The Ties that Bind: Citizenship and Civic Engagement in the 21st Century Follow-Up Report

Lord Harries of Pentregarth Excerpts

Monday 17th April 2023 Grand Committee

[Lord Harries of Pentregarth (CB)]

My Lords, I begin by paying tribute not only to the Liaison Committee for a very thorough job of work, but to our parliamentary system which provides for such committee. Its very existence and the reports that it produces make it more likely that important recommendations are put into effect, for it can show whether a Government have taken them on board—or not, as the case may be. Sadly, in the case of the recommendations of The Ties that Bind, it is the latter. What our Select Committee originally revealed—a very unsatisfactory situation—is shown by the Liaison Committee still to be highly unsatisfactory and very far indeed from what our committee thought it should be.

I believe that the need for citizenship and civic education highlighted in our 2018 report is even more pressing now than it was then, for we live in a world where there are not only dictatorships but managed democracies, democracies where human rights are not observed, and democracies where the rule of law is made subservient to political expediency. It is more important than ever that pupils coming out of our schools should have some grasp of the political system in which we live, its strengths as well as its weaknesses, and a sense of responsibility to live as an active citizen. That is, for the most part, simply not happening at the moment. Our report showed why, and the Liaison Committee’s report discloses the same fundamental failures.

The first issue, of course, concerns someone to take responsibility for this area. The noble Baroness, Lady Morris, put it so powerfully: there must be a Minister in overall charge. It is only when someone such as that is in place that things happen—when there is someone who is accountable. Our original recommendation was that this person should be located in the Department for Levelling Up, Housing and Communities, but it has a very broad remit. Of course, so much of citizenship education is actually academic education, so if the Government continue to be very resistant to the idea of putting somebody in charge in that department, perhaps they would reconsider and see whether the Minister of Education themselves should be responsible for this area, with particular responsibility to relate to the Department for Levelling Up, Housing and Communities for that aspect of the work.

Secondly, as so many of your Lordships have emphasised, the situation as far as education itself is concerned is absolutely appalling. In so many schools, citizenship is taught only tangentially and in so many it is simply subsumed into PSHE. I will not repeat what has already been put so powerfully by other noble Lords, but imagine a school giving a wrong answer—as wrong as the answer we have disclosed—to Ofsted. Our recommendation is worth repeating:

“Citizenship should not be treated solely as part of pupils’ personal development. To do so is to misunderstand the nature of the subject in its entirety.”


Suppose a school gave an answer that totally misunderstood what it meant. What would Ofsted do about it? There would be black marks all over from any kind of examination system that gets that kind of report.

One aspect of democracy, and therefore of citizenship education, has to do with values—what has been termed fundamental British values. In its original report, the committee expressed concern about the wording of “fundamental British values” as originally conceived and suggested an alternative. Since then, I have tried to press this issue with a Private Member’s Bill, which sadly was not selected, and with amendments to the Schools Bill, which the Government sadly were unwilling to accept. The purpose of what I proposed was to give a much clearer definition of what should be taught under this subject. I will briefly repeat what I put forward:

“British values


(1) In any statement relating to British values for education purposes in England and Wales, the Secretary of State, OFSTED and any other public authority must include—


(a) democracy,


(b) the rule of law,


(c) freedom,


(d) individual worth, and


(e) respect for the environment.


(2) Any statement in subsection (1) must refer to British values as ‘values of British citizenship’.


(3) In subsection (1 )(c) ‘freedom’ includes—


(a) freedom of thought, conscience and religion,


(b) freedom of expression, and


(c) freedom of assembly and association.


(4) In subsection (1)(d) ‘individual worth’ means respect for the equal worth and dignity of every person.


(5) In subsection (l)(e) ‘respect for the environment’ means taking into account the systemic effect of human actions on the health and sustainability of the environment both within the United Kingdom and the planet as a whole, for present and future generations”.


I will continue to look for a legislative opportunity to bring about this change. If achieved, this will help give a much clearer notion of the nature of the democracy in which we live. The word “democracy” means everything and nothing. The majority of countries claim in some sense to be democratic, so it is necessary to state what we mean by the word; otherwise, pupils will grow up with an extremely vague and sometimes misleading idea of what it means, such as it meaning only elections. It means a great deal more than that.

As noble Lords have pointed out, it is not only important that Ofsted has a clear understanding of this subject and distinguishes it from PHSE; if the subject is going to be taught, it needs enough properly trained teachers. As we pointed out in our original report, and as the Liaison Committee emphasised and we mentioned again today, the Government have been unwilling to collect statistics on the number of trainee teachers in the subject or to put forward bursaries, as they are for other subjects, to attract teachers. That is another essential failure.

The Liaison Committee’s report several times looks forward to the then proposed White Paper on schools, in which it expected these serious concerns to be addressed. But there has been no White Paper, so where do we go from here? Who will address these concerns? Will the present Government do so? I am afraid the situation is lamentable. Major failings were exposed by our committee and the Liaison Committee has forcefully shown that the Government have not faced up to them. They are still glaringly obvious.

The noble Lord, Lord Hodgson, began by saying that he thought we had failed. We may have failed to achieve our immediate objectives but I hope we will not think that we have failed totally. I mean no disrespect to the present Government but, with an election coming up in a limited period of time, there will be a new Government—speaking as a Cross-Bencher, it may be either Conservative or Labour—coming in with fresh ideas. Already, people are beavering away, writing their manifestos and putting into their party documents the kinds of achievements they want in future. I hope those noble Lords with political influence are already working with the people devising manifestos and future programmes for government to ensure that these absolutely valid recommendations are not lost. They must be carried forward and, somehow, within the next one, two or three years, we must bring them into effect.