Misuse of Drugs Act 1971 (Amendment) Order 2023
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Lord Sharpe of Epsom
That the Grand Committee do consider the Misuse of Drugs Act 1971 (Amendment) Order 2023.
Relevant document: 51st Report from the Secondary Legislation Scrutiny Committee (special attention drawn to the instrument)
The Parliamentary Under-Secretary of State, Home Office (Lord Sharpe of Epsom) (Con)
My Lords, this order was laid before Parliament on 5 September. It proposes an amendment to paragraph 1(a) of Part 3 of Schedule 2 to the Misuse of Drugs Act 1971 to control nitrous oxide under class C of that Act.
After increasing reports of the harms associated with its misuse, the Government commissioned the Advisory Council on the Misuse of Drugs in September 2021 to undertake an updated harms assessment of nitrous oxide. The Government also asked the ACMD to recommend the appropriate legislative control of nitrous oxide.
I am grateful to the ACMD for its updated harms assessment, published in March 2023. While the ACMD did not recommend the control of nitrous oxide under the Misuse of Drugs Act in its assessment, it noted concerning health harms including nerve damage. Its assessment also highlighted anecdotal reports about the association of nitrous oxide with anti-social behaviour as well as the widespread use and availability of the drug, particularly among children and young people.
The Government carefully considered the ACMD’s thorough report and considered a range of factors before reaching a decision. Of particular concern is the popularity of nitrous oxide, given that it is the third most misused substance among 16 to 24 year-olds in England and Wales, with approximately 230,000 young people inhaling it in England and Wales in the year ending June 2022.
In addition to the high numbers of young people misusing nitrous oxide, the ACMD highlighted anecdotal reports of an increase in neurological harms. Noble Lords may have heard of a small number of tragic cases in which young people have been paralysed, or died, following nitrous oxide misuse. Neurology units around the country have reported frequent cases of nerve damage. While many cases of this damage can be treated and even reversed though treatment, sadly not all can. Contrary to the belief of some who might argue that this is a perfectly harmless drug that many people use without consequence, nitrous oxide is not safe to use without medical supervision. Beyond the harmful effects on users themselves, there have been several cases that serve as a testament to the devastating consequences of driving under the influence of nitrous oxide.
In considering our approach, we have also reflected on the reports from those working in front-line policing and night-time industries, and from parliamentarians, about the public effects of nitrous oxide misuse.
People have a right to expect public areas and their neighbourhoods to be safe and clean, even quiet, but in recent years the sight of discarded small silver nitrous oxide canisters, and even more recently the oversized canisters seen on our streets, have become more commonplace. To cite a recent example, an estimated 13 tonnes of discarded canisters were collected in the Notting Hill Carnival clean-up operation. It is entirely unreasonable to expect people to sidestep the paraphernalia and mess associated with nitrous oxide misuse. Neither should anyone have to feel threatened by anti-social behaviour associated with its misuse.
The Government are taking decisive action to tackle anti-social behaviour through a comprehensive action plan, and noble Lords may recall that in March we announced our intention to ban nitrous oxide. As a result of the considerations I have outlined, the Government are taking action beyond that recommended by the ACMD and seeking to control nitrous oxide as a class C drug under the Misuse of Drugs Act. We are doing this to introduce tougher consequences for the supply and misuse of nitrous oxide, and to deter people from harming not only themselves but others.
At present, nitrous oxide is subject to the provisions of the Psychoactive Substances Act 2016 as it is a psychoactive substance. The 2016 Act contains offences for the production, supply, possession with intent to supply, import or export of a psychoactive substance where a person
“knows, or is reckless as to whether”
it will be consumed “for its psychoactive effects”. It does not, however, contain an offence for the simple possession of a psychoactive substance, other than in a custodial setting.
The control of nitrous oxide as a class C drug under the Misuse of Drugs Act would also make it an offence to possess nitrous oxide, unless for a legitimate use. This would mean higher penalties and enforcement provisions. Those found in unlawful possession of the drug could face up to two years in prison, an unlimited fine or both. Meanwhile, those who supply or produce nitrous oxide could face up to 14 years’ imprisonment.
We are conscious that there is a wide range of legitimate uses of nitrous oxide. We are aware of its use in healthcare, including dentistry, industry and catering. To enable legitimate uses to continue, a further related statutory instrument will come into force simultaneously with this order. This would amend the Misuse of Drugs Regulations 2001, scheduling nitrous oxide under those regulations to provide certain exemptions from the offences under the Misuse of Drugs Act 1971, including medical use, and to provide legitimate access to nitrous oxide for legitimate uses, including in industry and catering.
Drug misuse ruins lives and adversely affects society as a whole. The Government have a responsibility to protect the public—their safety and their health—and that is why we are proposing this action. As I have set out, nitrous oxide harms not only people but communities and must be subject to stricter controls. I commend this order to the Committee.
Lord Hayward (Con)
My Lords, I have a quick question about the overall legislation encompassed here. I am not unaware of the impact of people taking drugs, but at times it seems to me that the Home Office automatically wants to ban everything, with the net result that we drive more and more illegal activities into the hands of criminal gangs. Every time one does that, there is a risk that, rather than feeling better and achieving something, we just enlarge the black market of yet another section of society.
I have had the misfortune of having to nurse back, with friends, people who have become drug addicts. I was also offered nitrous oxide from a large container in the lift on the Elephant and Castle Tube line on 18 June. I have seen groups of people using it and proffering it to me. But while I accept the order as it stands, I wonder whether there should be a broader review of the Misuse of Drugs Act because of the implications of driving so much into the hands of criminal gangs and youngsters. We have debates about county lines and the like, which all seem to point in the same direction: we are quite happy to ban things, but there ought to be other solutions to this and other problems.
Lord Sharpe of Epsom (Con)
My Lords, I thank all three noble Lords for their contributions to this important debate. A number of interesting points have been made. I will attempt to address them but, first, I thank the noble Lord, Lord Coaker, and the Labour Party for their support. Obviously, I regret the fact that the Liberal Democrats are unable to support this important public health and safety measure.
The Government disagreed with independent experts on this matter, as was noted by all the speakers in the debate. Turning to questions about that decision, we are of course grateful to the ACMD for its detailed report. ACMD advice is an essential part of our decision-making and we continue to have complete faith in its quality and rigour. However, the Government are entitled and expected to take a broader view, taking into account other relevant factors, which was necessary in this case. The ACMD referred to reports of increased neurological and social harms, such as drug driving and littering, associated with nitrous oxide misuse. This is alongside its widespread availability for illegitimate use and high usage, including among children and young people; I referred in my opening remarks to the large canisters that are now readily available.
As the noble Lord, Lord Coaker, noted, anti-social behaviour and visible drug use are issues of significant public concern, and we know that the harms of nitrous oxide misuse are being felt by communities. For that reason, the Government decided to go further than the ACMD’s advice to protect the public and seek to control nitrous oxide under the Misuse of Drugs Act 1971 as a class C drug. This will provide law enforcement with more tools to take action against illegitimate supply and use. As the noble Lord, Lord Coaker, helpfully pointed out, this is not the first time that a Government have disagreed with the ACMD: in 2014, for example, khat was controlled under the Misuse of Drugs Act 1971 contrary to the ACMD’s recommendations. I am also grateful to the noble Lord for mentioning the 2008 decision that reclassified cannabis as a class B drug against the advice of the ACMD; I applaud his decision then.
The Government consulted on this issue. We fulfilled our statutory consultation requirement to seek the views of the ACMD and considered its report carefully. However, as I just said, the Government are entirely permitted to take a broader view; the reasons for this are set out in our response to the ACMD, published on 27 March, which outlined the clear health and social harms associated with nitrous oxide use that led the Government to control the substance under the Misuse of Drugs Act.
The Government also undertook a public consultation to ascertain the nature and scale of legitimate use of nitrous oxide before formulating this policy, the results of which were published on 5 September. Provisions to enable legitimate drug use will be set out in a following SI that will come into force at the same time as this order, which is the normal legislative process for controlling a substance under the Misuse of Drugs Act 1971. So, in answer to the question from the noble Lord, Lord Coaker, there will be no gap.
On police support, we have heard from some in front-line policing who welcome these new powers. The National Police Chiefs’ Council is also supportive of this ban.
With regards to the treatment aspect, I could not agree with the noble Lord, Lord Coaker, more. It is never an either/or situation; it is a “both” situation. In relation to access to treatment, I refer Members to the Government’s drug strategy, From Harm to Hope, which was published in December 2021. It is clear about our ambition to achieve stigma-free treatment, providing the full positive effect of treatment services for those seeking help. Through this strategy, we are investing more than £2.8 billion over three years to support people through treatment and recovery; it includes support for those who have used a range of drugs, including nitrous oxide, and are suffering health harms. In the light of the reported rise in harms to individual users and society associated with heavy nitrous oxide use, we believe that it is necessary to take action also to restrict access to this harmful drug and reduce its misuse by, as I said, classifying it as a class C drug.
As regards legitimate use—obviously, those were legitimate questions from noble Lords—we are conscious of the need to ensure that our approach enables the continued use of nitrous oxide for legitimate and lawful purposes, of which there are many. The Government accepted the ACMD’s recommendation to consult on legitimate uses, as I said. We published our response on 5 September. That information is now being used to design the regime that will enable lawful use for legitimate purposes.
The exact proposals are still being drawn up and will be set out in a subsequent statutory instrument, as I said. However, it is worth repeating that the order we are debating today will come into effect at the same time as the accompanying amendments to the Misuse of Drugs Regulations 2001, so there will be no gap between the control of nitrous oxide under the Misuse of Drugs Act 1971 and provisions enabling its legitimate, lawful access.
The noble Earl, Lord Russell, asked about the risk of criminalising young people. That is a perfectly valid concern: will it result in the overcriminalisation of young people in particular given that the drug is so prevalent among those aged 16 to 24? However, we can assure the Committee that the Government seek a proportionate approach, in answer to the question of the noble Lord, Lord Coaker. We entrust that task to law enforcement agencies, which have a range of powers at their disposal to enforce the law—including out-of-court disposals, which are non-criminal sanctions, where they judge those to be proportionate and effective.
It is also our intention that the ban should have a preventive effect so that, over time, it reduces the number of users, in particular children and young people. We will update education resources for schools, directly accessing the children who may be at risk of becoming users. Those resources will describe the harms of drug taking and will communicate the new law to children. I also talked to the director of communications at the Home Office this afternoon before coming here; he assures me that work on this is well under way and, indeed, innovative.
I finish by saying to the noble Earl, Lord Russell, that the damage to their life prospects—
Lord Coaker (Lab)
I am sorry to interrupt but the point that the Minister just made is really important; I know that other noble Lords are waiting for the next SI. If you are talking about young people and the director of communications at the Home Office is talking about innovative work, it is no good putting a press release out to the BBC. It must be on all the various platforms that young people look at. I am sure that the director of communications is on top of that but can the Minister ensure that this is on social media, whatever that means now, and is not just a press release to the BBC?
Lord Sharpe of Epsom (Con)
I am very happy to reassure the noble Lord on that point because I asked him the same question. He said, “Yes, absolutely, of course it will be. There is no point in shoving something through their letterbox”. I agree with him; we need to find alternative letterboxes, I suppose.
As I was saying to the noble Earl, Lord Russell, the damage to children’s life chances is certainly not as lasting as the neurological damage that they may suffer.
In answer to my noble friend Lord Hayward, I do not believe that the ban will provide criminal gangs with an opportunity to profiteer from supply; it will only shrink the space for them to do so. Nitrous oxide is already being supplied illegally for misuse by lone dealers and criminal gangs. These measures will give the police and enforcement agencies greater powers to stop illegal supply.
My noble friend also asked me about a possible review of the Misuse of Drugs Act. There are no plans to conduct a review of that that I am aware of. However, in July 2022, the Home Office launched a consultative White Paper—Swift, Certain, Tough: New Consequences for Drug Possession—which proposed new policies to reform the way the criminal justice system deals with adult drug possession offences, particularly tackling so-called recreational drug use. That consultation closed in October 2022. An analysis of the responses is under way.
The outcome of this analysis and the responses provided will obviously help to inform future policy direction in dealing with low-level position offences. A government response to the consultation will be published in due course. Of course, the Government keep drug legislation under review and will reconsider the status of particular substances where it is appropriate to do so, obviously while continuing to take into account advice from the ACMD.
All three noble Lords asked me about the expected costs of the policy, in particular its effect on prison places. As has been noted, the central estimate for custodial sentences is 200 per year. We are confident that there will be capacity for this potential increase given that prison occupation is already at 99% capacity. When we estimated the impact on prison places, we also looked at the average custodial sentence length and considered that alongside the volume of custodial sentences estimated per year. It results in an annualised estimate of 26 prison places across the UK. We are taking action to reduce the pressure felt on the prison estate, including expanding capacity by an additional 2,400 places beyond the 20,000-place build programme since September 2022, so we will always have the capacity to serve the needs of the courts.
Noble Lords asked about the increasing cost of the policy. I cannot really go into detail on that because there are so many variables in working out impact assessments of this type, as will be obvious. However, there are record numbers of police officers operating in this country now—more than there have ever been before—and I certainly believe that they have the capacity to deal with this.
In closing, I hope that I have answered all the relevant questions. I once again offer my thanks to all who participated. I am grateful for the insights and the challenge that has been brought to bear on this debate. This is an issue that must be confronted and dealt with before it gets worse. Public health and public safety are vital, as is the effort to tackle anti-social behaviour.
Before I commend this order to the Committee, I have just remembered that I have forgotten to say one thing, which is about an ongoing review. On 16 June, we committed to a post-implementation review of the control of nitrous oxide under the 1971 Act, as outlined in the Minister for Crime, Policing and Fire’s response to recommendations 2 to 7 of the ACMD’s updated harms assessment. That was published on GOV.UK. I am quite sure that noble Lords will remind me if that is not forthcoming but, for now, I commend the order to the Committee.
Earl Russell (LD)
Will the Minister say a quick word about what else the Government are doing to regulate and stop the sale of these things, particularly to young people? He commented on the number of people who are using this drug. We are now criminalising them. What more are the Government doing to make sure that these things are not sold to children in the first place?
Lord Sharpe of Epsom (Con)
I think I have already answered that question with regard to criminal gangs. At the moment, of course, it is freely available through a number of perfectly legitimate channels. Obviously, guidance will be incredibly important. People who are selling it at the moment, particularly to children, need to understand their new responsibilities and the fact that they will be committing a criminal act. The fact is that the penalties for this are quite severe so I suggest that they would do well to pay attention to what they are doing and not fall foul of this law.
Motion agreed.