Terrorism Act 2000 (Proscribed Organisations) (Amendment) Order 2024

Lord Purvis of Tweed Excerpts

Thursday 18th January 2024 Lords Chamber

[Lord Polak (Con)]

My Lords, I thank my noble friend the Minister and the Government for this. I am not sure that I am going to go down the route of, “What took us so long?” I recall Tony Blair talking about banning Hizb ut-Tahrir. I even recall our new noble friend the Foreign Secretary talking about it in 2010, before becoming Prime Minister, saying that it was something that would be done. Therefore, I am very grateful to the Minister and his colleagues for ensuring that it has been done.

I guess I declare an interest: I am a Jew, and very proud of it. I know full well what Hizb ut-Tahrir wants to do to me, my family and my co-religionists. I am grateful to the Minister for this measure, so obviously I will support it.

However, the Minister will know that I do not miss an opportunity—and I will not miss this opportunity. While the Government are on a roll and have done the right thing, they know that I and others in this House believe that the IRGC should be going in exactly the same way. The IRGC are the masters of everything that we do not like, in the way that the Minister described at the beginning. While thanking him, I hope that he will not mind me asking for a little bit more. The IRGC needs to be proscribed.

[Lord Purvis of Tweed (LD)]

My Lords, I thank the Minister for introducing the measure so clearly. I agree with what he said. It is regrettable that I have had to cover a number of organisations to be proscribed—regrettable because we are living in an age, unfortunately, when there are organisations which abuse our liberties and freedoms. They are either terrorist organisations themselves or they support terror.

Indeed, we live in an age of heightened conflict. Next week, I and other noble Lords will be considering another suite of sanctions related to the conflict in Ukraine, and I will be receiving a delegation of Lebanese who are fearful for the security in that country—the country the Minister referred to.

These are difficult times. Therefore, as we protect our communities as well as our freedoms and liberties, it is unfortunately necessary to have measures such as these. The Minister said, quite rightly, that there are high bars to be reached before proscription. I know that he will not comment on the previous attempts at proscription—I also read the reference to the previous calls; I do not expect him to comment on that—but I will ask him a few questions on the measures coming forward.

Terrorism Act 2000 (Proscribed Organisations) (Amendment) Order 2023

Lord Purvis of Tweed Excerpts

Thursday 14th September 2023 Lords Chamber

[Lord Purvis of Tweed (LD)]

My Lords, it is a pleasure to follow the noble and gallant Lord. I agree with every single word he said. I also agree with what the Minister said in outlining these measures, which we support from these Benches.

Ever since the formation of this private military consultants group, after the illegal invasion of Crimea by Dmitry Utkin then led by Yevgeny Prigozhin, I have been following not only the activities but the tactics of this group. I followed the fact that it had been recruiting from prisons; that it had carried out its activities way beyond those norms which the noble and gallant Lord indicated; and the spread of its activities, which are on the one hand formally not permitted under Russian law but on the other hand are a very useful tool of Putin to extend some form of terror and influence across the Sahel and other parts of Africa. This led me to be the first in Parliament to call for the group’s proscription in April last year; I did so again on 23 May, 9 June, 7 July, 15 November, 21 December and have done so countless times this year to Ministers from the Home Office, the FCDO and the Treasury. So I am very pleased that the Minister has brought forward these measures to see this evil organisation categorised as exactly what it is: a terrorist organisation.

I was alarmed during this process by some of the responses from the Government. I hope the Minister will allow me to make just a couple of comments with regards to the missed opportunity in not proscribing earlier. On 11 July, my noble friend Lady Northover questioned the Defence Minister, the noble Baroness, Lady Goldie. Citing my calls, my noble friend said that

“surely the case for proscription is now more pressing than ever”.

The Minister replied:

“I would observe that proscription in its own right is perhaps less effective because of the particular environment in which it applies”.—[Official Report, 11/7/23; col. 1644.]


However, that is entirely the point. The Wagner Group has, to some extent, acted with impunity. Therefore, the signal from the UK to act now is very welcome, but it is worth nothing that it was this Government and this Treasury who issued a sanction avoidance licence to the leaders of this terrorist group in order to use the English legal system in palpably malign legal activities under a SLAPPs action. It was this Government’s Treasury that permitted the abuse of our system, therefore His Majesty’s Government—and Her Majesty’s Government before—have been slow to act. There was a Treasury derogation of sanctions that this Parliament had approved; we in this House would have said that that was outrageous had we been informed. I say this to the Minister: I hope that there will be no other actions such as those sanctions derogations for the other groups that the noble and gallant Lord indicated are acting similarly to the Wagner Group.

My second point relates to some of the areas where this group has been acting; the Minister and other Ministers have heard me say this before. I have seen Wagner operatives in Sudan at first hand. I saw them in Khartoum. I have seen the breadth of their work, not just purely within terrorism activities but in misinformation, disinformation and disruption of processes. Regrettably, they have continued to operate. I have raised in Grand Committee the fact that the Wagner Group has been contracted through a number of joint ventures that Russia has operated in—one with regards to the Kush gold project in Sudan with the United Arab Emirates. At this gold project, Wagner has been under its security consultant’s arm. I am sure that they are but I hope the Minister can confirm that all elements of the Wagner network are so proscribed, and that there is no loophole where some form of private sector separate contracting security operatives could operate within this. Wagner, operating under security for the Kush gold project, which provides funds to one of the warring parties to Sudan—the Rapid Support Forces—is in effect, to my knowledge, being operated under a financial vehicle between Russia and the UAE. I would be grateful if the Minister could indicate what discussions we are having with our allies to ensure that any commercial relationship with the Wagner network, or those who advise the Wagner network, will also be within scope of the Home Office’s activity.

In supporting this measure, I hope that His Majesty’s Government will be assertive not just in following suit with our friends in the European Union and the United States—I welcome the fact that the Government are in discussions with them—but in using all of the money laundering measures that we have in place and our diplomatic relations with those in the Gulf to indicate that their relationships with this network are now beyond the pale for any UK operatives. I would be more than welcome a briefing from officials in due course should the Minister allow me to do so because it is simply the case, as we all know, that proscribing is welcome but is not the end of the process. It is about how we ensure that it is implemented not just alone but with our allies in order to ensure that this evil network is halted in its activities, which are against humanity.

[Lord Polak (Con)]

My Lords, I thank the Minister for the Statement and the Home Secretary for giving the Statement yesterday. This is the right thing to do; maybe it is a bit late in the day but it is the right thing to do.

The problem we have in this area is that we are not always consistent. We have done the right thing here but I have here on my phone the front page of the Jewish Chronicle, published today before the Jewish New Year, which is tomorrow night. The headline reads:

“James Cleverly: ‘We will not ban Iran’s Terror Guards’”.


In everything that was read out by the Minister, you could cut and paste in “IRGC”. The IRGC has done everything—and more, in my view—that the Wagner Group has done in terms of the UK. I know that the Home Secretary and my noble friend the Minister will say it is under review and all of that, but it is the consistency that I hope the Government will look at. In the middle of the interview, it says here that Foreign Secretary Cleverly said that

“he would not ‘speculate’ on whether the policy might change in future, pointing out that any decision of this kind would be taken ‘across government’, not by the Foreign Office alone”.

I welcome that statement because it seems that everybody across government is supportive of the proscription of the IRGC; it just seems to be that the Foreign Office is not. I congratulate the Minister today but I do wish we would be consistent.

--- Later in debate ---

[Lord Sharpe of Epsom (Con)]

My Lords, I am very grateful to all who have contributed to this debate. A lot of ground has been covered, and I am encouraged by the supportive atmosphere in which the discussion has taken place. Members of the Wagner Group are terrorists, plain and simple, and am I confident that the House recognises, as do the British people, that we have a moral responsibility to act. We must and will confront terrorism wherever and however it occurs, and that is why we are taking this action.

I turn to the specific points raised. I start by reassuring, I hope, the noble and gallant Lord, Lord Stirrup, that, in addition to our continued training offer to the national police of Ukraine to support Ukraine’s collection of evidence of Russia’s war crimes in Ukraine, the Home Office is currently providing short-term funding to the war crimes documentation centre, run by a Ukrainian NGO in Warsaw. It ensures that first-hand testimony from Ukrainian refugees in Poland is recorded. The UK is also providing £2.5 million to the Atrocity Crimes Advisory Group to support Ukraine’s domestic investigations and prosecution of international crimes. We are also working extremely closely with the ICC in support of its investigations. That is a very comprehensive package of support, and I hope it continues and is enhanced.

A number of noble Lords asked what would happen if the Wagner Group merges with the Russian MoD or Redut. HMG keep the list of proscribed organisations under very careful review. It is not government policy to comment on whether an organisation is under consideration for proscription or whether the Government will consider a specific organisation, but proscription sends a strong message about the UK’s commitment to tackling terrorism globally and calling out terrorist activity wherever it is committed. The turmoil currently facing the Wagner Group presents opportunities for impactful disruption of its activities, and I will come back to that later.

A number of noble Lords, including the noble Lords, Lord Purvis and Lord Coaker, and my noble friend Lord Polak asked why it has taken so long. The decision has not been taken in isolation. It builds on a strong response to Russia’s aggression in Ukraine and the Wagner Group’s wider destabilising activities, including extensive sanctions. The Government sanctioned the Wagner Group in February 2022, imposing asset freezes on any funds identified as belonging to Wagner in the UK and travel bans on any of its members. The Foreign Secretary expanded these sanctions in July this year, with 30 new UK sanctions targeting a range of individuals and businesses linked to the actions of the Wagner Group in Africa. The House will be aware of the recent significant events surrounding the Wagner Group, so it was right for the Home Secretary to consider the impact of those key events when taking the proscription decision.

Now is the time to proscribe. The turmoil currently facing the Wagner Group, as I have just said, presents opportunities to disrupt its activities. Proscription sends a strong message of the UK’s commitment to tackling terrorism globally and calling out terrorist activity wherever it is committed. This proscription reiterates the UK’s unwavering support to Ukraine and condemns Russia’s aggression, Wagner’s role in the war in Ukraine and its wider activities, which have consistently been linked to human rights violations, as others have noted.

The noble Lord, Lord Purvis, asked what the impact of proscription is. It sends a very clear message and will enable us to disrupt significantly. In addition to the proscription offences, proscription can support other disruptive activity, including the use of immigration powers, encouraging the removal of online material, EU asset freezes and so on. The resources of a proscribed organisation are terrorist property and therefore liable to be seized.

The noble Lord, Lord Purvis, also asked why Prigozhin was able to circumvent sanctions to sue a journalist in this country. I refer the House to the statement made on this matter by my noble friend Lady Penn on 30 March this year. Following a review of how these licences are granted, it is now the Government’s view that in most cases the use of funds frozen due to sanctions for the payment of legal professional fees for defamation cases is not an appropriate use of funds and, in many cases, will be against the public interest. OFSI will in future take a presumption that legal fees relating to defamation and similar cases will be rejected.

The noble Lord, Lord Coaker, asked for clarification of the application of proscription offences. The membership offence under Section 11 of the Terrorism Act 2000—TACT—has extraterritorial jurisdiction, applying to anyone, wherever they are in the world. The support offence applies to any UK citizen or resident. Terrorist financing offences could also apply outside the UK. Once Wagner is proscribed, we will expect social media companies to identify and remove content that promotes or supports the Wagner Group.

I anticipated the question by my noble friend Lord Polak on the IRGC and I understand it, because there is obviously significant parliamentary, media and public interest in a potential proscription decision. Both the House of Commons and the House of Lords have discussed IRGC proscription, with the House of Commons unanimously passing a Motion in January to urge the Government to proscribe. As Ministers have previously made clear to the House, the IRGC’s destabilising and hostile activity is unacceptable, and we will use all tools at our disposal to protect the UK and our interests at home and abroad. That includes considering proscription where appropriate.

The UK Government have sanctioned the IRGC in its entirety. While the department keeps the list of proscribed organisations under review, as I have said, our policy is not to comment on the specifics of individual proscription cases, and I am unable to provide further details on this issue. Ministers have previously confirmed to the House that this decision was under active consideration, but they will not provide a running commentary. I say to my noble friend that there is one difference: the IRGC is an Iranian military body answerable to Iran’s Supreme Leader. The Home Secretary’s role, as discussed in relation to Wagner, is to consider all available evidence before arriving at a decision.

A number of noble Lords asked what efforts have been made to persuade international allies to take co-ordinated action against the Wagner Group. His Majesty’s Government continue to work with key international partners to ensure that the Wagner Group is held to account on the world stage and to promote global efforts to curtail Wagner’s destabilising activity. When it comes to proscription decisions, the Home Secretary will consider the position of key international partners and, where appropriate, departments will undertake proactive engagement to explore the benefits of concerted multilateral action to increase the effect of proscription. The Foreign Office and Ministry of Defence have been very supportive of international engagement over this particular decision. I would also like to reassure the noble Lord, Lord Purvis, that this is very comprehensive and there is no way for Wagner or its offshoots to hide.

The noble Lord, Lord Coaker, asked about Contest. I refer to the Government’s recent refresh of the integrated review, which set out that the UK will use all tools at our disposal to protect the UK against the modern threats we face.

[Lord Purvis of Tweed (LD)]

I will be happy if the Minister wishes to write to me on this, but I raised a point regarding entities that have contracted the Wagner Group as private security. This can include joint ventures with commercial organisations and countries we have friendly diplomatic relations with, including in the Gulf. Can the Minister write to me about how we will apply the extraterritorial aspects of this with regard to that component? That is very important to ensure that there is no avoidance of the very valid reasons we are doing this.

[Lord Sharpe of Epsom (Con)]

The noble Lord makes a good point. He reminds me that I should have commented on his comments about a very specific country, which of course I am not really able to do in detail. I am sure that diplomatic efforts and overtures are ongoing. I am certainly happy to write to the noble Lord in as much detail as I am able to.

Climate Change: Migration

Lord Purvis of Tweed Excerpts

Thursday 14th September 2023 Lords Chamber

[Lord Purvis of Tweed (LD)]

My Lords, it is always interesting for me when I speak on behalf of my Benches and yet agree with every single world that has been said by all previous speakers in the debate. I congratulate the noble and right reverend Lord, Lord Harries of Pentregarth, on bringing this debate to us. In many respects, this is the issue of our time, in this generation, and it is incumbent on us, as leaders of this generation in the world, to ensure that we correct—or at least ameliorate—some of the issues and start to have some solutions so that we do not pass this issue on to another generation who will be even less equipped than us to address it.

I left the debate on the Abraham Accords in Grand Committee, in which I spoke, early in order to be in the Chamber for this debate. In Grand Committee, we referenced the natural disasters in Morocco and Libya. Although it was a debate on the geopolitical relationships between countries on the one hand, noble Lords were also seeking to address the impact of climate and people movement in the Gulf, Middle East and north Africa, as we are in this debate. They are connected, as are so many areas. It is interesting that the Home Office Minister is responding to this debate; the Home Office is, in many respects, a recipient department that probably sees itself as having to try to address this issue, whereas the Foreign Office and the Treasury are departments in government that we need to hold to account because they have more tools available to them to address the root causes. I will return to that issue in a moment.

I regret to say that we are a long way from having a fully integrated government approach on the climate emergency and its consequences when it comes to the movement of people. The right reverend Prelate the Bishop of St Albans was right: the debate in the Chamber on the Horn of Africa meant that we could have a debate on the impact on the individual human, rather than simply all the statistics and figures. However, the statistics and figures, with which the noble and right reverend Lord, Lord Harries, started, are stark. The Groundswell report by the World Bank, from which I believe he sourced his statistics, indicated that the 260 million people who are likely to migrate as a result of climate change are doing so within their own countries.

The backcloth of the debate is not only natural disasters and the climate emergency. The noble Lord, Lord Ponsonby, myself and others, including the Minister, are veterans of the Illegal Migration Bill. I regret to say that we saw then how the Government were quite willing to weaponise the fear around the statistics on the number of people being forcibly displaced. The Home Secretary said that 105 million people are on the move and are coming here—of course they were not. Migration being used as a tool to create fear for political purposes is not unique to our Government; this is, regrettably, becoming a trend in other countries that are among the richest in the world.

When we look at the World Bank statistics, they require global consideration. In east Asia and the Pacific, the World Bank estimates that 49 million people will be displaced in their own countries owing to climate change. In south Asia, it is 40 million. The noble and right reverend Lord indicated that the figure is 86 million in sub-Saharan Africa and 17 million in Latin America. These are enormous figures. We have seen, in certain areas, ways to try to address the issue.

The World Bank indicated that it could be addressed if we act now to cut global greenhouse gases, to integrate climate migration into green, resilient and inclusive development planning, to plan for each phase of the migration, with proper strategic planning of countries working together, and to invest in understanding the drivers. The World Bank indicated that the numbers that I cited could be reduced by up to 80% if we act—so all is not lost. Therefore, the focus must be on how Governments such as the UK’s can be leaders in that action.

Unfortunately, in many respects, we are being embarrassed by other countries that are most affected and are taking the lead themselves. Over the summer, and at the moment—this was referenced in Questions earlier in the Chamber—African countries have signed a continental agreement to address climate mobility, led by Kenya and Uganda, at the Africa climate summit in Nairobi. John Kerry was there, representing the US President, and the IOM and the other networks were putting together a strategy. I would be grateful if the Minister could indicate who represented the UK at the Africa climate summit in Nairobi. I hope that there was ministerial representation, but, if that was not that case, I hope the Minister will be able to indicate who represented us.

The Government have also, regrettably, stepped back from a leadership role. That is not just my position—the Minister might not be surprised to hear me say that. That was from a former Minister, the noble Lord, Lord Goldsmith, who resigned because he felt that the Government were resiling from a leadership role. I will quote from his resignation letter. He said:

“More worrying, the UK has visibly stepped off the world stage and withdrawn our leadership on climate and nature. Too often we are simply absent from key international fora”.


He went on:

“The problem is not that the government is hostile to the environment, it is that you, our prime minister, are simply uninterested. That signal, or lack of it, has trickled down through Whitehall and caused a kind of paralysis”.


Now ministerial leadership can change, and we can see, hopefully, some differences in approach. But that seems unlikely. What is harder to reverse are the devastating reductions referenced by the noble Baroness, Lady Bennett, with regards to official development assistance. The very tools which the UK worked with our partners not only to design and fund but to make sure would be effective—thought leadership, financial support at scale, and implementation—have been cut dramatically.

It was the hottest month on record in July this year in this country. At that time, the Government released figures showing that they had cut at least £85 million from the funding of international climate programmes. The UK has reported to the OECD that in 2019-20, we supported the Rio commitment by £1.8 billion. The latest report to the OECD is that has been drastically cut to £449 million. This is not just a case of citing other statistics. These are programmes which have been either reduced massively or cut altogether, and the UK was the global leader in support for them.

The International Development Minister, Andrew Mitchell, reported to Parliament’s International Development Committee and revealed how much the reduced funding was affecting climate programmes. For example, the international forest unit will lose £38 million after being cut by 51%. The adaptation, nature and resilience department is being halved by 51%, losing £23 million—despite Ministers saying that the UK needs to do more to help lower-income countries adapt to the effects of climate change. Adaptation was mentioned by the right reverend Prelate. We have pulled back in so many areas from supporting those countries that can least support themselves for adaptation.

The UK partnership for accelerating climate transition is being cut by 49%. Known as PACT, the programme works to accelerate partner countries’ transition to low-carbon development and help aid eligible countries meet their climate targets. These are not academic reductions; these are reductions that will make an impact on our ability to address the very crisis that is causing the migration. So I hope that the Minister will be able to say that the Home Office is leading—with other departments in Government—a change of direction. I suspect that we may not hear that, but we cannot wait. This is an emergency. The UK cannot simply be having our political discussions debated upon us receiving; we need to be part of solving the problems. We need a change of policy and that is urgent.

Illegal Migration Bill

Lord Purvis of Tweed Excerpts

Consideration of Commons amendments
Wednesday 12th July 2023 Lords Chamber

[Baroness Stroud (Con)]

My Lords, I brought a variation of this amendment to the House on Report. I refer to my entry in the register of interests. I said in that debate that this amendment is very simple. It is designed purely to place a duty on the Government to do what we have just heard they intend to do anyway—introduce safe and legal routes. This should therefore be a simple amendment to respond to. The moral credibility of the entire Bill depends on the existence of safe and legal routes. The basis on which we are disestablishing illegal and unsafe routes is that we are committed to creating legal and safe routes. That therefore needs to be reflected in the Bill.

For the purpose of clarity, I will take two minutes to lay out both the framework that sits alongside this Motion already and why the Government can feel confident in accepting it. First, as we have just heard, the Government have total freedom to undertake consultation with local authorities in any way they choose to ascertain the capacity that exists for local authorities to welcome refugees and asylum seekers through safe and legal routes. This is already committed to in the Bill.

Secondly, the Government then draft their own report, which they have already committed to doing by the end of January. This is already committed to in the Bill. Even then, the number of people who would be able to come via those safe and legal routes would be subject to a cap, as decided and voted on by this House. This is already in the Bill. This is the framework under which this Motion would sit. Its purpose, therefore, is that, within those limits and that context—all of which are already committed to in the Bill—the Government would then have a duty to do what they say they want to do: create safe and legal routes. The lack of a substantial commitment in primary legislation to this end is a serious omission and one that this amendment gives us an opportunity to address.

I am grateful to the Minister for making the statement that the Government intend to outline new safe and legal routes in the January report and implement them as soon as is practicable—in any event, by the end of 2024. However, if this really is the case, surely the Government would want to place it in the Bill, too, so that it cannot get lost with the passage of the time and electoral cycles, as has happened with the consultation, the publication of the report and the structure of the cap. Surely, at the very least, the Government would want to place a duty on themselves to have brought in safe and legal routes no later than the end of 2024.

Let me turn to the timeframe that has been introduced to this revised version of the Motion. I have chosen a timeline of three months after the publication of the Government’s report on safe and legal routes for three reasons: first, this will be nine months after the enactment of the legislation, which is more than enough time to develop and implement a serious proposal and respect the proper process to which the Minister referred; secondly, it is enough time for the Bill to have had effect in stopping the small boats if it is going to do so; and, thirdly, it will ensure that the commitment as set out in legislation should not cut across a general election or purdah next year. As I mentioned on Report, if the Minister would like to propose putting an alternative timeline in the Bill, I would welcome that conversation, but I have not yet heard of an alternative legally binding timeframe from the Minister.

I look forward to hearing the Minister’s response. For all the talk of safe and legal routes, we have reached ping-pong with no commitment to them as part of the Bill. I beg to move.

[Lord Purvis of Tweed (LD)]

My Lords, on behalf of these Benches, I will support the noble Baroness if she presses her amendment to the Motion. I wish to make two points very briefly, but before doing so I declare an interest. I returned last night from the Horn of Africa, where, as I am sure the Minister will be aware, many of the discussions I had with parliamentary colleagues from that region related to this Bill and the damage we are doing to our international reputation.

My first point relates to a letter that the noble Lord, Lord Murray, sent me after the conclusion of Report stage. I thank him for it. It referred to one of the existing schemes that the Government operate. It is an uncapped scheme—the UK resettlement scheme. In Committee and on Report I asked for clarification of whether the Government’s uncapped scheme has, by virtue of ministerial discretion, in effect become capped.

That scheme, which is global, is now being prioritised only for those from Afghanistan, in effect closing routes from all other countries that we have debated in this debate so far. It took until the 10th paragraph of the Minister’s letter to say, effectively, that I was correct. He said:

“As a result, we are necessarily prioritising those who have been referred by the UNHCR and who are already awaiting resettlement”.


That means that we have closed the safe and legal routes that we are seeking to expand, as the noble Baroness has argued for.

The Advocate-General for Scotland suggests that the Government should not be criticised for having a delay. The outstanding question is: why do the Government not have a baseline capacity now that any safe and legal routes would operate under, and what funding would be available to it? Which countries are the Government considering as candidate countries for new safe and legal routes? The Government’s opaqueness suggests that they do not have a plan that would be ready on the conclusion of the Bill, so it is necessary that we put in statute the guarantee that we will have these routes.

The second point I wish to ask the Minister for clarification on is the use of overseas development assistance. The Government have used overseas development assistance to score all the budgets for those to be resettled under the Bill—indeed, for asylum under all the schemes for safe and legal routes. This is at a cost of £1.9 billion of ODA, which has been taken away from other development projects in many of the candidate countries from which we are seeking safe and legal routes.

I understand that the Bill, and the way it has been drafted, means that the Home Office will no longer be able to score any of those individuals who will be deemed inadmissible under overseas development assistance. That means that, under the current budget, the Home Office itself would have to find up to £1.9 billion of expenditure which could not be scored against overseas development assistance. Under the Development Assistance Committee rules, the Government are now placing on the taxpayer inordinate sums of money for a Bill that cannot be operated and is inoperable. Will the Advocate-General confirm to me now that that is the case and the measures under this Bill will mean that the current way that the Government are funding those to be resettled will no longer be able to be used and there is an enormous black hole in the funding of this scheme?

Regardless of the answer, we support the noble Baroness, Lady Stroud. We need the guarantee because, so far, the Government have been woeful in offering any reassurance.

[Lord Coaker (Lab)]

My Lords, I would just like to say how much these Benches support the Motion in the name of the noble Baroness, Lady Stroud, for the reasons she outlined in her introduction. If she seeks to test the opinion of the House, we will certainly support her.

Illegal Migration Bill

Lord Purvis of Tweed Excerpts

Report stage
Wednesday 5th July 2023 Lords Chamber

I welcome the decision of the Government to find a formula for safe and legal routes but urge them to incorporate within it a small element which would enable us to respond to such individual cases of extreme persecution, including of those who are targeted because of their protected characteristics. This year is the 75th anniversary of the Universal Declaration of Human Rights, Article 18 of which protects the right to believe, not to believe, or to change your belief. It is also the 75th anniversary of Raphael Lemkin’s genocide convention. This would be a small contribution to putting some of the well-meaning rhetoric in those declarations into practical effect. It is the right thing to do, and I commend this amendment to the House.

[Lord Purvis of Tweed (LD)]

My Lords, it is always a pleasure to follow the noble Lord, Lord Alton. He makes his case very well. I also share the views of my noble friend Lord Paddick in his discussions with the noble Lord, Lord Alton, that the preference is to get to a place where we can have a broader view. That is where my Amendment 165 is trying to land us—so that we can have a means by which those who seek asylum can have a safe and legal route which is not country-specific. I will return to that in a moment.

I was pleased to listen very carefully to the noble Baroness, Lady Stroud, making her case. I hope that the Minister reflects very carefully on what was presented to him in very measured terms. The currency of commitments by Ministers at the Dispatch Box is not as it was. Therefore, if the noble Baroness presses this amendment to the vote, these Benches will support her. We need in this Bill a commitment that there will be safe and legal routes, so it will be very important.

Before I turn to Amendment 165, I will speak briefly to Amendment 167 on family pathways, tabled by my noble friend Lady Ludford, who cannot be here today. This is another area where the absence of a pathway for family reunion has a perverse incentive that draws people towards smuggling and therefore the dangerous channel crossings, as well as preventing the accelerating of integration in the UK of those family members. Refugee family reunion is particularly important for women and children, who make up 90% of those who are granted visas. The damage that this Bill will do is substantive. I hope that the Minister can reflect on that point and give a proper response.

Amendment 165 is a version of an amendment that I tabled in Committee. The Minister challenged me to try to present some figures on its impact. I told him that I would be able to present an estimate of its impact, after reflecting on the Government’s impact assessment. This impact assessment has been debated a lot since we were given sight of it—including the boxes for government estimates of costs that remain blank. But one thing that is certain, and which I can say with assurance, is that the protected claim route for a safe and legal route under this amendment would be cheaper to the British taxpayer than the costs of detention and removal detailed in the impact assessment. Indeed, as the children’s impact assessment said, a safe and legal route would be a means by which we would have an effective way of protecting children.

There can now be no doubt that the route the Government are seeking to go down in the Bill is the most expensive for the taxpayer. We have to find ways to have a safe and legal route that is not country specific and that has considerable thresholds and conditions, high enough not to need a quota but sufficient to allow those under the greatest level of persecution to secure access and a route for a protected claim to the UK. Of course, the critical aspect is that that would be valid only if there is consideration of it being a successful cause. That is possible and the costs would be lower.

I hope the Minister can also give positive news on what the Government expect a safe and legal route that is not country specific to be. In Committee, I asked the Minister about the status of what we have at the moment, which is a safe and legal route that is not country specific—the UK resettlement scheme through the UNHCR. I do not need to remind the House that that scheme is demand led and operates on the basis of information provided by local authorities, acting in isolation or in a regional group and stating that they can accommodate and resettle those who are seeking asylum via the UNHCR. That is the existing means; it is problematic and expensive, and my amendment seeks to improve it.

The major deficiency at the moment is what the Independent Commission for Aid Impact said in its review of the Government’s use of overseas development assistance funding for the UK resettlement scheme: the UK Government asked the UNHCR not to make any referrals to the UK unless they were from Afghanistan. I have asked the Minister twice now—I did again in Committee—whether this was the case. The Minister replied:

“I do not have that detail to hand so I will go away and find that out and write to the noble Lord”.—[Official Report, 14/6/23; col. 1981.]


If the theme is taking Ministers at the Dispatch Box at their word, presumably the Minister went away and found out whether that was the case. He has not written to me, so I expect the answer when he winds up on this group today. He really needs to tell us, given that he told me that he would in Committee. That is on the record in Hansard, so I look forward to the Minister stating whether that is the case.

The other aspect on which we need clarity is that the Minister has said that any new safe and legal route will depend on the capacity in local authorities. That capacity is both demand led and need led. Local authorities can offer space for the UK resettlement scheme through individual councils or strategic migration partnerships, so the Home Office must have a current estimate of the level of capacity of local authorities through the strategic migration partnerships receiving through the UK resettlement scheme. I would be grateful if the Minister could clarify that point.

The second is that the Home Office provides tariff funding for local authorities, either individually or as a group, for those being resettled. My concern with the government proposal, and why we need clarity in the Bill, is that the Government could state that there is no capacity in local authorities, not because a local authority has said that it does not have capacity but because the Government have reduced its tariff funding. So they can flick the switch: they can state there is no capacity because they are unwilling to give a tariff support.

As we know, at the moment, community sponsorship is part of the UK resettlement scheme. The Government consider it a safe and legal route, and we have seen it so wonderfully in the Ukrainian scheme. But the Government seem very loath to test the community sponsorship scheme for other people who are seeking asylum. I am certain that it would not be easy and that there would be consequences. But if those in this country of ours were asked in a community sponsorship scheme for young people who are potentially at direct risk in Iran and Sudan, and if they met certain thresholds and the scheme could operate a protective claiming element to them, I am certain we would be able to find the capacity that we needed.

Finally, with all the Government’s assurances, we see the deficiencies in their current approach in live time. Judicial review is about to start in Northern Ireland on the Government’s evacuation from Sudan. I declare the interest of my activities within Sudan and the civilian community there. The review is asking why the Government have provided support for those from Ukraine but is refusing it for those from Sudan on exactly the same basis. I am afraid that we cannot rely on this Government to have individual schemes. Therefore, we need safe and legal routes and a commitment in the Bill. We cannot simply take the commitments from the Dispatch Box. This needs to be in law.

[Lord Kirkhope of Harrogate (Con)]

My Lords, I put my name to Amendment 164. I will speak strongly but briefly in support of my noble friend Lady Stroud. I spoke to this matter in Committee. What a disappointment it is that the Government and many of their spokesmen have made it perfectly plain that they are going to introduce safe and legal routes but, as others have said, without any clarity at all as to what they mean. Indeed, I have been saddened to hear a number of people in the other place confusing a safe and legal route with a programme of the United Nations, which is a separate matter altogether, aimed at specific countries in the world.

As I previously stated, I was responsible as a Minister for the United Nations Bosnian refugee settlement scheme in the 1990s. This country can be very proud of that scheme, but it was organised very much internationally and we played a noble part. If the Minister is mixing it up—I do not think that he is—or if the Government are, and thinking that these schemes will satisfy this particular area, they are mistaken.

I also put it very quickly to my noble friend that, prior to 2011, and certainly in the time that I was Minister, we had at our embassies and consulates around the world provision for dealing with applications for asylum to this country. This spread out the ability to grant asylum very widely. In view of the fact that there are so many countries of the world that claim to be freedom-loving and democratic but where individuals and groups of people have prejudice shown against them, would it not be sensible—and take the pressure off the masses who might arrive in the channel, for instance—if we were to have a much wider approach restored in our representations around the world, as we used to have?

I ask my noble friend this in all seriousness because, although we are not specifically requesting it in this amendment, I think it would satisfy us if the Government were to agree to that or at least to look at it again. It would save considerable resources and go some way to restoring the Government’s credibility in relation to the Bill where, I am afraid, despite many wise and sensible suggestions by this House, the Government seem outrageously unable to accept anything that we are suggesting. So I put it to my noble friend: please let us look at this again and, in the meantime, please make sure that Amendment 164 is accepted by the Government, in view of the fact that they have spoken so strongly in favour of it in other places.

--- Later in debate ---

[Lord Murray of Blidworth (Con)]

My Lords, this has been an interesting debate. My noble friends Lord Hodgson and Lord Lilley and the noble Lord, Lord Green, made some powerful points, in particular on the presumed impact of some of these amendments on our ability to stop the boats. They also again highlighted the need to link the numbers admitted to the UK through safe and legal routes to our capacity to accommodate and support those who arrive through those routes.

Amendment 162, put forward by the right reverend Prelate the Bishop of Durham, seeks to exclude certain existing schemes from the safe and legal routes cap provision in this Bill. Exempting routes from the cap is not in keeping with the purpose of the policy, which is to manage the capacity on local areas of those arriving through our safe and legal routes. That said, I would remind the House that the cap does not automatically apply to all current or any future routes. Each route will be considered for inclusion on a case-by-case basis. This is due to the individual impact of the routes and the way they interact with the immigration system. This is why my officials are currently considering which routes should be within the cap and this work should not be pre-empted by excluding certain routes from the cap at this stage. I also point the noble Lord, Lord Kerr, to the power to vary the cap, set out in the Bill, in cases of emergency.

Amendment 163 would see the United Kingdom establish a new route for those who are persecuted on the basis of an individual’s protected characteristics—advanced by the noble Lord, Lord Alton. This would be a completely new approach to international protection that goes far beyond the terms of the refugee convention. At present, all asylum claims admitted to the UK system, irrespective of any protected characteristic, are considered on their individual merits in accordance with our international obligations under the refugee convention and the European Convention on Human Rights. For each claim, an assessment is made of the risk to the individual owing to a well-founded fear of being persecuted for reasons of race, religion, nationality, membership of a particular social group or political opinion. Critically, we also consider the latest available country of origin information.

Under the scheme proposed by the noble Lord, Lord Alton, there would be no assessment of whether, for the individual concerned, there exists the possibility of safe internal relocation, or whether the state in which an individual faces persecution by a non-state actor could suitably protect them. As well as extending beyond our obligations under the refugee convention, this amendment runs counter to our long-held position that those who need international protection should claim asylum in the first safe country they reach—that remains the fastest route to safety.

Amendment 164, tabled by my noble friend Lady Stroud, seeks to enshrine in law a requirement to bring in new safe and legal routes within two months of the publication of the report required by Clause 60 of the Bill. This puts the deadline sometime next spring. I entirely understand my noble friend’s desire to make early progress with establishing new safe and legal routes, but it is important to follow proper process.

We are rightly introducing, as a number of noble Lords have observed, a requirement to consult on local authority capacity to understand the numbers we can effectively welcome, integrate and support arriving through safe and legal routes. We have committed to launching such a consultation within three months of Royal Assent of this Bill, but we need to allow local authorities and others time to respond and for us to consider those responses. We also, fundamentally, need to make progress with stopping the boats— stopping the dangerous crossings—to free up capacity to welcome those arriving by safe and legal routes.

Having said all that, I gladly repeat the commitment given by my right honourable friend the Minister for Immigration that we will implement any proposed additional safe and legal routes set out in the Clause 60 report as soon as practicable and in any event by the end of 2024. In order to do something well, in an appropriate manner, we must have time in which to do so. We are therefore only a few months apart. I hope my noble friend will accept this commitment has been made in good faith and we intend to abide by it and, on that basis, she will be content to withdraw her amendment.

Amendment 165, proposed by the noble Lord, Lord Purvis, would enable those seeking protection to apply from abroad for entry clearance into the UK to pursue their protection claim. Again, such an approach is fundamentally at odds with the principle that a person seeking protection should seek asylum in the first safe country they reach. We also need to be alive to the costs of this and indeed the other amendments proposed here. I note the comments of the noble Lord, Lord Purvis, on the costs of Amendment 165, but I have to say that I disagree. Our economic impact assessment estimates a stream of asylum system costs of £106,000 per person supported in the UK.

The noble Lord’s scheme is uncapped; under it, there is a duty to issue an entry clearance to qualifying persons. Let us say for the sake of argument that 5,000 entry clearances are issued in accordance with that amendment each year, under his scheme. That could lead to a liability of half a billion pounds in asylum support each year. What is more, as my noble friend Lord Lilley so eloquently pointed out, it would not stop the boats. Those who did not qualify under the scheme would simply arrive on the French beaches and turn to the people smugglers to jump the queue.

Amendment 166 seeks to create an emergency visa route for human rights defenders at particular risk and to provide temporary accommodation for these individuals. This Government recognise that many brave individuals put their lives at risk by fighting for human rights in their countries. These individuals are doing what they believe to be right, at great personal cost. However, when their lives are at risk, I say again that those in need of international protection should claim asylum in the first safe country they reach. That is the fastest route to safety. Such a scheme would also be open to abuse, given the status of human rights defenders, and that anyone can claim to be a human rights defender.

[Lord Purvis of Tweed (LD)]

Is the UK resettlement scheme that the Government currently operate capped?

[Lord Murray of Blidworth (Con)]

Presently, no, but clearly it will be subject to the cap. The problem, as the noble Lord well knows, is that we cannot take as many people as we would like to from the UNHCR because of the numbers who are coming here, jumping the queue by crossing the channel. That is precisely what these measures in the Bill are designed to address.

Amendment 167 seeks significantly to increase the scope of the UK’s family reunion policy, with no consideration as to how these individuals are to be supported in the UK, which could lead of itself to safeguarding issues. The amendment would even allow individuals to sponsor non-relatives. The present family reunion policy provides a safe and legal route to bring families together. Through this route, we have granted over 46,000 visas since 2015. This is not an insignificant number.

Family reunion in the UK is generous, more so than in the case of some of our European neighbours. Sponsors do not have to be settled in the UK, there is no fee and no time limit for making an application, and there are no accommodation or minimum income requirements which applicants must meet. There is also discretion to grant visas outside the Immigration Rules, catering to wider family members when there are compelling and compassionate factors. Given this track record, I remain unpersuaded of the case for the significant expansion of the family reunion route, as proposed by this amendment.

Finally, I apologise to the noble Lord, Lord Purvis, that I still owe him a letter arising from the Committee stage debate. I shall ensure that it is with him this week.

It is worth repeating that the people of this country have been generous in offering sanctuary to over half a million people since 2015. But our willingness to help those fleeing war and persecution must be tied to our capacity to do so. Clauses 59 and 60 are designed to this end. We are committed to introducing safe and legal routes by the end of 2024, and we remain open to a debate about whether the cap provided for in the Bill covers the current schemes set out in the right reverend Prelate’s Amendment 162. I hope that, on this basis, he and other noble Lords will be content not to press their amendments to a Division. I commend the government amendments to the House and beg to move.

National Security Bill

Lord Purvis of Tweed Excerpts

Consideration of Commons amendments
Tuesday 4th July 2023 Lords Chamber

[Lord Purvis of Tweed (LD)]

To follow my noble friend to conclude from these Benches on this part of the Bill, I wish to commend the Minister for listening and taking back to the department a very strong view from this House that more needed to be done in this area. I also commend the noble Lord, Lord Carlile, for his persistence on this area. I respectfully disagree with the noble Lord, Lord Leigh of Hurley. Of course, we all know that there is a distinction between the small donors—those who give small sums of money either as a member or as a supporter of a political party: in my case, in my former constituency, there were all too small numbers of small donors, regrettably, but there were those who would bake a cake for a raffle—and individuals who give really quite enormous sums to political parties. On the one hand, I understand the argument that there should not be a distinction between the two groups, if someone is of wealth and means and they believe in the same thing as someone without wealth and means. However, as my noble friend indicated, with regret I share more the view of the noble Lord, Lord Carlile, in this regard.

We would not be where we are in pursuing and being persistent with this issue if we did not know that the Electoral Commission was in effect asking us to do it. I have met the Electoral Commission frequently, and I do not think that it is relevant to highlight its resources when it has been very clear to us in saying that it does not have the powers to carry out what, ultimately, I believe it should be able to carry out—to ask political parties for due diligence as to the source of large donations. I hope that the government review will take us on that journey and provide an evidence base, on which I believe there will be a degree of consensus.

I thank the Government for their response and look forward to the review taking place, especially as it will start with the competent authorities that will have the information available to them. The Government are taking through the economic crime Bill, reforming and updating the mechanisms through unexplained wealth orders. It strikes me that that is a very good opportunity to look at some of the processes around UWOs, which are designed to be streamlined and not burdensome on authorities, to see whether they can be the model by which we would look at the requirements on political parties. On this issue, I have previously talked about the jarring position that, if a politically exposed person who is open to unexplained wealth order mechanisms, instead of giving to a political party used that money to buy a property, the relevant competent authorities would have to go through a process of due diligence for that property. However, as my noble friend said, on the concern about buying influence rather than buying a property, there is no mechanism that is open. I hope that that loophole will be closed. The Government have been clear in their guidance on the duties on the public and competent authorities to access data for unexplained wealth orders, so we should be in a better position.

Finally, as I said in the previous debate, this is likely to be the most expensive year coming up in British politics. I hope that we will have cleaner hands, but they will not be empty. Therefore, it is how we ensure that with the source of that money going into British politics, especially in the lead-up to election campaigns, the transparency is not just around the donor but around where that money is from for substantial donations. I hope very much that we have started the process of rectifying this deficiency in the British system, and I thank the Minister for starting it.

[Lord Coaker (Lab)]

My Lords, I begin by saying how much we support the amendments of the noble Lord, Lord Carlile. I am glad that the Government have listened and come to an amicable agreement with the noble Lord which takes us forward. I thank the Minister for the way he has done that and for the concession that the Government have made on the updating of the memorandum of understanding, although clearly issues remain between the ISC and the Government, hence Motion B1 tabled by my noble friend Lord West, which we support. Aside from the Motion itself, it will allow continuing discussions, and indeed perhaps negotiations, around how the memorandum of understanding can be revised or replaced, including by negotiation, hence its importance.

I think it is really significant that still, even at this late stage of the Bill, my noble friend Lord West, speaking on behalf of the Intelligence and Security Committee, which gives parliamentary oversight of the activities of the security services, is not happy with where we have arrived at. I think it is incumbent on the Government to reach an agreement with the ISC. Clearly, as we have heard from my noble friend Lord West this afternoon, we are not in a situation where that has occurred. There are all sorts of issues that remain between the Government and the ISC, as has been evidenced by various things that have happened today, and the Government need to respond to those.

I will add just a couple of other points. One is that the Government gave a commitment during the passage of the Justice and Security Act 2013 and the Minister gave assurances to Parliament that the memorandum of understanding was a live document that would be regularly reviewed and updated. Are the Government of today completely ignoring that commitment that was made to Parliament? If so, we are in a really difficult situation, because it means that parliamentary oversight is undermined by the fact that Ministers making pledges to Parliament can just be ignored in the future by the Government. I say—we often say, all of us say—that we will not press an amendment, on the basis that the Minister, speaking from the Dispatch Box, makes commitments that are read into the record. That is an important part of parliamentary scrutiny. Ministers are asked to do that and Members of Parliament in the other place and noble Lords withdraw amendments. But here we have an example of where the Intelligence and Security Committee is saying that pledges and commitments were made to Parliament that the memorandum of understanding would be regularly updated and the Government have not done that or are still not in agreement with the ISC. I think that is a really important point.

For the avoidance of doubt, I remind your Lordships again that I do not seek to compel the Prime Minister to go to the Intelligence and Security Committee. I shall just say what I believe, and your Lordships will have to make up their own minds. Given that the Intelligence and Security Committee is the oversight body for this Parliament, I would have thought that if the ISC were regularly asking the Prime Minister to attend, the Prime Minister would go—not because he is compelled to go but because it is an important part of that parliamentary oversight and the Prime Minister of our country negotiating and liaising personally with the Intelligence and Security Committee is of real importance. So I say to noble Lords, as others have heard me say before, that all of us would be surprised by the fact that no Prime Minister has been since 2014; nearly 10 years. It has been nine years, in case I am quoted as not being accurate, since a Prime Minister has been. So I gently say that, while I do not seek to compel the Prime Minister, I politely ask the noble Lord, Lord Sharpe, whether the Home Office has suggested to the Prime Minister that, in his diary, he might consider going to see the Intelligence and Security Committee when he can.

My noble friend Lord West’s amendment raises several important issues, but the most significant is that we need to send a message through supporting it that the ISC is still not at one with the Government. That is a serious issue and needs somehow to be resolved. I believe that supporting my noble friend’s amendment will continue to put pressure on the Government to ensure that they come to an arrangement with the ISC in the end, such is its importance. If my noble friend chooses to test the opinion of the House, we will be happy to support his Motion B1.

National Security Bill

Lord Purvis of Tweed Excerpts

Consideration of Commons amendments
Wednesday 21st June 2023 Lords Chamber

[Lord Purvis of Tweed (LD)]

My Lords, these Benches will support Motion C1 in the name of the noble Lord, Lord Coaker, if he tests the opinion of the House. He made the case very adequately, and I need not add anything. These Benches will also support the noble Lord, Lord Carlile, if he seeks to test the opinion of the House on Motion A1.

The coming year is likely to be the most expensive year in British politics—let us be honest about it—so the time to act is now, rather than having regrets after the next election if there are difficulties with some of the sources of the donations. Therefore, the noble Baroness, Lady Hayter, is right: it is no longer good enough simply to verify the donor and not the source of the funds.

I used to give tours of the House of Commons when I worked for David Steel—and I also thought that was a toilet behind the Speaker’s chair, after the Speaker no longer used the toilet under his chair with the curtains around it—so I learned something about the Reasons Committee. I do not think it would have taken the committee an hour and 45 minutes to come up with Reason 22A:

“Because the law already makes sufficient provision in relation to donations to political parties”.


That was the reason given before the current situation for reporting mechanisms was put in place. It is a reason that has been given by the Government each time there has been a proposal for change. The question is not whether we agree with that reason—which, of course, we should not—but what the merits of the case for seeking extra information about the sources of funding are.

Like the noble Lord, Lord Coaker, I thank the Minister for the way he has engaged on the Bill. If he does not mind me saying so, it has been a model of how Ministers can operate. But there are these two outstanding issues on which he can use his good counsel with his colleagues in the House of Commons.

I know the Minister made the point that this will potentially delay the Bill a little longer. He will forgive me for saying so, but the Bill was delayed because of the Government bringing forward the foreign influence registration scheme without notice in Committee in the Commons, dumping on us and then having to bring 150 concession amendments. We have done our job and we continue to do it—that is the point of us being here. The time to act is now.

The Minister also mentioned that one of the deficiencies of the amendment from the noble Lord, Lord Carlile, is that political parties had not been consulted. That is a bit rich. The Government have not asked the Electoral Commission to ask political parties for their view about it, but then they say that is a problem with the amendment because there was no consultation. That is not really relevant, if the Minister does not mind me saying so.

We have to move to a situation in which we check not just the status of the donor, as the noble Baroness said, but the status of the source of funds. We would do it if a donor was buying property and HMRC was uncertain about the source of the funds—that is why we have unexplained wealth orders. It seems odd, as it seems to be the Government’s and the Minister’s position that the very same person who could be liable for an unexplained wealth order from HMRC if they were buying a property would be able to donate considerable funds to a political party and there would be no questions asked. It does not match. We also have a list of countries where extra checks have to be made by law because of the list of countries in the anti-money laundering and terrorism financing regulations that the Minister’s department puts forward.

In that regard, I will ask a couple of questions of the Minister. I hope he is able to answer them today but, if he is not, I will be grateful if he writes to me. In support of my noble friend Lord Wallace of Saltaire, I note that we seem to be in a position in which, over the last seven years, if you are a Conservative treasurer and you donate more than £3 million, you have a unique set of characteristics and skills that will mean that you have a 100% chance of being elevated to this House. If you donate more than £3 million and coincidentally then become the treasurer of the governing party, that governing party elevates you to be a Member of Parliament to hold that governing party to account. This is Britain in the 21st century. I understand that the current treasurer has given £600,000 through Unatrac Ltd and that he has also given personal donations. He is a joint national—I do not cast any aspersions on him whatever. I would be grateful if the Minister could confirm that he does not have a non-dom status. I would also be grateful if the Minister could state where his permanent residency is: London or Cairo. I would be grateful for a simple, straightforward clarification.

I would also be grateful if the Minister could state when Unatrac stopped trading with Russian oil and gas enterprises. Another Minister, the noble Lord, Lord Ahmad, is here—he and I have debated Russian sanctions and trying to clamp down on economic activities with Russia for a long time in this House. Apparently, Unatrac has made a statement that over the last few weeks it has suspended trading with Russian oil and gas. I would be grateful if the Minister could tell me when that ceased permanently.

I ask that because, according to the accounts of Unatrac, its immediate parent company is Unatrac Subco Ltd, which is incorporated in Dubai. Unatrac’s ultimate parent undertaking is Unatrac Holding Ltd, based in the UAE. The UAE is on the list of the anti-money laundering and terrorism financing regulations; extra requirements have to be made when businesses are carrying out activities from the UAE. The Minister says that political parties that receive millions of pounds in donations do not have to do that. The context we are facing is that over the coming year, as many noble Lords have said, money and politics will affect all political parties. The time to act is now. We must amend the Bill to make sure that we do not regret it in 2025.

Illegal Migration Bill

Lord Purvis of Tweed Excerpts

Committee stage
Wednesday 14th June 2023 Lords Chamber

[Lord Kirkhope of Harrogate (Con)]

My Lords, I am a signatory to Amendment 128C, and I again declare my former role as an Immigration Minister in this country. I cannot really see, and I hope I am right, that my noble friend the Minister, or indeed the Government, could refuse to accept this amendment, which seems to be completely in line, as my noble friend Lady Stroud said a few minutes ago, with the declared policies and positions of the Government.

However, I want to clarify with my noble friend the whole question of definitions because I think there is a muddle here, as there has been in a number of interpretations by the Government, about what precisely is meant by a safe and legal route. They seem sometimes to be declaring that these include programmes that are organised by others, such as the United Nations. I was responsible for the 1996 United Nations Bosnian resettlement programme. A very important part of the work of this country is working with international agencies and, indeed, in specific cases, funding special programmes so that we can accommodate those who need to flee areas of repression or aggression. I think that is really a good thing for this country, and I hope that we will always take that approach, but that is not the same as providing facilities in wider parts of the world, where perhaps there is not a well-known conflict going on, but where nevertheless there are individuals who meet the criteria of the 1951 refugee convention but have no way to claim asylum in this country.

I just want to go back, if I may, for a moment or two to the history of how we used to deal with this. I am sure noble Lords will know that before 2011 or thereabouts—my noble friend the Minister will clarify—applications could be made through United Kingdom embassies and consulates in other parts of the world.

Indeed, we have been talking about specifying safe and legal routes. I would argue against that to some extent because if we are going to specify on a discriminatory basis certain places where these routes might be opened, we are falling into the same trap that I have just explained. Programmes may well be available through the United Nations or others and therefore if we are going to introduce these routes, they ought to be introduced widely.

The International Journal of Refugee Law from 2004 gives some of the history here. It says that in early 2002 six European states formally accepted asylum applications or visa applications on asylum-related grounds at their embassies. They were Austria, Denmark, France, the Netherlands, Spain and the United Kingdom. It seems to me that things have changed. When we got to 2011 there was a statement—I do not know whether it was made or printed or referred to. It said:

“As a signatory to the 1951 Refugee Convention, the UK fully considers all asylum applications lodged in the UK. However, the UK’s international obligations under the Convention do not extend to the consideration of asylum applications lodged abroad and there is no provision in our Immigration Rules for someone abroad to be given permission to travel to the UK to seek asylum. The policy guidance on the discretionary referral to the UK Border Agency of applications for asylum by individuals in a third country who have not been recognised as refugees by another country or by the UNHCR under its mandate, has been withdrawn”.


That evidence is quite interesting because at some point—and again my noble friend will have it all available to tell us—we made a clear decision to reverse what had been practice for many years. Certainly, when I was the Minister, it was the practice that we had the ability in our embassies and consulates—people who had the discretion to be able to consider at first instance an asylum application. I recommend strongly to my noble friend that we reintroduce this, if for no other reason than to comply with the clear statements the Government have made that we can avoid the arguments and stop those boats by having a process that has a safe and legal route.

Finally, I think I am not alone in this because a number of my honourable friends in the other place have referred to it. I refer particularly to David Simmonds MP, who said:

“We must also not be afraid to look at and explore innovative solutions. For example, we could give asylum seekers the chance to have their applications processed in British Embassies around the world”—


he goes on and I do not quite agree with his last bit—

“or perhaps online”.

As far as I am concerned, to meet the terms of the convention it is important that these things are done on a face-to-face and personal basis. Online does not appeal here, although I am sure the technology is being pressed on us. I certainly would not suggest for one moment that we introduce AI in such decisions. My honourable friend Pauline Latham has also spoken of her support for the processing of asylum claims in British embassies.

I know this is a complex Bill and I have not spoken in Committee before. I believe very strongly, however, that there are solutions here which would satisfy the determination of the Government—and of us all—to stop the suffering of people who cross the channel in those boats. Let us be pragmatic and sensible about it and let us use the resources we have available and are wasting in so many other ways on these matters. Let us use them and focus our attention on providing those safe and legal routes at the very places around the world where the United Kingdom has presence and representation.

[Lord Purvis of Tweed (LD)]

My Lords, I am glad to follow the noble Lord and his very interesting contribution. In many respects, it was a very persuasive argument and, I believe, a very persuasive preparatory argument for Amendment 131 in my name, supported by my noble friend Lord Paddick and the noble Lord, Lord Carlile. It seeks to at least present a mechanism by which we would be able to realise the case that the noble Lord has made. On Amendment 128C, I have a slight concern with the way in which the Government may get around it, which I will address in a moment. At the outset I reiterate an interest that I have, in that I am currently deeply involved in working with civilian groups within Sudan and have supported an anti-trafficking project in the Horn of Africa through to the Gulf.

I am very happy to support Amendment 128B and the way in which the right reverend Prelate opened this debate so clearly today, making the case, which I believe is unanswerable, that the current schemes should not be included within any hard cap mechanism. In debates, many of my noble friends and colleagues around the House have raised the difficulties in getting some of these schemes up and running and, as the right reverend Prelate indicated, the limited scope of some of them. It would have been a tragic loss for many people if we had wrapped up these schemes in a hard cap, because Clause 58, which I argue should not be in the Bill, leaves enormous discretion for the Government. As the Refugee Council indicated, the Government could establish a cap of, say, 10,000 people and would comply with it if just 10 entered. Even a cap, an upper limit, is not a commitment to provide support and refuge for the individuals within that overall cap number.

Amendment 131 is very much designed to be a brake against smuggling and trafficking. It is meant to remove incentives for crime and is, in addition, an effective means of allowing access to apply for the very kind of support that has been called for so far in the debate. On that basis, I also commend my noble friend Lady Hamwee, who made arguments for this in debates on the Nationality and Borders Bill last year. The Government accept the case for a non country-specific emergency scheme for people who qualify for asylum in the UK. However, not only have they accepted the case but they have also, I believe, sought to misrepresent the situation and suggest that it is available already in many instances.

My first question for the Minister is that if it is the Government’s position that they will consider new routes once the boats have stopped, at what level of crossings over the channel will the Government consider that the boats have stopped? Is it in their entirety or do the Government have an indicative level under which they would then trigger the mechanism they have indicated, which is to consider new safe and legal routes? Given that, as my noble friend Lord Scriven has pointed out on many occasions, this is an issue not simply about cross-channel crossings but about road access, rail access and misuse of papers, what is the level of this being stopped before which the Government will indicate new safe and legal routes?

I indicated earlier that the Government seek to misrepresent the situation. On the morning of 26 April, the Home Secretary said to Sky News:

“If you are someone who is fleeing Sudan for humanitarian reasons, there are various mechanisms you can use. The UNHCR is present in the region and they are the right mechanism by which people should apply if they do want to seek asylum in the United Kingdom”.


On the same day, in the House of Commons, the Minister, Robert Jenrick, said:

“The best advice clearly would be for individuals to present to the UNHCR. The UK, like many countries, works closely with the UNHCR and we already operate safe and legal routes in partnership with it. That safe and legal route is available today”.—[Official Report, Commons, 26/4/23; col. 774.]


Clearly, that was awful advice because, on the same day, the UNHCR issued a statement:

“UNHCR is aware of recent public statements suggesting that refugees wishing to apply for asylum in the United Kingdom should do so via the United Nations High Commissioner for Refugees’ respective offices in their home region. UNHCR wishes to clarify that there is no mechanism through which refugees can approach UNHCR with the intention of seeking asylum in the UK”.


The Government seemed to accept that because, in the evening, Foreign Office Minister Andrew Mitchell was on Sky News, and he was asked for clarification on what safe and legal routes a Sudanese person could use to claim asylum in the UK. He said:

“Well, at the moment those safe and legal routes don’t exist”.


So after what was said in the Commons and on Sky News in the morning, after clarification in the afternoon it was clear by the evening that safe and legal routes do not exist. This is the political environment in which we are having to seek clarity from the Minister today with regard to the Government’s position.

--- Later in debate ---

[Lord Murray of Blidworth (Con)]

The right reverend Prelate is right to point to the fact that these things are always a joint effort. The Home Secretary of the day will consult, and consider input, so yes, all those words would be applicable in my view. Clearly, ultimately the scheme has to come from the Home Office, but it will be done following appropriate consultation with and the involvement of interested parties.

[Lord Purvis of Tweed (LD)]

Will the Minister give way on that point?

[Lord Murray of Blidworth (Con)]

If the noble Lord will forgive me, I should probably, in order to have a more coherent speech, take his more general points at the end. I am conscious that we need to make progress, not least because we do not wish to be here into the small hours.

As I say, the report described in Clause 59, which will be laid before Parliament within six months of the Bill achieving Royal Assent, will clearly set out the existing safe and legal routes that are offered, detail any proposed additional safe and legal routes, and explain how adults and children in need of sanctuary in the UK can access those routes. This clause is being introduced to provide clarity around the means by which those in need of protection can find sanctuary here.

Through the report, we will also set out any proposed additional safe and legal routes which are not yet in force. While a range of routes is offered at present, we believe it important to consider whether alternative routes are necessary and, if so, who would be eligible. In recognition of the different needs of children and adults in need of protection, the clause will require the report to set out which routes are accessible by adults or children.

It is against this backdrop of the Government’s approach to expanding the existing safe and legal routes that I now turn to the amendments in this group.

[Lord Purvis of Tweed (LD)]

I am grateful to the Minister for giving way. My intervention is pertinent to that clause. Can he confirm, first, what I had indicated from the Independent Commission for Aid Impact: that it was the Home Office that asked for the UNHCR to direct the resettlement scheme to be focused on Afghans only, therefore closing it down for other countries; and, secondly, that when it comes to what the Government could consider to be new and safe and legal routes, they could simply be expanding some of the funding available for the UK resettlement scheme, because that is what the Government currently define as a safe and legal route, rather than it being new country routes?

[Lord Murray of Blidworth (Con)]

On the first point, I do not have that detail to hand so I will go away and find that out and write to the noble Lord. But on the second point, obviously, the UK resettlement scheme is a general scheme to take refugees who have been identified by the UNHCR and in that sense it is not geographically specified. Obviously, these are all issues which would be considered in the report provided for under Clause 59, so the noble Lord is right to identify that.

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[Lord Murray of Blidworth (Con)]

I clearly recognise the points the noble Lord makes—that it is believed that not providing a visa route of the type described in the amendment will damage our international reputation—but no countries that I am aware of currently have a visa route of the type suggested. I am afraid that this is a consideration to be weighed in the balance. It would seem irresponsible not to consider the potential extreme cost of the proposal.

[Lord Purvis of Tweed (LD)]

The Minister should not be conflating the two amendments: they are distinct amendments with distinct mechanisms and purpose behind them, so it is a wee bit cheeky of him to do that. As for an estimate of some of the costs, can he do me a deal now in the Committee? I am not sure if this is able to be negotiated across the Committee, but I will show him mine if he shows me his before Report. He needs to present the impact assessment, which will be the Government’s estimate of the tariff costs for their UK resettlement scheme expansion, which he is proposing, to be part of a new safe and alternative or additional safe and legal route. I will use the basis of the central core estimates of what the Home Office is estimating to be the expansion necessary in the tariff funds available, which are scored against overseas development assistance, and I will use that on the threshold of what a humanitarian visa scheme might be. His scheme suggests to an Iranian woman that she has to flee to a neighbouring country to go to the UNHCR; then she is processed by the UNHCR, to be resettled in the UK. Our scheme allows that woman within Iran to go through a similar threshold to be able to access the UK. Which is most efficient?

[Lord Murray of Blidworth (Con)]

I look forward to reading the noble Lord’s document when it arrives.

[Lord Purvis of Tweed (LD)]

In due course.

[Lord Murray of Blidworth (Con)]

In due course— I am very grateful. All these questions make it clear that bringing up legal migration is irrelevant to the Bill, a point that relates to comments made by the noble Lord, Lord Paddick. The issue for the Bill is that the UK Government and local authorities have limited capacity to provide or arrange accommodation, hence a sensible cap is needed. There are other questions we need answers to. Are these safe passage visas to be given to young single men at the expense of those in more pressing need of sanctuary in the UK?

Illegal Migration Bill

Lord Purvis of Tweed Excerpts

Committee stage
Monday 5th June 2023 Lords Chamber

[Lord Cashman (Lab)]

My Lords, like my noble friend Lord Touhig, I was not going to speak to this group of amendments because the arguments have been put so brilliantly. However, I cannot remain silent. I will be brief.

At Second Reading, I said that I could not believe that we were debating such a piece of legislation in a British Parliament. This afternoon, I cannot believe that we are having to argue for basic, decent, fundamental principles for those who are most vulnerable, and particularly for unaccompanied children who, as others have said, have left their country because they had no other choice. The reality of what they were facing drove them from their families, from their homes, and from a place where they felt that they would be safe and where they belonged.

I merely say this to the Government. The Government have two options: to work with those who have tabled these amendments to make a disgusting piece of legislation less so, or to explain to me and other noble Lords why these amendments are unacceptable and how this Bill will not diminish the rights of the most vulnerable children who present themselves on our shores.

[Lord Purvis of Tweed (LD)]

My Lords, having listened to the debate, I have three questions for the Minister.

First, if I understand the Government’s position correctly, the use of punitive measures against unaccompanied children in this Bill is for a deterrent effect. That is what the Minister said at Second Reading, and it has been a consistent line. For the Government to come to that view, they must have information about the numbers of unaccompanied children that the Bill will affect—otherwise it would have been impossible for them to have determined that this policy will be a deterrent. What is the Home Office’s core estimate of how many unaccompanied children it will require facilities for under this Bill? I know that the Minister has that information in his pack. He must tell the Committee what it is.

My second question is on the Government’s assertion that this measure complies with the UN Convention on the Rights of the Child. The Government say that they will act in the interests of the child. At the moment, the UN checklist is the mechanism used to determine the best interests of the child. Will the Minister commit to the Committee that the UN checklist for the determination of the best interests of the child will be used under the terms of this Bill? If the Government’s plan is for it not to be used, like the noble Lord, Lord Hannay, and others I fear that they will not be acting in the interest of the child according to the UN convention. This is particularly relevant given that the policy shift is moving away from determining what will be the safety of a child and towards what is considered to be a safe country. That is a very radical change. For example, there are a number of countries on the Government’s safe list that they are today advising against all travel to. Therefore, a British official, or any British charity, may seek to accompany an unaccompanied child back to a country that is considered to be safe while the Foreign Office advises against all travel to that area. How can that be consistent? Last year, I visited the Rwanda reception centre in Kigali. There were no children’s facilities. Can the Minister confirm that there are now?

My third question is this. The Government’s fact sheet on children states that:

“For any unaccompanied child who is removed when under 18, we will ensure that adequate reception arrangements are in place where the child is to be removed to”.


That is not true. What in this Bill provides for the assurance and the duty that there will be reception arrangements in place for any unaccompanied child? There is no mention of that in the Bill. The fact sheet cannot be correct if the Bill does not state that this will be the case. If the Minister can tell me where in the Bill there is a duty to ensure that there are reception facilities and reception arrangements in place for a child to be removed to, I would be very grateful.

[Lord Paddick (LD)]

My Lords, my noble friend Lady Bakewell of Hardington Mandeville added her name to Amendments 14 and 22 but is having to deal with matters in Grand Committee this afternoon, and means no disrespect to this Committee. My noble friend Lord German comprehensively set out the problems with this clause and why it should not stand part of the Bill. Having said that, we also support all the amendments in this group.

On 8 May 1995, Nelson Mandela said:

“There can be no keener revelation of a society’s soul than the way in which it treats its children”.


If the Government are serious about implementing the provisions of this Bill in relation to children, what would Mandela have said about our society’s soul? An infant, or even a child yet to be born, brought into the UK by a parent and by what the Home Office calls an irregular route, or an unaccompanied child not thinking of all the consequences—because children, some as young as 10 years-old, do not think about all the consequences of their actions—will never be able to acquire the right to remain in this country and will never be able to work. They will potentially be detained until they are 18 years-old and then deported. Many of them will have had no say in determining the circumstances that they find themselves in or will not have thought about the consequences of their actions. How can the proposals in the Bill be the actions of a society that describes itself as civilised?

--- Later in debate ---

[Lord Murray of Blidworth (Con)]

Clearly, this Bill affects every person who falls within the four categories described in Clause 2, and that is all people who enter by any illegal method. Of course, at the moment, as we know, the majority of such entry is effected by small boats.

For any unaccompanied child who is removed while under 18, we will ensure that adequate reception arrangements are in place where the child is to be removed to. It is not simply a case of putting them on a plane back whence they came.

[Lord Purvis of Tweed (LD)]

I would be grateful for the Minister to respond to my point. I read from the factsheet, as he has just done. Where in the Bill is that made that a requirement?

[Lord Murray of Blidworth (Con)]

As I have already made clear, the answer is that the department has stated in both Houses that this is our position. The adequacy of reception arrangements is not something you would expect to see in the Bill, and it is consistent with the present regime that is operated in relation to unaccompanied asylum-seeking children.

[Lord Purvis of Tweed (LD)]

My Lords—

[Lord Murray of Blidworth (Con)]

Forgive me. I must make progress. Doubtless, the noble Lord will have an opportunity at the end of my remarks.

Taking these measures will send a clear message that children cannot be exploited and cross the channel in small boats for the purpose of starting a new life in the UK. The clause provides the circumstances in which it may be appropriate to remove an unaccompanied child. However, the Government consider it necessary to be alert to the people smugglers changing their tactics to circumvent the Bill. As such, it is appropriate to have a power to extend the circumstances in which it would be possible to remove an unaccompanied child via regulations. This is very much a reserve power. We have to be mindful of changes in the modus operandi of the people smugglers. I cannot give the noble Baroness, Lady Lister, examples now of how the power might be exercised but I can assure her that such regulations will be subject to the affirmative procedure and therefore will need to be debated and approved by each House.

Clause 3 also sets out the power to make provisions for other exceptions to the duty to remove via regulations. This provision is important for providing the flexibility to make additional exceptions to the duty should we not want the measures in the Bill to apply to certain categories of persons. I will give one possible example of this: a person who is subject to the duty to make arrangements for removal may also be the subject for extradition proceedings and it would be appropriate for an extradition request, if approved, to take precedence over the duty to remove in Clause 2.

Amendments 14, 15 and 17 in the names of the noble Baroness, Lady Meacher, and the noble and learned Baroness, Lady Butler-Sloss, seek either to exclude unaccompanied children altogether from the duty to remove or only permit the removal if it was in their best interests, even when they reach 18. Amendment 22 in the name of the noble Lord, Lord Dubs, covers similar ground. It seeks to provide for asylum and human rights claims from unaccompanied children to continue to be admissible within the UK.

All these amendments would undermine the intent of the Bill. As I have indicated, if we fill it with exceptions and carve-outs it will not achieve its aims and will serve to put more children at risk as the people smugglers would seek to fill the boats with even more young people, putting further lives at risk and splitting up families. I can confirm that since January 2018 around one-sixth of arrivals on small boats have been children aged 17 and under. We do not want an increase in this proportion or in the absolute numbers. Our asylum system is under increasing pressure from illegal migration, and the Government must take action to undercut the routes that smuggling gangs exploit by facilitating children’s dangerous and illegal entry into the United Kingdom, including via dangerous routes such as small boats.

Stopping the boats is in the best interests of small children who might otherwise make these dangerous and unnecessary journeys. In response to the noble Lord, Lord Kerr, and the noble Baroness, Lady Bennett, who raised the issue of a lack of safe and legal routes, I remind the Committee that the safest course for children and adults alike is to seek sanctuary in the first safe country they reach. These amendments would undermine the central premise of the Bill that if one comes to the UK via an illegal route, one will be removed and not permitted to remain in the UK and build a life here. The amendments will increase the incentive for adults to claim to be a child and encourage people smugglers to pivot and focus on bringing over more unaccompanied children via dangerous journeys. The effect would be to put more young lives at risk and split up more families. It is, I say again, in the best interests of children to enact these provisions and stop the boats. It is these amendments that will encourage the people smugglers, not the provisions in the Bill.

The noble Lords, Lord German, Lord Purvis and Lord Coaker, pressed me to set out the evidence underlying the purpose of the Bill. It is the Government’s view that if a person arriving illegally in the UK is faced with the prospect of being detained on arrival and swiftly returned to their home country, or removed to a safe third country, they will not pay the people smugglers thousands of pounds to provide them with passage across the channel.

We recognise the particular vulnerabilities in relation to unaccompanied children. That is why the Bill provides that the duty to make arrangements for removal does not apply until they reach adulthood. However, as I have explained, the Bill confers a power to remove unaccompanied children. This is not new but reflects current policy. This will be exercised, as I have said, in very limited circumstances, taking into consideration the best interests of the child. Following amendments brought by the Government at Report in the Commons, this clause now expressly sets out the circumstances in which the power to remove unaccompanied children may be exercised.

Turning to Amendment 16A, I first comment that the noble and learned Baroness set out what is likely to be an exceptional scenario. That said, she has a point in that an unaccompanied child who is subsequently adopted in the UK by a British citizen has an automatic route to British citizenship. They would therefore not be subject to the citizenship bans in Clauses 30 to 36. In this scenario, we agree that it would not be appropriate for the duty to remove to be applied to that child. We can address this by using the regulation-making power in Clause 3(7) to provide for exceptions to the duty to remove. An amendment to the Bill is, therefore, not required. In addition to adopted unaccompanied children, such regulations would also cover any other cohorts to whom the duty would apply but who exceptionally obtain British citizenship following their arrival in the UK. I hope that the noble and learned Baroness and my noble friend Lord Cormack will be reassured by this.

Amendment 18 from the noble Baroness, Lady Hamwee, is on one level unnecessary in that the regulation-making power in Clause 3(7) could be used to deliver the desired outcome. However, I come back to the aim of the Bill: namely, promptly to remove from the UK those who meet the conditions in Clause 2. We have brought forward a robust legal scheme that will enable us to do just that and I urge your Lordships not to add caveats, exceptions and exemptions to the Bill such as to make the scheme unworkable.

In answer to the noble Lord, Lord Alton, I should add that I very much value the continued dialogue we are having with the Children’s Commissioner for England. She recently met the Immigration Minister and me, and I am due to meet her again soon to discuss the Bill.

[Lord Murray of Blidworth (Con)]

Clearly there are other provisions in relation to the standards of detention in the detained estate in relation to children. In the event that they are not detained, the usual prevailing regulations will apply and I am happy to write to the noble Lord with more detail in relation to that.

The noble Lord, Lord German, referred to the recommendation of the Delegated Powers Committee in relation to the regulation-making power in Clause 3(7). We are studying that committee’s report carefully and aim to respond before Report.

The noble Lord, Lord Coaker, asked about the use of force. We will address that point when we reach Amendment 70 on Wednesday.

In conclusion, Clause 3 adopts an appropriate balance in respect of unaccompanied children and, in those circumstances, I invite the noble Baroness, Lady Meacher, to withdraw her amendment.

[Lord Purvis of Tweed (LD)]

The Committee noted the Minister confirming that there would be no duty on Ministers to ensure that adequate reception arrangements are in place for an unaccompanied minor to be received. That is tragic. Can he also answer my question with regard to the fact that the only place at the moment with which the Government have an MOU is Rwanda? Are there any facilities for children in Rwanda that the Government have agreed-?

[Lord Murray of Blidworth (Con)]

As I say, the occasions when a child will be removed will be very exceptional and the two cases that are envisaged are for family reunion, therefore reception facilities will not be required, or if it was a return to a safe country, and that of course would not arise unless it was a Rwandan child. In those circumstances, I do not see the particular purpose of the noble Lord’s question.

[Lord Purvis of Tweed (LD)]

The other category does apply. If it cannot be to the safe country of origin, it applies to the schedule countries. The only scheme that we have at the moment, if it is not a safe country, would be Rwanda, so it is a simple question: are there any facilities for children in Kigali which the Government have agreed?

[Lord Murray of Blidworth (Con)]

As I said, the power will be exercised very exceptionally. I am happy to go away and look into that point, and I will write to the noble Lord on it.

--- Later in debate ---

[The Parliamentary Under-Secretary of State, Ministry of Justice (Lord Bellamy) (Con)]

My Lords, I hope I can be relatively brief in introducing a small group of technical amendments to the Bill and perhaps, if I may say so, allow the House to take a short break from the understandably strong feelings generated by the discussion.

The amendments essentially address three issues. The first is to define the term “national” as including a citizen of the relevant country. Thus Amendment 19 inserts a Bill-wide definition of the term “national”. The effect is that any reference to a country of which a person is a national includes a country of which a person is a citizen. In not all countries are citizenship and nationality exactly the same. Similarly, a reference to a person not being a national of a country is to be read as also referring to a person not being a citizen of that country. Amendment 19 ensures that the Bill is consistent in this regard. Amendments 16, 24, 28, 99 and 141 are simply consequential amendments. Amendment 128 makes a similar change to Section 80A of the Nationality, Immigration and Asylum Act 2002.

The second group of technical amendments ensures that the word “court”, where it appears in the Bill, includes a tribunal. That is in relation specifically to Amendment 25A, which refers to the definition of an application for judicial review. The definition of the application for a judicial review in Clause 4(6) is extended so that it covers an application to a tribunal. That will specifically be the judicial review jurisdiction of the Upper Tribunal or the Special Immigration Appeals Commission.

The substantive issues about the scope of judicial reviews—whether they are non-suspensive or not, and the related provisions of Clause 52 and 55—will, I am sure, be debated in due course. The effect of Amendment 25A, and the associated Amendments 115C, 116A, 117A, 123A and 123B, is to make it clear that the relevant provisions in each case apply to tribunal proceedings, especially proceedings in the Upper Tribunal, as they do to proceedings in the High Court or the Court of Session.

Finally, the third group of amendments includes Amendments 29, 31, 32, 33, 34 and 38, which relate to the country to which certain persons who satisfy the conditions in Clause 2 may be removed to. Effectively, they treat persons who hold a passport or an identity document from the country in question as if they were nationals or citizens of that country. If, for example, an Indian national had a French identity document, they could be returned to France, assuming that there were no exceptional circumstances preventing their removal there. In other words, it is simply to treat persons who have obtained an identity document in the same way as they would be treated were they a national or citizen of that country.

I am happy of course to deal with any points that arise, but I do hope that these relatively technical amendments find favour with the Committee, and I beg to move Amendment 16.

[Lord Purvis of Tweed (LD)]

I will just ask the Minister for clarification with regard to countries that we do not recognise or areas where there are territorial disputes. Two of the main areas people are coming to the UK from, which the Government wish to stop, are conflict-afflicted areas because of territorial disputes, where the UN has a particular mechanism of providing humanitarian identification.

Is it the government position that all those people will have to come from a state that we recognise? By definition, many of the asylum seekers are seeking asylum because they are being persecuted because they are on one side of a territorial dispute—some of these geographical areas I have visited. The Government in this Bill now seem to be indicating that they will come to a side with regard to which identification documents, either national or citizenship, they will recognise. Why is this the case?

[Lord Bellamy (Con)]

My Lords, the proposed amendments are to cover the technical situation where somebody who is not necessarily a citizen or a national happens to hold an identity document of that country, and therefore—almost by definition, but certainly by strong presumption—is clearly someone who has a close relationship with that country. Assuming it is a safe country and that there are no other circumstances that might create an exception, that is a place to which they should normally be returned. If, as I think the question is posing, there are real risks in sending that person back to a particular country, the procedures in the Bill kick in. That would be a question of fact in each case.

--- Later in debate ---

[Lord Horam (Con)]

No, I am just saying that if the amendment were accepted, it would be entirely inimical to the purpose of the Bill.

[Lord Purvis of Tweed (LD)]

My Lords, I think, to some extent, that that is the point of the amendment. I am scared of dentists, so I have no desire to rush into a debate about dentistry, but I was waiting because at least from the Conservative Benches we heard a speech. I was counting how many. Every one had voted for this Bill, but it is amazing how many are coy when it comes to defending what is going to be the reality: that if a young woman is trafficked from a war zone, is raped on the way and arrives in the UK having been lied to, the response is no longer what had been the case; namely, that a first responder in assessing her needs would refer her to protection—the British way. Now, the first responder will say, “You have no rights under modern slavery or trafficking legislation in the UK at all. Not only that but you will be detained and you will be deported”. So, please, can we have some defence of this from the Conservative Benches? If they are not going to defend it, please do not vote for it. Only vote for something that you are willing to defend. It might just be that if the whole purpose of the Bill, as the noble Lord, Lord Horam, said, is deterrence, why stop here? If it is going to be deterrence for an emergency, why stop at this measure? If the Government act in an emergency on a situation of great importance and it is to deter, should it not be on the basis of evidence?

We heard earlier from the Minister saying that one person’s evidence is another person’s assertion. He did not say exactly that; I am putting words into his mouth so that I can disagree with them, but he basically said, “Well, it’s our view that this is the case”.

It was in 2019 that the Government promoted with fanfare a £10 million policy centre. The government press release said:

“Efforts to uncover the true scale of modern slavery, expose more trafficking networks and better inform our action to stamp out these crimes have been boosted today following the government’s investment of £10 million to create a cutting-edge Policy and Evidence Centre for Modern Slavery and Human Rights”.


That was universally welcomed. The Government said that our response to this crisis would be evidence-led and that we would then act on it. There was universal support for that.

That centre—the Modern Slavery and Human Rights Policy and Evidence Centre—which is still receiving Home Office funds in 2023-24 to do this job and inform the Government, says of the Bill:

“Thousands of potential victims of modern slavery may be denied protections by the modern slavery provisions in the Bill. This will include people for whom their entry to the UK is an integral element of the criminal offence of trafficking committed against them”.


It goes on to say:

“The need for these provisions is predicated on the UK Government’s assumption that people are ‘abusing’ the modern slavery system, and that the system is an incentive for illegal migration to the UK. The available evidence questions both of these assumptions”.


Finally, it says:

“The modern slavery measures in the Bill are incompatible with the UK’s obligations”.


I would rather drive a coach and horses through proposals from the Government that are not based on evidence and put in their place evidence-based policies that are likely to work. I declare an interest: I have supported schemes in the Horn of Africa through to the Gulf which are trying to support victims of human trafficking and forced labour.

The Bill will not only not work; it will undermine our reputation around the world. That is shameful. It is not only shameful for our global reputation—I hope we can rebuild that—but it is even more shameful for that young woman who was lied to, trafficked to the UK and would now effectively be a double victim.

[Lord Paddick (LD)]

My Lords, we support all the amendments in this group. As many noble Lords have said, victims of slavery or human trafficking should not be further victimised by the provisions of the Bill. As many briefings with which noble Lords have been provided—for which I personally am very grateful—have pointed out, these provisions play into the hands of traffickers and perpetrators of modern slavery. Victims will face the dilemma of further exploitation or deportation, and the criminals will use the provisions in the Bill to enforce their hold on their victims, as the noble and learned Baroness, Lady Butler-Sloss, said. Speaking as a former police officer, I say that it is difficult enough to get victims to give evidence in court, let alone victims of modern slavery or trafficking who have been deported to another country.

As the noble Lord, Lord Hunt of Kings Heath, said, referrals to the national referral mechanism are made by officials, making abuse of the system unlikely. That is reinforced by the fact that a very high proportion of the claims are actually supported.

For the reasons the noble Lord, Lord Anderson of Ipswich, gave, we agree with the conclusions of the Constitution Committee that the cumulative impact of the ouster and partial ouster provisions in the Bill give rise to very considerable and, I argue, dangerous constitutional implications. As the noble Lord, Lord Carlile of Berriew, has said, this could have potentially fatal consequences for individuals.

The effects on physical and mental health of the Home Office’s policies of placing people in limbo are well documented. We support the amendment in the name of the noble Lord, Lord Dubs, to limit the damage by placing a six-month limit on refusal to consider a protection claim or human rights claim. In doing so, we agree very strongly with the comments of the noble Lord, Lord Kerr of Kinlochard. For the reasons my noble friend Lord German has explained, we believe that this clause should also not be part of the Bill.

So far as emergencies are concerned, is it not the case that the only emergency is the huge backlog of undecided asylum claims—and that it is an emergency which is entirely the responsibility of the Home Office?

--- Later in debate ---

As I have said, it is a sad fact that the protections that the NRM provides are open to misuse and could act as an incentive for those making dangerous journeys and offer a loophole for human traffickers. I should stress that these measures are of course time-limited, lapsing automatically after two years, subject to an assessment of their continued necessity, to reflect the exceptional nature of the crisis.

[Lord Purvis of Tweed (LD)]

I am grateful to the Minister. I am listening very carefully to what he is saying regarding the loophole. My understanding is that a referral to the NRM can be made only by a first responder authorised by the Home Office; that first responders have to be certified for their professionalism by the Home Office; and that the referral mechanism goes to a dedicated individual within the Home Office. Why is the Home Office so incompetent that it is allowing this system to abuse itself, given the fact that only the Home Office and first responders can refer?

[Lord Murray of Blidworth (Con)]

It is not the Home Office abusing itself—to use the noble Lord’s phrase. The reality is that it is the large number of claims made by people advised to make claims, often at the last minute, in order to delay removal. When people are referred to the national referral mechanism, they give an account of slavery that then requires investigation. A threshold is applied that means that the allegations are looked into, and the number of people making applications now has given rise to the length of time to determine those claims.

If I may, I will respond to points raised by the noble Lords, Lord Alton and Lord Morrow.

[Lord Purvis of Tweed (LD)]

If I may—

[Lord Murray of Blidworth (Con)]

I will come back to the noble Lord, Lord Purvis, at the end. I can confirm that removing this incentive is compliant with our international obligations under the Council of Europe Convention on Action against Trafficking in Human Beings—ECAT. Indeed, ECAT envisages that the recovery period should be withheld from potential victims of trafficking on grounds of public order. There is a clear and unprecedented threat to public order through the loss of lives and the pressure on public services that illegal entry to the UK is causing. I again remind noble Lords that the number of small boat crossings has risen from 8,500 in 2020 to over 45,000 last year. We will have a fuller debate in respect of the modern slavery provisions when we reach Clauses 21 to 28 in Committee, but I cannot agree to the noble Lord’s proposition that the foundation of those provisions in subsection (1)(c) be removed from the Bill.

Amendment 20, spoken to by the noble Lord, Lord Carlile, seeks to strike out subsection (1)(d), the effect of which would be to enable any judicial review to put a block on removal until the legal proceedings had been concluded. It seems to me that the key words—and perhaps I could invite the noble Lord to refer to the Bill—are in Clause 4(1)(d), which relates to an application for judicial review in relation to their removal. As my noble friend Lord Horam indicated, such an amendment would again undermine a key feature of the scheme provided for in the Bill. We must stop the endless cycle of late and repeated challenges that frustrate removal under the current law. Of course, it is right to say, too, that there is no general block on non-suspensive judicial review provided for in the Bill.

The Bill provides for two types of claims that would suspend removal, and we will come on to those in due course in Committee. Those provisions provide sufficient remedies to challenge a removal notice and afford the necessary protection to a person suffering serious and irreversible harm were they to be removed to the specified third country. All other legal challenges, whether on ECHR grounds or otherwise, should be non-suspensive. Therefore, Clause 4(1)(d), read with Clause 52, does not oust judicial reviews; those provisions are simply making it clear that any judicial review cannot block removal.

As regards Amendment 21, tabled by the noble and learned Lord, Lord Hope of Craighead, and spoken to by the noble Lord, Lord Anderson, I have already indicated that inadmissibility is not a new concept. It has been a feature of the UK asylum system for some time and is already enshrined in the Nationality and Borders Act 2022. While I welcome the Constitution Committee’s scrutiny of the Bill, I cannot accept its characterisation of the provisions as having significant rule of law implications. What does have significant implications for the rule of law, I suggest, is tens of thousands of people arriving on our shores each year in defiance of immigration laws. These individuals should be claiming asylum in the first safe country they reach, and, in these circumstances, it is legitimate to declare any protection claims inadmissible to the UK system.

The noble Lord, Lord Anderson, asked what would happen to an asylum or human rights claim that had been declared inadmissible, but where the person had had their factual or suspensive claim accepted. In such a case, the person’s claim would be considered under the existing law. That might include existing inadmissibility provisions. I again remind the Committee that inadmissibility is a long-standing process intended to support the first safe country principle. It is an established part of the international asylum procedures applied across the EU and specifically provided for in UK law, most recently in the strengthened provisions introduced in the Nationality and Borders Act 2022.

--- Later in debate ---

[Lord Murray of Blidworth (Con)]

Forgive me; I intended to address the noble Lord’s point in relation to that. Obviously, the provisions in Clause 4 make specific reference to the power to remove children, which is contained in Clause 3. That in itself is a safeguard to protect the welfare of children. It operates in a way that promotes the interests of children, I suggest, but I am happy to look further at that point and will take it away.

[Lord Purvis of Tweed (LD)]

Can I clarify the point that I was making? The Minister alluded to maybe coming back to me. He implied that the problem arose with those who claim, when arriving here under what the Government say is an illegal route, that they are victims of trafficking. The review of that happens only after a referral is made, and there cannot be a self-referral. He seemed to blame the threshold on which that assessment is made as to whether a first responder then submits that person to the NRM. That threshold is the Home Office threshold and the first responders are Home Office- licensed. Why does the Minister think that the Home Office is getting it so wrong?

[Lord Murray of Blidworth (Con)]

I am afraid that I disagree. The Home Office is not getting it wrong. As I already set out in my remarks, the numbers of people claiming to have been modern slaves in this scenario indicates that there is extensive abuse. I do not think that the noble Lord could say anything else, looking at the very persuasive statistics of people in detention. I simply do not agree with him on that point.

[Lord Purvis of Tweed (LD)]

If we have found that there is no loophole in the system, that is good—so it is just the numbers. Therefore if the number of those who are trafficked goes up, that is the problem. It is not that there is a loophole in the system meaning that a higher proportion are falsely claiming that they are being trafficked. What message does that say around the world? The UK is now blind to the individual merit of a young woman being trafficked if there are many young women being trafficked—that is when we close our doors.

[Lord Murray of Blidworth (Con)]

That is not the case. Much as we might wish it to be, the simple reality, I am afraid, is that our modern slavery protections are being abused. The measures in the Bill directly address that.

Student Visas

Lord Purvis of Tweed Excerpts

Thursday 25th May 2023 Lords Chamber

[Lord Murray of Blidworth (Con)]

I refer the noble Lord to the answer I gave some moments ago. It is worth saying, in relation to the first part of his question, that these changes will ensure that the UK’s higher education establishments are focused on recruiting students based on economic value and not on dependants, whose value in terms of student fees and wages is minimal. We have been successful in delivering our international educational goal of hosting up to 600,000 students per year by 2030 almost a decade earlier than planned and expect universities to be able to adapt to reduce dependant numbers.

[Lord Purvis of Tweed (LD)]

Will the Minister answer my noble friend’s question about the two countries? Also, the current rules, which the Government are going to end, supported by the Labour Party, state:

“If you have a child while you’re in the UK, they do not automatically become a British citizen. You must apply for your child’s dependant visa”.


Can the Minister please reassure me that, under the Government’s plans, babies are not going to be separated from their parents?

[Lord Murray of Blidworth (Con)]

The two countries that send the most students with dependants are Nigeria and India. Our points-based immigration system prioritises skills and talent over where a person comes from, in any event. We consider any impact of our changes proportionate in achieving the overall aim of reducing net migration and allowing dependants only for a specific cohort of students with the types of skills the UK is specifically seeking to attract to assist economic growth. In answer to the second part of the noble Lord’s question, on whether one would separate a mother from a child, obviously every case is fact-specific but the principle remains that if you apply for a student visa for a course other than a research graduate study course, you are not entitled to bring a dependant.