Online Safety Bill

Baroness Merron Excerpts

Report stage
Wednesday 12th July 2023 Lords Chamber

The point of principle involved here is that the Secretary of State should not interfere with the independence of the communications regulator—in particular, not in its day-to-day operation. There are a number of questions there, particularly on why the Government absolutely resisted what the DPRRC had to say. This is unusual, as normally the Government make a better fist of it in responding than I think they did on this occasion, but I look forward to hearing what the Minister has to say.

[Baroness Merron (Lab)]

My Lords, first, I have to say that, having read Hansard from last Thursday, I feel I should have drawn attention to my interests in the register that relate to the Jewish community. I apologise for not doing so at the time and am pleased to now put this on the record.

I will be brief, as noble Lords have already raised a number of very pertinent points, to which I know the Minister will want to respond. In this group of amendments, there is a very welcome focus on transparency, accountability and the role of Parliament, all of which are absolutely crucial to the success of the Bill. I am grateful to the Minister for his introduction and explanation of the impact of the proposed changes to the role of the Secretary of State and Ofcom, whose codes of practice will be, as the noble Viscount, Lord Colville, said, vitally important to the Bill. We very much welcome the amendments in the name of the noble Baroness, Lady Stowell, which identify the requirements of the Secretary of State. We also welcome the government amendments, which along with the amendments by the noble Baroness, have been signed by my noble friend Lord Stevenson.

The amendments tabled in the name of the noble Lord, Lord Moylan, raise interesting points about the requirement to use the affirmative procedure, among other points. I look forward to the Minister’s response to that and other amendments. It would be helpful to hear from the Minister his thoughts on arrangements for post-legislative scrutiny. It would also be helpful to deliberations to understand whether there have been discussions on this between the usual channels.

[Lord Parkinson of Whitley Bay (Con)]

My Lords, this is indeed an apposite day to be discussing ongoing ping-pong. I am very happy to speak enthusiastically and more slowly about my noble friend Lady Stowell of Beeston’s Amendments 139 and 140. We are happy to support those, subject to some tidying up at Third Reading. We agree with the points that she has made and are keen to bring something forward which would mean broadly that a statement would be laid before Parliament when the power to direct had been used. My noble friend Lady Harding characterised them as the infinite ping-pong question and the secretive ping-pong question; I hope that deals with the secretive ping-pong point.

My noble friend Lady Stowell’s other amendments focus on the infinite ping-pong question, and the power to direct Ofcom to modify a code. Her Amendments 139, 140, 144 and 145 seek to address those concerns: that the Secretary of State could enter into a private form of ping-pong with Ofcom, making an unlimited number of directions on a code to prevent it from ever coming before Parliament. Let me first be clear that we do not foresee that happening. As the amendments I have spoken to today show, the power can be used only when specific exceptional reasons apply. In that sense, we agree with the intent of the amendments tabled by my noble friend Lady Stowell. However, we cannot accept them as drafted because they rely on concepts— such as the “objective” of a direction—which are not consistent with the procedure for making a direction set out in the Bill.

The amendments I have brought forward mean that private ping-pong between the Secretary of State and Ofcom on a code is very unlikely to happen. Let me set out for my noble friend and other noble Lords why that is. The Secretary of State would need exceptional reasons for making any direction, and the Bill then requires that the code be laid before Parliament as soon as is reasonably practicable once the Secretary of State is satisfied that no further modifications to the draft are required. That does not leave room for the power to be used inappropriately. A code could be delayed in this way and in the way that noble Lords have set out only if the Secretary of State could show that there remained exceptional reasons once a code had been modified. This test, which is a very high bar, would need to be met each time. Under the amendments in my name, Parliament would also be made aware straightaway each time a direction was made, and when the modified code came before Parliament, it would now come under greater scrutiny using the affirmative procedure.

I certainly agree with the points that the noble Lord, Lord Allan, and others made that any directions should be made in as transparent a way as possible, which is why we have tabled these amendments. There may be some circumstances where the Secretary of State has access to information—for example, from the security services—the disclosure of which would have an adverse effect on national security. In our amendments, we have sought to retain the existing provisions in the Bill to make sure that we strike the right balance between transparency and protecting national security.

As the noble Lord mentioned, the Freedom of Information Act provides an additional route to transparency while also containing existing safeguards in relation to national security and other important areas. He asked me to think of an example of something that would be exceptional but not require that level of secrecy. By dropping economic policy and burden to business, I would point him to an example in those areas, but a concrete example evades me this afternoon. Those are the areas to which I would turn his attention.

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[Baroness Burt of Solihull (LD)]

My Lords, on behalf of my party, all the groups mentioned by the noble Baroness, Lady Morgan, and potentially millions of women and girls in this country, I briefly express my appreciation for this government amendment. In Committee, many of us argued that a gender-neutral Bill would not achieve strong enough protection for women and girls as it would fail to recognise the gendered nature of online abuse. The Minister listened, as he has on many occasions during the passage of the Bill. We still have differences on some issues—cyberflashing, for instance—but in this instance I am delighted that he is amending the Bill, and I welcome it.

Why will Ofcom be required to produce guidance and not a code, as in the amendment originally tabled by the noble Baroness, Lady Morgan? Is there a difference, or is it a case of a rose by any other name? Is there a timescale by which Ofcom should produce this guidance? Are there any plans to review Ofcom’s guidance once produced, just to see how well it is working?

We all want the same thing: for women and girls to be free to express themselves online and not to be harassed, abused and threatened as they are today.

[Baroness Merron (Lab)]

My Lords, this very positive government amendment acknowledges that there is not equality when it comes to online abuse. We know that women are 27 times more likely than men to be harassed online, that two-thirds of women who report abuse to internet companies do not feel heard, and three out of four women change their behaviour after receiving online abuse.

Like others, I am very glad to have added my name to support this amendment. I thank the Minister for bringing it before your Lordships’ House and for his introduction. It will place a requirement on Ofcom to produce and publish guidance for providers of Part 3 services in order to make online spaces safer for women and girls. As the noble Baroness, Lady Morgan, has said, while this is not a code of practice—and I will be interested in the distinction between the code of practice that was being called for and what we are expecting now—it would be helpful perhaps to know when we might expect to see it. As the noble Baroness, Lady Burt, just asked, what kind of timescale is applicable?

This is very much a significant step for women and girls, who deserve and seek specific protections because of the disproportionate amount of abuse received. It is crucial that the guidance take a holistic approach which focuses on prevention and tech accountability, and that it is as robust as possible. Can the Minister say whether he will be looking to the model of the Violence against Women and Girls Code of Practice, which has been jointly developed by a number of groups and individuals including Glitch, the NSPCC, 5Rights and Refuge? It is important that this be got right, that we see it as soon as possible and that all the benefits can be felt and seen.

[Lord Parkinson of Whitley Bay (Con)]

I am very grateful to everyone for the support they have expressed for this amendment both in the debate now and by adding their names to it. As I said, I am particularly grateful to my noble friend Lady Morgan, with whom we have worked closely on it. I am also grateful for her recognition that men and boys also face harm online, as she rightly points out. As we discussed in Committee, this Bill seeks to address harms for all users but we recognise that women and girls disproportionately face harm online. As we have discussed with the noble Baroness, Lady Merron, women and girls with other characteristics such as women of colour, disabled women, Jewish women and many others face further disproportionate harm and abuse. I hope that Amendment 152 demonstrates our commitment to giving them the protection they need, making it easy and clear for platforms to implement protections for them across all the wide-ranging duties they have.

The noble Baroness, Lady Burt of Solihull, asked why it was guidance and not a code of practice. Ofcom’s codes of practice will set out how companies can comply with the duties and will cover how companies should tackle the systemic risks facing women and girls online. Stipulating that Ofcom must produce specific codes for multiple different issues could, as we discussed in Committee, create duplication between the codes, causing confusion for companies and for Ofcom.

As Ofcom said in its letter to your Lordships ahead of Report, it has already started the preparatory work on the draft illegal content and child sexual abuse and exploitation codes. If it were required to create a separate code relating to violence against women and girls, this preparatory work would need to be revised, so there would be the unintended—and, I think, across the House, undesired—consequence of slowing down the implementation of these vital protections. I am grateful for the recognition that we and Ofcom have had on that point.

Instead, government Amendment 152 will consolidate all the relevant measures across codes of practice, such as on illegal content, child safety and user empowerment, in one place, assisting platforms to reduce the risk of harm that women and girls disproportionately face.

On timing, at present Ofcom expects that this guidance will be published in phase 3 of the implementation of the Bill, which was set out in Ofcom’s implementation plan of 15 June. This is when the duties in Part 4 of the Bill, relating to terms of service and so on, will be implemented. The guidance covers the duties in Part 4, so for guidance to be comprehensive and have the most impact in protecting women and girls, it is appropriate for it to be published during phase 3 of the Bill’s implementation.

The noble Baroness, Lady Fox, mentioned the rights of trans people and the rights of people to express their views. As she knows, gender reassignment and religious or philosophical belief are both protected characteristics under the Equality Act 2010. Sometimes those are in tension, but they are both protected in the law.

With gratitude to all the noble Lords who have expressed their support for it, I commend the amendment to the House.

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Moved by

[Baroness Merron]

180: After Clause 56, insert the following new Clause—
“Review: offences relating to animal torture content
(1) Within the period of six months beginning with the day on which this Act is passed, the Secretary of State must carry out a review of relevant offences under the—(a) Communications Act 2003, and(b) Animal Welfare Act 2006,to determine whether there is an offence of sending a communication to encourage or assist an act of animal torture, or sharing content related to animal torture, on a regulated service.(2) If the review under subsection (1) determines that one or more offences contained within the Acts does extend to such communications or content, the Secretary of State must, as soon as practicable, make regulations to designate the offence or offences under Schedule 7 to this Act (see section 198(3)).”Member’s explanatory statement
Following answers to a recent oral question (27 June), this amendment would require the Secretary of State to undertake a review of existing criminal offences under the listed enactments to determine whether they apply to online posts containing or facilitating animal torture. If they do, the Secretary of State would be compelled to add these offences to the list of priority offences in Schedule 7.

[Baroness Merron (Lab)]

My Lords, I am pleased to speak to Amendment 180, and I thank the noble Lord, Lord Clement-Jones, for adding his name to it and tabling Amendment 180A, which follows it. I am grateful to the Badger Trust, Action for Primates, Wildlife and Countryside Link and the many others who have been in contact about the worryingly high volume of animal cruelty and animal torture content that we see online. I thank the Minister for his engagement on this issue. I very much acknowledge the contribution of noble Lords across the House and their interest in this topic, not only when it was raised in Committee but when my noble friend Lady Hayman of Ullock secured a topical Oral Question on it just last month.

The good news is that everybody agrees that there is a problem here—one that was recently brought into sharp focus by a BBC investigation entitled “The Monkey Haters”. The bad news is that we do not seem to be able to agree on how to address these issues, whether under this Bill or through other forms of action. Users of what will become regulated services once this Bill has passed are using these platforms to discuss, order and share photographs and videos of extreme acts of animal cruelty.

The Government’s position appears to be that, while such activities are abhorrent, they do not generate human harm and are therefore outside the scope of this legislation. In my view, that position is undermined by some of the Government’s own amendments to this legislation, which identify content relating to animal cruelty as falling under priority harms to children. Of course, this measure is a welcome addition. However, as a number of noble Lords highlighted during the recent Oral Question, there is a growing body of evidence that those who engage in acts of animal cruelty go on to harm other human beings.

This amendment contains a modest proposal to review whether the offences already cited from the Dispatch Box apply to online animal torture activity and, if so, to designate those offences under Schedule 7 to the Bill. We accept that the Government are already undertaking a review of criminal offences with a view to expanding the list in Schedule 7, but we have not been able to ascertain the timings attached to that review, whether its findings will be made public or whether Parliament will have a role beyond approving statutory instruments.

In our discussions with the Minister, we had a simple ask: that he commit to including animal welfare issues in the ongoing review and to working with Defra’s Secretary of State to publish a Written Ministerial Statement outlining how many prosecutions have been brought under animal welfare laws, the timetable that applies and how those provisions will be kept under review. We do not consider a Written Ministerial Statement from the Secretary of State summarising government policy to be an unreasonable ask—particularly as this Government are happy to claim that they have done more for animal welfare than any other—yet the Government have hitherto been unable to accept our request. I understand that, just a few minutes ago, an offer of a Written Ministerial Statement was made; noble Lords will understand that I have not seen it as I am in the Chamber, but I am advised that it is not from the Defra Secretary of State and does not refer to the number of prosecutions, timescales or any of the other matters that we requested to be included.

The volume of this content has grown exponentially in recent years. This means thousands of animals being harmed and an even higher number of human beings exposed to abhorrent and horrific material. This amendment may not be perfect, but it will, we hope, encourage the Government to take this issue more seriously than they have done to date. The Minister will be aware that, in view of the Government’s response thus far, I am minded to test the opinion of the House on this amendment. I beg to move.

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[Viscount Camrose (Con)]

I am sorry; I will have to write to the noble Lord.

[Baroness Merron (Lab)]

My Lords, I am sure the letter will be anticipated.

I am grateful to the noble Baroness, Lady Kidron, and the noble Lord, Lord Clement-Jones, for their support for Amendment 180. I appreciate the consideration that the Minister has given to the issue. I am in no doubt of his sympathy for the very important matters at stake here. However, he will not be surprised to hear that I am disappointed with the response, not least because, in the Minister’s proposal, a report will go to the Secretary of State and it will then be up to the Secretary of State whether anything happens, which really is not what we seek. As I mentioned at the outset, I would like to test the opinion of the House.