Lord Bates
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Modern Slavery Bill
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Lord James of Blackheath (Con)
The Minister is aware that I have some continuing concerns since I withdrew my Amendment 29. Having listened to the debate on this amendment today, there is a word in the amendment that causes me great concern in the context of the story I recounted to the House. The word is “referral”. In the case of my story, referral would have come far too late: the children were in the middle of the Atlantic before anybody could have referred them. Those children could not have referred themselves. They were deposited at the quayside. We did not know who they were or where they came from. They were put on to a boat and they sailed away within three hours. As they could not have referred themselves, they were therefore wholly dependent on the authenticity and legality of some certificate to the effect that they were properly selected and briefed to become migrants. They are lost people, as far as I am concerned—a lost generation. There were 1,760 of them; I have been able to check up since.
Where this clause is wrong goes back to the point that I have been asking the Minister about since I withdrew my amendment. How have we got in here an absolutely legal authority for every child who is put into a migration situation? We have done this regularly about every 20 years for the last 250 years and we need to stop it. We need to outlaw ourselves from doing it any more. That was my concern when I recounted my story and I am not satisfied that the Bill in its present form locks that door once and for all so that we cannot prise it open again and do it.
In the circumstances I described, the travel arrangements could be made under the entire authority of the Australian Government and the Australian civil service in London. The children were coming from local councils that wanted to get rid of them and from orphanages that could not cope with the numbers they had. They put them in a truck and dumped them on the quayside at Tilbury. We put them on a boat and they sailed. Where is a referral going to come in to save those children from that fate? We have not made illegal the act of forced transportation. We have been doing it for 250 years and I am not satisfied yet that this Bill blocks it.
The Parliamentary Under-Secretary of State, Home Office (Lord Bates) (Con)
My Lords, we have had a very good debate on this important area and I will respond to each of the amendments in turn. Effectively, they seem to be almost in grades. It was rather helpful to the House that we almost had revision-max from the noble Lord, Lord Rosser, in his amendment and it progressively got a little bit lighter to the mere enabling which was put forward by the noble and learned Baroness, Lady Butler-Sloss. The points were extremely well made and I will try to respond to them as best as I can.
The first point to make is that it is not quite the no-brainer that people have suggested. The national referral mechanism was set up in 2009 under the previous Government. It was not set up on a statutory footing. Therefore, it clearly was not an obvious omission at that point. We took the view that Clause 48 is adequate. I accept the comments that have been made about whether Clause 48, which refers to the issuing of guidance—by which is meant the national referral mechanism—is adequate. None the less, it is a point of discussion as to whether the flexibility of something not being on a statutory footing is balanced by the other side of having something in the Bill. We will come to that.
The second point to make is that much is rightly made of the good work of the Joint Committee which looked at this, took evidence and made recommendations. The very fact that the Home Secretary committed to a review and asked Jeremy Oppenheim to undertake it clearly reflects the fact that we were not satisfied with the way in which the national referral mechanism was working. That is why Jeremy Oppenheim was asked to undertake the review. A wide range of organisations and individuals were consulted. The noble and learned Baroness, Lady Butler-Sloss, and the noble Lord, Lord Warner, were engaged in that process. Some 129 organisations were engaged in the review and their views were fed into the process.
My final point, before turning to the amendments, is that we have a substantial number of recommendations across the six categories as to where the system needs to be significantly improved. The review identifies the weaknesses and deficiencies that many noble Lords have referred to, particularly my noble friend Lady Hamwee.
I am grateful to noble Lords for tabling Amendments 86P, 93 and 96 and for allowing us to follow on from our excellent debate on Monday on the crucial issues of identification and support of victims. I reiterate that the Government share the desire of noble Lords to ensure that as many victims as possible are identified and properly supported. We are already taking decisive action to ensure that that is the case. Amendments 93, 96, and 86P each propose placing a referral mechanism for identifying and supporting victims on a statutory footing, but with slightly different approaches, as I have mentioned. For Amendment 93, this would be a replacement mechanism for the national referral mechanism currently administered by the UK Human Trafficking Centre. Amendment 96 seeks to place an enabling power in the Bill for the Secretary of State to make regulations to establish a statutory referral mechanism. Amendment 86P seeks to place the national referral mechanism on a statutory footing, including providing for all confirmed victims of trafficking, enslavement or exploitation to be entitled to a one-year residence permit.
I believe that the most important thing is that these victims are spotted and rescued in the first place. The best referral and support systems in the world will work effectively only if we find victims, who are so often hidden in plain sight up and down this country. That is why the Home Secretary commissioned a review of the national referral mechanism to ensure that victims can be identified quickly and effectively and be given the right support and assistance. As noble Lords will be aware, the review was published on 11 November and made a number of important recommendations. I know that, in taking the review forward, Jeremy Oppenheim consulted more than 100 organisations and the recommendations from the review take into account their views.
The recommendations in particular concluded that putting the NRM onto a statutory footing,
“will not change the UK’s commitment and obligations to abide by the trafficking convention or methodology with which it is implemented. Any process put on a statutory footing can become inflexible and unresponsive to changing demands and indeed improvements, due to the requirement to further legislate before making changes”.
Furthermore, the review noted:
“Pinning the National Referral Mechanism down now would not be an effective methodology particularly when the National Referral Mechanism is going through a period of significant change”.
It is absolutely right that we should fully consider the vital mechanism used to refer and support these vulnerable victims. But I am not convinced that putting it on a statutory footing will achieve our aim of improving the service we offer to victims. We consider the recommendations made by the review to be transformational and believe that they will overhaul the way in which victims are identified and supported and how those organisations responsible for identifying and protecting victims prioritise and co-ordinate their activities.
The noble Lord, Lord Warner, talked about the difference between the UK trafficking centre giving 80% of cases a positive conclusive grounds decision while UKVI gives only 20% positive decisions. Those figures are not quite right, but it is true that a lower proportion of total referrals have received positive conclusive grounds decisions from the UKVI than from the UKHTC in the past. There is a good reason for the difference. In positive decision rates, UKVI deals with very different cases where corroborative evidence may be harder to obtain. Quality reviews to date indicate that UKVI has been making the right decisions in these difficult circumstances.
The NRM review recommendations include the recommendation to move to multidisciplinary panels to undertake decisions on all cases. This is one of the recommendations that will be widely welcomed. Fundamentally changing the way in which potential victims are referred for support and the way in which decisions are made will ensure that good-quality, timely decisions are at the heart of what we do. That is because the process will have a high level of independent scrutiny and will involve multidisciplinary panels, as suggested.
Our initial response to the review is set out in the modern slavery strategy, which was published on 29 November. Given the fundamental change in approach that is being recommended, we want to make sure that our approach is sound and enhances the experiences of potential victims who are referred for help and support. We will therefore establish two pilots as quickly as possible to test the core recommendations relating to the identification of victims and to the referral and decision-making processes. We want to make sure that we get these pilots right. Officials are meeting a number of NGO representatives later this week to discuss early proposals.
Lord Warner
Will the Minister take away a broader issue when thinking further about this? The way in which this country has dealt with difficult social problems has often started with administrative responses because that is the fastest way of dealing with a more immediate problem. That is why, in 2009, the previous Government started with an administrative system. But if one looks at the field of health—for example, human fertilisation or human tissue issues—at some point or another, the Government of the day have to get into some kind of statutory system. There are whole sets of issues about public accountability and the transparency of the decision-making, and there is an expectation that Parliament will intervene.
This is nothing to do with getting at the Home Office; it is the way we do business in this country. Perhaps the Minister might go back to his colleagues and talk about this. They should ask themselves: has this work in the area of modern slavery got to that point? I suspect it has. When you see the kinds of criticism of the present administrative system in the report, I think it has got to—or is very close to—the point where there will be a public expectation that the Government of the day, whoever they are, will put this system on a more statutory basis. It would be a shame if we missed the opportunity in this Bill to get the drafting such that we could move quickly to put it on to a statutory basis should, as I suspect will happen, that need arises.
Lord Bates
I am grateful to the noble Lord for making that suggestion. That is exactly what we will do. I undertake to take it away and reflect on it. If we come back, it will be more along the lines that he is talking about, where we will set out some broad general principles rather than being too prescriptive. The luxury that we have is because when it was set up by the previous Government, it was not set up on a statutory footing—it was not all in the legislation—and therefore we have been able to undertake this quite fast-paced process of review and recommendation, which will enable us to move far more quickly to fixing the system along the lines that we all want to see.
Baroness Butler-Sloss
I would just like to pick up what the noble Lord, Lord Warner, said. It seems to me that the Government could put forward a very general proposition in relation to the national referral mechanism or statutory safeguarding organisation without tying themselves to how it would work. That seems to be the way forward because you would then have the power to put in whatever was appropriate after you had had the pilot schemes, which I am delighted to hear the Government are proposing to do. The important thing is for the Government not to tie themselves too much but to be able to come back and produce whatever is needed in any subsequent legislation, into which one could slip in an appropriate amendment. There will be no shortage of that, I suspect, with a future Government. If I may respectfully say so, something needs to be there to enable the Home Secretary of the day to go forward without having to look for some primary legislation.
Lord Bates
I accept that. I do not want to yield, as it were, to the position of saying that because we are being pressed by distinguished Members, we should give way on this. I have tried to put forward quite a robust argument as to why we have arrived where we have. We have before us a significant review of the national referral mechanism, which seems to address many of the concerns that people have recognised. That review, which everybody was in favour of and many people were involved in, came out against putting it on a statutory footing. We must take that into account but I give the assurance that, in the spirit that we have tried to keep all the way through this Bill, we will look at that very carefully and continue that discussion between now and Report.
Lord Rosser
I thank the Minister for his response and the indication that we can at least continue to discuss this issue, which is very helpful. As the noble Baroness, Lady Hamwee, said, the review argued for a well governed national referral mechanism, so in the light of all the criticisms that it made—no doubt quite rightly—of the present system, it is a question of whether one feels that can be achieved without it being on a statutory basis. I think a lot of people will feel, in the light of those criticisms, that we need to put it on a statutory basis. As the right reverend Prelate said, it would provide consistency and clarity for victims in how they were treated and give a clear framework. I think there is a lot to be said for doing that.
I acknowledge the point the Minister made: when the national referral mechanism was set up in 2009, it was not done on a statutory basis. Equally, the situation in relation to the incidence and nature of human trafficking and exploitation in this country has changed quite dramatically since 2009. Certainly, there has been a bit of an awakening as to what exactly has been going on. I can only repeat what the review said:
“The National Referral Mechanism has grown somewhat wildly over time. It is now a complex system operating in a challenging and painful area of public life”.
That would seem to reflect a view on its part that perhaps the situation has changed since 2009.
There are three amendments in this group, one of which the noble and learned Baroness, Lady Butler-Sloss, spoke to. That one does not suggest instant action since it refers to the Secretary of State reporting to Parliament within 12 months. I rather sense from some of the comments the Minister made that the biggest drawback to putting this on a statutory basis at the moment appears to be that the Government feel the situation is somewhat fluid with changes to the national referral mechanism, and they therefore feel that this might not be the appropriate time to put it on a statutory footing. I am not entirely clear—and I am not asking the Minister to respond at the moment—whether the Government object in principle to it being on a statutory footing. That is not the way it came over. I felt that the Minister was saying that the situation is fluid in relation to the NRM and this is not the appropriate time to do it. I hope I have not misunderstood him but I welcome his proposal that there should be further discussions about this, which is extremely helpful. In the light of that, I beg leave to withdraw my amendment.
Lord Bates
(a) the Secretary of State, or(b) if regulations made by the Secretary of State require it to notify a public authority other than the Secretary of State, that public authority.”
Lord Bates
“( ) The Secretary of State may by regulations specify the public authorities to which this section applies.”
Lord Bates
My Lords, I thank noble Lords for their contributions to this debate—and the noble Lord, Lord Rosser, for moving his amendment—and for the wide welcome that has been given to the clause. I will bask in that statement of welcome just for a couple of seconds, because it probably will not endure for very long. As is the case not only in Part Six but in all parts of the Bill, I totally understand the impatience of the Committee and of civil society on this issue. There is a wrong that is happening out there and we all want to tackle it. We want to go after the perpetrators and stop the abuse as much as possible.
I will deal with some of the issues that have been raised in some general opening remarks and, if the Committee will bear with me, I will put some remarks relating to the Government’s position on the record. I am also conscious that we are now coming to three groups that look at the supply chain from slightly different angles. Therefore, some of the issues and comments will overlap.
I certainly subscribe to the view of my noble friend Lady Hamwee. I refer to my own experience in supply chains because I did my MBA dissertation in China, in Qingdao, where I was commissioned to research Nike footwear factories and analyse how they were performing against Nike’s standard and code—the apparel industry code, as I recall. We found some amazing stories, which made me very alert to the issues.
There is one issue that is worth putting on the record at this point. The noble Lord, Lord Rosser, mentioned the statistic that four-fifths of the public want us to go further and want more information on this. Although the factories were located in China, they were operated by Korean companies. Part of the reason those factories were being driven so hard was that the consumers were not prepared to pay the market price for the footwear. They wanted more and more features and more and more design intricacies, but they did not want to pay any more for them. Therefore, the price had to come down. The intricacies of the design meant that the level of injuries that workers received in these factories was substantially higher. So part of the debate here is about how to engage the consumers in this. Part of it is about providing information, but the other part is to say that they cannot be exempt from the process. Yes, it is something for government and for business, but it is also something for consumers.
That very helpful meeting was triggered by the timely debate initiated at the end of October by the noble Baroness, Lady Kennedy of Cradley, which came out with perfect timing because the debate was on or around the day when the new clause was published in another place. Then we had the follow-up meeting and a helpful discussion about what could be done, and some very good ideas were generated there. A lot of those ideas are now working their way through the policy machine to be tested for feasibility, perhaps to come back at a later stage of the Bill.
A number of the points that were raised then are effectively about whether we should be prescriptive in the Bill or try to engage with the industry and business to make them aware of the risks that they face of reputational damage, in an age where often the biggest item on a balance sheet is not a physical asset but good will towards the brand, which disappears very quickly when you find yourself on the front page of a newspaper or in a TV documentary, having not checked your supply chain sufficiently. That is also a reason why investors, such as major pension funds and public sector pension funds, should be looking at the companies that they invest in and asking the question: are their supply chains robust and checked? We should look at that area.
Meanwhile, we are engaging in a consultation. I know that there are many consultations; it is a good job that the noble Lord, Lord Warner, is not here or I think he would be intervening at this point. The reality is that it is a tough time out there for businesses and we want them to succeed and develop, so we want to try to take them with us as far as we can without being too prescriptive. We have been talking to a list of organisations and stakeholders, and it might be useful for the record to say that we are talking to the Ethical Trading Initiative—I know that that is something that the noble Lord, Lord Young, is involved in, as is the noble Baroness, Lady Goudie, who has done a lot of work in this area—the British Retail Consortium, the Engineering Employers’ Confederation, the Association of Labour Providers, the CBI, high street retailers including Next, Primark and Marks & Spencer and supermarkets including Tesco, Sainsbury’s, Asda and the Co-op. We have also been engaging with other NGOs, including Unseen and the Environmental Justice Foundation, as well as working with Deloitte and PricewaterhouseCoopers. I think that it is useful to place on the record that meaningful consultation is going on here to see how we can get the changes that we all want to see.
That consultation will formally start next month and follow the usual guidelines that we now have for consultations. It will last for three months; therefore, we will probably not see its results until the Bill has—we hope—received Royal Assent. That is why it is phrased in the present format about regulations coming forward with regard to how that will be applied.
I turn to the specific questions. The noble Lord, Lord Rosser, asked whether Clause 51 allows enforcement by way of injunction. So far in the Bill, I have learnt this much: when talking about matters legal, I had better take my own injunction and consult my colleagues at the Home Office in detail before responding on the record. I will respond in writing on that point.
The duties are a duty to prepare an annual slavery and human trafficking statement, and to publish it prominently on the organisation’s website homepage or, if it does not have a website, to provide a copy on request. It was that latter point that the noble Baroness referred to. Who is meant to see that? The many NGOs, which are doing terrific work in this area and being vigilant in monitoring organisations, trade unions and other organisations should all be paying attention to what that statement says and holding companies to account for it. Civil society and the media will also be able to look at it, and if it is not there then that raises another set of questions. The idea is to provide the information to the public domain in the first place and then allow people to scrutinise it further.
My noble friend Lady Hamwee asked what role the Government were going to play in this. There are two constructive roles that the Government can have. The first is through the interdepartmental ministerial group on modern slavery. I mentioned this yesterday and listed the departments; the noble Baroness mentioned the Foreign Office in her remarks, but it goes much wider than that. It includes the Department for Business, Innovation and Skills and the Department for Education. I will not go through the whole list.
Lord Hylton
While the Minister is on the point about the interdepartmental group, will it recognise—I hope that it will—that British consumers have shown that they are willing to pay a higher price for an ethical product as a result of the fair trade campaign and fair trade labelling? Secondly, if I were a purchaser, which I am not, I would steer very clear of bricks made in Pakistan or matches made in India, knowing that many of them are produced by either bonded labour or child labour.
Lord Bates
Those are very good points well made. My home town, Gateshead, is the proud home to Traidcraft, which does tremendous work in this area doing ethically sourced coffees and foods, which are often a particular problem, but I do not want to get into advertising around Christmastime otherwise I will get into a whole other set of problems. Ultimately the consumer has great power here, although perhaps they do not realise it. In the same way that they have the power to drive down prices and standards around the world, they also have the opportunity to drive them up through their purchasing patterns.
The interdepartmental ministerial group is one part of this but I want to talk about another important part: what the Government can do. The Government can do more by putting their own house in order. The Government are a huge procurer—I do not know whether that is the right term—and a major purchaser of goods and services. It is important that we do everything that we can to prevent modern slavery from infiltrating our public sector supply chains. Taxpayers’ money should not be allowed to drive demand for these heinous crimes. That is why we are already taking concerted action on this issue. Individual departments have already taken clear steps. For example, the NHS standard terms and conditions for suppliers have clear conditions on labour standards in the NHS supply chain, and it has developed a labour standards assurance system that encompasses issues on forced labour.
The interdepartmental ministerial group on modern slavery will help to encourage best practice across the Government and the devolved Administrations. Home Office standard terms and conditions already require compliance with the law, which will of course soon include ensuring that suppliers have complied with our transparency and supply chain measure. We are also strengthening the labour standards section within our annual corporate social responsibility assessment in order to seek specific assurances from the Home Office’s largest suppliers that they have policies in place to address the risk of modern slavery. In addition, we are currently seeking ways to go further and require specific assurances from suppliers about steps that they are taking to stamp out modern slavery, which is an approach that we hope to then roll out across central Government. As a result, we are already proactively going beyond the measures in the Bill to address this issue. This is a bit like what we are asking people to do: to make a public statement and then be held to account for it. I wanted to put that on the record and expect to be held to account for it, being careful not to tempt fate too much. It is right that that is where we start.
With that rather longer than expected introduction, aware that we have two further groups to come in this area of consideration and having put those points on the record, perhaps the noble Lord, Lord Rosser, would accept that as a response on the Government’s position on his amendment and consider withdrawing it at this stage.
Lord Rosser
Before I do that, did the Minister early in his reply refer to coming back at a later stage or not?
Lord Bates
I do not think I actually said that. I think I related it to the consultation. The Government’s position is: let us have a consultation, let us try to bring industry with us. The consultation will start in January, it will finish at the end of March and it will then be evaluated, so we will probably be beyond Royal Assent before that is available. That was in my statement. I may have alluded to the fact—this may have given rise to the confusion—that we will be coming back to this issue in subsequent groups in Committee today, but the consultation will extend beyond Royal Assent.
Lord Rosser
I thank the Minister for clarifying that point and for his reply. I suppose one’s observation would naturally be that if the Government had put this in the Bill in the first place or had agreed somewhat earlier to Clause 51, the consultations could have been completed before the Bill had gone through all its stages in Parliament, and we might have been able to have a rather more meaningful debate. That is what happens when a Government had to be dragged kicking and screaming to put something in a Bill as it went through its last stages in the House of Commons.
I am still not clear what the Minister is saying about what action can be taken if a commercial organisation produces the slavery and human trafficking statement but it is a bit thin or vague in its content. The Minister said that the measures under Clause 51(9), civil proceedings, would relate to whether the organisation had actually prepared the statement—which has nothing to do with the content—and published it on its website. It did not address the issue which I raised as to what would happen if the statement was a bit vague in its content. After all, the purpose of my amendment was to stipulate the areas that had to be addressed in the statement. The Minister has not really responded to that point.
Surely, enough information needs to be required in the statement to enable a consumer, a voluntary organisation or the media to form a view on how well or otherwise a company is doing compared to other companies in ensuring that slavery and human trafficking is not taking place in any of its supply chains or any part of its own business. Frankly, the Minister has not said anything to provide me with any comfort that the Government intend to include anything in the Bill that will ensure that the necessary information is provided to enable those meaningful comparisons to be made. In moving the amendment, I referred to the issue of guidance. The Secretary of State “may issue guidance”—it is not “must issue guidance”—which,
“may in particular include guidance about the kind of information which may be included in a slavery and human trafficking statement”.
We still have the problem: what action can actually be taken if the statement is produced and published but is a bit vague in its content and does not really enable the consumer, the voluntary organisation or the media to make a proper and effective assessment of the action that has been taken by that company, compared with other companies, to ensure that slavery and human trafficking is not taking place?
Lord Bates
I did not mean not to give the courtesy of addressing the specific amendment. We believe that it would be for civil society and the wider community to examine and assess whether a company’s statement on its supply chain is sufficient, rather than it being for the Government to do that. While trying to be courteous and respond precisely to the point that the noble Lord, Lord Rosser, made, the noble Lord, Lord Alton, asked a specific question about whether the anti-slavery commission might collect data on that. As worded within the anti-slavery commissioner’s remit, he can undertake research, consult, produce documents and engage in education and information. Of course, he is independent. I should have thought that a key part of that might be to consider transparency of supply chains.
Lord Rosser
I can only comment that it is very difficult for civil society to make a judgment if there is not enough information in the statements in the first place. There is no requirement, in my opinion—and there is nothing in what the Minister said to cause me to change my view—in Clause 51 to ensure that the necessary information is provided.
Still, I note what the Minister said in reply. I am obviously disappointed with it, as Clause 51 still does not go far enough and will not enable those judgments to be made by society, whether it be consumers, voluntary organisations, the media or others. That is a matter of regret. However, I note that that is the Government’s position and I beg leave to withdraw the amendment.
Lord Rosser
My Lords, I will be brief. These two amendments are wider-ranging than my amendment but their intentions and objectives are similar, and I wait to see whether they will elicit a more enthusiastic government response. I also await the response to what I believe to be the request of the noble and right reverend Lord, Lord Harries of Pentregarth, for discussions involving the Government on this matter before the next stage in the passage of the Bill through this House.
Lord Bates
I cannot quite match the noble Lord’s brevity, but I will try to go as far as I can, because some interesting proposals have been made. The first was the idea, suggested by the noble Lord, Lord Alton, of reconvening, between now and Report, his group, including the noble Baroness, Lady Royall, on the issues of the supply chain. That would be a very helpful thing to do, and I would be happy to take part in it. The noble Lord talked about the process—the journey that we are on—starting when the new clause was tabled. Some may use the term “kicking and screaming”, but I think that a sinner who repenteth ought to be welcomed into the kingdom of heaven—and into Parliament. I believe we are making progress down that route.
Many points were made about the regulatory framework, to which the noble Lord referred in great detail. The regulatory framework is setting out the long-term strategy. That is where we want to be. There are some stages to go through, in relation to the point made by the noble and right reverend Lord, Lord Harries of Pentregarth. He raised the desire to see more bite than there is at the moment. I cannot give any assurances that that will be there by the time the Bill reaches Royal Assent. However, by the time of the process of consultation is complete and the guidance has been issued—
Lord Harries of Pentregarth
I thank the Minister for giving way, but will he pay particular attention to the speech of the noble Baroness, Lady Mobarik? She spoke from the point of view of business and emphasised the fact that businesses would value greater clarity in what was being required of them in these statements and how they were to go about it. I felt that she was making a very important point from the point of view of business.
Lord Bates
I agree, and my noble friend Lady Mobarik made a very good point by making it clear that it is out of enlightened self-interest that business ought to be pursuing these things. We also need to recognise that we introduced into the Companies Act the requirement for ports to carry a statement on human rights. As with so many of the issues raised by the noble Baronesses, Lady Kennedy and Lady McDonagh, this relates to human rights. You could almost say, without waiting for anything else, that the current legislation that requires a report on human rights could be broadened to include a statement on the human rights of the people involved in the supply chain. Those types of things might give urgency to it. On the assets idea, from my experience of business, nothing grabs the attention better of the chief financial officer, the chief executive or the chairman of the board and the people who invest. The noble Baroness, Lady Mobarik, referred to about 20 institutions of the size of Hermes, which is a huge fund, and Rathbone. When they put weight on that, when they hold shares and hold votes to determine who is the chairman of the board and the non-executive directors and what the remuneration of the senior employees should be—that is precisely the type of group that will grab more attention for these important issues than possibly even more specific legislation.
I am conscious of time, but I am also conscious that I want to pay respect to the two tablers of the amendment, the noble Baroness, Lady McDonagh, and the noble Lord, Lord Alton, with an undertaking to meet and continue the dialogue; and to give an assurance that we will do further work, if or when we meet between Committee and Report, when we will have the terms of reference for the consultation to look at. We can get some early responses to that and see what can be done further to reassure the noble Lord that the Government see this very much as a way of starting down the road. As with all these things, business should be aware that once you start putting down legislation such as this, it tends to be a one-way street. You do not go back. If people do not comply and if business does not take it seriously, this Government or future Governments will say that there is a demand and that they need to act to put more legislation down for businesses to comply with. So I hope, with that canter around the issues, but with some specific commitments to look carefully at this, that the noble Lord, Lord Alton, feels able to withdraw his amendment.
Lord Alton of Liverpool
My Lords, the Minister has been generous in how he has dealt with the issues that have arisen, especially at this late hour. I was struck that he talked about how sinners repenteth, when I was thinking more that Ministers are damned if they do and damned if they do not. I am personally appreciative of the fact that the clause is now in the Bill and, of course, it is incumbent on noble Lords to try to build on provisions in the amendment.
One might use another metaphor about the bird in hand. On this occasion there is a Bill in hand, and a legislative opportunity. We cannot come back in another year from now with legislative proposals. This is the time to make them and I do not think that any of us wants to feel that the moment has passed without our doing justice. I reiterate that, because this is something that came into the Bill so late in another place, it is something to which, outside your Lordships’ House, we should give more time and attention. I thank the noble Baronesses, Lady Kennedy of Cradley, Lady McDonagh and Lady Mobarik, as well as my noble and right reverend friend Lord Harries of Pentregarth for the contributions that they have made in supporting the principles that underpin this and the other amendment before your Lordships. I am also grateful for the Minister’s willingness to meet those who tabled the amendments and the large array of those involved in this issue.
The Minister said that the important thing was to grab the board’s attention to get them thinking about these things. He is right about the power of investment and resources. I was very struck that Matt Crossman at Rathbone Greenbank Investments, which has more than £900 billion of investment, said:
“It is in the best interests of business to join the fight against modern slavery … Specific, but proportionate, legislation can allow companies to continue making progress, whilst ensuring that firms can no longer turn a blind eye to these issues”.
Naheeda Rashid of Hermes, referred to by the noble Baroness, Lady Mobarik, said:
“Companies which are able to demonstrate that they understand and are actively addressing the complexities of the risks in their supply chains will be better placed in managing both their reputation and disruptions to their operations”.
That is what these amendments seek to do—they put real flesh on the bones of Clause 51. I hope that, when the House resumes after the Christmas break, we will have a chance to hold the meetings to which the Minister referred. I hope that Report will not be reached for some weeks, which gives us some time to do that. With the assurances that the Minister has given us, I beg leave to withdraw the amendment.
Baroness Butler-Sloss
My Lords, I also support the amendment. I am not sure in what year the review should be held. I think to say “within five years” is sensible, but it might well be wiser to do it within three years. This is such an important Bill. As I have said previously, the Government are to be congratulated on bringing it forward and for doing so much to make it work. Although we on the Cross Benches, like noble Lords on other Benches, have been critical from time to time, we are well aware of the effort that the Government have made. However, it is important to make sure that the Bill works. The strategies of government that are not in the legislative process will have to be reviewed, but in reviewing those it will also be important to see whether the legislation is strong enough and working well enough for it to manage the strategies that go with it. I urge the Minister to support the idea that there should, at some stage, be post-legislative scrutiny of this important Bill.
Lord Bates
My Lords, I am grateful to the noble Lord, Lord Alton, for proposing the amendment. The Government are committed to post-legislative scrutiny of legislation under the existing arrangements agreed with Select Committees. The Government believe that post-legislative scrutiny is generally preferable to ad hoc and potentially inconsistent specific statutory requirements in individual Bills. The Political and Constitutional Reform Committee’s report into legislative standards praised the Government’s record on post-legislative scrutiny, saying:
“We urge the Government to continue to produce these useful memoranda. In return, we will undertake, and we take this opportunity to encourage other Select Committees to undertake, more visible post-legislative scrutiny work when opportunities arise”.
Since 2012, the House of Lords has established committees on an ad hoc basis specifically to conduct post-legislative scrutiny. I am sure that the House will consider carefully whether the future Modern Slavery Act would be a good candidate for such scrutiny.
However, I would like to place on record once more the Government’s commitment to providing a post-legislative scrutiny memorandum on the Bill within three to five years of Royal Assent. The Government will consult the Home Affairs Committee on the timing of publication of the memorandum, but that is a commitment. In the longer term, the Independent Anti-slavery Commissioner will continue to assess the response to modern slavery and how it is provided, and if new forms of abuse emerge. In addition to the commitment of a memorandum in three to five years, we will also have the update of the Modern Slavery Strategy, produced by the interdepartmental ministerial group on modern slavery. We will also have the anti-slavery commissioner’s annual report, which I am sure will be awaited with great interest by Members of your Lordships’ House.
There are therefore a number of opportunities for this type of scrutiny to happen. Having taken part in the Leader’s Group, which considered ways to improve the workings of your Lordships’ House and elsewhere, I have to say that one of the joys of this Bill is that it has been a textbook example of how legislation should work: first, producing a Bill, which is scrutinised in pre-legislative scrutiny. The Government then come back with a revised Bill and go through a meaningful stage in another place where amendments are made. The same happens in this place, so it seems to me absolutely logical that we should not leave the job unfinished but follow it through right to the end. That is why we are very much behind this commitment. We will produce the Explanatory Memorandum to ensure that that post-legislative scrutiny does arise.
Given that this may well be the last time that I am on my feet in Committee, I thank your Lordships for the way in which we have engaged in this very tough and passionate four days. It has given a huge amount of work for officials to think about and work on between now and Report. Somebody once said: “To govern is to choose”. There are going to be so many issues that we are going to have to work on that we will have to engage in some prioritisation about what is absolutely critical to get in the Bill before Royal Assent and what work can be continued under the watchful eyes of your Lordships and the Independent Anti-slavery Commissioner thereafter. That work and the meetings will continue and we look forward to making further progress on Report. I thank the noble Lord and ask him to consider withdrawing his amendment.
Lord Alton of Liverpool
My Lords, if, as the Minister has said, this legislation has been exemplary in the way in which it has been handled, and I think it has been, then I would also say, and I do not think I would be alone in saying this, that the Minister and the noble Baroness, Lady Garden of Frognal, have been exemplary in the way in which they have treated each of us. I can only speak for myself as a Cross-Bencher, but I suspect that it is a view shared across the Chamber that throughout proceedings we have been treated with great courtesy and thoughtfulness in the way in which the amendments have been considered, not least this amendment. I am grateful to the Minister for the way in which he has promised that post-legislative procedures will be put in place. Obviously, I would prefer it to be in the Bill, but he will not be surprised by that. However, I feel very pleased with the assurances that he has given to your Lordships. I am happy to withdraw the amendment.
Lord Bates
““child” means a person under the age of 18;”
Lord Bates
“Legal Aid, Sentencing and Punishment of Offenders Act 2012 (c. 10)9A In Part 1 of Schedule 1 to the Legal Aid, Sentencing and Punishment of Offenders Act 2012, in paragraph 32(8) (civil legal services for trafficking victims: definitions), in the definition of “exploitation” for the words from “section” to the end substitute “section 3 of the Modern Slavery Act 2014 (meaning of exploitation for purposes of human trafficking offence in section 2 of that Act);”.”