Nationality and Borders Bill (Fourteenth sitting)

Debate between Bambos Charalambous and Anne McLaughlin

Committee stage
Tuesday 2nd November 2021 Public Bill Committees

[Anne McLaughlin (Glasgow North East) (SNP)]

I will be brief, as I have just a couple of questions. Ethics aside, as is the want of this Government—if that is not the case, why are they running away from the amendment tabled by the hon. Member for Sheffield Central?—I want to look at the issue of estimating the maturity of a child’s skeletal system by comparing images with databases of children of the same age and gender. Do children in Ethiopia develop at a comparable rate to children in the UK, because I understand that that is who they are going to be compared to? Do children in Eritrea and Sudan develop at the same rate? The British Medical Association seems pretty certain that they do not. If that is the case, how long will it take to build databases of comparable images for each country or region, and has that work started?

[Bambos Charalambous (Enfield, Southgate) (Lab)]

The Government have tabled new clauses 29 to 37 to replace clause 58, which was a placeholder clause on age assessments. Colleagues have already made the point about lack of scrutiny. Having received these new clauses so late in the day, we have not had a chance to see proper evidence, because we were not aware of what has been said. Clearly, as part of its role a Committee must have time to scrutinise. I am sure we will do the best we can with the time we have been given, but it really is not best form to have so many Government new clauses so late in the day on such an important issue.

We are concerned that the age assessments referred to in new clauses 29 to 37 risk violating children’s rights. I thank the Refugee and Migrant Children’s Consortium, a coalition of over 60 organisations, for its excellent briefing on these new clauses and for sharing its concerns about their inclusion in the Bill. If implemented, the new regulations and measures on age assessments will significantly increase the risk that children in the system will be treated as adults and criminalised. Before we discuss specific measures, it is worth noting that age assessments are not straightforward, nor are they an exact science. The measures in this Bill fail to recognise that it is impossible to determine age precisely, especially when there is an absence of documentation, which is often the case. By introducing a higher standard of proof in age assessments, more children in the system will be wrongly treated as adults, with devastating consequences.

For unaccompanied children in the asylum system, age is fundamental to receiving the support and protection they need. In the UK, age determines how or whether someone is supported by children’s services and has access to education; whether they are provided with asylum support by the Home Office and dispersed to a different part of the UK; and whether they are accommodated or detained with adults. It is imperative that we get age assessment right, and we all agree that there are clear safeguarding issues when people claiming to be children are later found to be adults, but it is also true that the effects of children being wrongly treated as adults are significant. I therefore urge colleagues to consider those safeguarding risks in relation to new clauses 29 to 37.

New clause 29 defines various terms, including “age-disputed person”, which governs the persons to whom the provision on age assessments will apply. As it stands, new clause 29 will mean that age assessment is required whenever there is insufficient evidence to be sure of age. Of course, as we know, this is true in many if not all cases. In practice, this clause therefore puts the burden of proof on a child to prove that they are under 18.

This is problematic for a couple of reasons. Children who come to the UK on their own from countries such as Afghanistan face challenges when asked to prove their date of birth. First, the registration of births and the importance placed on chronological age differs across the world. Secondly, and perhaps more significantly, there is often a lack of documentation. For example, many children who come to the UK have never had official identity documents in the first place, or have had documents taken from them or destroyed during their journey to the UK.

It is worth sharing an example, and I thank the Refugee and Migrant Children’s Consortium for bringing it to the Committee’s attention, as it highlights both the challenges in determining age accurately and the impact of wrong decisions. This case refers to a young person named K, who arrived in the UK from Iran and was held in a police station. He was 16 years old when he left Iran, and he told the staff at the police station his date of birth. They explained that, based on the date of birth, he was now 17.

K was then questioned by someone—he believes they were from social services—who did not believe he was 17, as they believed he looked older. Before entering the UK, K had been living in the jungle in Calais, and had not properly washed for a long time and had grown a beard. K was pressured into accepting he was 18 years old, and the Home Office recorded his age as 18. This meant he was not referred to a local authority for a full age assessment and was dispersed into adult asylum support accommodation in a hotel. He was the only child in the hotel and was left very scared. He reported that adults in the accommodation were taking drugs and he could not eat during his time there.

K managed to get in contact with the British Red Cross, and a safeguarding referral was made to the relevant local authority. The local authority promptly arranged to visit the young person, and two social workers agreed that it was highly likely that K was the age he was claiming to be. K was immediately moved and provided with full support under section 20 of the Children Act 1989. The local authority completed a full needs assessment and quickly took action to refer him to a GP, dentist, optician and immigration solicitor, and supported him to enrol in college. He had been suffering from asthma, and had not received any medical support since he arrived in the UK.

K’s case highlights what can happen when a young person is wrongly considered an adult in the asylum system, and the effects are stark. They lose access to the support and protection they need. That is why we must be incredibly careful to develop appropriate and fair age assessments, and also ensure that they are a function of the child protection and safeguarding system more widely.

In relation to K’s case, I have mentioned the fact that children are in hotels, and there is a real question about what safeguarding goes on in hotels. I know the Minister is deputising today, but could he look into that for me and to write back to me, or ask officials to do so at some stage, about what safeguarding for children does go on in hotels?

In new clause 30, the Home Office will be given the power to make regulations on how to assess age and introduce a standard of proof on the balance of probabilities for age assessments. The current standard when age is disputed in the context of an asylum appeal, developed through years of case law, is that of a reasonable degree of likelihood. Given the complicated nature of assessing age, introducing such a high standard of proof would significantly increase the risk of children being wrongly treated as adults. Indeed, new clause 30 undermines current statutory guidance from the Department for Education, which makes it clear that age assessments

“should not be a routine part of a local authority’s assessment of unaccompanied or trafficked children”.

Nationality and Borders Bill (Fourteenth sitting)

Debate between Bambos Charalambous and Anne McLaughlin

Tuesday 2nd November 2021 Public Bill Committees

Anne McLaughlin (Glasgow North East) (SNP)

- - Excerpts

I will be brief, as I have just a couple of questions. Ethics aside, as is the want of this Government—if that is not the case, why are they running away from the amendment tabled by the hon. Member for Sheffield Central?—I want to look at the issue of estimating the maturity of a child’s skeletal system by comparing images with databases of children of the same age and gender. Do children in Ethiopia develop at a comparable rate to children in the UK, because I understand that that is who they are going to be compared to? Do children in Eritrea and Sudan develop at the same rate? The British Medical Association seems pretty certain that they do not. If that is the case, how long will it take to build databases of comparable images for each country or region, and has that work started?

Bambos Charalambous (Enfield, Southgate) (Lab)

-

The Government have tabled new clauses 29 to 37 to replace clause 58, which was a placeholder clause on age assessments. Colleagues have already made the point about lack of scrutiny. Having received these new clauses so late in the day, we have not had a chance to see proper evidence, because we were not aware of what has been said. Clearly, as part of its role a Committee must have time to scrutinise. I am sure we will do the best we can with the time we have been given, but it really is not best form to have so many Government new clauses so late in the day on such an important issue.

We are concerned that the age assessments referred to in new clauses 29 to 37 risk violating children’s rights. I thank the Refugee and Migrant Children’s Consortium, a coalition of over 60 organisations, for its excellent briefing on these new clauses and for sharing its concerns about their inclusion in the Bill. If implemented, the new regulations and measures on age assessments will significantly increase the risk that children in the system will be treated as adults and criminalised. Before we discuss specific measures, it is worth noting that age assessments are not straightforward, nor are they an exact science. The measures in this Bill fail to recognise that it is impossible to determine age precisely, especially when there is an absence of documentation, which is often the case. By introducing a higher standard of proof in age assessments, more children in the system will be wrongly treated as adults, with devastating consequences.

For unaccompanied children in the asylum system, age is fundamental to receiving the support and protection they need. In the UK, age determines how or whether someone is supported by children’s services and has access to education; whether they are provided with asylum support by the Home Office and dispersed to a different part of the UK; and whether they are accommodated or detained with adults. It is imperative that we get age assessment right, and we all agree that there are clear safeguarding issues when people claiming to be children are later found to be adults, but it is also true that the effects of children being wrongly treated as adults are significant. I therefore urge colleagues to consider those safeguarding risks in relation to new clauses 29 to 37.

New clause 29 defines various terms, including “age-disputed person”, which governs the persons to whom the provision on age assessments will apply. As it stands, new clause 29 will mean that age assessment is required whenever there is insufficient evidence to be sure of age. Of course, as we know, this is true in many if not all cases. In practice, this clause therefore puts the burden of proof on a child to prove that they are under 18.

This is problematic for a couple of reasons. Children who come to the UK on their own from countries such as Afghanistan face challenges when asked to prove their date of birth. First, the registration of births and the importance placed on chronological age differs across the world. Secondly, and perhaps more significantly, there is often a lack of documentation. For example, many children who come to the UK have never had official identity documents in the first place, or have had documents taken from them or destroyed during their journey to the UK.

It is worth sharing an example, and I thank the Refugee and Migrant Children’s Consortium for bringing it to the Committee’s attention, as it highlights both the challenges in determining age accurately and the impact of wrong decisions. This case refers to a young person named K, who arrived in the UK from Iran and was held in a police station. He was 16 years old when he left Iran, and he told the staff at the police station his date of birth. They explained that, based on the date of birth, he was now 17.

K was then questioned by someone—he believes they were from social services—who did not believe he was 17, as they believed he looked older. Before entering the UK, K had been living in the jungle in Calais, and had not properly washed for a long time and had grown a beard. K was pressured into accepting he was 18 years old, and the Home Office recorded his age as 18. This meant he was not referred to a local authority for a full age assessment and was dispersed into adult asylum support accommodation in a hotel. He was the only child in the hotel and was left very scared. He reported that adults in the accommodation were taking drugs and he could not eat during his time there.

K managed to get in contact with the British Red Cross, and a safeguarding referral was made to the relevant local authority. The local authority promptly arranged to visit the young person, and two social workers agreed that it was highly likely that K was the age he was claiming to be. K was immediately moved and provided with full support under section 20 of the Children Act 1989. The local authority completed a full needs assessment and quickly took action to refer him to a GP, dentist, optician and immigration solicitor, and supported him to enrol in college. He had been suffering from asthma, and had not received any medical support since he arrived in the UK.

K’s case highlights what can happen when a young person is wrongly considered an adult in the asylum system, and the effects are stark. They lose access to the support and protection they need. That is why we must be incredibly careful to develop appropriate and fair age assessments, and also ensure that they are a function of the child protection and safeguarding system more widely.

In relation to K’s case, I have mentioned the fact that children are in hotels, and there is a real question about what safeguarding goes on in hotels. I know the Minister is deputising today, but could he look into that for me and to write back to me, or ask officials to do so at some stage, about what safeguarding for children does go on in hotels?

In new clause 30, the Home Office will be given the power to make regulations on how to assess age and introduce a standard of proof on the balance of probabilities for age assessments. The current standard when age is disputed in the context of an asylum appeal, developed through years of case law, is that of a reasonable degree of likelihood. Given the complicated nature of assessing age, introducing such a high standard of proof would significantly increase the risk of children being wrongly treated as adults. Indeed, new clause 30 undermines current statutory guidance from the Department for Education, which makes it clear that age assessments

“should not be a routine part of a local authority’s assessment of unaccompanied or trafficked children”.

Nationality and Borders Bill (Seventh sitting)

Debate between Bambos Charalambous and Anne McLaughlin

Committee stage
Thursday 21st October 2021 Public Bill Committees

[Anne McLaughlin]

I would absolutely support that. I had no intention of speaking for any more than five minutes, but Members keep on interrupting and goading me. I want to make two more little points, if I may. The Bill is being brought in because there is a mistaken belief that asylum seekers across the world are desperate to get to the UK. I am not sure why they would be if they ever watch parliamentlive.tv, but the fact is that most people coming to Europe as a whole think that Europe is one homogenous place. They do not think in terms of countries. This is not anecdotal; studies have been done on people who come to live here. Similarly, people often think that Africa is a country, when it is more than 50 countries.

Asylum seekers are not looking to go to a particular country. If they choose to come to the UK, it is perhaps because they have family or friends here, which is hugely important, or because they speak the language. They do not speak French or German, but they do speak English and do have family here. Imagine the turmoil when people’s city is bombed. They do not recognise the streets any more, and they do not know where their family are. They know that they could be raped, tortured or murdered at any moment. Imagine the trauma from that. People know that they have to get away. Of course they do not want to leave, but they have to do so. We should all think about that happening to us. We are so lucky that it will probably never happen to us. If it did, we would want to be with people who made us feel safe. If someone has family or friends in the UK, they should be able to join them. Yes, that is a pull factor, as is the language. There is also a mistaken belief that the great British empire was all-welcoming, all-democratic and all-supportive of human rights, which is another reason why people come to the UK.

The truth is that most people who arrive by boat have not decided that they are coming here; the smugglers have decided it. As my Friend the Member for Cumbernauld, Kilsyth and Kirkintilloch East said, we should be targeting the smugglers, not their victims. We should take away their market, and the only way to do that is to provide the safe and legal routes on which we apparently all agree. But where are they?

I will make one more point, which is about France. We have established that, under the international legislation that the UK played a major role in developing, there is no requirement to claim asylum in the first so-called safe country that somebody arrives in. However, it is important to understand why someone fleeing persecution, and probably suffering from mental health impacts such as post-traumatic stress disorder, might not want to claim asylum in France—I am using France as an example. Why would an asylum seeker choose to make a dangerous crossing? As I said, most people are not choosing; the people smugglers are choosing. Why might they choose to make a dangerous channel crossing, when they could claim asylum in France? I have spoken about the fact that people do not choose their route, but it is well established that the asylum system in France has a reputation for being harsh. I know there are Members present who like the idea of harshness, but we do not.

A 2020 ruling by the European Court of Human Rights condemned France for inhumane living conditions for asylum seekers. Having spent a few days with my hon. Friend the Member for Cumbernauld, Kilsyth and Kirkintilloch East in the jungle in Calais a few years ago, I saw exactly what the court meant. France might take in many more people than we do in the UK—I believe that we do not treat asylum seekers as well as we should do when they arrive here, and we certainly will not do so if the Bill passes—but France is not where I would want to be if I needed international protection, especially if I had to recover from trauma.

Even during the pandemic last year, when we all agreed that there should be a break in evictions and that everyone should have a roof over their head, asylum seekers sleeping in tents in France where thrown out of their tents and tear-gassed, no doubt triggering terrible memories for many of them. When I was in the jungle, parents there told me that their children no longer played in the little playpark nearby because far-right activists set off fireworks to terrify them, and terrify them it did, as these kids fled, thinking that they were being bombed again.

In addition, the housing situation for asylum seekers in France has only got worse, with asylum seekers such as Hussain, interviewed by the New Humanitarian in April, being forced to sleep rough on the streets of Paris over a year after he submitted his application. The French National Consultative Commission on Human Rights went so far as to say:

“It is true that the conditions in France make people want to leave”.

Nicolas De Sa-Pallix, a French asylum lawyer, condemned the French Government’s approach, and his words should act as a warning for Government Members:

“They talk about being both humane and tough in migration policies, but these don’t go together…You can’t have both.”

I agree, so why not just respond to the plight of these people, facing things that none of us will ever have to face, with humanity?

[Bambos Charalambous (Enfield, Southgate) (Lab)]

We have heard two excellent speeches, and the Opposition totally support the position of the Scottish National party.

Nationality and Borders Bill (Eighth sitting)

Debate between Bambos Charalambous and Anne McLaughlin

Committee stage
Thursday 21st October 2021 Public Bill Committees

[Bambos Charalambous (Enfield, Southgate) (Lab)]

The Opposition strongly oppose the clause. We believe that it contravenes the 1951 refugee convention, that it sets a dangerous precedent by creating a two-tiered system for refugees and that it is deeply inhumane. The clause seeks to dehumanise refugees in many insidious ways, and I believe that it threatens our very sense of who we are as a civilised nation. I will set out all the ways in which the clause does that, but before I begin, I would again like to thank the many organisations from across the refugee and asylum sector for their invaluable help in our scrutiny of the clause.

I will talk first about the differential treatment of refugees in groups 1 and 2. As all members of this Committee will know, at the heart of clause 10 is the creation of two tiers of refugee under UK law. Only those refugees who meet specific additional “requirements” will be considered group 1 refugees and benefit from the rights currently granted to all refugees by the refugee convention. Under clause 10 of the Bill, the requirements for group 1 refugees are that

“they have come to the United Kingdom directly from a country or territory where their life or freedom was threatened (in the sense of Article 1 of the Refugee Convention), and…they have presented themselves without delay to the authorities.”

The clause also states:

“Where a refugee has entered or is present in the United Kingdom unlawfully, the additional requirement is that they can show good cause for their unlawful entry or presence.”

Other refugees, who are not deemed to meet the criteria, will be designated as group 2 refugees. The Secretary of State will be empowered to draft rules discriminating against group 2 refugees with regard to the rights to which they are entitled under the refugee convention, as well as the fundamental human right to family unity.

To explain this differentiation between refugee groups further, clause 10 makes provision for different treatment of people recognised as refugees on the basis of how they travelled to the UK and the point at which they presented themselves to authorities. Those who travelled via a third country, do not have documents or did not claim asylum immediately would routinely be designated as group 2 refugees. The clause goes on to set out how the length of limited leave, access to indefinite leave, family reunion and access to public funds are likely to become areas for discriminating against group 2 refugees.

The Opposition strongly argue that such an approach is deeply flawed and fundamentally unfair. Furthermore, the attempt to create two different classes of recognised refugee is inconsistent with the refugee convention and has no basis in international law. The refugee convention contains a single, unitary definition of refugee, which is found in article 1A(2). That defines a refugee solely according to their need for international protection because of feared persecution on the grounds of their race, religion, nationality, membership of a particular social group or political opinion. Anyone who meets that definition and is not excluded is a refugee and entitled to the protection of the refugee convention. We heard in evidence from the United Nations High Commissioner for Refugees representative to the UK that in her opinion this clause and the Bill were inconsistent with the UN convention and international law.

[Anne McLaughlin (Glasgow North East) (SNP)]

The hon. Gentleman mentions the UNHCR, which is the guardian of the refugee convention. Does he agree with me that on that basis, if we are to listen to anybody’s opinion about this issue, it would be the UNHCR and that should be therefore the final word on it?

--- Later in debate ---

[Bambos Charalambous]

Nice try. No, I did not say that.

The clause represents a fundamental change to the principle of refugee protection in the UK, introducing a two-tier system where any refugee reaching the country who has not benefited from a place on a resettlement programme may have their claim deemed inadmissible and be expelled to another country, or eventually granted temporary status with restricted rights to family reunification and financial support.

It is worth pointing out here that the UNHCR, the guardian of the 1951 refugee convention and the 1967 protocol relating to the status of refugees, tells us that the core principle is non-refoulement, which asserts that a refugee should not be returned to a country where they face serious threats to their life or freedom. That is now considered a rule of customary international law. Clause 10 therefore represents the shameful undoing of the commitment to the refugee convention and the British values that led to that commitment in the first place.

[Anne McLaughlin]

It is clear to all on the Opposition Benches that if this goes ahead, we will be breaching our international legal obligations. Does the hon. Gentleman share my concern that in doing so, the damage done both to the UK’s reputation as a global legal centre and to its trade strategy will be immense, at a time when we really need to find new trading partners?

[Bambos Charalambous]

I very much share those concerns. It is clear that some countries wishing to trade with the UK may also insist on certain measures in relation to visas and access, and in some of the new clauses tabled by the Government more recently there is a suggestion that they would be willing to withdraw visas to some countries. I do not know who they have discussed it with, but that seems contrary to the intention of trading with other nations.

There is no doubt, therefore, that the clause stands in clear contravention of the refugee convention—no small thing, given that the convention, sometimes known as the Geneva convention of 1951, anchors the status of refugees in international law. Around the most desperate and terrorised people on earth, the convention throws the shield of international protection. Since the horrors of the second world war, it has been an article of faith for every decent society, as required today as it was 70 years ago by all those fleeing war, torture and persecution of all kinds, and by all those women and girls who undertake their journey in the knowledge that they may well be raped en route to finding safety.

The Opposition are clear that accepting this clause would set a dangerous precedent by creating a two-tier system for refugees that is deeply inhumane. Furthermore, we hold that its consequences, intended or not, would undermine our binding legal obligations to all refugees. We oppose it because we believe the 1951 convention and all that goes with it speaks profoundly to the core values of the British people. Given the multiple, deeply negative consequences of the clause—mental ill health, poverty, debt, substandard accommodation and homelessness, to say nothing of the financial costs to local and national Government—it should be removed from the Bill.

In short, group 2 status is not only inconsistent with the refugee convention; it is a recipe for mental and physical ill health, social and economic marginalisation and exploitation. The human cost to refugees and their families, including their children, is obvious enough, and it should shame us that this Bill would actively cause harm if clause 10 is adopted. We will oppose clause 10 stand part.

--- Later in debate ---

[Bambos Charalambous]

My hon. Friend is absolutely right. These are vulnerable people, and they are subject to being exploited if appropriate measures are not taken to prevent that from happening. Having them all in one place allows criminals to prey on them.

I come on to the specifics of amendment 104. As I have set out, we have the gravest doubts about the clause. I find it disturbing. Our amendment seeks to ameliorate some of the worst aspects. I will set out each of its aims in more detail.

Presently, persons held in barracks and hotel accommodation are sometimes prevented from entering or leaving their place of accommodation at certain times and some places of accommodation prevent visitors from entering. The amendment addresses this inappropriately draconian situation by inserting proposed new section 22B into the Immigration and Asylum Act 1999. It would qualify that the measure—in new section 22A, which relates to accommodation provided under sections 95A and 98A of the 1999 Act—to allow for the provision of accommodation in an accommodation centre, must allow for persons to be supported to enter or leave the accommodation centre at any time.

Although some controls on entry may be required to prevent persons hostile to residents of accommodation centres from entering, we believe that those held in such centres should be allowed to invite their own visitors. They should also not be precluded from communication with the outside world. The amendment would therefore introduce the right for the supported person

“(b) to receive visitors of their choice at any time; or

(c) to use communications equipment such as telephones, computers or video equipment.”

People working with persons supported in accommodation centres report that some persons in accommodation centres are unaware of their conditions of bail and may not have been provided with the conditions of their bail in writing. That places them at risk of arrest and detention for unknowingly breaching those conditions, or being unable to evidence their identity. The amendment would therefore introduce the provision that persons supported in accommodation centres must be provided with a written document setting out any conditions of bail.

Where controls or restrictions on freedom of movement of supported persons or their visitors are in place, a process for submissions by way of a complaints procedure needs to be in place, and the amendment would introduce a complaints procedure relating to the conditions of the accommodation and a procedure for appealing any decisions that may restrict the person’s freedoms, which will not apply to their bail conditions.

As has been argued, legal action taken against the Government over the suitability of Napier barracks for certain vulnerable groups has shown that the existing system has failed to maintain appropriate safeguards. The possibly widespread expansion of the system that the clause seeks to implement is very alarming and should be deeply concerning to any Member of this House.

The move away from community-based housing is poorly defined. Accommodation centres will unquestionably lower living standards for those seeking asylum. That is not an accident—it is the very design of the Bill and the clause. By the same measure, they will impede integration and advance a more draconian, prison-like setting for asylum seekers, who are, by their very definition, already traumatised individuals. If we do not agree our amendment, asylum seekers will find themselves in cold, dirty, isolated conditions, with all but no support services.

Given the widespread denunciations of the Home Office’s decision to house asylum seekers in Napier barracks, not least by the High Court, it is remarkable that the Government now seek to replicate it elsewhere. It should be noted that Mr Justice Linden criticised what he called the “detention-like” setting for the men there. Our amendment seeks to take away the detention element of the accommodation centres. They are de facto detention centres with prison-like conditions, which are cruel, wholly inappropriate and damaging to the individuals concerned. They can do nothing but increase harm and stress on already marginalised and vulnerable people whom we are beholden to protect under our international treaty obligations.

To speak plainly, the Government have got the wrong end of the stick. Clause 11 helps no one. They will find themselves on the wrong side of history with their ever-more draconian and hostile approach to asylum accommodation and, unamended, this clause starkly highlights that point. Amendment 104 should be supported to rectify that situation and ensure safeguards for the future. It would be utterly shameful if the clause, as it stands, enabled a repetition of the appalling situation at Napier barracks.

Without amendment, clause 11 will undermine the UK’s duty to support and protect those making asylum claims. We believe that the current dispersal system, whereby people seeking asylum live in regular housing in the community, is much better for supporting future integration and ensuring that people seeking asylum are able to access services that they need. We would rather see safeguards in place than the kind of appalling situation seen at Napier.

[Anne McLaughlin]

We heard that the devolved Governments were prevented from taking part in the consultation because it took place during purdah in the run-up to their elections. However, Shona Robison MSP, the Cabinet Secretary for Social Justice, Housing and Local Government in the Scottish Government, wrote a comprehensive response last month, in which she stated:

“This Government is clear that people should be supported to integrate within our communities from day one of arrival in line with the key principle of our New Scots refugee integration strategy. We are committed to the principle of community based integration for refugees and people seeking asylum. The New Scots approach is not compatible with use of remote and institutionalised camps. Such asylum accommodation will also not fix the underlying issues causing shortages in the asylum estate, which include the fairness, quality and timeliness of the asylum application and decision process.”

The position of the Scottish Government is the complete opposite of that of the UK Government, but their hands are tied. We cannot do what we want to do in Scotland to support our asylum seekers. That cannot be right.

Shona Robison also said:

“The Independent Chief Inspector of Borders and Immigration’s report highlighted significant issues”,

as we have heard,

“with the management of Napier Barracks and Penally, their suitability, safety and the impact this type of accommodation had on people living there. The report also raised concerns about contingency of healthcare if people are moved around the asylum estate. I would add to this contingency of legal representation, essential services and support networks, which must be considered.”

However, we are not talking only about barracks; there are many other types of accommodation that people had to live in. People were taken out of their homes where they were settled and put into Glasgow hostels and hotels last year. The Minister says things like, “This is not our intention.” I do not imagine that it was anyone’s intention for the men I met in the hostel close to where I live to be living in dirty accommodation, but they were, because they had nothing to clean up after themselves with. What most upset them the day I first met them was that they had nothing to clean their toilets with. They were living in tiny rooms, and if they did their washing in the tiny sink in what we will call the en suite—the toilet was in the room—they had to leave their wet clothes on the bed to dry off. I can tell hon. Members that, in Glasgow, that does not happen quickly; our temperatures are slightly different. They said that they could not keep the toilets clean and that there was no support. They were not looking for people to clean up after them, but because their access to finance had been taken from them, they could not even go and buy a toilet brush and bleach. It was a pretty awful situation.

There is also the so-called mother and baby unit that Mears has set up on behalf of the Home Office in Glasgow. I spoke to women who, without any notice, got a visit and were told, “Pack your bags. You and the baby”—or the bump; some were pregnant, some had just given birth—“are moving”. They were settled in communities among friends, they knew where the GP and the shops were and they knew how much things cost, but they were taken out of those communities at almost no notice. Many of them were told that they could take two carrier bags’ worth of goods and no more. These people had babies. I do not know anybody with a baby who can leave the house with fewer than two bags, but they were told by agents acting on behalf of the Government that they could take two carrier bags of stuff.

One of them said, “I was living in Pollok”, on the south side of Glasgow, “and was surrounded by wonderful neighbours. It was my baby’s first Christmas and all the neighbours had come round with Christmas presents.” That is why we want community dispersal. We want people to be part of a community. It benefits not just asylum seekers but everybody in the community—and that community certainly supported that woman and her baby. They took round Christmas presents, but then she was told to leave them behind because there was no room for them in the mother and baby unit. She was devastated because those presents were a symbol of acceptance and love from her community.

Nationality and Borders Bill (Sixth sitting)

Debate between Bambos Charalambous and Anne McLaughlin

Committee stage
Tuesday 19th October 2021 Public Bill Committees

[Anne McLaughlin]

I was speaking in support of all the amendments in the group and will use evidence given to the Committee by Amnesty International and Free Movement before adding a couple of points. The clause introduces the discretionary route for registration as an adult. Discretion can be exercised where, in the Secretary of State’s opinion, that person would have been able to become a British citizen if it were not for a number of things. I want to look first at the exceptional circumstances.

Free Movement’s concern, shared by a number of people, including me, is about the reference to the Secretary of State’s opinion. A future Secretary of State—let us not say the current Secretary of State, because we would not want to personalise this—may hold an opinion generally considered to be disproportionate, unreasonable or ridiculous. They may not be from the current party in government—I am not saying that it is more likely to happen under one particular party—but where does it end? There is nothing to say that their opinion can be curbed. I am wondering what is meant by that reference. How could a legal challenge be mounted against a decision that the Secretary of State is allowed to make based on their opinion? I would like something from the Minister on that.

I turn to historical legislative unfairness, which we have talked about a lot today. It has been defined with specifics. We have talked about the unequal treatment of mothers, children of unmarried couples, and children of mothers married to someone other than their natural father, but the list does not include discrimination on the basis of ethnicity and race. The list is not definitive. Is there scope to consider the role played by such discrimination in terms of historical unfairness? I would like the Minister’s thoughts on that.

On the act or omission by a public authority, it is always useful to say when we think somebody has got it right—and we have said that a number of times today. I want to reiterate that, as Free Movement has said, there have been a number of concerns that local authorities responsible for children who become entitled to British citizenship under their care do not always get the applications made on those children’s behalf. Sometimes that is because there has been a misunderstanding, and at other times it is deemed to be not in the child’s interest at that time and it is not always included in their care plan. By the time they are an adult, it is too late for them to make that decision themselves, so I am quite supportive of measures to deal with that.

I want to talk about a concern that Amnesty has expressed—I am sure the Minister has seen this—which is that clause 7 has to be given real, practical effect, and that the measure will be ineffective if uncertainty over the result of an application, along with the excessive fees that we have talked about, deters people from making applications in the first place. I know that my hon. Friend the Member for Cumbernauld, Kilsyth and Kirkintilloch East has made those points.

Amnesty has asked for the following matters to be addressed. First, we have talked about fees at length, but I reiterate that several organisations are very concerned about the fees. Secondly, Amnesty has asked for assurances that where an individual application is successful, the Government will take positive action to ensure that other potential applicants are made aware of their equal or similar right to register at discretion. This means that where an example is identified of, as the Bill says, unfairness, an act or omission by a public authority or exceptional circumstances on which it is right or necessary to exercise the discretion, there should be publicity and awareness raising. We have talked a lot about that, but Amnesty wants to know that that will happen, and that members of the public who could use the legislation to the same positive effect will have that information. Lastly, Amnesty has asked for an assurance that awareness raising will apply equally to British citizenship and British overseas territories citizenship.

[Bambos Charalambous]

I want to speak to amendment 34, which deals with people who would be British overseas citizens today but for historical unfairness in the law, an act or omission of a public authority or other exceptional circumstances. The Opposition welcome the fact that clause 7 attempts to rectify the position for those who would be British citizens or British overseas territories citizens today but for such an error. However, the clause does nothing for people who would be British overseas citizens today, and that is wrong.

Those who would be BOCs but for such an error should not be excluded from the proposed remedy. They have suffered from historical unfairness, just as those who would be British citizens or BOTCs today have done. Prior to 1983, there was one substantive class of British nationals, citizens of the United Kingdom and colonies. When the British Nationality Act 1981 came into force on 1 January 1983, CUKCs were divided and reclassified into three categories: British citizens, connected to the UK; British dependent territories citizens—now BOTCs—connected to the remaining British overseas territories, such as the Falkland Islands and Gibraltar; and BOCs, connected to the former British colonies.

The Home Office acknowledges that past unfairness in British nationality law includes where men and women were unable to pass on citizenship equally, and where unmarried fathers could not pass on citizenship. The Home Office acknowledges that in the case of people who could be British citizens or BOTCs, but many persons who would be overseas citizens today also suffer from such prejudice. As a result of the British overseas expansion and later decolonisation, there are pockets of BOCs around the world—for example, in Kenya, Malaysia, South Africa and anglophone west Africa, including places such as Sierra Leone. The category of BOC was created under the British Nationality Act, and it gave effect to the fact that BOCs were British nationals and should remain so. The newly created status gave no home or right of abode in the UK or any other remaining British territory.

Although BOCs have no right to come to the UK or a remaining British overseas territory, the status still has real value. It enables a person to seek to use the UK BOC passport, and possession of such a passport enables BOCs to seek UK consular assistance in a third country and to seek residence and permission to work in third countries under local laws. It may be useful where the passport of another nationality that those people hold is considered unreliable, and where their children are born stateless, to benefit from UK laws that reduce statelessness.

BOCs around the world make active use of that status. For example, many persons of Somali heritage born in Aden in Yemen when it was a British colony are reliant on BOC status, as they were, and are, shut out from the Yemeni nationality. Their BOC passports enable them to obtain lawful residence and permission to work in Gulf states, and to secure a visa to study in other countries. The Home Office proposal in clause 7 helps those affected by historical unfairness in British nationality law, an act or omission of a public authority, or exceptional circumstances to become British citizens or BOTCs. However, potential BOCs would also have suffered from such historical unfairness in British nationality law, acts or omissions of public authorities, or other exceptional circumstances. All those classes of British nationals were CUKCs prior to the British Nationality Act 1981, and all suffered from these problems. Clause 7 should therefore be supplemented to provide for registration as a BOC on the same basis as it enables registration as a British citizen or BOTC.

Nationality and Borders Bill (Second sitting)

Debate between Bambos Charalambous and Anne McLaughlin

Committee stage
Tuesday 21st September 2021 Public Bill Committees

[Bambos Charalambous]

Q Final question from me. Do you not think it is right that somebody who claims to be a victim of trafficking should be treated as a victim and that if they choose to disclose something later, that should not count against them?

Assistant Chief Constable Dave Kirby: I think what you are getting at is correct. The reason is that some of these people are under a huge amount of duress, including their families being threatened. Their families remain in Albania and other countries, so they cannot protect them, and violence is often used by these groups. If people are told not to claim that they are a victim and to go through the criminal justice process, and then at some point change their minds for whatever reason, I think that needs to be allowed and not counted against them. The difficulty is, of course, those who would exploit the system and raise a defence at a late stage in order to cause complications for the prosecution and who are in fact criminals, sometimes at a fairly high level. That is where the police and other agencies always need to be cognisant that that defence can be raised and to run those parallel investigations.

[Anne McLaughlin]

Q Good afternoon. I will start by saying that none of us here can possibly understand how complex the work is that you and your colleagues do. I am trying to understand some of it. I know that recently you said that you have spotted a trend of people who were arrested in drug busts claiming to be victims of slavery when you did not believe that to be the case. I think that, as a result of those concerns, the Home Secretary is overseeing plans to roll out a new public order definition that will allow police forces to refuse NRM protection to those committing serious crimes.

That turns the presumption of innocent until proven guilty on its head. Do you think that that is the most helpful way to go forward and, if so, are there other circumstances in which we should not offer support to people because we do not believe them, before they have had the opportunity to prove otherwise? If you do not think that it is helpful, how would you amend the legislation to be more helpful, while recognising that we do not know whether people are victims of slavery at the point at which they are arrested?

Assistant Chief Constable Dave Kirby: There are a few areas there. First, the existing legislation does not apply to a lot of crime types in any event—some of the more serious crime types that you mentioned, such as kidnapping and manslaughter, and lots of offences included in the Offences Against the Person Act 1861 and firearms legislation, so some of that is there already. I do not think that it is right to say that policing is turning the presumption of innocent until proven guilty on its head. What I would say is that, where we already have information and intelligence in relation to individuals and their place within a criminal hierarchy, at that point it may be appropriate to turn that presumption on its head.

To illustrate, there is a recent case in Derbyshire where an Albanian gang has been dismantled only in the last couple of weeks. There have been 24 arrests, and I think 12 of those people were Albanians, running cannabis growers and other types of criminality in the region. More than one of those people claimed to be victims, but we had a covert investigation behind us that showed their level of control, their ability to communicate, the resources that they had and various things that clearly went against that claim. Absent that information and intelligence, I do not think that we would say, “We don’t believe this person,” in the first instance. An investigator should, and in all investigations does, go into that situation with an open mind. This person could be a victim or could, in fact, be a criminal. They start at that point, not on one side or the other.

The other part of your question was about what we do to make things easier for investigators to understand the true position. I think that, again, that would be some sort of duty to co-operate, because it is quite difficult if somebody claims to be a victim and then, for example, refuses to provide a phone passcode, and so on. Perhaps a duty there would assist us. I mentioned whether a person should have to declare straightaway, because often there are delays, but I think that a lot of genuine victims would suffer that way.

--- Later in debate ---

[Bambos Charalambous]

Q On the Border Force issue, what the Bill suggests doing is pushbacks, which many people would agree would be a dangerous activity. What are your thoughts about pushbacks and how that sits with maritime law?

Tony Smith: I think it is highly dangerous. I am in touch with former colleagues from the Australian Border Force, which is often held up as a model for pushbacks. That was an entirely different model from the one that we are proposing. These are dangerous waterways and very vulnerable vessels. I fear for the worst. We have already had drownings. They are not as well reported as they should be but we have had them. We do not know how many, of course, because bodies have not always been retrieved. We will certainly see the smugglers resort to tactics, as we saw in Australia, such as vessels literally being holed so that they sink and lifejackets being thrown overboard in the trust, hope and expectation that those on board will then be rescued, which we have an international duty to undertake.

The only real way out of this is to come to an accommodation with the French Government, which I have been advocating for some time. There is provision under article 98 of the UN convention on the law of the sea for countries to establish regional arrangements, so it is possible, with political agreement with France, that we could have joint patrols on the English channel. We could have British officers on their vessels and they could put French officers on our vessels, but the premise would be that if you are returned to either side, there is no risk of refoulement because both countries are signatories to the 1951 refugee convention and you would get a full and fair asylum hearing on either side. I do think that is possible, but there is a reluctance on the part of the French Government to go down that road at the moment because they have significant immigration problems of their own. They cannot control their own southern border because they are part of the Schengen group and there is a significant lobby in France saying, “Why would we stop people crossing to the UK when we have plenty of irregular migrants already coming into France?”

[Anne McLaughlin]

Q Good afternoon. You have already answered some of what I was planning to ask you about. I read recently that you said the preservation of life should be the UK’s top priority. You have repeated that today, so I do not need to ask you the question about whether you support the pushing back of children, men and women who arrive in boats, because you clearly do not.

You talked about Australia, which I was going to bring up. I am sure I read recently that Australia also criminalised those who rescued people who were seeking asylum and arriving by boat, but made the exception that if the vessel was not seaworthy they would not be criminalised. I think that is what you referred to when you talked about the traffickers putting holes in the boats so that they became dangerous. That sort of thing assists traffickers now that they know what to do. First, would you caution the UK against making that caveat and perhaps urge it to drop the pushback thing altogether? Would you caution against the criminalisation of people who rescue people at sea?

Tony Smith: We could spend a lot of time talking about the Australian model, which we do not have, but you are talking about a much, much longer stretch of water there. The Australian Border Force—I was down there helping it to set up—took the view that its maritime response was significantly different from ours. The vessels it deployed are significantly different from the UK Border Force cutters. The cutter fleet that we have in the Home Office are legacy Customs cutters. They are not designed to bring people ashore or to process people. They were even processing people on some of the Australian vessels to determine whether they were admissible to the asylum system before they brought them ashore. In the end, they invested in vessels of their own. They could then move the individuals from the unseaworthy vessels that they were encountering into their own vessels that they had purchased and escort them back to Indonesian waters. There was a significant investment by the Australian Government in doing that, which did work, but trying to compare that with what we see on the English channel is a different question.

Yes, of course we should preserve life, and I think the French should do that, too. There is an obligation on both sides of the channel for us to work together to find a way to stop human smugglers. The current model simply demands, “You pay €5,000 to me and I will put you in an unseaworthy vessel, and I really don’t care whether you drown or not because I have got my money.” I am afraid that is the way the mind of the human smuggler operates. They are getting the upper hand, we are seeing numbers going up and we will see more drownings. It is difficult to lay this at the door of the UK Border Force, who have a lot of other pressures on their resources at the moment.

We need to find a way, if we can, of getting common sense to prevail on a joint strategy with France. We already have a significant number of bilateral treaties with the French that have survived Brexit and that would enable us to fix this problem, but I do not think we have been able to find anybody in a senior position in the French Government who would go that far.