22:15 - Division on Amendment 8 - Ayes: 81 / Noes: 107 - Amendment 8 disagreed.
Baroness Jones of Whitchurch (Lab)
My Lords, I am speaking to Amendment 7 in my name, and to support Amendments 5, 6 and 9. We had an extensive debate in Committee on the Government’s new clause setting out the need for species abundance targets, and many of the arguments have been reiterated today. It followed the excellent work of my colleagues in the Commons, who set out proposals for setting out and meeting a state-of-nature target, which we still believe is a clearer and less ambiguous concept than species abundance.
The flaws in the Government’s new clause were clear for all to see when it was published—in particular, the lack of determination to meet the new target and instead only a requirement to
“further the objective of halting a decline in the abundance of species.”
It also remained unclear which species would be covered by the target and whether they would be given equal weight. The noble Lord, Lord Krebs, quite rightly raised those questions today, as well as asking about the baseline, metrics and monitoring. Those questions still remain to be answered, and I am sure the Minister will address them.
However, since the debate, we have been grateful to Ministers for meeting with us and discussing whether the commitment in the Bill could be tightened up. We are obviously pleased that the Government have now tabled a further amendment to the Bill, making it clear that they now commit to halting species decline by 2030. But unlike the noble Baroness, Lady Parminter, I regard this as only a partial success. I very much thank my noble friend Lady Young, the noble Lords, Lord Cameron and Lord Krebs, and the noble Baroness, Lady Bennett, for sticking with me on Amendment 7 and continuing to support it. The government amendment is a far cry from the action that is really needed and from the Government’s promises on this issue.
I will not rehearse it all again but, in Committee, we heard about the Secretary of State’s Delamere Forest speech, in which he made it clear that this is about not just halting the decline of nature but stemming the tide of the loss and turning it around. We know that the G7 communiqué states
“our strong determination to halt and reverse biodiversity loss by 2030”.
So my question for the Minister is this: if not in this Bill, when will we see the actions necessary not just to halt the decline in species but to begin to reverse it? Surely our credibility at COP 26 will rest not just on the pledges and promises of our leaders but on their determination to make the commitment a reality. This is why we tabled Amendment 7, which would make it clear that the objective is to halt, and then begin to reverse, the decline.
In Committee, the concept of bending the curve was raised several times; it has been repeated again this evening. This is what our amendment seeks to address. Regretfully, we are still on a downward spiral of biodiversity decline. We cannot halt the decline overnight, but we can begin to slow and reverse that trend so that the curve begins to go in a positive direction by 2030. Indeed, the Minister confirmed in his response at the time that
“We are on a downward trajectory both here and elsewhere in the world. That is why our challenge and our objective is to bend that curve.”—[Official Report, 23/6/21; col. 339.]
That is what our Amendment 7 will deliver, with nine years to halt and begin to reverse that downward trajectory. The alternative, as the noble Baroness, Lady Bennett, said, would be a state of nature destined to be much worse than it is now, with no way back. This is why we think that our amendment is simple and modest, and why it is the logic of everything that the Minister has argued up to now.
Nevertheless, we accept that the Government have listened on this issue. As I said, we welcome their Amendment 6 in the spirit of compromise, because I know that it was not an easy decision. We all know that the target to halt the decline of species abundance, although vital, is a stretched target and will not be easily reached. We pledge to do everything that we can to support the Government in delivering this commitment and begin the reversal of the decline, so we will not put our amendment to a vote. But we sincerely hope that such a reversal is the ultimate outcome of the pledge that the Minister has given today.
I want briefly to say something in support of my noble friend Lady Young’s Amendment 9. As ever, she set out the arguments with huge authority and clarity, and I will not attempt to compete with her. She rightly made the point that species recovery and habitat protection should go hand in hand. Individual species need suitable habitats to thrive. What we need are equivalent targets for habitats, also to be delivered by 2030, which would contribute to a positive state of nature by then. Whether it is hectares in the national site network or sites of special scientific interest, we need stronger measures to enhance and preserve them. I hope that, in his response, the Minister will be able to assure my noble friend that this is the Government’s intention and that these two strands of nature recovery will work in parallel and to the same timeframe.
On that basis, I look forward to the Minister’s response.
The Minister of State, Department for the Environment, Food and Rural Affairs and Foreign, Commonwealth and Development Office (Lord Goldsmith of Richmond Park) (Con)
Again, I thank all noble Lords for their contributions to this debate. It is clear, as it was in previous debates, that there is strong support from all sides of the House for restoration of our precious species and the habitats they call home.
Government Amendment 6 is relatively straight- forward. It requires the Secretary of State, when setting the species abundance target, to be satisfied that meeting the target would halt a decline in the abundance of species. The amendment puts beyond any doubt the Government’s existing commitment to nature. It is a credit to the tireless campaigning of noble Lords across the House, notably my noble friend Lord Randall of Uxbridge—who texted me rather too many times on the issue—the noble Lord, Lord Krebs, the noble Baronesses, Lady Jones of Whitchurch, Lady Hayman and Lady Parminter, whom I thank for her very kind words, as well as numerous green groups, such as Greener UK, the RSPB, Wildlife and Countryside Link and Wildlife Trusts, and over 200,000 members of the public who signed a petition on this issue. I am extremely grateful to them all for applying the pressure they did.
We are leading the way internationally in requiring a target like this to be put into legislation, and I hope that your Lordships are as delighted as I am that we are breaking new ground. I hope this will encourage international partners to make similarly ambitious commitments. The ambition for this target is in line with the previous commitments made by the Prime Minister at the G7 summit, in the G7 nature compact and in the Leaders’ Pledge for Nature, which the UK was very much involved in drafting.
The target is particularly important because it will strengthen our hand as we encourage other countries to make similarly ambitious commitments during the 15th Conference of the Parties for the CBD—the Convention on Biological Diversity—in spring 2022. Only with a global and truly collaborative approach will we be able to turn the tide on the global loss of nature.
I again thank noble Lords and all the various campaign groups who worked so tirelessly on this hugely important issue. I thank my noble friend Lord Randall for indicating his intention to withdraw his amendment and the noble Baroness, Lady Jones, for indicating that she will not press hers.
To answer some of the points raised by the noble Lord, Lord Krebs, nature has been in decline for decades, as he observed, and halting the decline of species in the timeframe we have—by 2030—will be a major challenge. Through the target we are committing ourselves to an undoubtedly ambitious objective, and we are leading the way internationally in doing so. But we are working now with scientific experts to try to model species outcomes—this also addresses some of the points made by my noble friend Lord Caithness—so that we can set a target that is evidence based and so that the Government understand what has to be done in order to deliver it. We do not have all the answers now; those answers will have to emerge as a consequence of that process. We will also need to ensure that the metric used to evaluate the success of this target is based on the best available data, that we have high confidence that it will continue to be collected, and that trends will be clearly identified over time.
In answer to the noble Lord’s question about who will hold the Government to account, that will be the OEP. It will hold the Government to account on progress towards the targets, and every year it will be able to recommend how we can make better progress towards meeting those targets. The Government, as ever, will have to respond.
The noble Baroness, Lady Bennett, talked about shifting baselines. This is a well-documented phenomenon for land but also particularly in relation to ocean abundance. I hope that she, like me, will take some comfort in trends in recent years with the re-emergence of the pine marten, the proliferation of the beaver—with a green light from Defra, more or less—and the increase in the number of wildcats and other species, not all as charismatic, as well.
In response to my noble friend Lord Caithness, the truth is that no one can fully predict what is going to happen as nature recovers. It is just not possible. I do not think that anyone would have been able to predict the full impacts of the introduction of the beaver to certain environments. The impact has been phenomenal and profound, and it has created more dynamism in nature and more biodiversity than I think anyone would have been able to predict in ways that people were not able to predict. Likewise, the experience in Ireland is that the pine marten has a hugely disproportionate impact in terms of driving out the grey squirrel in a way that—again—I do not think anyone was able to predict. In those areas where wild boar proliferate, that comes with various problems, but there is no doubt that the presence of the wild boar in certain ecosystems is also enormously beneficial for lots of different types of species that might not otherwise flourish. So it is very difficult.
We are not starting this process on the assumption that we know all the answers. We do not know the answers—I do not think that anyone does—but we will put details in secondary legislation, and we will be conducting as robust and full a public consultation as we can early in 2022, to which I hope numerous noble Lords will contribute. I am afraid I am not giving my noble friend the specific answers he was looking for, but I do not think those answers exist.
Member’s explanatory statement
This amendment requires the Secretary of State, when setting or amending the species abundance target, to be satisfied that meeting the target or the amended target would halt a decline in the abundance of species.
Baroness Bakewell of Hardington Mandeville (LD)
My Lords, given the hour, I will try not to duplicate the contributions of others. I will speak to Amendment 8, which I have signed, and I support Amendments 10 and 36 in the names of the noble Baroness, Lady Jones of Whitchurch, and others. The noble Baroness introduced this important group of amendments with knowledge and passion. Others have also spoken with passion and repeated their comments from Committee.
Plastic pollution is all around us, yet we seem unable of our own free will to tackle its use, reduce its impact and move to alternatives. It is therefore imperative that we use the opportunity of the Environment Bill to take bold steps to legislate to ensure that plastic use and pollution are reduced as quickly and effectively as possible. It is, of course, true that not all single-use items are made of plastic. Other items have a limited use, and it is time to move away from a throw-away society. Plastic is the most invidious and long-lasting material, contaminating our countryside, waterways and seas. It kills our wildlife, which becomes entangled in its web, and poisons those animals and birds that unwittingly eat it.
A target for reducing the use of plastics must be set for December 2030. This target must be stringent to be effective. Vital to achieving reduction in the use of plastics is a properly thought-out plastics strategy. This should be laid before Parliament by March 2023. This is not an unreasonable target for completion. Plastic reduction was trailed in the 25-year environment plan, and much work has been done on this subject already.
I welcome the contribution from the noble Baroness, Lady McIntosh of Pickering, and agree that we should not be exporting our waste to other countries; I spoke to that in Committee. Microplastics are present in all areas of our life: our oceans, landscapes and mountains. All around us, microplastics are polluting our lives and wildlife. Plastic bottles and polystyrene packaging and food wrap, however well designed, are still causing pollution. Microplastics, which occur from plastics breaking down into tiny pieces, must be tackled. Legislation to ban microbeads in wash-off products was welcome, but this dealt with only 1% of plastic pollution, whereas beverage litter contributes to 33% and tyre dust to 18%. It is really time that we met this challenge head on and produced both targets for plastics reduction and a proper plastics strategy to ensure that this happens, with milestones to ensure that progress is being made.
The country as a whole is extremely concerned about the use of plastic and the pollution it produces, the effect it is having on our wildlife and the unsightly detritus around our countryside. Now is the time to show that the Government are taking this matter seriously. If the noble Baroness, Lady Jones of Whitchurch, presses the amendment to a vote, we on the Liberal Democrat Benches will be supporting her.
Lord Goldsmith of Richmond Park (Con)
I thank all noble Lords for their contributions to this important debate. The Government of course share the concerns of the noble Baroness, Lady Jones of Whitchurch, regarding plastic pollution, and we are already working hard to address this urgent issue. Building on the action taken to date on the most commonly littered items, we announced just a few weeks ago that we will carry out a consultation this autumn on banning single-use plastic plates, cutlery and polystyrene drinks containers. The noble Lord, Lord Blencathra, will be pleased with the last one, and I confirm that the answer to his question is yes: we already have the power to extend that ban to any items that cause environmental damage. I strongly agree with his condemnation of the foam used to protect televisions, sachets and all the rest of it. I hope that we will be able to go much further than we currently have.
The noble Viscount, Lord Trenchard, made the point about the carbon footprint of plastic versus the alternatives. He is right in some circumstances—a paper bag versus a plastic bag, for example—but it is not just about carbon, as a number of noble Lords have said. The damage that plastic does when it gets into the environment goes far beyond its carbon impact, as we saw in those extraordinary David Attenborough images.
Regarding Amendments 8, 10 and 36, tabled by the noble Baroness, Lady Jones of Whitchurch, the Government’s view is that publishing a separate plastics strategy and setting a plastics target in isolation from the wider waste agenda risks detracting from the action that we are taking now to achieve our overarching circular economy ambitions. It is worth emphasising that our profligate attitude to resources is doing immeasurable harm to the natural world, and not just our use of plastic. Extraction and processing of those resources in the round contributes to about half of the total global greenhouse gas emissions, as well as 90% of biodiversity loss. And the problem is growing. Globally, we extract three times the amount of resources from nature as we did in 1970, and that figure is set to double again within a generation unless we change course.
The Government are committed to reviewing the resources and waste strategy every five years, and this provides an opportunity to set out further detail on our approach to tackling plastic pollution within our transition to a circular economy. The Bill already requires the Government to set and achieve at least one long-term target on resource efficiency and waste reduction, and we intend to set a target to reduce consumption of all materials, including plastic. In addition, the Government are already exploring packaging recycling targets, under the proposals for extended producer responsibility for packaging. We have made progress to increase reuse and recycling and combat unnecessary single-use plastics. The Government introduced bans on plastic straws, stirrers and cotton buds last year, and I have already outlined our next steps to build on that. Following the success of the carrier bag charge in reducing consumption of single-use carrier bags by 95% in the main supermarkets by 2020, the Government have increased and extended it to all retailers in May this year.
In addition, this Bill includes a number of measures targeting all stages of a product’s lifecycle, which will enable the Government to further tackle plastics and plastic waste as well as drive toward a more circular economy. These measures include powers to enable us to apply extended producer responsibility across a wide range of material and product streams, introduce deposit return schemes and establish greater consistency in the recycling system—a point made by my noble friend Lady Neville-Rolfe. The Bill will also allow us to place charges on single-use plastic items, set minimum resource efficiency and information requirements for products, and ban the export of plastic waste to non-OECD countries.
In response to a comment made by the noble Baroness, Lady Jones of Moulsecoomb, local authorities have always been, and will always be, under pressure, but we have committed that any additional cost incurred as a consequence of this Bill will be covered by central government.
On the international front, we are very much engaged in trying to encourage other countries to tackle their waste problems. We set up the Commonwealth Clean Oceans Alliance, and well over half of Commonwealth members have signed up and committed to it. Many of them have already introduced legislation to reduce single-use plastics. We are one of the leading countries calling for an international plastics treaty—a sort of Kyoto agreement for plastic—and we are very active members and funders of the Global Ghost Gear Initiative. More than half of the waste in our oceans is actually ghost gear, abandoned fishing gear, as opposed to plastic bags and the like. We are doing a great deal internationally. We can and should do more, but we are objectively world leaders in relation to the international campaign.
This Bill provides a robust approach for ambitious targets and takes action to achieve them. The amendments are therefore worthy but unnecessary. I hope the examples that I have put forward reassure the noble Baroness that we are very much on the case in tackling single-use plastic as well as plastic more broadly, and I beg that she withdraws her amendment.
Baroness Jones of Whitchurch (Lab)
My Lords, I thank all noble Lords who have spoken. Once again, the examples that people have given underline the scope and scale of the task. I think there was also consensus on the need for urgent action.
I have listened carefully to what the Minister had to say. I absolutely accept, of course, that there are consultations taking place, but our concern always has been and continues to be that they are happening on a piecemeal basis. It is also true that the Bill gives Ministers powers to take further action but, again, there are no deadlines in the Bill for those measures, so we are left waiting—step by step, item by item—for progress to be made. I know that there is a lot of activity, but not much is landing at the moment in terms of practical measures to cut back on the use of plastic.
The fundamental problem here is that the Bill has a fragmented approach to reducing plastic pollution rather than, as I was saying earlier, a holistic approach to tackling all plastic pollution. I say to the noble Baroness, Lady Neville-Rolfe, that our Amendment 8 is not just about single-use plastics; it is about an overall reduction in the plastic in circulation, setting a precise target that we believe will focus minds and deliver what the public are crying out for. There is huge public pressure for this.
The Bill has measures on resource efficiency and waste production, and those are welcome, but, as it is framed, it is likely to miss out, for example, lightweight plastic products and microplastics, which have little monetary value but cause huge damage to the ecosystem —one of the points that the noble Baroness, Lady Bakewell, was making. It is also true that it says very little about other important issues, such as discarded fishing gear, plastic pellets and synthetic fibres, which are part of the campaign of the noble Lord, Lord Blencathra.
I agree with the noble Baroness, Lady Jones of Moulsecoomb, that there is the continuing scandal of exporting our waste. I heard what the Minister said about that and I am pleased to hear that those talks are taking place but, again, this requires more urgent and immediate action.
Fundamentally, we believe that our amendment is practical and achievable. In a sense, it is much easier than some of the complex issues that we were talking about earlier, to do with tackling soil and air quality. This is something to which we know the solution now—we know the answers. For most of the issues that we are talking about, there are alternatives to using plastic. It is not as though we are waiting for the science to catch up with us.
A plastics strategy is required to reduce the use, manufacture and sale of single-use plastics. We need to make sure that we avoid switching to more damaging alternatives, but those issues can and should be delivered by 2030, in line with the other shorter-term measures in the Bill. It would require ambition and leadership, and that is what we expect from this Government.
Amendment 8 says that we should set a deadline for an overall reduction in the use of plastics. I am sure that everybody here agrees with that and believes that this is what needs to be done. We need to write it into the Bill, so that we can make sure it happens to a sensible deadline. It can be done by 2030, and we believe it should be.
I regret that the Government have not felt able to embrace our proposal, and on that basis I would like to test the opinion of the House.