Animal Welfare (Sentience) Bill [HL]

Baroness Hayman of Ullock Excerpts

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

[Baroness McIntosh of Pickering (Con)]

I am most grateful to my noble friend Lord Moylan for that remark.

I am going to go on and query the path the Government have gone down and why aspects of the committee may be subject to judicial review in connection with this Bill, whereas every other Bill that has been put forward by this Government has not been deemed to be subject to such a judicial review. If the Minister will reassure me that there will be no retrospective effect and that we will revert, if possible, to the very limited effect of Article 13, I think it would have the unanimous support of the House today.

[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.