Animal Welfare (Sentience) Bill [HL]

(Limited Text - Ministerial Extracts only)

Report stage & Lords Hansard - part one
Monday 6th December 2021 Lords Chamber

[Baroness Hayman of Ullock (Lab)]

My Lords, these amendments broadly consider the remit of the committee regarding policy. Clause 1 sets up the committee. The stated purpose of the Bill is to make sure that animal sentience is taken into account when developing policy across government, but policy is not always set in aspic and I find it concerning that the majority of the amendments that have been put down in this group would prohibit the ASC considering policy formulated and implemented before the committee’s formation.

At the start of his speech, the noble Lord, Lord Trees, talked about unintended consequences, but we should also look at the unintended consequences of this group of amendments if they are accepted. We believe that the prohibitions that are being put forward would prevent the committee considering how the ongoing implementation of recent and historic legislation affects the welfare of animals as sentient beings. The impacts can be significant. To take an example, the primary legislation used to prosecute hare coursing is the Hunting Act 2004 and the Game Act 1831. We believe that the ASC should be free to consider how the implementation of those laws affect the welfare of hares as sentient beings. While the ASC will be likely to focus its work on emerging policy, we believe it needs the freedom to consider existing legislation where it feels it is appropriate to do so.

Amendment 18, tabled by the noble Earl, Lord Caithness, would require scientific evidence to be published. It is very important that scientific evidence is taken into account right across the committee. It is clear from the terms of reference that that will be an important part of its work. But again I have concerns: requiring things to always be published before being presented to Parliament could place an unintended scientific barrier in front of the committee. I worked in publishing for many years, and I know that sometimes it can take a long time. I would not want to see the committee’s work hugely delayed as an unintended consequence of this amendment.

I will keep my comments brief throughout Report. We discussed at length in Committee many of the amendments before us again today. I do not want to waste time going back over issues that we have already spent a lot of time on, but I would be interested to hear the Minister’s response to people’s concerns.

[The Parliamentary Under-Secretary of State, Department for Environment, Food and Rural Affairs (Lord Benyon) (Con)]

My Lords, I am grateful to the noble Lord, Lord Trees, the noble Baroness, Lady Mallalieu, and my noble friends Lord Howard and Lord Caithness, for their amendments on the subject of the animal sentience committee’s remit with respect to existing policies. My remarks will address all the amendments.

This is the first piece of legislation I have steered through the House. I am conscious that I am in the presence of experienced legislators and people very much more experienced, perhaps, that I was in the other place where, when a piece of legislation was described as “terrible” or “poorly drafted” it was usually code for the fact that the speaker did not agree with it. Here, I am sure that that is not the case and that noble Lords are much more discerning, and I will seek to answer their points, be more conciliatory in my remarks and address their concerns.

I thank noble Lords for their discussion on this issue, and for the opportunity to put on record a clear statement on the remit of the committee. The Bill is already drafted so as to ensure that animal sentience is actively considered in current policy-making and implementation and, in line with its statutory function as set out in the Bill, the committee will be expected to prioritise current or recent policy decisions. Prioritising policies that the Government are currently pursuing fulfils the committee’s statutory function under Clause 3. This clause requires the Secretary of State to respond to the committee’s reports and is the only legal consequence the committee reports have. As I have repeatedly stated, the purpose of the Bill is to provide a proportionate, targeted and timely accountability mechanism. There are limits to how far you can hold a current Government to account for the decisions they did not make, and this would certainly not be timely. I hope this addresses points made by my noble friends Lord Moylan, Lady McIntosh and others.

However, the value of the committee is in looking at policy issues that are live in some way, and the committee would not be acting in the public interest if it did not do that. There would be no benefit for animal welfare, for the public, for Parliament or for the Government in discussing policies that have long been customary, revised or resolved. To put it more simply, the committee would not be doing its job properly if it sought to rake over old coals and to reignite past policy issues that are now closed. If this happened, it is something that would need to be raised with the committee chair as part of the performance management and governance processes that will be in place.

Seeking to impose a rigid form of words in legislation on these matters risks excluding the committee from areas where its scrutiny would be valuable. Attempts to distinguish current policy from established policy in statute would leave the committee wide open to challenge if interpretations of the wording differed. We are also of the view that, for the committee to provide targeted and effective parliamentary accountability, the committee’s report should not be subject to approval or preselection by Ministers. I would caution against the approach proposed my noble friend Lord Caithness, which would require Ministers to agree to the preparation of any report.

The noble Lord, Lord Trees, talked about process. Clause 2(2) envisages that the committee can examine what adverse effects a policy might have on the welfare of animals and whether the Government are aware of all those possible adverse effects and fully understand them so they can properly take them into account in their decision. This is clearly about the process followed in decision-making.

My noble friend Lord Ridley talked about the committee’s ability to consult stakeholders. He is right that the committee may choose to engage with a range of external bodies and individuals, as it sees fit. This stakeholder engagement is important as it will allow the committee to prioritise policies that are more significant in terms of the nature and scale of their effect on animals or the extent of parliamentary, departmental, stakeholder or public interest.

--- Later in debate ---

[Lord Hamilton of Epsom (Con)]

Before my noble friend sits down, could he answer the remark of the noble Lord, Lord Trees, that this is Article 13 with bells on? Why is so much added into this legislation, which goes way beyond Article 13?

[Lord Benyon (Con)]

It does not go way beyond Article 13, but it does create a committee that did not exist. There were other measures in the European Union which sought to give substance to the wording in Article 13—we will come on to talk about some of them, perhaps in the next group of amendments—by referring to cultural and other issues that were of concern to member states. We have tried to transpose the legal wording recognising animal sentience into UK law and have sought to make the Government’s decision-making better by giving them an expert committee to advise them.

[Lord Cormack (Con)]

Is not the noble Lord, Lord Trees, one of the most eminent and respected veterinary surgeons in our country? Could we not take his advice?

[Lord Benyon (Con)]

My noble friend is absolutely right. I have listened to the noble Lord, Lord Trees, a lot in my few months in this role. I respect his views and his counsel and, wherever possible, I take it.

[Baroness McIntosh of Pickering (Con)]

Perhaps I may press my noble friend, because I did not follow what he said about retrospectivity—or perhaps he did not say anything. Will he confirm that there is no retrospective effect? I listened very carefully to what he said about animal sentience; I hesitate to say it, but I think he is confusing animal sentience and animal welfare. I think the mood of the House is to keep Article 13 on animal sentience and let the other committee that is already set up to look after animal welfare do the perfectly good job it is already doing.

[Lord Benyon (Con)]

I am grateful to my noble friend. I will not detain the House by repeating the paragraphs I have put on record in relation to the prioritising policies that the committee will look at. That will be for the current Government and the policies they are currently pursuing, and it will fulfil the committee’s statutory function under Clause 3. I went on to say—I hope this was clear—that the committee would not be doing its job properly if it sought to rake over old coals and reignite past policy issues that are now closed. My noble friend and noble Lords will know that words said by Ministers at the Dispatch Box hold sway when people try to interpret legislation. I hope I have been as clear as I possibly can be about the remit of this committee and the kinds of priorities it will look at. I hope that has reassured my noble friend.

[Lord Trees (CB)]

My Lords, I thank everybody who has contributed to this short debate, and I thank the Minister for his answers. I note the concerns expressed by the noble Baroness, Lady Mallalieu, which I and many others, I think, share, about the time, expense and bureaucracy that may be entailed in the legislation having retrospective force. I would still, however, say to the noble Baroness, Lady Hayman of Ullock, that I do not see why the animal sentience committee cannot look at current legislation and policy and comment on it. It is a statutory committee. I have huge respect for the noble Baroness, Lady Fookes, and her passion for animal welfare, which I share, but I think that she said it was an advisory committee. The committee is statutory. It is a very powerful committee and is there to hold the Government to account, which is why more detail about its remit could usefully appear in the Bill. I respect the explanation by the noble Lord that the terms of reference are very clear about this, that and the other, but as I recall the committee itself can alter its terms of reference, because they are not made explicit in the Bill.

This issue of process is cardinal, and I hope it does not come back to bite us all. Having said that, I am not one to make futile gestures; I appreciate that the Opposition are not supporting amendments and that there is a strong government Whip. I support the essence of this Bill in toto, but one wishes to make constructive suggestions that might improve it. I very much appreciate the kind remarks of the noble Lord, Lord Cormack. With that, however, I beg leave to withdraw the amendment.