Trade Bill

Lord Hope of Craighead Excerpts

Committee stage
Tuesday 13th October 2020 Lords Chamber

[Lord Hope of Craighead (CB) [V]]

My Lords, I have great sympathy for the thinking that lies behind these amendments, and I have huge admiration for the unremitting way that my noble friend Lord Alton carries on his campaign to root out genocide and to bring its perpetrators to justice wherever they can be found. It is a hard struggle. The UN Convention on the Prevention and Punishment of the Crime of Genocide now seems, with hindsight, to be a deplorably weak instrument for dealing with the challenges we face today. It was indeed the first such treaty of the modern era, as my noble friend Lady Falkner pointed out, but it is simply not up to the job.

It was conceived in the mid-1940s as a reaction against the Holocaust that the Nazis’ policy of extermination had created in Europe. It was assumed that it would be enough to require the contracting parties to enact the necessary legislation and, having done so, to require them to bring those within their jurisdiction who were charged with genocide to trial. But we can now see, in today’s world, how ineffective and perhaps naive this relatively simple convention is.

The UN convention against torture of 1987, which we became familiar with in the case of Senator Pinochet, is a much more powerful instrument. He had travelled to this country for health reasons and, no doubt to his great surprise and dismay, found himself open to proceedings brought against him under that convention in Spain. This was because he had travelled to this country, which was one of the signatory countries that was bound by the convention to extradite him to be tried there. The Law Lords in this House, of whom I was one, upheld the Spanish prosecutor’s request, although in the end Senator Pinochet was allowed to return to Chile. I mention this just to make the point that the torture convention is a much more far-reaching instrument, although even it would probably still fall short of what is needed to deal with the crime of genocide in the countries where it is now prevalent, which have been referred to this evening, simply because those countries would almost certainly refuse to release the perpetrators to a country where they could be brought to trial.

We have to make the best of what we have. We cannot go down the direct route of bringing the perpetrators to trial here, so some other route must be found. We cannot just turn our backs on this appalling crime, and we must be grateful to the noble Lord for doing his very best to see that we do not. The greatest barrier that the noble Lord, Lord Alton, has faced has been in trying to devise a mechanism for bringing the issue before our courts. We have to do this here, because there is no standing international tribunal that has universal jurisdiction in this matter.

Our courts can deal only with those over whom it has jurisdiction according to our rules, and as a general rule it can deal only with crimes committed here in this country. Parliament may give our courts extraterritorial jurisdiction over offences committed abroad, but it must do so expressly, and the accused person must be in this country when and if he is to be tried here. We have had extraterritorial jurisdiction in the case of the murder of British nationals committed abroad, since 1861; and, more recently, in the case of the taking of hostages, since 1982; torture, since 1988; and terrorism, since 2000. But even if genocide had been on the list, without a strong UN convention that would enable us to get the people who really matter here to be tried it is almost impossible. So what else can be done?

The procedure which the noble Lord has chosen has my full support. Let me bring the bare bones that we see before us to life. There are two very important advantages, which I think are worth mentioning. First, you need to have someone with a relevant interest to bring a proceeding before the court; the person or group of persons referred to in these amendments will almost certainly satisfy that requirement. This in itself is a big step forward.

Secondly, what it provides will allow for due process in a hearing in full accordance with the rule of law. By this I mean that notice of the proceedings will be served on the Secretary of State and on a representative of the other signatory to the agreement, as they must both be given a right of reply. This is to enable the Secretary of State to appear and present such arguments as he or she thinks fit, and the other signatory, if it wishes, will have that opportunity, too. This is important, because the court will wish to test the argument in support of the application that is brought before it. There will be two questions before it: first, can the court be satisfied that the crime of genocide has been committed; and, secondly, should it grant the remedy to which the amendment refers?

I wish to stress that the procedure the noble Lord proposes is a very serious matter, not a mere formality. It will result, if it proceeds, in a fully reasoned judgment by one of our judges. That is its strength, as a finding by a judge in proceedings of this kind in the applicant’s favour will carry real weight, quite apart from the effect it will have on the relevant agreement. I think that it will achieve its object, but if a refinement in its wording is needed to be sure that it will do so, that refinement should certainly be made. I, too, very much hope that the Minister will support this amendment.

[Lord Sheikh (Con) [V]]

My Lords, it is imperative that we support Amendment 68, proposed by the noble Lord, Lord Alton of Liverpool. I commend him on his excellent speech; he did indeed speak from the heart.

At the outset, I would like to say that in 1972 my family and thousands of Asians were expelled from Uganda by General Amin. I have personal experience of ill treatment being imposed on innocent people by a tyrant. I have spoken previously about crimes against humanity in your Lordships’ House. I would like to declare that I am the co-chair of the APPG for the Prevention of Genocide and Crimes Against Humanity.

I commend the noble Lord, Lord Alton, on this amendment, which sends a clear message that the UK will not be associated in any way with regimes found by law to be committing genocide. The amendment would mean that regulations made under this Bill to authorise the implementation of trade agreements would be revoked if the High Court of England decides that they should be, on the grounds that a signatory to a relevant trade agreement has committed genocide.

The amendment would also grant the right to persons or groups of persons belonging to national, ethnic, racial or religious groups that have been subjected to genocide to oblige the UK courts to request that a trade agreement be revoked. It is right that the High Court decides, as the court will be impartial and decisions will be arrived at logically.

In 2017, the Conservative Party published the Kigali declaration affirming our commitment to prevent and punish genocide. The declaration states:

“Whether at home or abroad we will seek to protect individuals and groups who are targeted because of their identity, from hate crime to genocide to violent extremism. Our responsibility to protect begins at home but extends around the world.”


This requires us to ensure that any potential violation of human rights is considered before doing business with any country. If the United Kingdom maintains trade agreements with states committing genocide, we risk being seen as complicit in these crimes and we send a message that our trading partners may commit genocide without any consequence.

This amendment must be accepted, because the UK is a signatory to the UN Convention on the Prevention and Punishment of the Crime of Genocide and the 2005 Responsibility to Protect commitment. Furthermore, the International Criminal Court in 2001 incorporated the Rome statute into English law. These commitments mean that we have a legal and moral obligation to act against genocide.

I and other Members of your Lordships’ House spoke on Second Reading of the Medicines and Medical Devices Bill about the treatment of Uighurs and Falun Gong in China. Evidence of the Uighur genocide is growing. The Network of Chinese Human Rights Defenders has estimated that 1 million Uighurs have been detained and organs are being harvested on a massive scale. The Australian Strategic Policy Institute report suggested that 80,000 Uighurs were transferred out of Xinjiang between 2017 and 2019, and they are likely working under forced labour conditions while supplying global brands.

The proposed amendment is modest. The United States has gone much further to condemn and punish those responsible for those human rights abuses. Earlier this year, Congress passed the Uyghur Human Rights Policy Act, which places sanctions on officials responsible for oppression of Uighurs in Xinjiang. US companies with operations in Xinjiang have been compelled to ensure that their supply chains are free from forced labour.

Furthermore, US Customs and Border Protection has issued five withhold release orders barring imports from such producers of cotton, apples, hair products, computer parts and other goods in the Xinjiang region. The House of Representatives recently passed the Uyghur Forced Labor Prevention Act with almost unanimous support from both main parties. If this law, which now has to go to the Senate, is passed, it will ensure that goods made with forced labour in the Xinjiang region will not enter the US market.

Through these Acts, the United States holds the Chinese Government accountable and ensures that Americans do not benefit from goods created by forced labour or under potential genocide. This amendment goes some way towards this, by giving UK courts the option to remove trade co-operation with states found to be perpetrating genocide, establishing a principle that may be taken further in future legislation.