Invasive Non-native Species (Amendment etc.) (EU Exit) Regulations 2019

Baroness Parminter Excerpts

Tuesday 22nd January 2019 Lords Chamber

[The Earl of Selborne (Con)]

My noble friend in his helpful introductory remarks reminded us that this country produced its own strategy for invasive non-native species first in 2008. That was followed in January 2015 by the EU invasive alien species regulation. When the second strategy was published later the same year, the document stated that the EU regulation,

“represents a step change in approach and requires Member States to implement a range of measures for the prevention and management of”,

invasive non-native species, from which I think we can infer that the EU regulation of January 2015 upped our act and that of other member states.

Of course, invasive non-native species, whether terrestrial, freshwater or marine, can have devastating commercial effects. The question on which we have to satisfy ourselves in scrutinising the regulation and hearing that the EU regulation is destined to be retained is: are there opportunities, now that we will be separated by Brexit—if that is to happen—because we can define the area from which we expect to be protected from invasive non-native species? We are no longer thinking just about continental Europe and this country. Rather than wait for the list to be amended in future, is there an opportunity that would not have been available under the previous administration to start looking at the list of invasive non-native species from a totally GB perspective?

[Baroness Parminter (LD)]

My Lords, I thank the Minister for his opening remarks and for agreeing to a meeting with myself and the Labour Front Bench prior to the introduction of this statutory instrument, given that it is the first of what we know will be many for Defra. As might be expected in those circumstances, we on these Benches regret the necessity of these statutory instruments should we exit the EU. However, we support the statutory instrument’s intent because controlling non-native invasive species is important for those of us who care passionately about biodiversity loss, which non-native invasive species are a primary means of achieving, and the cost to the public purse.

I will touch on a number of points for clarification. First, the preamble of the invasive alien species regulation, which frames the overall intent and ecological context of the regulations as they stand and therefore guides the implication of any future policy decisions, is not included in this statutory instrument. Can the department say why? I imagine the Minister will say that it is because of the expectation of a forthcoming environment Bill, on which we have heard warm words from the Secretary of State about the inclusion of overarching environmental principles. Of course, this House cannot see that Bill at the moment and therefore cannot be assured that critical matters in the preamble to this statutory instrument, such as the precautionary principle, will be a fundamental building block in it.

That point is particularly important given a letter sent by the noble Baroness, Lady Goldie, to my noble friend Lady Bakewell of Hardington Mandeville—she cannot be in her place today—in which the noble Baroness said: “Policy and decision-makers are likely to want to have regard to supporting material, such as recitals and preambles, to assist them in addressing questions of how policy might be made and how decisions might be taken in future”. Therefore, we as a House are beholden to ask the Minister to explain precisely why the preamble was removed from the regulations.

Secondly, as the Minister stated, there is a clear transferral of functions from the EU’s committee on invasive alien species and the forum, both of which are independently constituted bodies for the specific purpose set up in the regulations. It would be helpful if the Minister could say a few more words about who in our domestic setting will take on those duties because they are particularly rigorous in terms of both scientific expertise and data processing capacity. I would appreciate more information about that.

Equally, the Minister kindly made it clear that there will be a ministerial duty to ensure close co-operation with European partners and other countries on non-native invasive species. As he rightly said, both flora and fauna are not singularly in our country, but are transported on the wind and via other mechanisms to and from the European mainland, so we need that level of co-operation. Critical in that is the European Union’s invasive alien species information system. Clearly, the Minister cannot say at this stage whether we will have access to that critical system, which collates information about non-native invasive species from across the continent, but the department is obliged to say what domestic route we might take to replicate that remarkable database if we do not.

Governance is also an issue. The Minister was very clear that the responsible authorities will have a duty to report, but the overarching question is: who will they report to? He mentioned the office for environmental protection, which is as yet unconstituted because it will be introduced under the forthcoming Bill, and said that the responsible authorities have a reporting duty. As it stands, that office has no capacity to hold the Government to account; therefore, the systems currently in place for the European Commission to hold the Government to account will not be replicated in the processes and procedures in this statutory instrument. Equally, as other noble Lords may comment on, we are not expecting the office for environmental protection any day soon, given that we have not even had the legislation yet. So there is a question about how we are going to manage the reporting in holding the Government to account in the meantime.

Finally, because there are not significant costs to private companies, there has not been an impact assessment for this statutory instrument. Yet the Explanatory Notes make it quite clear that there will be a cost to the Government and public bodies, although it is below the plus or minus £5 million threshold. Given that this is the first statutory instrument—there will be many—there will clearly be significant costs to the Minister’s department in delivering the new mechanisms and bodies to deliver the levels of safeguards we need for our environmental protection in this country. I hope the department has—I am sure this is not the right term—a running tally of costs, given that there is no impact assessment that we can see. It is important that we know the costs to the Minister’s department, which does not have a significant budget, and that it will have the resources in future to deliver the services that our environment requires.

[Baroness Young of Old Scone (Lab)]

My Lords, I add to the welcome from the noble Baroness, Lady Parminter, for the many happy hours we will spend together with Defra on statutory instruments—this being the first—over the next few weeks and perhaps longer. Many of the issues I will raise will be a common thread in several other statutory instruments as they come forward.

When I was chairman of Natural England, I was always taught that 10% of introduced species survived, 10% of those then bred, 10% of those species increased and 10% of that caused a problem. It was a very small number of introduced species that in the end caused huge problems, but the difficulty at each stage was knowing which 10% were going to be the culprit—so this is a really important piece of legislation.

I share the concern of the noble Baroness, Lady Parminter, about the replacement bodies. We have to set up our own supervisory committee and scientific forum. It will be interesting to hear from the Minister when he thinks they can be established by. I share the concern about the office for environmental protection not yet having had an airing in the environment Bill and therefore not being established in time, should we need it on 29 March, and its powers not being clear. There was considerable welly, if I can use that technical term, behind our duty to report and account to Europe, because the Government could be put into infraction and receive considerable fines if they were not performing to the requirements of the regulation. We will no longer have that requirement, so I am keen to hear from the Minister how he feels the discussions are going on the environment Bill and powers for the office for environmental protection. This will come up with many Defra statutory instruments, so it would be useful to hear quite soon.

The enforcement regime was consulted upon last year, and we need a revised system of enforcement in place by 29 March. Can the Minister bring us up to speed on that?

I also have some concerns about the scientific forum if it represents only UK-based scientists. In the past we had the breadth of EU knowledge to draw upon. That has implications. I have always been convinced that gathering together scientific advisers and Ministers in Europe achieved a level of ambition in environmental protection that the countries standing alone probably would not have had. Can we hear from the Minister how the Government will track EU best practice and a commitment that they plan to aspire to EU-wide best practice after we leave?

My understanding is that this is an administrative statutory instrument and that a second one on the same issue is due to come forward to deal with implementation, enforcement and permitting. Can the Minister tell us when that is due to be laid if it also has to be in place before 29 March?

There is of course unfinished EU business. The noble Earl, Lord Selborne, talked about the EU regulation on preventing damage from non-native and alien species that came into force in the UK in January 2015. I understand that we have not yet set penalties under the EU regulation, which was due to happen by January 2016; nor have we established an action plan for widespread invasive species or established a surveillance system to monitor newly introduced species, both of which were due to happen by February 2018. Do the Government intend to finish this unfinished businesses and to meet proper standards?