoured by the invitation from the right reverend Prelate the Bishop of Ely to be a chair of the council five years ago, I must confess that I was not absolutely sure what the council did. Five years later, I am still not absolutely sure what the council is formally there for. Honestly, that is no reflection on the Bishop or the dean: they are both great men who do lovely jobs. It is not a reflection on my fellow members, who are very involved and active and are a source of support, loyalty and activity for the cathedral, which is excellent, and I pay tribute to them. It is not the fault of the chapter or of anyone in Ely; it is the fault of the 1999 Cathedrals Measure.
Although Baroness Howe wrote a report, I do not believe that the 1999 Measure actually implemented what that report recommended. The concept of the council, as it emerged in 1999, was a bit of a fudge—I should not say that. The result is that you now have bodies that may be useful because of the sort of people that you have on them—they are determined to be useful. However, they are in a position of responsibility without power, which is very uncomfortable and potentially dangerous, if something is going wrong and they can see that but cannot do anything about it—that is not satisfactory.
As such, I note the consultations leading up to this, which began in 2017—I was involved in them. I was a bit pessimistic about this exercise: I thought that there were too many divided views, too many strong differing opinions and too many cathedrals that were too different from one another. They were like colleges: particular creatures of their own kind.
I am delighted and impressed by this Measure; it is a remarkable achievement, which has been achieved by a lot of people. It has very clear structures for cathedrals, separating governance and management in a very clear-minded way—it will be a big improvement. It makes a good step forward in relation to the role of the Charity Commission, which has a lot of work to do—but it has already done a lot of work and found the resources to do it. That is my impression; I am not close to it. Having it alongside the Church Commissioners is a very positive step. Ensuring the central importance of safeguarding is important. This is a very sound basis for our great, glorious cathedrals to go ahead. A lot of hard work has gone into it, and we ought to pause for one moment to say “Well done” to the legal draftsmen, the steering committee and the synod, which were coaxed into doing it, as well as so many other people who have contributed to this.
From the noble Lord, Lord Adonis, and others, we have heard some really nasty-sounding cases, and I will not comment on them, beyond one thing. Having been master of a college for 10 years and having seen things go wrong in other colleges and other parts of life, I know that, sometimes, in small communities that are too cut off from the rest of the world, toxins build up, poisons intensify and things go badly wrong. It is very hard to stop this and put them right once they have gone beyond a certain point, and I have great sympathy with the Church authorities in trying to sort these cases out.
The solution is to open the windows, to have outsiders in there and to blow away the toxins before they become too intense and multiply too much. In implementing this wise new Measure, it is important for cathedrals to have the windows open, to involve outsiders and to use their power to set up not formal councils as part of their corporate entity but councils that support them if they want to do that—or to set up whatever advisory or other bodies that they want. Of course, they should do that and bring in outsiders who have a role to play. However, they should not have that as their central muddled governance.
This is a big Measure that will improve the basis of the cathedrals. We should pause for a moment to have a quiet celebration of it.
Baroness Sherlock (Lab) [V]
My Lords, I am delighted to follow that contribution. I begin by declaring an interest as a Church of England priest and, more importantly, I was a member of the Cathedrals Working Group whose work led to the Measure before us.
The group was established because the episcopal visitation at Peterborough Cathedral, and that at Exeter before it, raised some important questions about the way cathedrals are governed. We first gathered 25 years after the Howe commission had been established in response to problems at two other cathedrals: Hereford and Lincoln. Our Cathedrals Working Group was altogether a more modest enterprise in terms of scope, time and resources, but we had an important job. In the last 25 years, best practice has changed a lot, and the Measure needs updating. I will not go through the proposals in detail, as they have been scrutinised carefully by synod and, even more dauntingly, the Ecclesiastical Committee.
The Measure enacts two major changes that we recommended. The first was a reorganisation to create specifically a separation of governance and management, as recognised by the noble Lord, Lord Wilson of Dinton. The idea is that the cathedral governing body remains a chapter chaired by the dean, but now with a majority of non-executive members. We proposed removing cathedral councils from the governance system for clarity, but a way forward has now been found so that councils can continue to operate but without cutting across clear governance lines, which is crucial. I know that councils are greatly valued by their deans and chapters as they bring a wealth of wisdom and expertise, often supplied by Members of this House, such as the noble Lords, Lord Wilson and Lord Cormack. This way the councils can carry on offering crucial advice and support without the constraints and liabilities that are brought with formal trusteeship.
The second big change was the registration of cathedrals with the Charity Commission by bringing them under the Charities Act. It has been observed that cathedrals are the only church bodies which do not report to a secular as well as an ecclesiastical authority, even though they are the institutions, in some ways, most obviously camped on the boundary between Church and state. The noble Lord, Lord Cormack, was not alone in asking how well placed and resourced the Charity Commission is for this task, but I think that most concerns have now been alleviated, chiefly due to the sterling work of the Third Church Estates Commissioner. The Church Commissioners are now providing money, expertise and assistance to support cathedrals to make sure that their governance, safeguarding and any oversight arrangements are all up to par even before the Charity Commission registration process begins.
The working group made a series of other recommendations about leadership and management, finance and buildings, audit and risk and, crucially, safeguarding—proposing bringing cathedrals into the whole-Church approach led by the CofE national safeguarding team. I have been hugely impressed at the willingness of the Church to accept and act on our recommendations. Having all your recommendations accepted is a rather novel experience for anyone serving on any working group, never mind a Church one, so those involved in receiving and implementing the report should be very much congratulated.
Inevitably, not everyone liked every recommendation. I know that concerns have been raised by some members of the Ecclesiastical Committee, whose deliberations I have followed with interest. But I think the need for most recommendations has been understood. All cathedrals need appropriate financial, operational and managerial controls, and, of course, there can be no compromise on the need for good, effective, modern safeguarding policies and procedures.
I have a few questions for the record. Can the right reverend Prelate the Bishop of Durham confirm that all the recommendations of the Cathedrals Working Group have been accepted by the Church? Are all the recommendations which require legislative change included in the Measure before the House this evening? Is there a plan to implement the non-legislative recommendations? More specifically, if in the wake of IICSA the Church moves to create an independent body to oversee its safeguarding practices, would that cover cathedrals too?
Since this marks the end of a long process, I would like to record some thanks, if the House will indulge me. Thanks are due to the chair of the Cathedrals Working Group, Bishop Adrian Newman, the vice-chair —now the right reverend Prelate the Bishop of Bristol—and the other members; Jacqui Phillips and her team, who provided such an excellent secretariat; Alex McGregor and colleagues in the legal office of the CofE, who kept us on the right side of the law with tact and precision; the Third Church Estates Commissioner, Eve Poole, for marvellous work; the CofE legal adviser, Eva Abeles; and all those who have worked so hard to advance these reforms.
In closing, the working group was full of people like me who love cathedrals. Indeed, our report describes them as
“spectacular and wonderful expressions of the mission of God in His world.”
So many of them are among the pinnacles of our architectural and cultural heritage. They are at the heart of their communities, hosting wonderful worship but also everything from graduations to art installations and now vaccination centres.
Cathedrals, like many city centre churches, are also where people go to take the things that they do not know what to do with: often pain or grief or loss or fear—things we have had so much of in the last year. We shall need our cathedrals more than ever in the years ahead, as we move, we hope, out of a pandemic into a place of recovery and healing. Because they hold such a unique place in the heart of our nation, it is crucial that cathedrals are, and are seen to be, well managed and safely governed. These reforms are born out of a desire to ensure that our cathedrals will be around and thriving well into the future.
If we end up with another cathedrals commission in another 25 years, I trust that at least then it will not be down to failures of governance, safeguarding or oversight. I commend this Measure to the House.
Baroness Butler-Sloss (CB) [V]
My Lords, I was chairman of the first advisory council of St Paul’s. I thought it worked very well, and I worked very closely with the then dean. I was also the chairman of a visitation to Exeter Cathedral. As I have already said this evening, I am chair of the Ecclesiastical Committee.
Members of the Ecclesiastical Committee had the opportunity, individually, to look at earlier drafts of this Measure. There were some concerns and we —individual members, not the committee itself—have had the most useful discussions with both the Charity Commission, particularly the chairman, whom I thank very much, and the Third Church Estates Commissioner, who spoke to me in particular and has done an absolutely brilliant job, for which I commend her. The draft that passed through synod came to us as the Measure at the Ecclesiastical Committee. A number of members of the committee, including two who have spoken this evening, were potentially going to be very critical, but the Measure, if I may say so personally, is excellent. It was very carefully scrutinised over quite a long time by the Ecclesiastical Committee. We were helped enormously by the advice and evidence of the Church of England, and we had no difficulty whatever, at the end, in deeming unanimously that the Measure was expedient. Consequently, with great pleasure, I commend it to the House.
I would add only one more thing. Speaking entirely personally, and not as chairman of the Ecclesiastical Committee, I remain extremely concerned about clergy discipline legislation. I know that a lot of discussion is going on and a number of reports have been written. I hope the Church of England will get together to look very seriously at updating what is, at the moment, a very inadequate system. From what the noble Baroness, Lady Harris of Richmond, has said, it requires urgent reform. I commend this Measure to the House.
The Lord Bishop of Durham [V]
My Lords, I begin by thanking all noble Lords and noble Baronesses who have taken part in the debate for all their comments. Perhaps I should have begun by explaining that my absence from presenting this in person is for exactly the same reason as that of the noble Lord, Lord Cormack: I would have been stuck in London because there are no trains out of King’s Cross from tomorrow morning until Monday morning. I am very grateful that the right reverend Prelate the Bishop of Oxford is there.
I hope that the noble Lord, Lord Adonis, feels that the right reverend Prelate the Bishop of Oxford addressed most of his points. The right reverend Prelate has also undertaken to write. If there is anything further that the noble Lord would like to pursue, I suggest that it is probably most appropriate to do it with the right reverend Prelate the Bishop of Oxford, rather than me as the one presenting this. We clearly all agree that radical reform is essential once the current situation has moved forward.
I thank the noble Baroness, Lady Harris, for saying that she would be happy for me to write. I think it is the most appropriate way of responding to the detailed comments she made about those specific things. I undertake to write to her. I note and put on the record about safeguarding work around core groups that revision work is being undertaken at present on how the groups are constituted and how they work. That particular point is currently being addressed.
I thank the noble Lord, Lord Cormack, for his comments and his support of the Measure. It was very good to hear that Lincoln Cathedral worship is still being done so well. I would never have doubted that. On his question about the Charity Commission, yes, it will be able to cope. As the noble and learned Baroness, Lady Butler-Sloss, noted, work has been done on that. The Charity Commission is very happy that the Church Commissioners have offered some support. There is to be a memorandum of understanding between the Charity Commission and the Church Commissioners to support the co-regulation of cathedrals. It is in the process of being agreed. The heads of terms of this MoU were approved by both the Charity Commission board and the Church Commissioners’ board of governors in September 2020. The detailed MoU is now in the process of being drawn up. In addition, the Charity Commission and the Church Commissioners are expected to approve a registration protocol later this month to set out how they work in tandem to support and facilitate the cathedrals adopting new constitutions and statutes and applying to the Charity Commission for registration over the next three years.
With regard to church councils, I thank the noble Lord, Lord Wilson, for his sterling explanation of why he believes the changes are so supportive. I hope that that acted as a good response to the noble Lord, Lord Cormack. I note that cathedrals will be able to appoint an advisory body. The great advantage of that is that it will avoid the confusion that the noble Lord, Lord Wilson, pointed to around governance and management. It also means that the advisory council can be made up of key stakeholders and have functions conferred on it by the chapter, which could include non-statutory functions currently undertaken by many councils, including being the critical friend and source of advice to the chapter. The details as to the composition, functions and proceedings of any such body, including accounts, would be set out in the cathedral statutes. This means that the role of an advisory council can be tailored to meet local needs and reflect the circumstances of the cathedral that it serves. With regard to the senior non-exec, the bishop does make this appointment but must do so after conversation and consultation with the chapter, so that it is a collaborative approach.
As to speed of implementation, I happen to know that some cathedrals are chafing and are ready to roll as soon as this has Royal Assent. Indeed, the legal advisers told me earlier today that there was more concern that they were running ahead of it having consent, rather than them being slow to implement.
I thank the noble Baroness, Lady Sherlock, for her part on the Cathedrals Working Group. For the record, I am the noble Baroness’s bishop. She is not just a priest in the Church of England, she is a priest in my own diocese. To answer her questions: were all the recommendations of the Cathedrals Working Group accepted? The Archbishops’ Council commissioned the Cathedrals Working Group and asked the synod to set it up. All the recommendations in the report were accepted by the synod but because the Measure itself was subsequently amended by the synod, the way in which some of the recommendations have been implemented are not quite as they are set out in the report. An example would be that the senior vice-chair became the senior non-executive member but, in essence, yes, they have been.
Are all the recommendations which require legislative change included in the Measure before the House? Not quite—a small number need to be implemented by amending the Ecclesiastical Offices (Terms of Service) Regulations 2009 and so could not be implemented through this Measure. These recommendations are fairly minor and relate to the terms of service of residentiary canons.
It had been intended to bring amending regulations to the General Synod in July 2020, to tee up the changes to the regulations, with final approval coming later. However, due to the lockdown and its impact on the life of the General Synod, that has been slowed down. The amending regulations will now be brought before General Synod for consideration in July 2021. If approved by the General Synod, those amending regulations are expected to come into force for each cathedral on the date certified for the adoption of its new constitution and statutes under the new Measure. Therefore, the delay to the amending regulations being considered by synod will have no practical implications, as no cathedral will have adopted its new constitution and statutes before this summer anyway.
The noble Baroness, Lady Sherlock, asked about the plan to implement the non-legislative recommendations. They are being and will continue to be implemented through new guidance and template policies and training to support the new governance structures.
On the question about the Church moving to create an independent body to oversee its safeguarding practices in the wake of IICSA and whether this will cover the cathedral sector too—yes, absolutely. It is expected that any independent body which oversees safeguarding across the national Church will provide this function to cathedrals. Indeed, the first steps towards the creation of an independent body are now well under way on an interim basis, ahead of a longer-term, full-scale, independent set-up.
I hope that, except where I have undertaken to write, I have responded to all the questions raised by noble Lords. I thank them all for the enthusiastic support given to the Measure. I undertake that concerns raised around the Clergy Discipline Measure and so on are well heeded. At the July synod, the equivalent of a White Paper will be presented on what future changes might be required. Then, assuming that is taken note of, we will move ahead to necessary reforms to the CDM. I note in passing, as one who has to enact the CDM—and, indeed, has been subject to it—that in most cases it works quite effectively. The difficulty is that on some specific issues, often related to safeguarding, all of us concerned recognise that reform is essential. One of the key things there is the rights and the protections of clergy themselves when they face false accusations and difficulties.
With all that, and with thanks again for the support for this Cathedrals Measure, I commend it to your Lordships’ House.