Women, Peace and Security Bill [HL]

(Limited Text - Ministerial Extracts only)

2nd reading
Friday 28th October 2022 Lords Chamber

[The Minister of State, Foreign, Commonwealth and Development Office (Lord Ahmad of Wimbledon) (Con)]

My Lords, I thank all noble Lords for their valuable and insightful contributions. In particular, I join all noble Lords in paying tribute to my noble friend Lady Hodgson, whom I have known for a long time. I know her passion and commitment to this important agenda and beyond. I do not just acknowledge and congratulate her; I also thank her for the valuable insights that she provides to me, as a Minister at the FCDO, on this important agenda and with regard to my specific responsibilities as the Prime Minister’s special representative for preventing sexual violence in conflict. I still have those as I speak.

Let me say from the outset that the Government fully support the ethos of the women, peace, and security agenda. The noble Lord, Lord Purvis—with the noble Baroness, Lady Northover, and others—said that this was perhaps one of those opportunities where I could give a very short speech and just say “Yes”. All I can say is: if only the life of a Minister were so easy. I have been at this for a while, and I assure noble Lords that there are always specific issues that require a degree of further amplification of the requirements of the Bill—I will come on to that in a moment.

I share the important observation of the noble Lord, Lord Purvis, that it is right to have qualitative elements within a focused debate. What I can say at this juncture as well is that I note the importance of specific areas where the Government can and should strengthen their work further in the broader areas of women, peace and security. I will come on to those in a moment.

As we have heard today, the WPS agenda was ushered in by UN Security Council Resolution 1325, in the year 2000. The United Kingdom, as we have also heard, was pivotal in getting that resolution passed. We do not dispute that conflict has a direct and disproportionate impact on women and girls. We see that everywhere.

The noble Lord, Lord Collins, mentioned the situation in Ethiopia and Tigray, in particular. I spoke to the Deputy Secretary-General of the United Nations about the conflict when she visited the region. While humanitarian access has thankfully been provided, even international agencies, including those of the UN, are yet to fully assess the impact of the ongoing conflict in Tigray. Undoubtedly the situation is extremely dire.

The noble Lord also mentioned Ukraine. Looking at other conflicts, I just reflect on how our approach to conflicts, both past and present, has been informed and on how we deal with them. The approach in Ukraine has been markedly different in the structures and accountability mechanisms that have been set up. I assure noble Lords that there are ongoing discussions. Over the past few months, I have had discussions with the new prosecutor general in Ukraine and, a couple of weeks back, my right honourable friend the Foreign Secretary and I had a very constructive meeting with the ICC prosecutor. The Government have committed specifically to not just financial and technical support but technological and indeed professional support to ensure that perpetrators of sexual violence and broader crimes in this conflict can be brought to account. Of course, I commit to keeping your Lordships’ House informed on progress.

The noble Baroness, Lady Coussins, rightly raised Iran and what is unfolding there, which is tragic. I was recently given ministerial responsibility for the Middle East and I have been focused on Iran. This week, there have been developments that I have called out personally and I know that my right honourable friend is engaged on this. We have been making it very clear that the continuing situation in Iran is not something that any Government should be entertaining in any shape or form. It riles me. I have said this before and I do so again: as a Muslim by faith who follows Islam, it absolutely shocks me that there are people, indeed states, who use government as a means of suppressing women’s rights. It is fundamentally flawed whichever way you cut it—and that includes through the lens of faith.

The stronger we are on this, the more progress can be made. We need to ensure not only that those in the room are well informed—this is not about taking a stick; that approach never works—but that there is a reality check. It shocks me personally, professionally and ministerially that, when you look around the world, including the UN Security Council, nearly 25 years on from Resolution 1325, we still find that women are not included in conflict resolution mechanisms. That is fundamentally wrong. I have already talked to our incredibly talented and leading diplomat, Dame Barbara Woodward, about the importance of our approach to conflict resolutions at the UN Security Council. It may be rejected but, with my UN responsibility, I have said we must include specific paragraphs to ensure that women mediators are given a voice—I mean, for God’s sake, what year are we living in? We need to ensure that they are pivotal to that.

I again pay tribute to my noble friend Lady Hodgson for her work on Afghanistan and to the noble Baronesses, Lady Smith and Lady Northover, who I worked with very closely during the Afghanistan evacuation. There are routes available, and the noble Baroness, Lady Northover, is right to say that these need to be utilised and amplified. The situation is dire—I do not hide away from that—but we have continued to bring people to the United Kingdom every few weeks through the ACRS, the Home Office scheme. As the changes in government settle, I assure noble Lords that I want to renew and maintain our focus on conflicts that are ongoing but perhaps, as the noble Baroness, Lady Smith, said, are not in the headlines. This is not about a moment in time; it is an ongoing issue.

I am sure that the Taliban in Afghanistan have feelings about how soon the West and other countries respond. This is not just about the West; other countries have also raised this issue. When visiting the Middle East and the Gulf states, I again used the same idea: under what premise do the Taliban, perversely, use the role of religion to supress the rights of women? This is a total and utter nonsense. We need other countries to stand up quite forcefully and make this case—and not just those like-minded countries to which we often turn.

Our WPS work focuses on the meaningful participation of women. We have incredible commissions; indeed, I launched the Women Mediators across the Commonwealth network. However, we are not utilising these networks and we must ensure, coming back to my earlier point, that they form part and parcel of the conflict resolution mechanisms. Therefore, I totally and utterly agree with the principles in the Bill because they present a way of highlighting once again the important issues in front of us.

The noble Baroness, Lady Coussins, raised the issue of UN Security Council Resolution 1325 and mentioned supporting particular initiatives as examples. One example, of which noble Lords will be aware, is the Elsie Initiative, which we have provided with £5.9 million of funding since 2019 to support countries directly regarding uniformed women in peacekeeping, which is also important. I will come to the issue of the Ministry of Defence, which was also raised.

On the issue raised by the noble Lord, Lord Hussain, about India, we remain committed to women being involved in every peace process. In this sense, it is important that countries will be represented at conferences, including the PSVI conference we will be holding. India has a long and rich history of standing up for the rights of all communities; that is part and parcel of what defines India as a thriving democracy. Where issues arise, we will raise them—sometimes privately, sometimes candidly—as we expect India to raise issues with us.

The noble Baroness, Lady Coussins, also talked about funding for the International Civil Society Action Network. We provided it with funding in 2020, and we continue to work with it in this respect. On the PSVI agenda, ICAN is centrally involved in the groups we are working with.

Since 2000, 100 countries have also adopted national action plans as the primary vehicle to implement their WPS commitments. The FCDO and the MoD—the noble Baroness, Lady Northover, referred to this—are preparing the fifth UK action plan for 2023-27. We are working with civil society, academia and parliamentarians —some of whom are present here today—to ensure that it delivers real change for women and girls and the communities in which they serve. The noble Lord, Lord Purvis, talked about different strands of focus, and I hope that, as we move forward and evolve these national action plans, they also reflect the very focused areas on which we need to ensure delivery. The Government will of course monitor and evaluate their implementation through a framework that allows us better to understand and improve our impact on fragile and conflict areas.

My noble friend Lady Sugg is a great champion of so much on this important agenda; I praise her incredible work, particularly on sexual and reproductive health. I can assure her that there is a centrepiece. The noble Lord, Lord Collins, asked about the framework for the PSVI conference. In the interests of clarity, there will be a specific focus on that centrepiece, as I assured my noble friend a few weeks ago. Women and girls remain very much at the centre of the UK’s foreign policy.

My noble friend and the noble Baroness, Lady Northover, rightly asked about the women and girls strategy; we will be looking to publish that very shortly. I am also looking to use the conference to publish the PSVI three-year strategy. I am happy to share the early publication of that with noble Lords, in advance of the conference, and I hope that the conference itself will provide an informed engagement opportunity. This time next month, we will be hosting the conference. Noble Lords who have not yet received an invitation, for whatever reason, and wish to attend—I say this on the record—should let me know and we will then issue it.

I look forward to hosting the conference. The noble Lord, Lord Collins, and I have talked about the structure; I assure him that the conference will be opened by a survivor, and I hope that will set the tone thereafter. We also hope that it will advance the broader WPS agenda that my noble friend has sought to highlight in aspects of the Bill, particularly conflict-related sexual violence.

Day by day, through global policy and programming, the FCDO is responding to and working on gender-based violence. We are also putting survivors at the centre of our approach, as noble Lords will be aware. This is not just about Resolution 1325. We have championed and supported UN Security Council resolutions; we have survivors as part of our steering group on preventing sexual violence, and they inform policy and programming directly; and we have launched specific initiatives.

The noble Baroness, Lady Uddin, talked about the situation in Bangladesh. Of course, we have been long-standing supporters of the Rohingya community in both their flight from the worst kinds of ethnic cleansing in Myanmar, and within Bangladesh. Earlier this week, I met with Deputy Foreign Minister Shahriar Alam to indicate again our financial and continued support. I have been to the camps in Cox’s Bazar and seen the appalling, abhorrent situation that women have to face, not once but twice over—indeed, in the camps themselves—and will continue to ensure that we provide support where we can. I praise Dr Mukwege’s Global Survivors Fund, which provides initial funding and support to victims of sexual violence in particular. The UK is on its board and has provided financing to the fund to support victims and survivors as they await justice.

The noble Baroness, Lady Northover, asked about the MoD. In parallel, the MoD has established policy on human security in defence which also commits to incorporating gender perspectives across all planning. The MoD is furthering the inclusion of women at all levels of defence, both domestically and overseas, with partners and allies. The noble Baroness also talked about the impacts of climate change, and I assure her that I am fully aware of that. It did not require me to be a Minister, but I recently visited Pakistan, where, I am delighted to say, we were able to make a further commitment of £10 million. But undoubtedly, who was suffering in sin? It was the most marginalised community, primary among them women and girls. However, I was pleased to see that, through UK support and that of our international partners, there are specific provisions supporting women and girls, particularly the most marginalised. That needs to be done on a consistent basis.

I am a long-standing supporter of 0.7%, as the noble Lord, Lord Purvis, knows, and I will certainly continue to advocate returning to it. I acknowledge what many noble Lords have said on the return of my right honourable friend Andrew Mitchell to the FCDO; no one needs to be shown how passionate he is, both in his advocacy for international development and in his views on the very point the noble Lord, Lord Purvis, raised. He will be an incredible asset in informing both policy and programming within the FCDO as we move forward.

[Lord Purvis of Tweed (LD)]

On the issue of funding, could the Minister address the point raised by the noble Baroness, Lady Sugg? Does the former Foreign Secretary’s commitment to reverse all cuts to women and children’s programmes, returning them to the pre-cut level, still stand?

[Lord Ahmad of Wimbledon (Con)]

My Lords, certainly from my perspective, that is very much a government commitment that was given. Of course, we have a new Prime Minister, but the same Foreign Secretary. It is a strange question to be answering while we are still in the last throes of a ministerial reshuffle, but our commitment to women and girls remains focused, particular and prioritised. Indeed, I was delighted that our former Prime Minister and former Foreign Secretary committed to these issues. The commitment, for example, to the immediate issue on the horizon—the PSVI conference and our support for that—indicates the direction of travel. I will of course update your Lordships’ House on anything more specific. On the PSVI issue, I also put on record the Government’s thanks to Her Royal Highness the Countess of Wessex for her engagement and involvement in continuing to throw a spotlight on these important issues.

I listened very carefully to the valuable and insightful comments to this debate. The Government are committed to the WPS agenda. As my noble friend acknowledged in introducing the Bill, there are some reservations about specific proposals before us. The Government have strong existing and forthcoming WPS policies: the integrated review, which was referred to; the international development strategy; the women and girls strategy; Human Security in Defence; and the WPS national action plan. All these underline not just our commitment but the progress we have made. I know how strongly your Lordships support these policies, as was clear from the debate. It is critical that, within the frameworks in which we work, we retain the freedom of agile policy-making—that is where some of the limitations of the Bill have been highlighted to me.

On a positive note, I have been listening and there are aspects of the Bill we can commit to. Let me give a couple of examples of what we are doing, drawn directly from the Bill. The measures proposed in the Bill seek to increase women’s participation in peace processes. The UK’s ambition is to support meaningful participation and secure positive peace process outcomes for women and girls, with more women being pivotal in decision-making. We have seen the power of this approach. The noble Baroness, Lady Coussins, talked about Latin America. We have seen real progress in Colombia, where civil society, including women’s groups, ensured that there were real and specific gender considerations in how the peace agreement was reached. But that is only half the job, and we need to ensure a continuing focus. I welcome insight on specifics from all noble Lords on how they feel we can further strengthen our work in this area.

The Bill aspires for the UK to take gender into account when formulating foreign policy. In this regard, the gender equality duty in the International Development Act 2002 requires the Government to have regard to gender inequality before providing development assistance. On what will happen next, the new women and girls strategy will pick up on some of the specific provisions that my noble friend highlighted on this very point in her presentation of the Bill.

Before I hand back to my noble friend, I again thank all noble Lords. I share the points that have been made. Importantly, the Government have done specific work on this agenda, and I feel very strongly that the House and all parties are at one in their perspectives on how to pursue the agenda. Of course, there are different speeds at which we may travel at times.

The issue of annual reporting came up. What I can commit to—PSVI is within my portfolio—is that we should have an annual report. We have looked at WMSs, but I can certainly work through the usual channels to see how we can facilitate a specific debate annually. I do not think there is disagreement on this: it will further enhance the progress we can make. I am sure the usual channels can work together on how it can be presented.

Although I lead on the PSVI agenda, I think it is totally sensible to present a report that demonstrates the work that has been done over the last 12 months. Certainly, when it comes to our duties, although not a legislative requirement, how we report to your Lordships’ House and to Parliament as a whole on the WPS agenda and progress on NAPs could be much more contextualised and structured. I will take those aspects back to see how best we can work them through.

[Baroness Coussins (CB)]

Can the Minister reassure me on one of my specific points and confirm that Latin America will feature on the agenda of the November conference?

[Lord Ahmad of Wimbledon (Con)]

I will give that commitment now, which will cause a flurry of activity if it is not the case. I have already mentioned Colombia specifically. I want to use what has worked well in Colombia as a reflection of what we can do, not just further in Latin America but across the world. I come back to my earlier point: if there are specific elements that the noble Baroness feels we can introduce, even at this point I am quite happy to ensure those are considered as part of the agenda.

I end by thanking all noble Lords for their contributions. This has been a wide-ranging debate. There are some specific questions I have not had time to respond to in my concluding remarks but—

[Baroness Uddin (Non-Afl)]

I am sorry to interrupt but will the Minister undertake to write to me on the question of apologies and reparations?

[Lord Ahmad of Wimbledon (Con)]

I think I made that point. I referred to the Global Survivor Fund, which is a general fund. Those kinds of funds help the victims of such abhorrent acts in the Rohingya camps, so funding is certainly available. I will of course write specifically to the noble Baroness, as I have already said.

Once again, I thank my noble friend Lady Hodgson for introducing this Bill. I assure her that I have asked my officials to work closely with her to ascertain how the Government might work positively and constructively to deliver its aims, and I will make personal efforts on this issue. I assure all noble Lords that I look forward to continuing to work with them to champion women’s human rights and the rights of women defenders, peacebuilders, survivors and political leaders around the world. Simply put, it is the right thing to do.