Animal Welfare (Sentience) Bill [Lords]

Jo Churchill Excerpts

2nd reading
Tuesday 18th January 2022 Commons Chamber

[The Parliamentary Under-Secretary of State for Environment, Food and Rural Affairs (Jo Churchill)]

I thank all hon. Members for their contributions to our lively and wide-ranging debate. I particularly thank my hon. Friend the Member for Old Bexley and Sidcup (Mr French) for his excellent maiden speech; I am delighted to have his support. As he said, animal welfare is important to his and all our constituents.

I know that my hon. Friends the Members for The Cotswolds (Sir Geoffrey Clifton-Brown), for Huntingdon (Mr Djanogly) and for North Herefordshire (Sir Bill Wiggin) are all upholders of animal welfare who care for their own animals. Indeed, I often look fondly at Christmas cards from my hon. Friend the Member for North Herefordshire; they are signed by him and his wife but often bear a picture of him with a cow from his herd, which is quite interesting.

I am pleased to associate myself with the comments about our former colleague the Member for Old Bexley and Sidcup, with whom I worked to try to ensure that more cancer nurse specialists are there when people need them. We miss his wise counsel, but we welcome wholeheartedly our new hon. Friend.

The Bill is the latest in a series of steps that the Government are taking to develop and strengthen animal welfare protections. As we have heard from many hon. Members, it builds on the UK’s proud tradition of protecting pets, livestock and wildlife. As my right hon. Friend the Secretary of State laid out, our nation has a long and proud history in the area, and our action plan for animal welfare is making positive progress.

As my hon. Friend the Member for Chatham and Aylesford (Tracey Crouch) pointed out, the Bill has been well discussed in the other place. She also alluded to other Bills. The Animal Welfare (Sentencing) Act 2021 came into force in June, increasing the maximum prison sentence for animal cruelty, and has been welcomed by hon. Members. The Animal Welfare (Kept Animals) Bill is currently going through the House. We are supporting private Members’ Bills: the Animals (Penalty Notices) Bill and the Glue Traps (Offences) Bill, which we will debate in Committee tomorrow. We introduced a Government amendment, which I know many right hon. and hon. Members have welcomed, to tackle illegal hare coursing in the Police, Crime, Sentencing and Courts Bill. We are progressing a range of other commitments in the action plan, including on cat microchipping, and are moving forward on many other things.

Members asked many questions; I aim to answer them all, but if I do not, my door is always open. My hon. Friend the Member for Huntingdon said that we had not yet had a conversation; I am keen to work to deliver good legislation not only for the countryside that I represent but for all our constituents. Our primary job is to make sure we get it right.

I was asked how sentience is defined in the Bill. Our scientific understanding of sentience has come a long way in recent years, but it is well defined and continues to evolve. Baroness Hayman’s work included the reviewing of 300 pieces of research to bring forward the definition of decapods and cephalopods. The situation will carry on evolving, so it would seem to be counter-intuitive to have a fixed definition, because the definition itself is not fixed. We therefore do not deem it necessary to define sentience for the work going forward. We can all recognise that animals are sentient and their welfare should be considered in any decisions we make.

As we have said, the public feel strongly about this issue, which is why we have introduced this legislation. I welcome the comments from my hon. Friend the Member for Penrith and The Border (Dr Hudson) who, with this vast experience and strong expertise, highlighted the point that the committee will need to cover those areas of expertise. It is for that reason that we are not over-prescriptive. Indeed, as I said to the hon. Member for Edinburgh North and Leith (Deidre Brock), somebody in one of the devolved nations could have the key expertise and we should look throughout the United Kingdom to ensure we have the right people on the committee to draw on.

My hon. Friend the Member for Penrith and The Border also mentioned constituents who lose dogs and horses. I agree that there are other things we should be doing in the animal space, but we are moving forward with them. The Bill is tightly drafted for a distinct reason, which is why it merely has simple clauses to make sure we get it right.

I thank the EFRA Committee for all its work to get the Bill into a much better place. I notice that my hon. Friend the Member for Tiverton and Honiton (Neil Parish) is now in his place.

[Neil Parish (Tiverton and Honiton) (Con)]

I apologise to the House for not being here for the debate; I have been chairing the EFRA Committee. The advisory committee will need members with good practical animal welfare experience and an independent chair. It will also need to be given the proper resources and we will need more transparency in respect of the process of advising the Government. I really hope we can have a strong animal welfare process that is actually workable.

[Jo Churchill]

I thank my hon. Friend for his intervention and for the letter that he recently wrote to me. We intend to do exactly that and I shall come to that in a moment.

The Bill delivers on our manifesto commitment and provides legal recognition that animals are sentient beings. As I have said, it is a tight, short Bill that establishes an animal sentience committee to consider how individual central Government policies and decision making take account of animal welfare. The Bill contains provisions to ensure that Ministers respond to Parliament in respect of reports published by the animal sentience committee. It establishes that committee and empowers it to scrutinise Minister’s policy formation and implementation decisions, with a view to publishing reports containing its views on whether Ministers have paid all due regard to animals’ welfare needs as sentient beings.

The Bill places a duty on Ministers to respond to the reports by means of a written statement to Parliament within three months’ sitting time and confirms that non-human vertebrates such as dogs, birds, decapod crustaceans and cephalopod molluscs and invertebrates such as lobsters and octopuses are sentient—that is, capable of experiencing pain or suffering. Together, these measures constitute a targeted, timely and proportionate accountability mechanism, as so aptly described by my right hon. Friend the Member for Bexleyheath and Crayford (Sir David Evennett).

The hon. Members for Brighton, Pavilion (Caroline Lucas) and for Oldham West and Royton (Jim McMahon) asked why the Bill talks only of adverse effects. It is because the Animal Sentience Committee’s role will be to encourage policy decision makers to think about the positive improvements they could make to animal welfare, rather than just minimising adverse effects. Meeting the welfare needs of animals means avoiding those negative impacts, as well as providing for positive experiences. The reference to an adverse effect allows the committee to consider whether a policy might restrict an animal’s positive experience.

I was asked whether the Animal Sentience Committee will produce an animal welfare strategy, and the answer is no. The Government’s current and future work on animal welfare and conservation is set out clearly in the action plan for animal welfare, and the role of the Animal Sentience Committee is not to devise future policy or strategy.

I was asked whether the committee could produce an annual report. That task is not established by the Bill, although that would not be necessary. There is nothing to prevent the committee from assessing improvements annually, if that fulfils its legislative purposes, or from issuing a report should it so wish.

[Luke Pollard]

The Minister slightly misunderstands the point. It is not that Members want the Animal Sentience Committee to produce an annual report but that we want the Secretary of State to have an annual parliamentary moment when the findings of those reports can be discussed and debated on the Floor of the House. Rather than being buried in a report in the House of Commons Library, will it be debated by parliamentarians?

[Jo Churchill]

I thank the hon. Gentleman, but I gently point out that there are plenty of other devices for ensuring plenty of parliamentary time. I am sure that we will unpick that in Committee.

Ministers will remain responsible for balancing animal welfare against other important matters of public interest. We are and will remain fully accountable to Parliament for that. My hon. Friend the Member for Huntingdon spent some time asking whether the Bill increases the risk of judicial review, and it has been carefully considered and worded to ensure there are only two areas in which we could instigate grounds for judicial review if Ministers fail to fulfil them: by not appointing a committee or by not bringing forward a report in a timely fashion.

I was also asked how the Animal Sentience Committee differs from the Animal Welfare Committee. The latter offers substantive expert advice, whereas the former is a scrutinising body—that is the essential difference. The Animal Sentience Committee is there to give another line of evidence and to help Ministers make decisions, but policy decisions are and will remain a matter for Ministers, for which they are accountable to this House.

Ministers are under no legal obligation to follow the committee’s recommendations. However, there is no point in having a committee that brings forward evidence unless we take it seriously. As I say, it will be balanced in the round to make sure competing interests such as the rural economy or a particular enjoyment, angling or whatever—all those things that are good for people’s mental wellbeing—are considered when we make our decisions.

The key point about the terms of reference is that the Animal Sentience Committee will be classified as an expert committee. It will be funded from within DEFRA’s existing budget and supported by a small secretariat. This will not run and run and be an unsupported Government quango, as suggested by my hon. Friend the Member for North Herefordshire. The Bill is drafted to keep sentience at the forefront of policy making and implementation, in line with its statutory functions.

Wide-ranging points were made by colleagues, which flowed into medical research and respect for people’s religious needs. The Bill is tight, and the reason it is a small, tight Bill is that it is important that we are aware that it does not change existing legislation. The committee does not make value judgments.

Hon. Members asked about the inclusion of decapod crustaceans, crabs, lobsters, molluscs, octopus and squid. I want to be absolutely clear about the reasoning behind the effects of that decision. At every point, it is about respecting and recognising animal sentience, and being scientifically led.

[Sir Geoffrey Clifton-Brown]

I sense the Minister is coming to a conclusion, but she has not answered one of my questions about the composition of the committee. Will she give an assurance that it will take into account rural and agricultural interests?

[Jo Churchill]

As I represent the constituency that I do, my hon. Friend will be pleased to hear that I will give him that assurance. The Opposition made the point that breadth of expertise is extremely important in order to have confidence in this Committee.

[Emma Hardy]

Will the Minister give way?

[Jo Churchill]

If the hon. Lady will bear with me, I want to push on as the Chamber is full and it is only fair that I conclude, but I will take her intervention in a second.

It was originally thought that only vertebrates could feel pain, but decapods and cephalopods are invertebrates with complex nervous systems, and I welcome their inclusion. In 2020, DEFRA commissioned the external review of the available scientific evidence, and evaluated the findings of over 300 pieces of peer-reviewed evidence. We carefully considered the recommendations, as we added that measure to the Bill. I reassure hon. Members that the Bill does not and will not change any existing legislation, or place any additional burdens on any part of industry or individuals.

[Emma Hardy]

The Minister is always kind at taking interventions. Before she concludes, can she comment on the use of testing on primates that was raised by the SNP spokesperson?

[Jo Churchill]

With respect, as the Chamber is full, I would be happy to meet the hon. Lady and talk further about that. It was largely to do with medical testing and military work with animals, and I would be happy to talk to her about medical animal testing, to which it is vital that we have a proportionate approach.

In summary, the Bill offers a proportionate and evidence-led recognition of animal sentience in UK law. There is over whelming public demand for sentience legislation. We committed to introduce it in our manifesto, and similar pledges were made by parties represented on the Opposition Benches. I look forward to working with hon. Members across the House to deliver on our promises, and I commend the Bill to the House.

Question put and agreed to.

Bill accordingly read a Second time.

Animal Welfare (Sentience) Bill [Lords] (Programme)

Motion made, and Question put forthwith (Standing Order No. 83A(7)),

That the following provisions shall apply to the Animal Welfare (Sentience) Bill [Lords]:

Committal

(1) The Bill shall be committed to a Public Bill Committee.

Proceedings in Public Bill Committee

(2) Proceedings in the Public Bill Committee shall (so far as not previously concluded) be brought to a conclusion on Thursday 10 February 2022.

(3) The Public Bill Committee shall have leave to sit twice on the first day on which it meets.

Consideration and Third Reading

(4) Proceedings on Consideration shall (so far as not previously concluded) be brought to a conclusion one hour before the moment of interruption on the day on which those proceedings are commenced.

(5) Proceedings on Third Reading shall (so far as not previously concluded) be brought to a conclusion at the moment of interruption on that day.

(6) Standing Order No. 83B (Programming committees) shall not apply to proceedings on Consideration and Third Reading.

Other proceedings

(7) Any other proceedings on the Bill may be programmed.—(Gareth Johnson.)

Question agreed to.

Animal Welfare (Sentience) Bill [Lords] (Money)

Queen’s recommendation signified.

Motion made, and Question put forthwith (Standing Order No. 52(1)(a)),

That, for the purposes of any Act resulting from the Animal Welfare (Sentience) Bill [Lords], it is expedient to authorise the payment out of money provided by Parliament of any expenditure incurred under the Act by the Secretary of State.—(Gareth Johnson.)

Question agreed to.

Charities Bill [Lords] (Money)

Queen’s recommendation signified.

Resolved,

That, for the purposes of any Act resulting from the Charities Bill [Lords], it is expedient to authorise the payment out of money provided by Parliament of any increase attributable to the Act in the sums payable under any other Act out of money so provided.—(Gareth Johnson.)

Animal Welfare (Sentience) Bill [ Lords ]

Jo Churchill Excerpts

Committee stage
Thursday 10th February 2022 Public Bill Committees

[The Chair]

We now begin line-by-line consideration of the Bill. The selection list for today’s sitting is available in the room. Members wishing to press an amendment or new clause to a Division should indicate when speaking to it whether that is what they wish to do.

Clause 1

Animal Sentience Committee

Question proposed, That the clause stand part of the Bill.

[The Parliamentary Under-Secretary of State for Environment, Food and Rural Affairs (Jo Churchill)]

It is a pleasure to serve under your chairmanship, Sir Charles. The clause requires the Government to create and maintain the Animal Sentience Committee. The committee will be at the core of the Bill’s targeted, proportionate and timely mechanism for holding the Government to account on the consideration of animal welfare.

On Second Reading, it was asked why the committee needs to be established in legislation and why the Animal Welfare Committee could not fulfil the function outlined in the Bill. The fundamental purpose of the Animal Sentience Committee is to support Parliament’s scrutiny of the Government’s policy decision-making process. The committee is not there to advise or make decisions for Ministers. Instead, it will perform a valuable role in encouraging us to make sure we have properly considered the effect of policy on the welfare of animals. Creating the committee and placing it on a statutory footing is the best way of ensuring that the Bill’s recognition of animal sentience is given meaningful but proportionate effect.

[Grahame Morris (Easington) (Lab)]

I think the Committee is at one in wanting to ensure that we have adequate protections for animals. That has been supported in the petitions and the written evidence. Will the Minister clarify one point on human-relevant science? I am involved with the all-party parliamentary group on human-relevant science, which was established to ensure that alternatives are provided to testing on live animals, particularly in vitro, using cell cultures and so on. Does that fall within the purview of the Bill?

[Jo Churchill]

The point of the new committee is not to make value judgments. It is to scrutinise legislation to ensure that all due regard is taken of the welfare of animals. Such decisions are for the committee to determine, supported by the secretariat.

Creating the committee on a statutory footing will mean that it must act within the legal parameters set by the Bill. The Bill is clear that the committee has no power to make value judgments—these decisions are for Ministers. At the same time, the obligation placed on Ministers to respond to the committee’s report is essential for transparency and for the scrutiny of the Government’s policy decision making. Ministers do not have to accept the committee’s findings and recommendations, but they have an obligation under the Bill to respond to them promptly and openly.

[Kerry McCarthy (Bristol East) (Lab)]

The written evidence submitted by the Conservative Animal Welfare Foundation asks about membership of the committee and notes

“the importance of using a wide range of leading animal sentience experts”.

It also wants affiliations to, and past involvement with, non-governmental organisations to be made transparent, and states that previous involvement with NGOs should not be a barrier to membership. Does the Minister accept all the recommendations from the Conservative Animal Welfare Foundation?

[Jo Churchill]

I refer the hon. Lady to the terms of reference, which lay out that the Secretary of State will request that those who are on the committee will be from a broad spectrum. We will ensure that we have the chance to make use of the best expertise in order to advise Ministers, but we will not be overly prescriptive. However, the final arbiter of that will be the Secretary of State.

It is not possible to impose an obligation on Ministers without first establishing a committee in statute. A legislative basis for the committee will therefore help to ensure it is effective while ensuring that it is tightly defined. As outlined on pages 5 and 19 to 21 in the terms of reference, we want the Animal Sentience Committee to have a constructive relationship with the Animal Welfare Committee, while recognising that they have different functions: the Animal Welfare Committee will sit in an advisory capacity, while the Animal Sentience Committee will sit in a scrutinising capacity. It is important to remember that the two committees have very distinct roles.

[Nickie Aiken (Cities of London and Westminster) (Con)]

I welcome the Bill and am very proud to be sitting on this Public Bill Committee. The Bill is proportionate, timely and targeted. It is important, because the public believe passionately in animal welfare. Does my hon. Friend the Minister agree that their justified outpouring of revulsion at the recent video of the West Ham footballer Kurt Zouma suggests that the Royal Society for the Prevention of Cruelty to Animals should consider inviting him to animal welfare training in order to prove animal sentience?

[Jo Churchill]

I thank my hon. Friend for her intervention, and I join her in being appalled at what we have seen. I agree that the public care greatly about animal welfare, but the Bill is science led and we are looking at the evidence base. It is for other bodies to choose the direction in which they might take restorative action so that people can learn and be called to account for their behaviour.

The Animal Welfare Committee is a well-respected source of advice on animal welfare issues, but it is not designed to assess policy. Allowing committees to specialise in their separate functions, and ensuring that those who sit on them have the expertise, is the best way to ensure that the objectives are delivered well. I urge that clause 1 stand part of the Bill.

[The Chair]

Deidre Brock has caught my eye.

--- Later in debate ---

[Jo Churchill]

To respond to the hon. Member for Edinburgh North and Leith, it is important that Ministers take the report seriously. That is why this small Bill places on us a duty to report formally. There is a time limit for reporting formally. The committee will have the freedom to choose how it looks at how Government policy affects animals, and that reporting mechanism is what the Bill is about. That is important.

The hon. Member for Cambridge also spoke. The EFRA Committee said that there was a need for us to carefully draft the Bill. It was formerly drafted in 2017. Judicially reviewing it across the piece would mean that the committee would no longer be able to perform its function, which is to give the Minister they need in order to make a judgment, while being cognisant of all the other things that Ministers have to take into account.

I am sure that we will come on to the definition of sentience when we debate amendment 6, tabled by the hon. Member for Bristol East. I gently say, however, that it is not necessary to define sentience in statute in order for the Bill to work. If we accept that animals are sentient, we also accept the principle, supported by the Bill, that their needs must be properly considered in Government decision making. Providing anything more complex than that would tie the hands of the committee and make it a paper exercise—which is not what it is—so there is little reason to do that. Keeping it in this more open form means that it can look across Government.

Question put and agreed to.

Clause 1 accordingly ordered to stand part of the Bill.

Clause 2

Reports of the Committee

[Kerry McCarthy]

I beg to move amendment 5, in clause 2, page 1, line 13, leave out “adverse”.

This amendment would change the prescriptive wording of the question clause 2 requires the Animal Sentience Committee (ASC) to consider, which allows that only “adverse effects” should be considered, and would enable the ASC to be free to consider positive effects which may otherwise be overlooked.

I hope to deal with this amendment pretty quickly. As I said on Second Reading, I do not subscribe to the idea that this country is wonderful on animal welfare. Would action have been taken against a very well-known footballer for kicking his cat had he not videoed himself doing so? There are far too many examples of people with aggressive dogs. Everywhere we see examples of people treating them badly and training them to be angry, aggressive and dangerous creatures. It is clear that the RSPCA does not have the teeth—that is not a pun—to address this. We will later discuss farm animal welfare, where there are many examples of how we could do better.

The amendment would remove the word “adverse” from clause 2. As it stands, the Animal Sentience Committee can only consider the adverse effects of legislation or whatever is put in front of it. I understand that, and I understand that this is meant to be about raising the bar and making sure that future legislation does not worsen animal welfare, but I do not think there would be anything lost if it considered all the effects, rather than just the adverse effects. If the committee were to say of legislation that came before it, “We actually think this is good for improving animal welfare”, where is the harm in that? That would set down a marker to do better in other respects. If that were flagged up, other Departments—and even other Governments in devolved Administrations or, indeed, our former EU partners—might think that it had consequences for them.

The committee should be able to identify the positive effects as well as the adverse effects. Any positive effects would strengthen the case for the legislation. If the Government were having trouble getting their Back Benchers to support a Bill, I would hope that if the Animal Sentience Committee said that it was good for animal welfare, that would strengthen support for it.

The amendment is supported by groups such as Compassion in World Farming. As I have said, animal welfare really is the big forgotten element. We talk about pets—I lose track of how many debates we have about puppies, for example. It is good to be nice to puppies, but far more animals live on farms than live as pets, and I would welcome any move to try to improve their welfare, too.

[Jo Churchill]

I thank the hon. Lady for the amendment. The Animal Sentience Committee is there to improve transparency in policy making. The committee’s ultimate success will be felt in ongoing improvements to the way the Government make decisions affecting animals, and seeing improvements is the hon. Lady’s underlying argument. We agree that sentience is about both the positive and negative experiences that animals might have. Clearly, an adverse effect of a policy would include aspects that restrict positive experiences.

I thank the hon. Lady for her comments, but I think the issue is one of drafting, not of misunderstanding. By way of explanation, the committee would be free to assess policy decision making for its consideration of adverse effects. A nice explanation would be in the area of nutrition for pets, for example. Whereas the negative outcomes of poor nutrition are obvious, the positive outcomes, such as ability to play, cannot be realised if pets suffer from poor nutrition. The committee is not required to limit its consideration purely to the adverse effect. By definition, it will consider both sides, but it is not necessary, for the avoidance of doubt, that the point that positive effects can be considered is reinforced in the committee’s draft terms of reference.

I sympathise with the sentiment behind the amendment, but I do not think it is necessary. I agree with the hon. Lady’s point that good exemplars may well be a stimulus to others to behave.

[Kerry McCarthy]

I just do not understand, from what the Minister has said, why the Bill cannot say “effects”. She seems to be saying that the committee would look at positive effects—all effects and adverse effects—so I do not understand why the word “adverse” has to be there, based on what she has just said.

[Jo Churchill]

With respect, this is about semantics. It is a matter of drafting, as I have said, and not about misunderstanding. It is simply not necessary to include anything other than that.

Question put, That the amendment be made.

--- Later in debate ---

[Daniel Zeichner]

It is a pleasure to follow my hon Friend, who made an important set of points about this amendment. I would like to move from crocodiles to pigs because, frankly, what is happening across the fields of the country is ghastly. While there may be questions over the size of a crocodile’s brain, I think we all know that pigs are intelligent creatures.

My point in raising that is that, with this amendment, a range of Government Departments would be driven to have to respond in a crisis like this. It has an awful effect on the people having to kill pigs in fields—we think possibly some 35,000 so far. I must also say, there was a dreadful response from DEFRA to a written question from the shadow Secretary of State, my hon. Friend the Member for Oldham West and Royton, just on DEFRA’s basic knowledge of the numbers—“We don’t know; we don’t ask”.

A much stronger piece of legislation like this, driving the committee, would have forced Government Departments to have actually acted. I notice that the Minister did not respond to my earlier question about the current situation of sentience. We in the Opposition all know that pigs are sentient, but the hiatus in the legal setup means that it is very hard to hold the Government to account for the awful set of circumstances that are unfolding.

[Jo Churchill]

I agree that this is an important piece of legislation and, like the hon. Member for Newport West, I hope it will go forward in a timely way. I thank the EFRA Committee for the work that it has done in helping to guide us in ensuring that the Bill is as precise as it is. It is important to understand that there are two duties here.

The hon. Lady argued that the Animal Sentience Committee needs the power to compel Government Departments and public bodies to provide any information that the committee requests. While I would agree that it is key for the committee to have the necessary information to do its job, placing an additional duty on Departments to provide the committee with documents would just create additional grounds for judicial reviews. If a Department or public body was seen not to fully comply with the requests made by the Animal Sentience Committee, there would be grounds for a challenge.

The Bill has been carefully considered and worded to give meaningful effect to the principle of animal sentience without getting tied up in legal challenges. We want the committee to focus on current and future policy. Its aim is to improve transparency in decision making and in the policy-making process. The committee will build on and improve the evidence base, which I have referred to, that informs Government policy.

[Ruth Jones]

The Minister talks about the evidence base, but how can the committee develop an evidence base if it submits a request to another Department, but that Department sees fit to ignore it?

[Jo Churchill]

I will come on to that in my answer because, arguably, the one thing the committee does have up its sleeve is the ability to name and shame if it is not responded to. That is the key thing to keep there.

The scope of the Bill covers all central Government policy decisions, from formulation to implementation. It aims to support the policy-making decision process, rather than operational decisions made by public bodies outside of those Departments. We have kept the scope to Ministerial Departments because we want the committee to focus its scrutiny on the key policy decisions affecting animal welfare.

That is why, as set out in the terms of reference, which the hon. Lady referred to, the committee’s secretariat will assist in raising awareness of the committee’s role and in forming an overview of relevant policy decisions. That work has already started in the Department to ensure that other Departments, at an official level, are ready, and there, to establish effective communication—which arguably was the underlying ask of the amendment—with the Committee. Guidance will also be provided to Departments on their responsibilities under the Bill. We believe that to be the most effective way in which to ensure that the committee has all the information that it needs to do its role. There are two powers in the Bill, not just one: we establish the committee and, crucially, that responsibility on a Minister—the duty to reply.

I am sure that Governments will provide the committee with relevant information, if requested, and if the committee struggles to engage with a particular Department or to receive information, it will be free to highlight that in its response. Ministers will then have their duty to respond to those reports. I am confident that no Minister will want their Department to be highlighted as unco-operative in the area of animal welfare. I therefore believe that the Bill, and the functions and the powers that it confers on the Animal Sentience Committee, are sufficient as drafted.

[Ruth Jones]

I thank the Minister for her comments. We are still not satisfied, so we will press the amendment to a vote.

Question put, That the amendment be made.

--- Later in debate ---

The BVA is correct, and the amendment will give effect to its thoughts and those of many campaigners who welcome the Bill and want to see it strengthened. We would be giving effect to our collective moral concern for animals, and I urge the Minister and all her colleagues to support the amendment.

[Jo Churchill]

I thank the hon. Member for Newport West for her co-operation; I know that she is merely trying to assist. At this point, I would like to associate myself with her comments on Her Majesty the Queen.

I am grateful for the opportunity to discuss the Animal Sentience Committee’s scope and public bodies, because we gave a great deal of consideration to both the scope and appropriateness. We expect the committee to focus on Government policy decisions that could have a significant impact on animal welfare. As we have previously indicated, that is expected to be in the region of six individual policy decisions per year. Given the breadth of government, the committee will need to be selective in what it scrutinises. It is unlikely that these kinds of decisions will be made outside ministerial Departments, because the vast majority of policy decisions with a significant bearing on animal welfare will be made within the Departments themselves.

The Bill is designed to create timely, proportionate and targeted mechanisms for holding Ministers to account. By their nature, and relative to core Departments, non-departmental public bodies operate at arm’s length from Ministers. Extending this committee’s remit beyond central Government Departments would not be targeted and so would not be in line with the aims of what we are trying to achieve. By the same token, we will not ask the committee to scrutinise policy decisions that may be made at local authority level, for example, because that would impose an unnecessary workload on the committee and, arguably, on our hard-working local authorities. It is unclear who would then answer in Parliament to any reports that came forward—that might be issued by, say, a local authority or a body—because Ministers cannot answer for a report and decisions that they did not make. For those reasons, the Government consider that the current scope of the Bill is the right one.

[Ruth Jones]

Given the NGOs’ comments and encouragement to the Opposition to lay this amendment, we will push it to a vote.

Question put, That the amendment be made.

--- Later in debate ---

Question proposed, That the clause stand part of the Bill.

[Jo Churchill]

Clause 2 tasks the Animal Sentience Committee with publishing reports that give its opinion on whether, or to what extent, Ministers have had all due regard to the needs of animals as sentient beings when formulating and implementing Government policy. The clause allows the committee to include recommendations on how this might be done in the future development of a policy in question. Lastly, the clause requires that the committee’s reports are published.

These measures sit at the heart of our proposals to create a proportionate and timely accountability mechanism that rests with Parliament, rather than the courts. The committee will have the powers to publish reports—importantly, including critical reports—on the Government policy decision-making process. However, the committee’s powers are well defined so as to ensure that it complements that decision-making process by giving additional evidence. The clause and the wider Bill do not authorise the committee to dictate or advocate a particular policy position, or critique how a Minister might decide to balance competing policy considerations. Ministers will continue to decide the appropriate balance between animal welfare and other important considerations when making decisions.

In the event that a committee report was critical of Government performance, Parliament would be able to consider the report and the Government’s written response that must be laid before Parliament within three months of the report’s publication. After considering them, the decision would rest with hon. Members in this House and noble Lords in the other place on whether to make further inquiries on the subject using the mechanisms available.

Question put and agreed to.

Clause 2 accordingly ordered to stand part of the Bill.

Clause 3

Response to reports

[Daniel Zeichner]

I beg to move amendment 3, in clause 3, page 2, line 27, at end insert—

“(4) A Minister of the Crown must make a motion in each House of Parliament in relation to each response to a report from the Animal Sentience Committee laid before Parliament under paragraph (1).”.

This amendment would require the Minister to give an oral response to Animal Sentience Committee reports, creating an opportunity for parliamentary scrutiny of report recommendations and the Government’s response.

Clause 3 requires the Secretary of State to lay a response to reports produced by the Animal Sentience Committee before Parliament within three months of a report’s publication, as the Minister has outlined. We absolutely accept that it is right that the Secretary of State should be tasked with that responsibility. The reports will consider, as laid out in clause 2(2),

“whether, or to what extent, the government is having, or has had, all due regard to the ways in which the policy might have an adverse effect”—

despite our attempts—

“on the welfare of animals as sentient beings.”

The committee may, therefore, criticise the Government’s policy-making processes. I noticed that the Minister acknowledged the possibility that the Government could be criticised in some circumstances, and I welcome that possibility. The committee could applaud the Government, or provide recommendations for improvements.

It is right that the Secretary of State responds to the findings. Where shortcomings have been identified, the Government absolutely should explain what went wrong; where there are recommendations, the Government must inform the House of their response. However, those of us who have been here a little while know how the House works. There are many opportunities for things to be made not exactly immediately obvious to the wider world, or even to Members of the House.

I have not been in Parliament that long, but I remember consideration of the Agriculture Bill. There was a lengthy discussion on the food security report. The matter went to the House of Lords. There was an argument about when the report should be produced—every three years, or annually, or every five years, and all the rest of it. Lo and behold, the Government produced that report on the very last day that they were permitted to do so, just before Christmas—as Governments do, of course—when people were rushing to get their planes and trains. It was a massive report of 300 pages, and obviously there was little opportunity just before Christmas for the wider world to consider it properly. What were the opportunities to consider that report? We found that it took a Westminster Hall debate, with a Minister reluctantly responding to criticisms at the end of the debate. The fact that the Secretary of State said one thing on one occasion and the Minister, when challenged, said something else, shows that there was not really any great opportunity for scrutiny.

This is a governance question. We know that, in the real world, a lot of this does not work. Given that some of the responses will be written, we know that there will not be much opportunity for scrutiny. We in the Opposition think that animal welfare and the humane treatment of animals is too important to fall into that trap and we think that, without an opportunity for the House to properly scrutinise and discuss reports, the Committee’s findings will simply not be given the attention they merit.

The amendment would require a Minister to make a motion in both Houses of Parliament, which would provide a genuine opportunity for parliamentary scrutiny. For the committee to have any heft, the Government cannot simply disregard its reports if they are politically or otherwise inconvenient. We think that it is right that “all due regard” be given to a range of factors and that the Government must explain how they have weighed up the competing demands.

We fully acknowledge that there are competing demands. This is not simple stuff. We also absolutely accept that the Bill does not change any existing legislation; it simply specifies that the Government must give “all due regard” to the ways in which policy may impact the welfare of animals. What we have heard from the discussions in the other place, and on Second Reading, is that that is open to a considerable amount of interpretation. It is right that both Houses debate and discuss the extent to which they believe “all due regard” has been met. I would think the Government would welcome the amendment, since it would actually give them further opportunity on their media grid to drip out some good news stories about the wonderful things they are doing. Actually, we think the opposite is the case. We do not think they want genuine scrutiny. The amendment could attract some interesting cross-party support as we goes forward.

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[Daniel Zeichner]

I am grateful to my hon. Friend. By definition, all Opposition Front-Bench amendments are sensible—I will tell you the ones that are not later. My hon. Friend, too, brings great experience on this, and he makes an important point. Those of us who have gradually begun to understand parliamentary procedure over the process of being here know that he is right; proper consideration of Select Committee reports in the Chamber does make a real difference. That is what we are trying to get at with the amendment.

I hope, despite the nature of this debate, that Ministers will go away and think about this point. We have noticed that there are very real differences of opinion on the Conservative Benches on this issue. I think the amendment would give voice to some of the staunch critics of the Bill. I do not think some of them understand it entirely, but I think it might settle some of their concerns if they knew they had the opportunity to raise them in this way. As the Better Deal for Animals coalition said in their briefing to parliamentarians:

“Criticisms of the Bill during its passage to date appear to have been based on a misunderstanding of the role of the Animal Sentience Committee.”

Members will be surprised to hear that I am on the side of the Minister on this point, because I agree that it should be reiterated that the new Committee will not have the power to amend or bring about new legislation. It cannot compel the Government to take any particular course of action. I understand the points the Minister is making, and I am not sure that everyone who has taken part in this debate has fully appreciated that.

The amendment would provide an opportunity for Members of both Houses to provide input and scrutinise the Government’s success in weighing up competing demands and, crucially, their success in considering the sentience of animals. For the Bill to have any real impact, we believe that Members must have a proper opportunity to scrutinise the Government’s response to the Animal Sentience Committee’s reports. Going back to my opening points, this could so easily be just another committee. Unless it has power, it will not work, and that would mean that sentience had not been carried across in the way that many people believed it to have been.

The amendment would only strengthen and further the claimed aims of the Bill. If the Government oppose it, I have to say that they will reveal their true intent.

[Jo Churchill]

I thank the hon. Member for Cambridge for raising the matter of responses to the Animal Sentience Committee report with the amendment. I agree that the committee’s report warrants parliamentary attention. That is why Ministers will be required to lay a written response before Parliament within three months of a report’s publication. This is central to the targeted, timely and proportionate mechanism we are seeking to establish. However, the hon. Member will not be surprised to hear that I do not believe it would be proportionate to clog up the parliamentary timetable with an automatic debate on every single report.

Hon. Members and noble Lords in the other place should decide for themselves the extent to which each report needs more discussion. They will have the usual means at their disposal to bring in Ministers to answer questions: parliamentary questions, Select Committee hearings, Westminster Hall debates and business questions. The EFRA Committee, when looking at this particular subject, asked my noble Friend Lord Benyon to come in front of it, in order to probe him more. We should also allow for the possibility that the committee, in some of its reports, may be satisfied that the Department in question has had all due regard to animal welfare and as such makes no recommendations. I am sure that Ministers would be delighted, as the hon. Member for Cambridge slightly alluded to, to have the platform to speak about such success on the Floor of the House, but I gently say that that is not the best use of parliamentary time.

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Question proposed, That the clause stand part of the Bill.

[Jo Churchill]

The clause requires a Minister whose Department has been subject to an Animal Sentience Committee report to lay a written report before Parliament. The response must be submitted within three months of the publication of the report, excluding periods in which Parliament is not sitting. This will give weight to the committee reports. Ministers will not be able to ignore them. There may be occasions when Ministers do not agree with the findings and recommendations of the committee. The clause gives those Ministers the opportunity to explain their views and the reasons therein. If Members or peers are dissatisfied with the Minister’s explanation, they have the usual means at their disposal to pursue their concerns, as we discussed.

[Kerry McCarthy]

I have a genuine question about the timing of introducing legislation. I think we all know that the Dangerous Dogs Act 1991 was rushed in and is imperfect. There is obviously much to be said for taking time and seeking advice. I am concerned that the Government will propose something, then the committee has to look at it, then the Secretary of State has three months to reply. If the Government were seeking to legislate or change policy quite quickly, could this mechanism be used to drag things out far longer than they should be?

[Jo Churchill]

I would say no. The formulation and thought process of legislation feels like it takes considerable time, as we all know. This mechanism would not, in any circumstance I can envisage, be used to slow down the passage of anything.

Crucially, the committee supports Parliament’s scrutiny of Ministers without creating an undue risk of legal challenge. We learned from the EFRA Committee’s valuable feedback on the earlier version of the Bill how this is the case. Our approach means that Ministers will be accountable to Parliament, as is right and proper, and not to the courts. We feel that this creates a balanced, timely, proportionate accountability mechanism, allowing Ministers to make their own judgments on the best policy decisions to take and giving Parliament the opportunity to scrutinise those issues based on expert advice that comes forward, hence the reason for the committee.

Question put and agreed to.

Clause 3 accordingly ordered to stand part of the Bill.

Clause 4

Information

Question proposed, That the clause stand part of the Bill.

[Jo Churchill]

The clause provides for the inclusion of the Animal Sentience Committee in the list of organisations subject to the provisions of the Public Records Act 1958 and the Freedom of Information Act 2000. The Animal Sentience Committee is designed to support Parliament in scrutinising the policy decision making, and it is therefore right that the committee is transparent and accountable in the way that it operates.

We have sought to balance the transparency of the committee with its effectiveness by ensuring that Government Departments can disclose information to it at early stages of policy decision making. The same checks and balances apply to the disclosure of sensitive information via the committee as to the Department with which it will work. The committee will receive dedicated secretariat support from my Department, which will assist in processing any of those Freedom of Information Act requests.

In addition to the transparency provisions in the Bill, we will ensure that the committee’s supporting documents and the minutes of the meeting are published online to aid that transparency and scrutiny.

Question put and agreed to.

Clause 4 accordingly ordered to stand part of the Bill.

Clause 5

Interpretation

[Kerry McCarthy]

I beg to move amendment 6, in clause 5, page 3, line 9, at end insert—

‘(6) For the purposes of section 2 (2) in this Act, “sentient beings” means a being capable of sentience, where “sentience” means the capacity to have feelings, including pain, pleasure, hunger, thirst, warmth, joy, comfort and excitement.’

This amendment would insert a definition of sentience into the Bill for purposes of reference, based on the definition included in research commissioned by the Department of Environment, Food and Rural Affairs entitled “Review of the Evidence of Sentience in Cephalopod Molluscs and Decapod Crustaceans”.

The amendment would basically insert a definition of “sentient beings”, which is the phrase used in the legislation. That definition, as I have put it, is:

“‘sentient beings’ means a being capable of sentience, where ‘sentience’ means the capacity to have feelings, including pain, pleasure, hunger, thirst, warmth, joy, comfort and excitement.”

I know that other definitions might be proposed, but that definition was lifted from London School of Economics research entitled “Review of the Evidence of Sentience in Cephalopod Molluscs and Decapod Crustaceans”, which was commissioned by DEFRA and was part of the discussions about whether they should be included in the legislation. I am very pleased that they are now included. That is the definition that I have used.

The Minister said in speaking to clause 1 stand part that it was not usual to include definitions in the Bill, but in my experience, it is pretty common. The “Interpretation” clause states:

“In this Act ‘animal’ means”,

and goes on to define what an animal is, and it also defines “vertebrate” and “invertebrate” by referring to the Animal Welfare Act 2006, so I think it is quite common to include definitions. On Second Reading, some quite spurious points were made, and from my recollection of the Environment, Food and Rural Affairs Committee, when we talked about sentience, people threw around slightly silly things. I think it would be helpful to have a definition in the Bill, and I cannot quite see what the argument against that would be.

A definition of “sentience” would give the Animal Sentience Committee an official reference point when considering the effects of legislation, and that is a good framework to work within. Without a definition, justifying decisions could prove problematic. A definition would shorten the process because the committee would not have to argue about whether an issue related to animal sentience.

I worry that sentience is sometimes seen as being just about feeling pain. Obviously, a lot of animal welfare discussions are about cruelty to animals, and that is what the public tend to focus on most, but as I have said, feeling pleasure comes back to the idea of the positive effects of things. We know from debates about caged birds and sow crates, or just about the way farm animals are kept, that animals—particularly intelligent animals such as pigs—need stimulation. It is actually very cruel to keep them somewhere where they cannot exhibit their natural behaviour.

Defining “sentience” would make it clear that the legislation is not just about stopping animals suffering pain. It is an apolitical expert decision, sourced from Government-commissioned research. The Government accepted that research when agreeing to include crustaceans, molluscs and so on in the Bill. The amendment would help the Bill and make it a better piece of legislation. I am interested to hear why the Minister does not agree.

[Jo Churchill]

I thank the hon. Member for Bristol East for moving the amendment, by which she asks the important question of why we are not putting in a fixed definition of “sentience”. I reiterate that this is about the positive and the negative.

Our scientific understanding of sentience has come a long way in recent years—the hon. Lady referred to the LSE report—and will continue to evolve. The Government approach will be led by the science. We therefore decided that we would not include a fixed definition of “sentience” in the Bill because, in the course of time, it will become out of date. As I said, for the Bill to work, it is not necessary to define “sentience” in statute. If we accept that those animals are sentient, we accept the principle supported by the Bill that their welfare needs should be properly considered in Government policy decision making, so there is no need to increase the complexity.

This is the nub of the matter: if the Animal Sentience Committee wishes to adopt a working definition of “sentience”, it will be absolutely free to do so. One of the first acts of the Scottish Animal Welfare Commission—a similar body, to which the hon. Member for Edinburgh North and Leith alluded earlier—was to prepare its own working definition of “sentience”. So, should the committee wish to do the same, that would be a discussion for the experts to have, rather than for us in Government. I do not think that any of us would say that we are experts in defining; it is for the committee to choose.

[Deidre Brock]

I thank the Minister for mentioning the SAWC’s definition of “sentience”. She is correct that that happened in the early days after its formation. Will she require that of the committee? Will that be something to be discussed and required of the committee when it sits in future?

[Jo Churchill]

I may be wrong, but I do not think that the Scottish Government determined that that should be one of the SAWC’s first acts. I reiterate: it should be for the committee to decide whether it wishes to do the same and to have a working definition. The whole tenor of the Bill is to be future-proofed.

[Grahame Morris]

rose—

[The Chair]

Order. Had you sat down, Minister?

[Jo Churchill]

I apologise, I did not see the hon. Gentleman.

[Grahame Morris]

I was caught on the horns of a dilemma there, because the Minister was answering the earlier intervention. I apologise if I missed this in the explanatory notes, but do we have any information on the composition of the committee, on the nature of the people, individuals or expert opinions who will make up the committee?

[Jo Churchill]

I refer the hon. Gentleman to the terms of reference. We do not want to be overly prescriptive about its make-up, nor do we want to be over-prescriptive in case, for example, experts were to come from the devolved nations. This is an expert committee to give sound scientific advice on which Ministers will make a decision. That is referred to clearly in the terms of reference.

[Kerry McCarthy]

That is an illogical argument. If we were to follow that through, there would be no point having amended the Bill to incorporate the recommendations of the report. It would have been easy to say, “The committee are the experts, they can decide whether molluscs and crustaceans are sentient beings.” We put things in legislation to steer the agenda of the committee. That is the very point.

I worry that the committee will be open to challenge. We saw misinformed hostility from many quarters on Second Reading, and I would have thought that the Government could solidify the fact that the committee is there to look at things other than just overt instances of animal cruelty. It would really help the experts on the committee to do their job if we were to define sentience in the Bill, so I will press the amendment to a vote.

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[The Chair]

It is recorded as exactly what it is. The hon. Lady could say “abstention”, for example, but it is not recorded. It does not appear in the record.

Thank you, Mr Morris, for the point of order—it was a genuine point of order and required an answer. That was actually the first one I have had in 11 years, so thank you, Ms Brock, as well.

Question proposed, That the clause stand part of the Bill.

[Jo Churchill]

The clause sets out what types of animals are covered by the provisions of the Bill and are thus subject to consideration by the Animal Sentience Committee. It covers any vertebrate other than homo sapiens. The science is clear that vertebrate animals—those with a spine—can experience pain and suffering.

Furthermore, in 2020, my Department commissioned an independent review of the available scientific evidence on sentience in decapod crustaceans, such as crabs and lobsters, and in the cephalopod class, which includes octopus, cuttlefish and squid. There has been much scientific interest in the sentience of such creatures for a number of years, because they are unusual among invertebrates in having complex nervous systems—one of the prerequisites of sentience. The review considered some 300 pieces of research, applying a robust set of criteria to reach its conclusions. On publishing the review’s findings last October, we accepted its central recommendation that, given the strong evidence of such creatures’ sentience, they should be included in the legislation.

We tabled an amendment to the clause in the other place, and we are pleased that it enjoyed cross-party support. However, we know that there is new scientific evidence emerging all the time, which is why we have sought to future-proof the Bill with a delegated power for Ministers to add species to the definition of animals by regulations, using an affirmative statutory instrument. Such a measure would be based on scientific evidence that particular species of invertebrates are sentient.

We have no plans to use the delegated power in the near future. The sentience of decapods and cephalopods was the subject of considerable scientific research over many years, and we are not expecting compelling evidence on other species to emerge overnight. However, it is important to be able to keep the Bill’s scope up to date, in line with scientific developments.

Ministers will not be able to amend the Bill’s scope on a whim. Regulations laid under the delegated power would be subject to parliamentary approval via the affirmative procedure, and Parliament would rightly expect more compelling scientific evidence to be brought forward to justify any extension. If it were not convinced, Parliament would be able to vote down the regulations.

The clause therefore sets the scope of the Bill to cover creatures for which there is strong scientific evidence of sentience, and it includes a delegated power to keep the scope up to date with emerging evidence, subject to sensible checks and balances.

Question put and agreed to.

Clause 5 accordingly ordered to stand part of the Bill.

Clause 6

Extent, commencement and short title

Amendment made: 1, in clause 6, page 3, line 16, leave out subsection (5).—(Jo Churchill.)

This amendment removes the privilege amendment inserted in the Lords.

Question proposed, That the clause, as amended, stand part of the Bill.

[Jo Churchill]

The clause sets out the territorial extent and the commencement provisions for the Bill following Royal Assent. Clause 2(6) provides that the Animal Sentience Committee may only issue reports on policy decisions of the UK Government. That means that the committee may issue a report on any policy for which UK Government Ministers are responsible. The committee cannot issue a report on any policy that relates to a legislative provision falling within a devolved competence. Animal welfare policy is devolved. The Bill’s provisions will come into force on such days as the Secretary of State may, by regulations made by statutory instrument, appoint.

Question put and agreed to.

Clause 6, as amended, accordingly ordered to stand part of the Bill.

New Clause 1

Duty to prepare an Animal Sentience Strategy

“(1) The Secretary of State must prepare an Animal Sentience Strategy.

(2) The Strategy under paragraph (1) must set out how Her Majesty’s Government plans to have regard to animal sentience including plans to—

(a) respond to Animal Sentience Committee reports,

(b) require animal welfare impact assessments, and

(c) commission independent research.

(3) The Strategy must set out policies that the Secretary of State may ask the Animal Sentience Committee to review.

(4) The Secretary of State must publish an annual statement on progress on the Animal Sentience Strategy.

(5) An annual statement under subsection (4) must include a summary of changes in policy or implementation that have occurred in response to an Animal Sentience Committee report over the last 12 months.

(6) A Minister of the Crown must make a motion in each House of Parliament in relation to the annual statement.

(7) The Secretary of State must publish a revised Animal Sentience Strategy at the start of each parliament.”—(Daniel Zeichner.)

This new clause would place a duty on the Secretary of State to produce an animal sentience strategy, and to provide an annual update to Parliament on progress against it.

Brought up, and read the First time.

[Daniel Zeichner]

I beg to move, That the clause be read a Second time.

The new clause is tabled in my name and those of many of my colleagues. In many ways, I will go back to where I started, by referring to the comments by my colleague in the other place, Baroness Hayman. She explained very lucidly that the Bill in its current form provides

“a weaker set of responsibilities”

than provided for in EU law and

“effectively outsources the bulk of animal sentience responsibility to the committee, which can make recommendations to decision-makers but sits outside the decision-making process.”—[Official Report, House of Lords, 6 July 2021; Vol. 813, c. GC285.]

That is an important point, which we have already referenced, and I believe that it should be heard loud and clear—put up in lights, in fact. The Conservatives have weakened the law on animal sentience. [Interruption.] They may not like it, but it is the truth.

Now, there is a solution—there is salvation, and I am going to offer it. The amendment tabled by Labour in the other place goes some way towards rectifying that problem. Again, as Baroness Hayman explained,

“Article 13 imposed a direct legal obligation on the EU and its member states to pay full regard to animal sentience. It was a direct responsibility on decision-makers, in the form of government Ministers.”—[Official Report, House of Lords, 6 July 2021; Vol. 813, c. GC284.]

I have already described how the Bill is weakened by the requirement for the Secretary of State to provide written responses to Animal Sentience Committee reports rather than oral responses. The Government chose not to take that opportunity.

The Bill places indirect responsibilities on Ministers; they must simply establish and maintain a committee and lay written responses, rather than assuming direct responsibilities on these matters, which is what we would like to see. This is clearly an inadequate replacement for the duties and responsibilities enshrined in article 13 of the treaty on the functioning of the European Union, and that is what we seek to address through the new clause.

The new clause would place a duty on the Secretary of State to produce an animal sentience strategy and to provide annual updates to Parliament on progress against it. It would significantly improve the Bill by increasing the heft given to the Animal Sentience Committee and ensuring that its work does not, as I fear it might, end up being merely symbolic.

--- Later in debate ---

I think we can all agree that these are complicated and intricate matters; they are sensitive and important as well. We are talking about the ability to feel pain and pleasure, joy and sorrow. It is therefore of the utmost importance that the most up-to-date scientific findings are incorporated in the Government’s decisions. Much of the confusion could be avoided if the Government were able to commission more independent research in this area, and the new clause would strengthen that ability. I encourage Government Members to think seriously about supporting our amendment.

[Jo Churchill]

I say gently to the hon. Gentleman, whom I thank for proposing new clause 1, that while I agree that the Bill should be science-led, he will not be surprised that I disagree entirely that we are watering down anything. Given that we are robustly discussing animal sentience, how seriously the issue is taken in this place could not be plainer to the outside word.

I understand why the hon. Gentleman might want to require the Secretary of State to publish an animal sentience strategy and undertake the actions associated with it, but the Bill underpins the action plan for animal welfare published in May last year. Of course the Government want the new committee to perform its role to the best of its ability, and we will work with Members to ensure that it does just that, but the independence of that committee is vital. A strategy in which Ministers set out policies that they want the committee to consider would limit its ability to set its own agenda. It is vital to make sure that the committee is led by science and by experts, and that it has its own ability to define sentience, if it wishes to, and to set its own agenda.

The committee’s reports will be publicly available and will provide a record of policies that it has considered. As is usual, the committee will be subject to the Freedom of Information Act and the Public Records Act, as laid out in clause 4. Rather than prescribe a list of tasks for the committee, we want to ensure that it can shape its role in an independent manner, and that its influence in highlighting the impact on animal welfare of key policy decisions is maximised and determined by its own evaluation of where it could add value. DEFRA will support the committee in identifying such opportunities, but it is important that experts have that scope.

We do not propose to require Government Departments to produce animal welfare impact assessments, but my Department is committed to working with its counterparts across the Government to develop the right tools to assess the effect of policy decisions on animal welfare so that there is a cohesive look at that matter. Departments will have good reason to engage with the process as that will help to prevent the committee from producing negative reports, as well as aiding learning across the Government. The Bill as drafted, alongside the action plan for animal welfare, will achieve many of the intentions of the new clause while retaining the committee’s flexibility and discretion to focus on the areas that it deems most important.

[Daniel Zeichner]

I will respond briefly, as you would encourage me to do, Sir Charles.

I listened closely to the Minister’s response, and while I struggled with some of the civil service gobbledegook, I think she said that some of the things that we are looking to achieve will happen, which we welcome. In the end, however, I can come to no conclusion but that this is a weak proposition. I have asked the Minister three times why the Government did not choose to bring across the stronger version of the legislation—goodness me, they brought plenty of other legislation across—but that has not been explained, and there must be a reason. The Minister also has not been able to answer the question of where sentience currently stands, so the only conclusion we can come to is that the Bill needs to be beefed up and made much stronger. I can assure you, Sir Charles, that in a couple of years’ time, it will be.

Question put, That the clause be read a Second time.

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[Nickie Aiken]

May I share your sentiments, Sir Charles, and say thank you to our parliamentary staff here and across the estate?

[Jo Churchill]

I add my voice to that, but I would also like to thank my Bill team and members of my private office, who are nothing but always by my side, for which I thank them.

[Deidre Brock]

Many thanks to the Clerks and the Doorkeepers, and to Hansard for taking down our words today.

Animal Welfare (Sentience) Bill [Lords]

Jo Churchill Excerpts

Report stage
Monday 14th March 2022 Commons Chamber

[Deidre Brock (Edinburgh North and Leith) (SNP)]

I rise to speak to new clauses 2 and 3. Many Members will be aware of the Scottish Animal Welfare Commission, which was established by the Scottish Government in 2020. The commission’s evidence-based and expert-driven approach offers a good model for the English Animal Sentience Committee, and I would urge those who have expressed misgivings about how the committee will be constructed to look to Scotland to see that it is working and that recommendations are regularly made to Ministers who then act on them. However, although animal welfare is devolved, some issues still fall under reserved areas, and the SNP new clauses focus on those issues.

Of course we support the Bill, because it will enable the setting up of a committee similar to our own, but it could be strengthened to recognise the rights of sentient animals undergoing scientific testing and military experiments used by the Ministry of Defence. Last month, this House debated a petition calling for legislation to include laboratory animals in the Animal Welfare Act 2006. It is unacceptable that, in this nation of professed animal lovers, laboratory animals are not protected from unnecessary suffering under that legislation. Instead, the current rules on animals used in research are set out in the Animals (Scientific Procedures) Act 1986. The Home Office is responsible for regulating and enforcing that law. However, much of what goes on behind closed doors at animal testing sites in the UK is hidden from view and shrouded in secrecy, as the law blocks access to information about the animals’ treatment during experiments. Section 24 of the 1986 Act makes it a criminal offence for that information to be disclosed.

A requirement for the Animal Sentience Committee to provide assessments to the Government on such tests would help to ensure that the sentience of those animals was equally recognised and accounted for. New clause 2 therefore requires the Animal Sentience Committee to produce a report on the use of sentient animals in scientific experiments and military exercises by the MOD and the Defence Science and Technology Laboratory. Between 2009 and 2020, the MOD carried out over 60,000 experimental procedures on mice, rabbits, primates, pigs and other animals. Similarly, new clause 3 requires the committee to produce a report on the use of sentient animals in tests relating to medicine, cosmetics and weapons in Government policy. As I said on Second Reading, although those specific issues are still reserved to Westminster, polling of Scottish and Welsh residents shows that a majority want to see deadlines for phasing out animal testing. Those surveyed expressed a very strong aversion to testing on dogs, cats and monkeys. Despite these public concerns, the UK remains one of Europe’s top users of primates and dogs in experiments.

We do not believe the general public are aware of the extent and nature of these experiments, or of which animals are used in them. Statistics for 2020 reveal that more than 4,000 procedures were carried out on dogs, almost all of them beagles, which are chosen for experimentation because of their size, docility and submissiveness. Most drug testing sees dogs repeatedly force-fed or forced to inhale substances for between 28 and 90 days to measure the effects of repeat exposure on the liver, kidneys, lungs, heart and nervous system.

There is enough evidence to show there are better, more accurate and more humane methods than resorting to testing on animals. Recent developments in evolutionary biology, developmental biology and genetics have significantly increased our understanding of why animals have no predictive value for human responses to drugs or the pathophysiology of human diseases. Nevertheless, the Home Office says it has no current plans to review the use of animals in science. Meanwhile, the EU is moving away from cruel experiments on animals and towards cutting-edge replacements. The European Parliament recently voted in favour of developing an action plan to phase animals out of EU science and regulation.

The hon. Member for Bristol East (Kerry McCarthy) made an excellent contribution. Although I support new clause 1, which makes worthwhile, reasonable suggestions on the details of the Animal Sentience Committee and its responsibilities, on which Ministers have been rather sketchy, and I urge the UK Government to take new clause 1 into consideration, the Bill is almost entirely concentrated on setting up an Animal Sentience Committee—largely based on our Scottish Animal Welfare Commission set up in 2020—in England, and therefore we will not be joining Her Majesty’s Opposition in the Lobby.

The hon. Lady expressed considerable concern about amendments 2 and 7, and it is equally tempting to vote against those amendments. Amendment 2 is a Trojan horse to cover up the enthusiastic support of Conservative Back Benchers for continuing what are euphemistically referred to as “country pursuits” exactly as they have been practised for centuries. Amendment 7 is a disgracefully blatant attempt to carve out those who have a very strong interest in the protection of animals from membership of the Animal Sentience Committee. I found it hard to read that amendment, let alone to contemplate the Government accepting it.

The willingness of the Scottish Government to act on the guidance of the Scottish Animal Welfare Commission’s advice demonstrates their commitment to maintaining or exceeding the high EU animal welfare standards before Brexit. However, as long as animals are used in testing and military experiments and are denied full recognition of their sentience, Scotland and the rest of the UK will fail to keep pace. I urge hon. Members to vote to maintain the UK’s proud history of supporting animal welfare by backing new clause 3.

[The Parliamentary Under-Secretary of State for Environment, Food and Rural Affairs (Jo Churchill)]

As a starting point, we all agree not only that the issue of animal welfare and sentience is extremely important in this House, but that it has great resonance across the country. I say very gently, because our debate has been extremely wide-ranging, that my hon. Friend the Member for Tiverton and Honiton (Neil Parish) put it most succinctly: this is a simple six-clause Bill, and all it seeks to do is direct that a committee be set up and that a Minister come forward with a report from across Government. If hon. Members are worried that it will not reach all parts of the Government, I would like to assure them that it will.

I will take the amendments in order and then address other comments from right hon. and hon. Members. New clause 1, which was moved by the hon. Member for Oldham West and Royton (Jim McMahon), would compel the Government to make an animal sentience strategy. The action plan for animal welfare already sets out the Government’s current and future work on animal welfare and conversation. The Government’s plan is clear, and there is no need to mandate it in statute. I very gently point out that the reason we are here today is to bring forward one of the points in the action plan; as hon. Members have said, sentience has been a while coming, but we are all here tonight to make sure that we deliver on the promises.

New clauses 2, 3, 5 and 6 would mandate that the Animal Sentience Committee to produce reports on specific areas. It is important that we do not dictate the committee’s work plan. Its members are the experts, not us, and are best placed to know where they can add value. The very first thing that the committee in Scotland did, as the hon. Member for Edinburgh North and Leith (Deidre Brock) said, was set out its own definition of sentience. As my hon. Friend the Member for Penrith and The Border (Dr Hudson) pointed out, the understanding of sentience is always evolving, so we want to leave it to experts from the world of science and so on—I am sure he can name them much better than I could—to define it. We are not saying that sentience should not be defined; we are asking those who have the skills to do that work. I hope that my hon. Friend will accept that that is in good faith where we are trying to go.

I would like to clarify the Government’s position on some areas raised during the debate. I say gently to the hon. Member for Edinburgh North and Leith that the committee is best placed to decide which topics to focus on.

It is worth noting that the Defence Science and Technology Laboratory does not use animals in developing offensive weapons. To go further, let me reassure hon. Members that within that capacity, military working animals play an essential role, often in life-saving operations. They are looked after within the military by military vets and are much-loved members of the team.

I have been clear that we do not want the committee to duplicate work that is already taking place across government. That is why its terms of reference make it clear that it should not go over the same ground as the specialist Animals in Science Committee.

As the hon. Member for Westmorland and Lonsdale (Tim Farron) said, the Environment Act 2021 was passed last year, on 9 November. The Animal Sentience Committee is not there to make value judgments and weigh up policy issues; neither is it there to monitor business activities, which is very much the thrust of what he is asking for.

My hon. Friend the Member for Tiverton and Honiton mentioned Ofwat and said that the hon. Member for Westmorland and Lonsdale might be better placed if he directed his comments elsewhere. In that spirit, I urge the hon. Gentleman to withdraw his new clause. Parliament’s scrutiny of trade deals is already informed by the expert input on animal welfare that is provided by the Trade and Agriculture Commission.

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[Deidre Brock]

In reference to the reports that we requested in new clauses 2 and 3, can the Minister describe to me by what mechanism the Scottish Government or other devolved nations could express their concerns about the areas that we have raised here on animal testing, cosmetic testing and the use of animal experimentation in the Ministry of Defence? What mechanism could they use to raise those concerns with the committee and eventually encourage it potentially to produce reports on those issues?

[Jo Churchill]

I would make two points. First, the hon. Member is presupposing that there will not be members of those devolved authorities on the committee. If people hold the most appropriate expertise, they may be there as a full member, or they may be co-opted in to look at a particular area of reference. There are other mechanisms that we always use in this place to hold the Minister to account. The Minister is bound to report to this place within three months of parliamentary sitting time. All the mechanisms will be in place, as well as those behind the scenes where we talk to devolved Ministers and so on, to make sure that things are raised in the appropriate way.

Amendment 2, which is in the name of my hon. Friend the Member for The Cotswolds (Sir Geoffrey Clifton-Brown), would require the committee’s recommendations to respect religious rights, cultural traditions and regional heritage. We have heard the strength of feeling on this matter both here and in the other place, and I assure him that we have listened and decided to support the amendment.

[Sir Geoffrey Clifton-Brown]

I thank my hon. Friend for her careful consideration of my amendment. I think it is a sensible, proportionate amendment that will allow a committee with limited resources to focus on those really egregious areas where animal sentience is being abused, and not run into some of the less important areas. I thank her for accepting the amendment, and I thank all my hon. Friends who supported and signed it.

[Mr Jonathan Djanogly (Huntingdon) (Con)]

rose—

[Jo Churchill]

I will give way briefly.

[Mr Djanogly]

I thank the Minister for giving way, and I take this opportunity to thank her and the Secretary of State for having met colleagues on multiple occasions and listened. Many communities are fearful of the implications of this and, while I have not fallen in love with the Bill, the fact that amendment 2 will be made to it means that there will be a balance that was otherwise lacking. I congratulate her on listening.

[Jo Churchill]

I thank my hon. Friend. As many people who contributed to this debate have said, what we are seeking here is that balance.

Turning lastly to amendment 1 in the name of the hon. Member for Newport West (Ruth Jones), we do not want to clog up parliamentary time with automatic debates on committee reports. We went over that in the Bill Committee. Hon. Members have parliamentary questions, Westminster Hall debates and the Backbench Business Committee, should they wish to use them.

In short, the Bill has been carefully drafted to create a targeted, proportionate and timely accountability mechanism on animal welfare. It is designed to support the House’s scrutiny of Government, and I look forward to all those in the House making good use of it.

[Jim McMahon]

This has been an insightful debate and it was good to hear the passion on both sides from hon. Members who really care about this issue. New clause 1 only asks the Government to perform good governance, in that we want them to have a plan, to report on the plan and to be held accountable for the plan. The right place for that to happen is here in Parliament.

I hope the Government have listened to the concerns in the House about support for British farmers. I absolutely believe that they are the best in the world and that we have raised the bar on animal welfare standards and food production alike, but farmers often feel as though they are fighting alone, with a Government who just do not get it and are not on their side. We have seen that through procurement, fair funding, trade deals and more. I ask the Government to listen to those concerns not only on the Opposition side, but across the House, and to ensure that, when we demand so much of British farmers, we are on their side in everything we do.

Question put, That the clause be read a Second time.

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[Jo Churchill]

I beg to move, That the Bill be now read the Third time.

It has been a privilege to shepherd this Bill through the House. Members in all parts stood on the manifesto—[Interruption,]

[Madam Deputy Speaker (Dame Eleanor Laing)]

Order. Members are being amazingly rude. The Minister is trying to put Third Reading to the House. There are people who have not been here all evening and they are making a noise. Stop it!

[Jo Churchill]

Thank you, Madam Deputy Speaker. I assure the House that I will be speaking. We all stood on a manifesto commitment to recognise the sentience of animals, and here today we can say that we have delivered on that promise. The Bill creates a timely, targeted and proportionate accountability mechanism in the committee; provides that expert assurance that Ministers are well informed; and gives us greater transparency about policies. I would like to take this opportunity to thank all hon. Members who contributed to the scrutiny of the Bill and everyone who took time to share their views with me, as this has helped to inform the discussion. We have, I hope, reached a clear shared understanding of how this Bill will work and of the fact that it will work.

I am particularly grateful to my hon. Friend the Member for Tiverton and Honiton (Neil Parish) and his colleagues on the Select Committee on Environment, Food and Rural Affairs for their rigorous and constructive scrutiny of the Bill. I am also grateful to those who participated in the Public Bill Committee, which was chaired with such efficiency and good humour by my hon. Friend the Member for Broxbourne (Sir Charles Walker). I thank the hon. Member for Newport West (Ruth Jones) and her colleagues on the Opposition Front Bench for their engagement. Special thanks are due to my hon. Friends the Members for North Devon (Selaine Saxby), for Workington (Mark Jenkinson) and for Bracknell (James Sunderland) for the way they have helped steer this Bill through. Proceedings on Bills depend on hard work behind the scenes, and I thank the parliamentary Clerks, the animal sentience top Bill team and my private office for their support and their sense of humour throughout. This Bill will recognise the fact of animal sentience in UK law, and I commend it to the House.