Safety of Rwanda (Asylum and Immigration) Bill

Lord Bishop of Bristol Excerpts

Committee stage
Wednesday 14th February 2024 Lords Chamber

My second point is a question to the Minister and the noble Lord, Lord Scriven. I support Amendments 23 and 47, and I am sure it is right that we should exempt from transportation to Africa unaccompanied children, victims of human trafficking and victims of modern slavery, but I wonder whether a fourth category should not also be there: what about citizens of Rwanda? My question to the Minister is: am I correct in thinking that, under the Illegal Migration Act 2023, any Rwandan who arrives in this country by irregular means is automatically inadmissible for asylum and that, when the Bill we are debating becomes an Act, they will be liable for transportation to Rwanda? In that situation, when a Rwandan is sent by us to Rwanda, whatever we have achieved in improving the Rwandan asylum system through our treaty is irrelevant. If one is old enough, one remembers the tragic case of Chief Enahoro in Nigeria. I am not sure that anybody else in this Chamber is old enough to remember the case, so they should look it up. It is a very sad case. If we find ourselves with a law on our statute book which means that we send Rwandans who sought asylum here back to Rwanda, we ought to be ashamed of ourselves.

[The Lord Bishop of Bristol]

My Lords, I am grateful to all those supporting Amendment 75 and for the speeches on it. I am further grateful to the noble Lords, Lord Kerr and Lord Alton, and the noble Baroness, Lady Chakrabarti—they are all helping us to delve deeper into the legal and moral issues in these amendments. I am particularly grateful to the noble and learned Baroness, Lady Butler-Sloss, who has set out her Amendments 70, 73 and 85, to which I have subscribed my name.

This issue is close to my heart, as I speak on behalf of the Church of England on human trafficking and modern slavery issues. I do so from the city of Bristol, with its history of slavery and its current commitment to prevent human trafficking and slavery, including domestically—we train our lay officers to spot the signs of those hiding in plain sight—and to provide refuge for those on their journey through the NRM. I was also particularly grateful to the noble Lord, Lord Deben: I think that I will miss church downstairs, so I am grateful that he has brought church upstairs in his Ash Wednesday words to us about the deep moral issues in our debate today.

I am concerned by the response from the noble Lord, Lord Horam, about drawing the terms of the Bill very tightly. It seems to me that the terms include those who are already victims of crime through human trafficking. This is the nub of my argument: surely it is right to prevent and minimise further risks to people who have already been victims of a crime, as we are obliged to do under national and international law; hence Amendment 70, which would mean that nobody who is thought to be a victim of modern slavery could, as we have heard, be removed to Rwanda, at least before a conclusive decision is made on their case or without assessing what it means for their safety. Such consideration for victims is the least that we can do.

Since the start of 2022, more than 4,000 people who arrived on small boats have entered the national referral mechanism for modern slavery. Under the current proposals, they are both suspected victims of crime and eligible for removal to Rwanda. They may well have been trafficked here against their will, as we have heard, and they are now facing further jeopardy. We need to ensure that this jeopardy is removed, as far as we possibly can. The UK has had until now a world-leading referral system for victims of modern slavery. It is something of which we can be rightly proud. I am concerned, as are others, that the Bill, compounding other recent legislation, puts that world-leading status at risk. Not only are survivors of modern slavery victims of a terrible and traumatic crime but they will now be removed to another country altogether, re-transported to a country which will not, in all probability, treat them well—because the legislation and the treaty do not address concerns that we have heard about today or the concerns of the Global Slavery Index; namely, that the Rwanda Government’s approach to this issue will put those transported there at risk.

Amendments 70, 73 and 85 ensure greater transparency as this legislation is implemented. The amendments mean that we would have a better understanding of the picture of modern slavery as the Bill and treaty are put into effect. As currently drafted, the Bill will have a potentially devastating impact on survivors of modern slavery and our nation’s ability to tackle this crime. Ensuring that the implications of the Bill for victims of modern slavery are subject to ongoing monitoring is the least that we can do. The UK has a strong national referral mechanism but without proper monitoring and transparency worked into the Bill we risk entrenching vulnerabilities and pushing victims back into their original abusers’ hands.

Modern slavery and human trafficking are terrible crimes which represent a traumatic experience. If we are committed to tackling them, monitoring the implications of the Bill for the victims will be fundamental to an ongoing response.

[Lord Randall of Uxbridge (Con)]

My Lords, I apologise to the Committee for not being present at Second Reading. I am afraid that my health has not been great, and I was a bit worried about my blood pressure—which might have been accentuated by listening to the debate. I declare an interest as the chair of the Human Trafficking Foundation.

I have added my name to Amendment 70, tabled by the noble and learned Baroness, Lady Butler-Sloss. I do not need to say much because the speeches have been wonderful, except to make a plea to my noble friend the Minister regarding Amendment 75. I have always been proud of this country. However, many have put their lives at risk, and many have suffered the ultimate sacrifice. If we reject looking after them, if we do not allow them this, I am afraid that I will not be so proud of this country or of the party that I am in.

I make a further plea to the Minister and my noble friends. I understand entirely the concern regarding migration. It is happening all over the world—illegal crossings, the small boats and so forth. I understand that but let us not just be so dogmatic that we have not an inch of humanity.

I said that I was the chairman of the Human Trafficking Foundation, which I am delighted to be. I started off in the other place, listening to my old colleague Anthony Steen, who was passionate about this; listening to him, I realised what the victims go through. Subsequently, I have been lucky, or unlucky, enough to meet many of these victims. It is not a hypothetical thing. Yes, there are some abuses, but how many of those are really abuses? We must not think —I speak particularly to our own Benches—that everybody who claims that they are a victim of modern slavery or human trafficking is trying to get an easy ticket into this country. It is heartbreaking to see those people and listen to their stories.

I tried this with my noble friend who previously held the position; I pestered him about trying to meet some victims. He was lucky enough to return to the Back Benches before I could implement that request. But I say to my noble friend the Minister, and we have heard it from the noble Lord, Lord Alton, that he has a great deal of humanity. We cannot not make exceptions. As the noble and gallant Lord, Lord Stirrup, said with regard to people who have served the Crown, there is another thing with regards to victims of modern slavery, which the noble and learned Baroness, Lady Butler-Sloss, touched on—that is, prosecutions. If we deport somebody to Rwanda while we are trying to have criminal cases, unless my noble friend assures me otherwise, we are not going to get the evidence to put those modern slavers away. I urge my colleagues, my noble friends, not to be so dogmatic about this. There must be some exceptions. We must show humanity if we can call ourselves British.

--- Later in debate ---

[Lord Clarke of Nottingham (Con)]

My Lords, I support these amendments, which seem to me to go to the heart of the most extraordinary feature of this Bill. It is essentially intended to reverse a legal defeat the Government suffered in the British Supreme Court on a matter of law. Five Supreme Court judges listened to the evidence and decided as a matter of fact that Rwanda is not, at the moment, a safe country for the purposes we are discussing.

The Government have reacted to that judgment in a way no other disappointed litigant could possibly have contemplated. They have decided to invoke the sovereignty of Parliament and to ask both Houses to pass legislation that declares that the facts are indeed contrary to those which the Supreme Court declared to be the factual situation. The facts are to be regarded as the facts the Government state for the indefinite future, whatever happens from now on, unless or until this legislation is amended or repealed—if it ever is. I spoke at Second Reading, so I will not repeat all the arguments I made then, but I continue to be completely flabbergasted by the constitutional implications of the Government acting in this way.

Has the Minister been able to find any precedent for this occurring? Have any Government in a similar situation ever decided to reverse any legal defeat by just passing legislation saying, “The facts are what we say they are, not the facts the Supreme Court has found on the evidence”? I think it unlikely. For that reason, it is an extremely dangerous precedent. For that reason, I very much hope that there will be a legal challenge that will enable the Supreme Court to strike it down as unconstitutional in due course. But the better step would be for Parliament not to pass the legislation in the first place.

Finally, the most striking feature is that the legislation declares the facts to be the facts from now on, so long as it remains on the statute book, regardless of future events. Let us say that a situation arises which I very much hope does not, given that the Rwandan Government are one of the more attractive, by comparison, of African Governments. But say a coup were to occur in Rwanda and the present, fairly benign dictator were to be replaced by a much more malign dictator. What the Government are asking us to declare is that the courts can be told that Rwanda remains a safe country and they are not to entertain credible evidence that events in Rwanda have occurred which change that situation. It is being laid down as a matter of law for the indefinite future, regardless of whatever startling further facts might emerge which someone might put before a court. I find that completely preposterous. I very much hope that we would never elect a British Government who would be so outrageous as to proceed in those circumstances, but that is the legal position this House is being asked to endorse.

I find it incredible that anyone can really expect a British Parliament, in 2024, to pass legislation of this kind. I ask the Minister to reconsider and to let us know whether the rule of law, the admission of evidence and the consideration of that evidence by British judges might be allowed to function in its normal way, and whether the Government are prepared to reconsider at least the wording and the detail, particularly of Clause 2 of the Bill they have put before us.

[The Lord Bishop of Bristol]

My Lords, my right reverend friend the Bishop of Manchester regrets that he cannot be here today to speak to Amendments 19, 21, 25 and 28 in the name of the noble Lord, Lord Carlile of Berriew, to which he has added his name. I am grateful to the noble Lord, Lord Anderson of Ipswich, for setting out the case clearly, and I am particularly grateful to follow the noble Lord, Lord Clarke of Nottingham, as he has made the case so powerfully.

My right reverend friend and I are concerned, not as lawyers but as citizens, about the constitutional precedent the Bill sets. The role of the judiciary as distinct from the Government and Parliament must not be infringed. Parliament creates laws but judges and juries are responsible for the finding of facts. Where the Supreme Court has ruled that Rwanda is not safe, it is an abuse of Parliament’s powers, as we have just heard, for it to attempt to declare otherwise. We are concerned that the Bill represents a dangerous step. The amendments in the name of the noble Lord, Lord Carlile, therefore attempt to preserve the important principle that facts should be considered by the courts. We must surely be able to take into account credible evidence that Rwanda is not a safe country.

It is not unreasonable to consider, as we have just heard, that the situation on the ground in Rwanda might suddenly change, even if the treaty is properly put into effect to take into account the Supreme Court’s concerns. It is surely right that such a change could be considered in law. Not only is this a vital safeguard for potentially vulnerable people at risk of being sent to Rwanda; it is a vital safeguard for our democracy itself. We must be able to take credible evidence into account when managing any policy, be it on Rwanda or anything else, and we must not be in the habit of setting aside court verdicts we do not like by bringing forward legislation.

My right reverend friend the Bishop of Manchester has also added his name to the proposition put forward by the noble Viscount, Lord Hailsham, that Clause 2 should not stand part of the Bill. Removing this clause would remove the requirement that all decision-makers must treat Rwanda as a safe country. The amendments to which I have already spoken try to mitigate the implications of legislating that a country is safe ad infinitum, but in truth the courts, immigration officers and tribunals need the capacity to consider the facts about whether Rwanda is a safe country in general. Removing the clause altogether is the best way to do this and to maintain independent judicial oversight. My right reverend friend and I agree that this principle is fundamental to the rule of law and access to justice.

Safety of Rwanda (Asylum and Immigration) Bill

Lord Bishop of Bristol Excerpts

Consideration of Commons amendments
Tuesday 16th April 2024 Lords Chamber

[Lord German (LD)]

My Lords, I draw attention to my interests. I am supported by the RAMP project. I looked carefully at the House of Commons Hansard report about this first amendment, moved by the noble Lord, Lord Coaker, looking for some rationale as to why the Government would not accept it. It was a single sentence, in which the Government said:

“We have a long-standing tradition of ensuring that rights and liberties are protected domestically and of fulfilling our international obligations”.—[Official Report, Commons, 15/4/24; cols. 80-81.]


On the basis of that sentence, they rejected the amendment that this House passed about seeking to observe national and international law. If that sentence stands on its own, and that is the only reason why we are being asked to change our minds, what dangers, exposures or difficulties do the Government believe are in the amendment—which is even more restrictive and tightly specified than the last—that stand in the way of anything they wish to do? Why can they not simply accept it?

If the concern is the ECHR, I am sure the Government will have seen that the threshold for granting interim injunctions has been considerably raised to a level described by former Justice Secretary Robert Buckland last night as

“vanishingly small—in fact, non-existent”.—[Official Report, Commons, 15/4/24; col. 99.]

So why do the Government not accept the amendment? We will certainly support it.

We will also support the other amendment. That one does the job of dealing with part of the problem that people have seen with the Bill, which is that it changes the balance in our country between our judiciary and the Executive. That balance is what we are trying to maintain, even in the very limited circumstances. This does not take away from our belief on these Benches that the Bill is entirely wrong, cruel and inhumane and will not work, which is clearly demonstrated by the numbers we have seen so far. It seems to us that the Government have no rationale, and have not given one, for refusing these amendments.

[The Lord Bishop of Bristol]

My Lords, I welcome the amendment from the noble Lord, Lord Coaker, particularly the detail of the inclusion in it of the Modern Slavery Act 2015; it is a detail except for those who have been, or may well have been, trafficked. There are as many as 4,000 people in the national referral mechanism whose cases are currently to be determined. That is absolutely right and proper under current legislation, and that legislation should be taken into account as part of the implementation of this Bill.

The Modern Slavery Act is a world-beating piece of legislation that we disregard at our peril, yet it is being undermined in many changes to other legislation. In this case, there will be not only a negative impact on victim care but significant law enforcement issues in not paying due regard to the Act. Not identifying victims, or sending them to another country before their claim has been properly assessed, will set back our efforts to bring the perpetrators of modern slavery to justice. Victims are often the only witnesses to this crime, so perpetrators will be more likely to escape detection and conviction.

The amendment that the Government have brought forward on a report on modern slavery to be made to Parliament is a concession that I hope will make it easier for Members of both Houses to scrutinise the effects of this legislation on some of the most marginalised people in our society, but it does not go far enough. There must be a general exemption for people who are suspected or confirmed victims of modern slavery. That is the very least we should do for survivors of a terrible crime. I am grateful for the amendment from the noble Lord, Lord Coaker.

[Lord Stewart of Dirleton (Con)]

My Lords, I am grateful for noble Lords’ contributions. I have no doubt that they are inspired by appropriate feelings of concern for people caught up in, as the right reverend Prelate the Bishop of Bristol mentioned to us a moment ago, the disgraceful practice of modern slavery.