Relationships and Sexuality Education (Northern Ireland) (Amendment) Regulations 2023

Debate between Lord Caine and Baroness Thornton

Wednesday 28th June 2023 Grand Committee

[The Parliamentary Under-Secretary of State, Northern Ireland Office (Lord Caine) (Con)]

My Lords, the regulations before your Lordships today seek to update the education curriculum in Northern Ireland to make age-appropriate, comprehensive and scientifically accurate education on sexual and reproductive health and rights, covering contraception and access to abortion, a compulsory component of the curriculum in all grant-aided schools in Northern Ireland.

I understand and respect that there will be differing views on this issue. I also recognise the will of this Government to deliver on their statutory obligations. In passing the Northern Ireland (Executive Formation etc) Act 2019, Parliament decided to implement the recommendations made by the 2018 report of CEDAW, the UN Committee on the Elimination of Discrimination against Women. Section 9 of the Northern Ireland (Executive Formation) Act 2019, which passed with a majority in the House of Commons of 232 and one of 145 in your Lordships’ House, places a legal duty on the Secretary of State to ensure that the recommendations in paragraphs 85 and 86 of the CEDAW report are implemented in full. This is a specific and unique duty which arose from a vote in Parliament. In implementing this decision, the Government have always sought to ensure that the education provided would be similar to that already provided in England with regard to contraception and abortion, and these regulations do this.

It has been widely reported that there is a problem with how sexual education is being taught in schools in Northern Ireland. This has been highlighted by a number of recent studies, including by the Northern Ireland Human Rights Commission. In its report into relationship and sexuality education in post-primary schools in Northern Ireland, it recommended that a standard level of RSE be introduced throughout all schools in Northern Ireland. That was in June this year. Separately, a survey commissioned in September 2022 by a health charity, Informing Choices NI, highlighted that 78% of MLAs agreed that there should be a standardised curriculum, regardless of a school’s ethos.

I am acutely aware that education is a devolved matter in Northern Ireland—indeed, I am looking at a former Education Minister, in the form of the noble Lord, Lord Weir of Ballyholme, right now. It has always been the Secretary of State’s and this Government’s preference that the Department of Education in Northern Ireland updates the curriculum. However, with nearly four years having passed since the executive formation Act, adolescents in Northern Ireland are still not receiving comprehensive and scientifically accurate education on sexual and reproductive health and rights. This is why, on 6 June, the Secretary of State, my right honourable friend Chris Heaton-Harris, laid these regulations in Parliament to comply with his statutory duty.

This SI has the following effects. It amends the Education (Northern Ireland) Order 2006, and the Education (Curriculum Minimum Content) Order (Northern Ireland) 2007 for adolescents, to make age-appropriate, comprehensive and scientifically accurate education on sexual and reproductive health and rights, covering prevention of early pregnancy and access to abortion, a compulsory component of the curriculum. It places a duty on the Department of Education to issue guidance by 1 January 2024 on the content and delivery of the education required to be provided and places a duty on the board of governors and principal of every grant-aided school to have regard to the guidance. Also, the Department of Education is required to publish a report by 1 September 2026 on the implementation of the updated curriculum in grant-aided schools and to lay the report before the Assembly. I say in parenthesis that I trust that there will be an Assembly back in place and fully functioning well before that date.

The Government recognise the sensitivity of this topic and that some parents may wish to teach their child about sex education or to make alternative arrangements to be provided in line with their religious background or their belief about the age that their child or children should access sex education. In recognition of this, this SI also place a duty on the department to make regulations about the circumstances in which a pupil may be withdrawn from education on sexual and reproductive health and rights, or elements of that education, at the request of a parent. This follows the approach taken elsewhere in the United Kingdom.

It is important to state that this Government believe that educating adolescents on issues such as contraception, the legal status of abortion and how relevant services may be accessed should be done in a factual way that does not advocate a particular view on the moral or ethical considerations of abortion or contraception. While schools will be under a duty to teach the updated curriculum within the 2023-24 school year, there will also be a period of implementation and a need for meaningful engagement with parents and teachers. The amendments to the curriculum come into force on 1 July, in preparation for the 2023-24 academic school year. As I said, the duty on the department to issue guidance on the content and delivery of the required education will come into force on 1 January 2024.

Officials in my department, the Northern Ireland Office, will continue to work closely with those in the Department for Education. They have also been engaging with relevant educational bodies to make them aware of the changes to the curriculum. We understand that further engagement with schools, parents and young people is also very important so that they feel reassured about the content of this updated curriculum. However, it is important that children and adolescents are given the correct information so that they can make informed choices.

That summarises the changes that are introduced by these regulations, and I commend them to the Committee. I beg to move.

[Baroness Thornton (Lab)]

My Lords, I thank the Minister for introducing these regulations. Of course, the Secretary of State is not only empowered to make these regulations but legally obliged to do so. With the regulations, the Secretary of State is making a statutory duty to implement recommendation 86(d) of the report of the Committee on the Elimination of Discrimination against Women. As a result, as the Minister has told us, age-appropriate, comprehensive and scientifically accurate education on sex and reproductive health and rights, covering the prevention of early pregnancy and access to abortion, will become a compulsory component of the curriculum for adolescents in Northern Ireland.

The Labour Party fully supports these measures. On these Benches, we believe that they are a critical step in ensuring that all parts of the United Kingdom meet their human rights obligations to children in this area. All adolescents deserve age-appropriate, comprehensive and scientifically accurate relationship and sex education. For too long, relationship and sex education has been unavailable to adolescents in Northern Ireland. In May 2019, Sir John Gillen’s independent review into how the criminal justice system in Northern Ireland deals with serious sexual offence cases made a series of recommendations, including the need to include in the school curriculum for RSE matters such as consent, personal space, boundaries, appropriate behaviour, relationships and sexuality. In April this year, an evaluation by Northern Ireland’s Education and Training Inspectorate found that 44% of schools reported that they were delivering the topic of consent

“to a small extent or not at all”.

Earlier this month, the Northern Ireland Human Rights Commission, as the Minister told us, published a report into its investigations of relationship and sexuality education in post-primary schools, and found that the curriculum on relationship and sexuality education does not meet human rights standards. According to the commission, most schools are not providing

“age appropriate, comprehensive, scientifically accurate education”

on access to abortion services. The investigation also found that some schools actively contribute to the shame and stigma surrounding unplanned pregnancy and abortion by making statements such as abortion is not a means of contraception and those who knowingly engage in casual sex must bear the consequences of their actions. It revealed that some schools are teaching children that homosexuality is wrong.

In England, Scotland and Wales, compulsory RSE that embeds reproductive rights and choices within the curriculum, implementing the CEDAW recommendations, is already in place. The Labour Party welcomes the fact that today’s regulations will help to ensure that the curriculum for children in Northern Ireland meets that standard too. The Northern Ireland Human Rights Commission has welcomed the new regulations and emphasised that implementation and monitoring will be critical. Schools should support and develop their capacity to deliver RSE, and the commission and other expert independent organisations have offered their expertise to help with that.

I have read with care the Secondary Legislation Scrutiny Committee’s report on these regulations and the debate that took place in the Commons yesterday. I of course agree with my honourable friend Peter Kyle and the Minister in that debate about the need to move forward on this matter. However, there are a few matters from this report that particularly concern us. The first is the question of consultation—or lack of it, as the committee says at paragraphs 54 to 56. The Minister needs to clarify that and address it. The second is the use of outside contractors to deliver RSE. How will the Department of Education in Northern Ireland ensure that the delivery of RSE meets the updated curriculum that these regulations set in motion? Thirdly, will the Northern Ireland Office liaise with the Department of Education to provide detailed information about implementation, which the report mentions at paragraph 43? Finally, is the Minister assured that the Department of Education will have the necessary regulations in place regarding parents withdrawing their children from RSE?

With those questions, which I am sure the Minister will be happy to address, we offer him our support.