Online Safety Bill

Debate between Baroness Morgan of Cotes and Baroness Finlay of Llandaff

Report stage
Wednesday 19th July 2023 Lords Chamber

[Baroness Morgan of Cotes (Con)]

My Lords, I shall speak to Amendment 245. I would like to thank my noble friend the Minister, and also the Minister on leave, for the conversations that I have had with them about this amendment and related issues. As we have already heard, the platform categorisation is extremely important. So far, much of it is unknown, including which sites are actually going to be in which categories. For example, we have not yet seen any proposed secondary regulations. As my noble friend has just outlined, special duties apply, especially for those sites within category 1—user empowerment in particular, but also other duties relating to content and fraudulent advertisements.

Clause 85 and Schedule 11 set out the thresholds for determining which sites will be in category 1, category 2A or category 2B. I am very mindful of the exhortation of the noble Lord, Lord Stevenson, about being brief, but it is amazing how much you have to say about one word to explain this amendment. This amendment proposes to change an “and” to an “or” in relation to determining which sites would fall within category 1. It would move from a test of size “and” functionality to a test of size “or” functionality. This would give Ofcom more flexibility to decide which platforms really need category 1 designation. Category 1 should not be decided just on size; it should also be possible to determine it on the basis of functionality.

Functionality is defined in the Bill in Clause 208. We will get to those amendments shortly, but there is no doubt from what the Government have already conceded, or agreed with those of us who have been campaigning passionately on the Bill for a number of years, that functionality can make a platform harmful. It is perfectly possible to have small platforms that both carry highly harmful content and themselves become harmful in the way that they are designed. We have heard many examples and I will not detain the House with them, but I draw attention to two particular sites which capture how broad this is. The perpetrators of offline hate crimes are often linked to these small platforms. For example, the perpetrator of the 2018 Tree of Life synagogue mass shooting had an online presence on the right-wing extremist social network Gab. In the UK, Jake Davison, the self-proclaimed incel who killed five people in Plymouth in 2021, frequented smaller incel forums after he was banned from Reddit in the days leading up to the mass shooting.

I also want to share with noble Lords an email that I received just this week from a family who had been to see their Member of Parliament, Matt Rodda MP, and also the noble Baroness, Lady Kidron, who I know is very regretful that she cannot be here today. I thank Victoria and Jean Eustace for sharing the story of their sister and daughter. Victoria wrote: “I am writing to you regarding the Online Safety Bill, as my family and I are concerned it will not sufficiently protect vulnerable adults from harm. My sister, Zoe Lyalle, killed herself on 26 May 2020, having been pointed towards a method using an online forum called Sanctioned Suicide. Zoe was 18 years old at the time of her death and as such technically an adult, but she was autistic, so she was emotionally less mature than many 18 year- olds. She found it difficult to critically analyse written content”. She says that “The forum in question is not large and states on its face that it does not encourage suicide, although its content does just that”. The next part I was even more shocked about: “Since Zoe’s death, we have accessed her email account. The forum continues to email Zoe, providing her with updates on content she may have missed while away from the site, as well as requesting donations. One recent email included a link to a thread on the forum containing tips on how best to use the precise method that Zoe had employed”.

In her note to me, the Minister on leave said that she wanted to catch some of the platforms we are talking about with outsized influence. In my reply, I said that those sites on which people are encouraged to take their own lives or become radicalised and therefore take the harms they are seeing online into the real world undoubtedly exercise influence and should be tackled.

It is also perfectly possible for us to have large but safe platforms. I know that my noble friend Lord Moylan may want to discuss this in relation to sites that he has talked about already on this Bill. The risk of the current drafting is a flight of users from these large platforms, newly categorised as category 1, to the small, non-category 1 platforms. What if a platform becomes extremely harmful very quickly? How will it be recategorised speedily but fairly and involving parliamentary oversight?

The Government have run a variety of arguments as to why the “and” in the Bill should not become an “or”. They say that it creates legal uncertainty. Every Bill creates legal uncertainty; that is why we have an army of extremely highly paid lawyers, not just in this country but around the world. They say that what we are talking about is broader than illegal content or content related to children’s safety, but they have already accepted an earlier amendment on safety by design and, in subsections (10) to (12) of Clause 12, that specific extra protections should be available for content related to

“suicide or an act of deliberate self-injury, or … an eating disorder or behaviours associated with an eating disorder”

or abusive content relating to race, religion, sex, sexual orientation, disability or gender reassignment and that:

“Content is within this subsection if it incites hatred against people”.


The Government have already breached some of their own limits on content that is not just illegal or relates to child safety duties. In fact, they have agreed that that content should have enhanced triple-shield protection.

The Government have also said that they want to avoid burdens on small but low-harm platforms. I agree with that, but with an “or” it would be perfectly possible for Ofcom to decide by looking at size or functionality and to exclude those smaller platforms that do not present the harm we all care about. The Minister may also offer me a review of categorisation; however, it is a review of the tiers of categorisation and not the sites within the categories, which I think many of us will have views on over the years.

I come to what we should do on this final day of Report. I am very thankful to those who have had many conversations on this, but there is a fundamental difference of opinion in this House on these matters. We will talk about functionality shortly and I am mindful of the pre-legislative scrutiny committee’s recommendation that this legislation should adopt

“a more nuanced approach, based not just on size and high-level functionality, but factors such as risk, reach, user base, safety performance, and business model”.

There should be other factors. Ofcom should have the ability to decide whether it takes one factor or another, and not have a series of all the thresholds to be passed, to give it the maximum flexibility. I will listen very carefully to what my noble friend the Minister and other noble Lords say, but at this moment I intend to test the opinion of the House on this amendment.

[Baroness Finlay of Llandaff (CB)]

My Lords, I strongly support Amendment 245. The noble Baroness, Lady Morgan of Cotes, has explained the nub of the problem we are facing—that size and functionality are quite separate. You can have large sites that perform a major social function and are extremely useful across society. Counter to that, you can have a small site focused on being very harmful to a small group of people. The problem is that, without providing the flexibility to Ofcom to determine how the risk assessment should be conducted, the Bill would lock it into leaving these small, very harmful platforms able to pursue their potentially ever-increasingly harmful activities almost out of sight. It does nothing to make sure that their risk assessments are appropriate.

Online Safety Bill

Debate between Baroness Morgan of Cotes and Baroness Finlay of Llandaff

Committee stage
Tuesday 16th May 2023 Lords Chamber

[Baroness Finlay of Llandaff (CB)]

I am particularly grateful to the noble Lords who co-signed Amendments 96, 240 and 296 in this group. Amendment 225 is also important and warrants careful consideration, as it explicitly includes eating disorders. These amendments have strong support from Samaritans, which has helped me in drafting them, and from the Mental Health Foundation and the BMA. I declare that I am an elected member of the BMA ethics committee.

We have heard much in Committee about the need to protect children online more effectively even than in the Bill. On Tuesday the noble Baroness, Lady Morgan of Cotes, made a powerful speech acknowledging that vulnerability does not stop at the age of 18 and that the Bill currently creates a cliff edge whereby there is protection from harmful content for those under 18 but not for those over 18. The empowerment tools will be futile for those seriously contemplating suicide and self-harm. No one should underestimate the power of suicide contagion and the addictive nature of the content that is currently pushed out to people, goading them into such actions and drawing them into repeated viewings.

Amendment 96 seeks to redress that. It incorporates a stand-alone provision, creating a duty for providers of user-to-user services to manage harmful content about suicide or self-harm. This provision would operate as a specific category, relevant to all regulated services and applicable to both children and adults. Amendment 296 defines harmful suicide or self-harm content. It is important that we define that to avoid organisations such as Samaritans, which provide suicide prevention support, being inadvertently caught up in clumsy, simplistic search engine categorisation.

Suicide and self-harm content affects people of all ages. Adults in distress search the internet, and children easily bypass age-verification measures and parental controls even when the have been switched on. The Samaritans Lived Experience Panel reported that 82% of people who died by suicide, having visited websites that encouraged suicide and/or methods of self-harm, were over the age of 25.

Samaritans considers that the types of suicide and self-harm content that are legal but unequivocally harmful include, but are not limited to, information, depictions, instructions and advice on methods of self-harm and suicide; content that portrays self-harm and suicide as positive or desirable; and graphic descriptions or depictions of self-harm and suicide. As the Bill stands, platforms will not even need to consider the risk that such content could pose to adults. This will leave all that dangerous online content widely available and undermines the Bill’s intention from the outset.

Last month, other parliamentarians and I met Melanie, whose relative Jo died by suicide in 2020. He was just 23. He had accessed suicide-promoting content online, and his family are speaking out to ensure that the Bill works to avoid future tragedies. A University of Bristol study reported that those with severe suicidal thoughts actively use the internet to research effective methods and often find clear suggestions. Swansea University reported that three quarters of its research participants had harmed themselves more severely after viewing self-harm content online.

Amendment 240 complements the other amendments in this group, although it would not rely on them to be effective. It would establish a specific unit in Ofcom to monitor the prevalence of suicide, self-harm and harmful content online. I should declare that this is in line with the Private Member’s Bill I have introduced. In practice, that means that Ofcom would need to assess the efficacy of the legislation in practice. It would require Ofcom to investigate the content and the algorithms that push such content out to individuals at an alarming rate.

Researchers at the Center for Countering Digital Hate set up new accounts in the USA, UK, Canada and Australia at the minimum age TikTok allows, which is 13. These accounts paused briefly on videos about body image and mental health, and “liked” them. Within 2.6 minutes, TikTok recommended suicide content, and it sent content on eating disorders within eight minutes.

Ofcom’s responsibility for ongoing review and data collection, reported to Parliament, would take a future-facing approach covering new technologies. New communications and internet technologies are being developed at pace in ways we cannot imagine. The term

“in a way equivalent … to”

in Amendment 240 is specifically designed to include the metaverse, where interactions are instantaneous, virtual and able to incite, encourage or provoke serious harm to others.

We increasingly live our lives online. Social media is expanding, while user-to-user sites are now shopping platforms for over 70% of UK consumers. However, online is also being used to sell suicide kits or lethal substances, as recently covered in the press. It is important that someone holds the responsibility for reporting on dangers in the online world. Harmful suicide content methods and encouragement were found through a systematic review to be massed on sites with low levels of moderation and easy search functions for images. Some 78% of people with lived experience of suicidality and self-harm surveyed by Samaritans agree that new laws are needed to make online spaces safer.

I urge noble Lords to support my amendments, which aim to ensure that self-harm, suicide and seriously harmful content is addressed across all platforms in all categories as well as search engines, regardless of their functionality or reach, and for all persons, regardless of age. Polling by Samaritans has shown high support for this: four out of five agree that harmful suicide and self-harm content can damage adults as well as children, while three-quarters agree that tech companies should by law prevent such content being shown to users of all ages.

If the Government are not minded to adopt these amendments, can the Minister tell us specifically how the Bill will take a comprehensive approach to placing duties on all platforms to reduce dangerous content promoting suicide and self-harm? Can the Government confirm that smaller sites, such as forums that encourage suicide, will need to remove priority illegal content, whatever the level of detail in their risk assessment? Lastly—I will give the Minister a moment to note my questions—do the Government recognise that we need an amendment on Report to create a new offence of assisting or encouraging suicide and serious self-harm? I beg to move.

[Baroness Morgan of Cotes (Con)]

My Lords, I particularly support Amendment 96, to which I have added my name; it is a privilege to do so. I also support Amendment 296 and I cannot quite work out why I have not added my name to it, because I wholeheartedly agree with it, but I declare my support now.

I want to talk again about an issue that the noble Baroness, Lady Finlay, set out so well and that we also touched on last week, about the regulation of suicide and self-harm content. We have all heard of the tragic case of Molly Russell, but a name that is often forgotten in this discussion is Frankie Thomas. Frankie was a vulnerable teenager with childhood trauma, functioning autism and impulsivity. After reading a story about self-harm on the app Wattpad, according to the coroner’s inquest, she went home and undertook

“a similar act, resulting in her death”.

I do not need to repeat the many tragic examples that have already been shared in this House, but I want to reiterate the point already made by the BMA in its very helpful briefing on these amendments: viewing self-harm and suicide content online can severely harm the user offline. As I said last week when we were debating the user empowerment tools, this type of content literally has life or death repercussions. It is therefore essential that the Bill takes this sort of content more seriously and creates specific duties for services to adhere to.

We will, at some point this evening—I hope—come on to debate the next group of amendments. The question for Ministers to answer on this group, the next one and others that we will be debating is, where we know that content is harmful to society—to individuals but also to broader society—why the Government do not want to take the step of setting out how that content should be properly regulated. I think it all comes from their desire to draw a distinction between content that is illegal and content that is not illegal but is undoubtedly, in the eyes of pretty well every citizen, deeply harmful. As we have already heard from the noble Baroness, and as we heard last week, adults do not become immune to suicide and self-harm content the minute they turn 18. In fact, I would argue that no adult is immune to the negative effects of viewing this type of content online.

This amendment, therefore, is very important, as it would create a duty for providers of regulated user-to-user services and search engines to manage harmful suicide or self-harm content applicable to both children and adults, recognising this cliff edge otherwise in the Bill, which we have already talked about. I strongly urge noble Lords, particularly the Minister, to agree that protecting users from this content is one of the most important things that the Bill can do. People outside this House are looking to us to do this, so I urge the Government to support this amendment today.

Her Late Majesty Queen Elizabeth II

Debate between Baroness Morgan of Cotes and Baroness Finlay of Llandaff

Friday 9th September 2022 Lords Chamber

[Baroness Morgan of Cotes (Con)]

My Lords, it is a pleasure to follow the noble Viscount. So much has already been said this afternoon, but at a time of grief it is better for us all to say something. In his message yesterday, our new King said that he and his family would draw comfort from all the sentiments of loss, mourning and gratitude that people would express in the coming days. We have heard many fantastic and moving speeches and it has been a privilege to be part of your Lordships’ House today to listen to them.

I will offer three brief thoughts. First, as has been mentioned and as the noble Viscount just captured in his tribute, the Queen’s last service was to invite her 15th Prime Minister to form a Government. Her face in that picture was still innately curious. To have that level of curiosity at the age of 96, after everything that the Queen had seen, was truly remarkable. Her curiosity was also captured, as we heard earlier, in that very simple question to those City financiers after the 2008 financial crash: “Why did no one else see that this was going to happen?” What a good question that she asked on behalf of so many of her subjects.

Secondly, we have heard that, for those who encountered her in the flesh, it was an unforgettable experience. She said that, for those who were just going to catch a glimpse, she deliberately wore bright clothes so that she could not be missed. Whatever we might think of His Majesty’s wardrobe, he is unlikely to wear that rainbow of colours that we got so used to.

As we heard, in 2012 the Queen visited Leicester with the new Duchess of Cambridge and the Duke of Edinburgh. It was a huge honour for both the city and county for that visit to be the first to any city in the Diamond Jubilee year. Of course, there was great excitement, but the tip that I took away, having watched Her Majesty during the lunch, was that it is acceptable to open your handbag, get out your lipstick and put it on after lunch. I have taken that tip and told many people about it; they found it a great insight into what was in her handbag—apart from marmalade sandwiches.

We heard a story from the noble Baroness, Lady Barker, of someone encountering the Queen and not being able to speak. In my case, when I was appointed to the Privy Council, I forgot to breathe. As the black spots appeared in my peripheral vision, I suddenly realised that I had stopped breathing as I was so close to my monarch and was observing her in close quarters. We also heard about the kissing of hands. While one is not meant to go into the details of Privy Council experiences, it is fair to say that, however experienced in life you are, that ceremony of kneeling and kissing your monarch’s hand is probably the most agonising kiss that you will ever make in your lifetime.

Thirdly, the Queen was our voice of stability at key moments. We have mentioned her Christmas afternoon broadcasts. Of course, after the death of Princess Diana, when the country needed a moment of stability, she was the one who invoked the phrase:

“Grief is the price we pay for love.”


That is worth remembering today. She was also asked to speak in spring 2020 when the Covid pandemic had struck with such ferocity.

I have no doubt that His Majesty the King will provide that same stability and that our thoughts and support will be with him over the coming days and months as he takes on his new duties. In many ways, we began to see that transition of power when he was at the State Opening of Parliament in this House just a few months ago. As we have heard, all these events will be much more of a shock for everyone at every level of society and everywhere around the globe than most of us would have expected. God save the King.

[Baroness Finlay of Llandaff (CB)]

Today, as we pay tribute, having been led so sensitively and eloquently by our Front Benches, we must remember that Her Majesty was patron of over 600 charities and each felt that they were unique to her. Hospices and hospitals benefited greatly from her support and she lifted the morale of everyone, even the sickest person. We saw that she herself lived fully and with her uniquely great dignity until death took her.

The Chartered Society of Physiotherapy had the honour of having Her Majesty as our patron since 1953—its charter having been granted by her grandfather, King George V, in June 1920. Every year of those 69 years, she sent her official royal greetings to our members to mark our AGMs. In 2020, the centenary of our charter, she particularly noted the vital contribution of physiotherapy staff in response to the Covid pandemic. Every year as president, I read out the message and the uplift in the room was palpable: it was affirmation by her while physiotherapists focused on their service to the health of the nation—her subjects—and all felt, and indeed knew, that she deeply appreciated their role. Every event that Her Majesty attended created treasured memories for all who were there. Every year, many enjoyed the honour of a lifetime: an invitation to one of the Queen’s annual garden parties, and some received honours in recognition of the impact of their work.

Her commitment to her citizens across the Commonwealth of Nations, as we have heard so eloquently, was evident throughout her long service. She unwavering dedication to all her subjects provided stability during many turbulent times. At the recent launch of the Commonwealth Tribute to Life—a memorandum of understanding across the Commonwealth—the friendship and support that she inspired were palpable among the transplant professionals in the room.