Animal Welfare (Sentience) Bill [HL]

Lord Benyon Excerpts

Report stage & Lords Hansard - part three
Monday 6th December 2021 Lords Chamber

However, the wording of the Bill itself remains unchanged and continues to require the committee to only consider “adverse effects”. This contradiction could lead to complications. An ASC report focused on positive effects could be challenged, with any defence based on the licence to consider positive effects conferred by the terms of reference being undermined by the prohibition on doing so in the text of the legislation. I hope that the Minister will consider this, as it is a simple amendment. Removing the word “adverse” from the Bill text would allow a sensible approach—which is in the published terms of reference—to be safely and fully implemented by the committee.

[The Parliamentary Under-Secretary of State, Department for Environment, Food and Rural Affairs (Lord Benyon) (Con)]

I thank your Lordships for amendments, and I hope that I can provide some reassurance on the points made.

I start with Amendment 9, in the name of my noble friend Lord Ridley, which would establish the animal sentience committee as a committee within the Cabinet Office. I would argue that Defra is well placed to host the animal sentience committee—which I will refer henceforth to as “the committee”. Defra’s hosting allows it to be affiliated as a constituent of Defra’s animal welfare centre of expertise, alongside other expert animal welfare committees, such as the Animal Welfare Committee. This provides for these committees to draw upon one another’s expertise much more easily than if they were hosted separately.

In his explanatory statement, my noble friend suggested that, if the committee were under the Cabinet Office, it would be easier to reach agreement on membership. It is not clear how changing the host department would achieve this. We believe that our approach to recruiting experts means that the committee will have the right experts. The same considerations would apply regardless of which department was responsible for supporting the committee.

Importantly, Amendment 9 would mean that the committee would be non-statutory, with no independent existence from government. This would undermine its purpose—one of proportionate scrutiny and accountability. A statutory committee allows experts the appropriate independence to achieve its function.

Amendments 11, 33 and 37, also in the name of my noble friend Lord Ridley, would require the animal sentience committee to publish an animal welfare strategy and for the committee and the Government to undertake actions associated with this. In this Bill, we have given the committee the power to produce reports about individual policies containing its views on to what extent the UK Government are having, or have had, all due regard to the ways in which those policies might have an adverse effect on the welfare of animals as sentient beings. We believe that it is important for the committee itself to decide which policies to report on, within the remit of the terms of reference. We would expect it to form an overview of all policy decisions with a significant effect on the welfare of animals. This need not cover every single policy decision but could cover those which are of a higher priority to animal welfare.

To ask this committee to produce reports relating to every department annually would be a significant burden and would mean less scrutiny on those policies that really matter. We want the committee to be targeted, timely and proportionate in how it operates. It is better to focus on policy decisions which have the most impact. The co-operation of departments is necessary for the committee to be able to work effectively, and Defra is already working to secure this. I believe a collaborative approach is the most appropriate one.

The committee’s role is not to set out a strategy for animal welfare nor to devise plans for future policy. These are clearly a matter for the Government. In May this year, the Government launched Our Action Plan for Animal Welfare. This sets out the Government’s current and future reform programme on animal welfare, covering both kept animals and wild animals under a series of strategic themes. I do not see the need for the committee to publish its own animal welfare strategy.

I hope that the noble Earl, Lord Kinnoull, feels that we have already covered Amendment 13 and the remit of the animal sentience committee in group 2. But I am happy for him to raise issues in a moment if he feels we have not.

I turn to Amendments 17, 22 and 34, in the name of my noble friend Lord Mancroft, concerning the reports of the animal sentience committee. The committee will be made up of eight to 12 members, and we anticipate it will take forward six to eight reports a year. However, Amendment 17 would require it to issue a report on all policy decisions. This is neither feasible nor desirable. We want proportionate and targeted scrutiny and accountability, and in so doing, the committee is to consider which policy decisions it deems most important. It should not be beholden to consider every policy decision regardless of its importance to animal welfare.

The question in Clause 2(2) is designed to allow the committee to express its views in an informative way to provide a proper understanding of the decision-making process followed. We believe that the committee’s recommendations are likely to be nuanced. The purpose of these reforms is not to impose a simple “pass or fail” test, which Amendments 22 and 34 suggests it should. That is not necessary, and it is likely to be unhelpful, and indeed unworkable, in many cases.

There may well be cases where the committee’s report into a policy decision does not identify major concerns but makes recommendations that would further improve future decision-making. The proposed amendments would not cater for this situation. While I understand, in principle, the rationale for limiting the requirement for Ministers to reply only to reports which identify major concerns, this would generate missed opportunities to consider valuable recommendations for improvements.

I turn to Amendments 20 and 25, in the name of my noble friend Lord Howard of Rising, which query the use of the phrase “all due regard” when describing what the committee is to consider in its scrutiny of policy formulation and implementation. The technical meaning of the phrase “all due regard” in this instance is not considered to be materially different to that of the phrase “due regard”; “all due regard” emphasises that the committee should assess the extent to which all relevant factors affecting animal welfare are being considered.

I turn now to Amendments 21 and 26, again from my noble friend Lord Howard of Rising, which seek to clarify that the committee can consider positive impacts on the welfare of some animals of a policy alongside the negative effects of that policy on the welfare of other animals. This point was raised by the noble Baroness, Lady Hayman. Meeting the welfare needs of animals includes avoiding negative impacts as well as providing for positive experiences. Depriving an animal of its ability to have positive experiences, like exhibiting natural behaviours, counts as an adverse effect. I can assure your Lordships that the reference to “an adverse effect” in the Bill allows the committee to consider whether the positive experiences of an animal have been restricted.

We consider that the committee is already able to express its views on the ways in which a policy decision may not be able to maximise the welfare needs of animals, and that it may set out missed opportunities to make positive improvements to animal welfare. This is outlined in the draft terms of reference. Furthermore, I assure my noble friend that the Bill does not change existing law on pest control or impose any new restrictions on individuals or businesses.

I turn to Amendment 32 in the name of my noble friend Lord Howard of Rising, concerning the Bill’s scope with respect to the devolved Administrations. The committee will select policy decisions made by the UK Government on which it can issue reports. This will cover all matters that do not fall within the legislative competence of the devolved Administrations. As animal welfare policy is a devolved issue, it is a matter for the devolved Administrations as to how they wish to recognise and consider animal sentience when formulating and implementing devolved policies. It would be inappropriate for their Ministers to be held to account to the UK Parliament on matters that fall within their legislative competence.

Scotland has already used secondary legislation to establish an advisory body, the Scottish Animal Welfare Commission, which advises its Government on those policy areas for which they are responsible. The commission has been asked to consider how the welfare needs of sentient animals are being met by policies of the Scottish Government. The Senedd and the Northern Ireland Assembly are free to introduce their own legislation, should they wish. In addition, the Welsh Government have powers to set up a committee through secondary legislation if they wish to.

Amendment 38 in the name of the noble Baroness, Lady Hayman of Ullock, would require the animal sentience committee to publish an annual report. We wish to ensure that the committee is as effective as possible in undertaking its role. Reports issued by the committee will be made available on its public website. Ministers will be required to prepare a written response to these reports for Parliament, which will create opportunity to hold Ministers to account. This process will provide a great deal of transparency about the committee’s work and the policies it has chosen to consider. Further transparency will be provided through the Freedom of Information Act and the Public Records Act.

We will conduct regular performance reviews of the committee to ensure that it is fulfilling its purpose. However, we would not want to commit to an onerous annual reporting process for the committee in statute. This could take resources away from the committee’s primary scrutiny role. Ministers are required to lay timely written responses to every committee report before Parliament. This means that Parliament will be well aware of what the committee has been working on.

Finally, government Amendment 36 is a technical amendment that clarifies the time limit in which Ministers must respond to reports published by the committee. The Bill requires Ministers to lay a written response to a report before Parliament within three months of the report’s publication. This amendment excludes from that time limit certain periods in which Parliament is not sitting. We wish to make it clear that, in these limited circumstances, a Minister may submit a written response at a more appropriate time. We are committed to Ministers providing timely responses. That is why we want the time limit established by the Bill to be clear. I am indebted to my noble friend Lord Forsyth of Drumlean for raising this issue. While we did not have the opportunity to discuss this amendment in Committee, we have considered his contribution and improved the wording of the Bill.

[Viscount Ridley (Con)]

My Lords, I am obviously a little disappointed that my brilliant suggestion about the Cabinet Office committee has not fallen on more fertile ground. To use an analogy, you would keep a sheep dog in a kennel rather than with the sheep, but I will not pursue that one. I thank noble Lords who have spoken in this short debate and beg leave to withdraw the amendment.

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The Council on Animal Affairs—a precedent body in the Netherlands, similar to the ASC being set up here —has produced some useful reports for its Government, considering new questions around policy and digitalisation in farming and biotechnology in the zoo sector. Both are areas where prior research material was very limited. The ASC should have a similar freedom to apply its core welfare question to policies where its considerations could add value, including areas not previously covered in detail by the scientific community. Again, it is important to stress that the role of the ASC is not to make detailed policy proposals but to draw attention to areas where the Government may wish to develop them.

[Lord Benyon (Con)]

My Lords, it has been a fascinating debate. I do not want to detain the House, but I was very entertained by my noble friend Lord Moylan’s trips down the gradations of sentience that might exist across the animal kingdom. I was trying to work out whether he was a follower of Aristotle—who believed that animals lacked rational souls and therefore were outside the sphere of justice—or whether he was Descartian or Rousseauan in his view. I do not want to go into a philosophical—

[Lord Moylan (Con)]

It may help my noble friend—seeing as he was so kind as to ask the question, I am sure he will be interested in the answer—to know that I stand on every occasion with Aristotle on this, as on so many other matters. I just want that to be clear.

[Lord Benyon (Con)]

That is good to know. I am very grateful. However, I differ from him entirely if he thinks—which I do not think he really does—that the Government, of whom I am proud to be part, would engage with any form of ropey bunch of scientists. In fact we will come on to talk about, as the noble Baroness, Lady Hayman, said, the degree of scientific breadth that went into the 300 different pieces of work studied by the London School of Economics in its reports on decapods and cephalopods. It is an indication of the expertise that exists out there.

I think my noble friend Lord Hannan has the advantage on me in that he believes that legislators do not need experts. I may have misunderstood him, but as I gaze around this Chamber I see precious few scientists, with one notable exception. There may be more—of course, there is the noble Lord, Lord Trees.

[Lord Robathan (Con)]

Excuse me!

[Lord Benyon (Con)]

No, I do not include the noble Lord, Lord Robathan. Both Houses lack the kind of expert rigour that we need in decision-making. I thank my noble friend Lord Moylan for his Amendments 23 and 35 concerning the academic rigour of the committee. We will ensure that the animal sentience committee is comprised of members with the right expertise. They will be best placed to decide what the committee’s priorities should be and, in doing so, they can consult others. I reassure my noble friend that the annual work plan of the committee will be made publicly available. This will ensure that its priorities and approach are fully transparent. As the draft terms of reference for the committee show, we fully intend to appoint members through a rigorous procedure of fair and open competition.

Of course, peer-reviewed evidence from academic journals has a role in informing the committee’s work. However, I do not believe it is necessary for the committee’s reports themselves to be published in academic journals. It is critical that the committee should be able to advise in a timely way—this is the key point—on policies that are being developed. To require the committee’s recommendations to undergo the full academic peer-review process would cause considerable delays in enabling Parliament to hold government to account. This amendment would severely compromise its role. I hope with those few words I have reassured my noble friend, and he will be content to withdraw his amendment.

[The Earl of Caithness (Con)]

Before my noble friend sits down, although he says he does not want the committee’s work to be peer-reviewed, does he still abide by what he said in Hansard on 25 May when he was talking about pollinators? He said:

“It is right to use science as the absolute arbiter in this.”—[Official Report, 25/5/21; col. 891.]


Is science going to be the absolute arbiter for this committee?

[Lord Benyon (Con)]

I hope I can reassure my noble friend that science and good scientific evidence is at the heart of decision-making and that is why we need the right advice for Ministers—so, yes. However, his experience and mine will have been that one can get conflicting scientific advice, so one needs to choose scientific experts with care and make sure that they give clear, unbiased opinions to Ministers and that their information can make better policy. Therefore, scientific evidence will be at the heart of this and we will follow it in the selection of committee members.

[Lord Hamilton of Epsom (Con)]

Before my noble friend sits down, does he think that Mrs Carrie Johnson has the expertise and rigour to be on the animal sentience committee?

[Lord Benyon (Con)]

I will make sure that every single person who applies for the committee has the necessary expertise, whatever background they come from. We will be looking for a range of people, from those with agricultural experience, those with experience of animals at the end of life in the slaughter process, and veterinarians. I made a list earlier; I will not repeat it because there were some long words which I cannot remember, but they will undoubtedly be a factor in deciding who will be members of the committee.

[Lord Moylan (Con)]

My Lords, it is a great disappointment that my noble friend has not conceded the very sensible proposal I made. It was unsurprising, however. What did surprise me were the remarks from the Opposition Dispatch Box. A more thorough-going endorsement of government policy better presented it is rare to imagine coming across. The idea that the Government never take scientific advice that needs to be checked or disputed and that they would never take dodgy scientific advice, now endorsed by the Labour Front Bench, is one I will cherish and store up for reference, no doubt, on some future occasion. However, for the moment, I beg leave to withdraw my amendment.

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[Baroness Hayman of Ullock (Lab)]

I thank the noble Lord, Lord Teverson, for making that point, which is incredibly important, particularly to me, as someone who lives in Cumbria, where we have so many problems with tree diseases and are losing so many trees. It is pitiful watching some of the woods being taken down around places such as Ennerdale and Loweswater.

Coming back to Amendment 28 in the name of the noble Earl, Lord Caithness, he is right that we do need to look out for any unintended consequences of legislation. There are concerns that there may be an adverse impact on the environment. It is important that the Minister is able to reassure noble Lords that there will not be these outcomes from the Bill being enacted. This brings me back to the points we made earlier about how critical it is that the animal sentience committee has the right members who are highly qualified to advise the Secretary of State on these matters when any proposals are put forward.

Looking at Amendment 29, in the name of the noble Lord, Lord Pearson of Rannoch, I say that it is not necessarily unfortunate to be stuck in Scotland at the moment; I might like to be joining him there. There was a debate on the Environment Bill about lead shot, and I will be interested to look at government progress on this.

The noble Earl, Lord Caithness, introduced Amendment 31 on electric dog training collars. These are opposed by the RSPCA, the Kennel Club, the Animal Behaviour and Training Council and the British Veterinary Association. I am aware that the Government have previously announced plans to look at banning shock collars on dogs, and on this side of the House we would support the Government if they wanted to go down that route.

The final amendment, Amendment 45, was introduced by my noble friend Lady Mallalieu. I thank her for it and I look forward to hearing the Minister’s responses to her concerns.

[Lord Benyon (Con)]

I am grateful to noble Lords for the opportunity to discuss and explain the interaction of the Bill, and the animal sentience committee, with important policy matters related to animal welfare.

Turning to Amendment 28, in the name of my noble friend Lord Caithness, I can only apologise to him that I do not have a response at present to his point on New Zealand. I want to make sure I get it right, because I do not want to be criticised on the Floor of the House for replying to him late or giving him the wrong answer to a question—but I will reply to him.

This amendment would require the animal sentience committee to ensure that its recommendations would not have a detrimental impact on certain other matters of public interest and great importance. I agree with my noble friend that these vital matters of public interest should be properly considered in all relevant government decisions. But the animal sentience committee is not a decision-making body, and the committee will not have the kind of expertise to evaluate these kinds of impacts. I do not think it would be fruitful to impose this requirement on the committee itself.

Ministers should consider the full range of relevant factors and arrive at a decision as to the appropriate balance between them, for which they are accountable to Parliament. I fear that this amendment would mean asking a committee, which is not accountable to Parliament in the same manner, to prejudge this balance.

We should also be careful to task the right experts with particular scrutiny and advisory functions. The right people to comment on a policy’s effect on human health, for example, are doctors and medical scientists, rather than animal welfare experts. I would not ask doctors to provide an expert opinion on animal welfare issues. Ultimately, we must allow specialist expert committees to focus on their own particular remit. For these reasons, I believe there are better means to ensure that the important matters my noble friend raises are given fair consideration in policy decision-making.

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Moved by

[Lord Benyon]

36: Clause 3, page 2, line 21, at end insert—
“(3) The following do not count towards the three months referred to in subsection (2)—(a) any day in a period during which Parliament is dissolved or prorogued, and(b) any day in a period of four or more days during which both Houses of Parliament are adjourned.”Member’s explanatory statement
This amendment has the effect that periods when Parliament is dissolved, prorogued or adjourned for 4 or more days do not count towards the period in which the Minister is required to respond to a report by the Committee.

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Moved by

[Lord Benyon]

39: Clause 5, page 2, line 32, at end insert—
“(b) any cephalopod mollusc, and(c) any decapod crustacean.”Member’s explanatory statement
This amendment adds cephalopod molluscs (for example, octopus and squid) and decapod crustaceans (for example, crab and lobster) to the definition of “animal” for the purposes of the Bill.

[Lord Benyon (Con)]

I am grateful to your Lordships for your forbearance, and for your views and insights on this important piece of legislation. I will also speak to the consequential Amendment 43.

As I have said during previous debates on the Bill, the Government’s approach to recognising the sentience of animals will be guided by the scientific evidence. My department commissioned an independent review from the London School of Economics and Political Science of the evidence surrounding the sentience of cephalopod molluscs and decapod crustaceans for that very purpose. As promised, I made the findings of that review available to your Lordships for consideration ahead of today’s debate.

Sentience is broadly understood to be the capacity to feel pain. Our Animal Welfare Committee advised in 2018:

“Sentience is the capacity to experience pain, distress and harm.”


The review considered the findings of around 300 scientific studies, using a set of criteria based on brain structure, nervous system complexity and testing for adaptive behaviour to assess whether these classes of invertebrate are sentient. The report itself was subject to peer review.

The Government have given careful consideration to the contents of the final report. We accept that there is strong evidence of the sentience of these invertebrates. It is only right, therefore, that they are included in the provisions of the Bill. That means that the animal sentience committee, once established, may produce reports under Section 2 of the Bill in relation to the welfare of cephalopod molluscs and decapod crustaceans.

However, I want to be clear that this amendment does not alter existing legislation or policy. I have heard, for example, the concerns put to me by representatives of the fishing sector, and I can assure this House that nothing in this amendment, or indeed in the Bill, changes the rules governing the activities of individuals or businesses.

Naturally, in due course, the Government may wish to consider whether it would be appropriate to amend the scope of other animal welfare legislation to include cephalopod molluscs and decapod crustaceans. While that is not the question we are discussing today, I take the opportunity to assure your Lordships that any changes to existing laws would be subject to appropriate parliamentary scrutiny, and we would consider carefully how we would engage industry in their development.

Today, we propose simply to recognise the sentience of these invertebrates in line with the scientific evidence. I am grateful to the noble Baronesses, Lady Hayman of Ullock, Lady Bakewell of Hardington Mandeville, Lady Jones of Moulsecoomb and my noble friends Lady Fookes and Lord Randall of Uxbridge, for their previous amendments on this subject. I hope that they, and the rest of the House, will support this amendment. I beg to move.

[Lord Moylan (Con)]

My Lords, it is with some regret that I note that my noble friend at the Dispatch Box did not thank me for my previous amendment on this subject. I accepted as far back as Committee that it was likely that cephalopods and decapod crustaceans would be added to the list of sentient beings covered by the Bill, although I did not expect it to be done in the Bill but through the secondary legislation which it contemplates.

I introduced an amendment in Committee that said, beyond vertebrates, the Government can only add, to the list of sentient beings, cephalopods and decapod crustaceans and no more. This was countered, so to speak, by the noble Baroness, Lady Hayman of Ullock, who put down an amendment that actually added those two classes of creature to the face of the Bill. Neither amendment, of course, proceeded at Committee stage. I find it rather sad and curious that, of those two amendments, my noble friend at the Dispatch Box selected that promoted by the noble Baroness, Lady Hayman of Ullock, and has rather ignored mine.

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[Baroness Hayman of Ullock (Lab)]

Noble Lords will not be surprised that I am absolutely delighted that the Government have tabled Amendment 39, which, as we have heard, has picked up the amendment I tabled in Committee and expands the definition of animals in the Bill to include decapod crustaceans and cephalopods.

It has also been good to hear support from some noble Lords, although I am sorry that it seems to have made the noble Lord, Lord Moylan, so sad. As the Minister said in his introduction, this amendment follows the London School of Economics and Political Science’s report, which concluded that there is strong scientific evidence that decapod crustaceans are sentient and can experience pain. I will not go into the detail of the report because the Minister has done that admirably, but I draw attention to the overarching central recommendation that all cephalopod molluscs and decapod crustaceans should be regarded as sentient animals for the purposes of UK animal welfare law; they should be counted as animals for the purposes of the Animal Welfare Act 2006 and should be included in the scope of any future legislation relating to animal sentience. To be honest, that could not be clearer. The LSE is a well-respected organisation.

The report also provides some helpful recommend-ations for improving best practice and welfare and for regulating existing commercial practices that are of reasonable and widespread animal welfare concern for decapod crustaceans. In addition, it is consistent with the approach other countries have taken, for example, Austria, Switzerland, Norway, New Zealand, some Australian states and territories and some German and Italian cities. Importantly, the report also includes recommendations about how industry can be supported through any necessary changes. Will the Minister confirm that marine industries and the food sector will have advice and help to manage any impact that a change in legislation would bring?

I want to say once again a big thank you to the Minister and the Government for taking this forward and proposing its inclusion in the Bill. I am sure he is very aware that he has the strong support of these Benches.

[Lord Benyon (Con)]

I am grateful to the noble Baroness for those remarks. I think it might be helpful to the House if I say how this came about, as it answers the points about how we got to the stage of including decapods and cephalopods in the Bill. It is a matter of serendipity. For many years people have been pushing for work to be done, and it was done by the LSE. It just so happened that that report came into the Government’s hands over the summer while we were in the process of going through the Committee stage, and it seemed an obvious moment to take this forward when the findings of that report were so clear.

To cheer up my noble friend Lord Hamilton a bit at this late hour, I cannot think of any other species that are likely to go through this process. If there are any, I suggest that it will probably be at least a decade before someone is standing here recommending that we take that forward. It may be less; this is a fast-moving area of science, but it has taken many years—I do not know how many precisely—for decapods and cephalopods to be recognised in this way. I hope that is reassuring.

The noble Baroness asked a question about the food industry and making sure that, if the committee were to make recommendations about how one treats these organisms as part of food processing or cooking and the law is then changed because Ministers accepted that advice, there would have to be a huge amount of work with the food industry to make sure that it was prepared for it. However, this amendment does not change anything. It does not change the law; it just allows it to be within the remit of the committee to give advice to Ministers who will then take other factors into account, regarding, for example, the marine environment, fish, the economic benefits of the fishing industry to coastal communities or the importance that the Government put on fish being part of the nation’s balanced diet. These are the sort of wider factors that Governments will take into consideration.

I am sorry that my noble friend Lord Moylan feels put upon. I thought that I was the victim here, but clearly that is not the case. I will try to be kind to him when I come to his amendment.

I turn to Amendment 41, and here my remarks relate to the point made by the noble Lord, Lord Trees. The Animal Welfare (Sentience) Bill recognises that live animals with a backbone—vertebrates—are sentient. A government amendment has been tabled to also recognise decapod crustaceans and cephalopod molluscs as sentient, as I have said. It is our intention and expectation that the committee will concern itself with consideration of the welfare of live animals. In practice, it would be difficult for the committee and government departments to identify the way in which a policy under consideration affects the welfare needs of a foetus or an embryo, as opposed to those of the mother animal. It is unlikely, therefore, that the committee would find itself considering a policy beyond its remit. The central recommendation in the report is that these cephalopods and decapods will be regarded as sentient animals, but we carefully considered the recommendations in the review. The evidence of sentient decapods and cephalopods is clear: we are committed to being led by science when it comes to sentience, and that is why we amended the Bill.

Turning to Amendment 42 in the name of my noble friend Lord Moylan, as I mentioned, the Government are led by the science when it comes to sentience. We have considered the review’s findings carefully before amending the Bill to recognise these invertebrates as sentient. I can confirm that, at the present time, there is no intention to treat any other invertebrates, beyond decapods and cephalopods, as sentient animals. The scientific evidence that led to the Government commissioning the LSE review has been many years in the making. I can assure the House that this will continue to be the case for future extension, using the delegated powers in Clause 5.

[Lord Moylan (Con)]

I note what my noble friend says about there being no plans—and I fully accept that that is so, as he has assured the House—but if there are no plans, why do the Government wish to take the powers to continue to pursue them? Would it not be better if the Minister would just accept that primary legislation will be required as and when the science demands it?

[Lord Benyon (Con)]

I hope I can reassure my noble friend by saying that if the Secretary of State were to use his or her powers to recommend another species or group of species to be included, that would be the subject of parliamentary oversight. It would be an affirmative resolution requiring debate in both Houses and would be subject to other areas of parliamentary scrutiny, such as Select Committees and other means by which noble Lords and people in the other place would seek to hold that decision to account. I hope that we would not wish to risk this Bill becoming out of date by removing the ability to update its scope should the scientific evidence develop.

While we are not aware of any instances on the horizon, we cannot discount the possibility that new evidence will emerge in the future that demonstrates the sentience of some additional category of invertebrate. Decapods and cephalopods were the invertebrates most likely to qualify for being regarded as sentient animals. The likelihood that another category of invertebrate might one day be shown to be sentient is small, but it is not zero. That is why we wish to leave an option to update the definition if needed. Such a power must be subject to appropriate checks and balances, of course, and I will address this point shortly.

In the meantime, I take this opportunity to clarify that the Bill is all about government policy decision-making and how well particular decisions take account of the welfare needs of animals. The Bill and our amendments do not change existing law or impose new restrictions on individuals or businesses. I hope that your Lordships will agree that the time has come to include decapod crustaceans and cephalopods in the Bill and will therefore support the government amendment. I also hope that the points I have set out reassure noble Lords and that they will be content not to press their amendments. I beg to move.

Amendment 39 agreed.

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Moved by

[Lord Benyon]

43: Clause 5, page 2, line 35, at end insert “, where they are not already within that meaning”
Member’s explanatory statement
This amendment is consequential on Lord Benyon’s first amendment to Clause 5.

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[Lord Benyon (Con)]

I am very grateful to the noble Baroness, and I congratulate her on hers, too—and I thank her for her help in making this Bill better, although we have more to do. I join in the praise of my noble friend Lord Caithness. In my short time in this House he has proved himself to be a redoubtable holder of the Executive to account, if that is not a tautology.

He calls this the “lifebelt amendment” but I call it the “committee on the committee amendment”. I thank him, but it would require the establishment of a committee to assess the impacts of the Bill after it had received Royal Assent but before its provisions came into force. We believe that it is for Parliament to satisfy itself about the impacts of the proposed legislation before it approves it, and not to pass legislation on the proviso that it goes through further approval before coming into force.

The Bill has been subject to exacting scrutiny in this House. It has been scrutinised by the EFRA Select Committee, and there has been no absence of scrutiny of the Bill and its implications. My officials and I remain ready to answer any questions that noble Lords may have about the Bill. Parliament remains free to seek the views of outside experts on any aspect of the Bill. I have been clear throughout its passage what the implications of the Bill are; it does not change existing law or impose new restrictions on individuals, businesses or any organisation outside the UK Government. It will establish the committee, on the purpose, structure and membership of which I have spoken today at length. I give absolute assurance that Ministers will continue to have full discretion and responsibility as to the appropriate balance between animal welfare and other matters of public interest.

I hope that I have been able to reassure my noble friend and that he will feel able to withdraw his amendment.