Northern Ireland (Executive Formation) Bill

Debate between Lord Bruce of Bennachie and Baroness Smith of Basildon

Report stage (Hansard): House of Lords
Wednesday 17th July 2019 Lords Chamber

[Lord Bruce of Bennachie]

My Lords, this is a conscience issue and a sensitive one and, certainly on these Benches, it is a matter for a free vote. Nevertheless, we are also faced with the fact, as the noble Baroness just said, this is not necessarily the ideal way to legislate on this issue. But we are not in an ideal situation: we have no Assembly, we have growing pressures for change, and we have the view of the House of Commons, which wants change. Therefore, effectively, these amendments are trying at least to move forward to implement the will to address the issue.

When one looks at the statistics of 12 abortions being allowed in Northern Ireland and more than 1,000 women travelling out, it is patently clear that there is an imbalance that needs to be considered, at the very least. It is not just the conscience issue; we are facing the basis of a probable human rights issue. We have had the guidance of our own Supreme Court that we could be in breach of the European convention, and there is a case that we are awaiting a judgment on, which might confirm that fact. As I have said on a number of occasions, if that is the case, the United Kingdom Government and Parliament will be obliged to ensure that we comply with the European Convention on Human Rights. It would of course be much better if it were done in a way that is managed by the elected representatives in Northern Ireland—that would be the preferred way to do it.

Finally, on the idea that those Members should be consulted individually, it seems that the best way to consult the Members of the Northern Ireland Assembly is for them to convene the Assembly and consult themselves. If that was the case, we would not have to continue with these amendments at all.

[Baroness Smith of Basildon]

My Lords, the noble Lord ends on a note I would have started on. I think all noble Lords would far rather these decisions were taken in the Northern Ireland Assembly. Many of us, over many years, have supported devolution and campaigned for it, and some of us have been direct rule Ministers working towards establishing the institutions. The noble Lord strayed into another debate later when he talks about Amendment 16, which is not in this group. On that issue, the best way to consult Members of the Legislative Assembly is for them to sit and conduct their business so that they can take these decisions.

I shall pick up a couple of points from the debate. One was the issue of these amendments not being in scope. I have to say that my experience of the Table Office and the clerks of your Lordships’ House is that they are sometimes infuriatingly proper. I can think of many a discussion that my team and I have had where we insisted that something was in scope, but there was no way the clerks would shift if they said it was out of scope. I therefore urge your Lordships’ House to recognise that if we have an amendment before us, it is because it is in scope.

Perhaps I can help the noble Lord, Lord McCrea, on a point he raised earlier from my own experience as a Minister. He was slightly suspicious of the Minister—

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[Lord Bruce of Bennachie]

My Lords, the noble Baroness, Lady O’Loan, in introducing this amendment acknowledged that it is effectively an amendment to the previous amendment that was carried. She also gave some anecdotes about people who were told to have an abortion. I do not believe that anybody in this House believes people should be told to have an abortion or that there are practitioners who would do that. We are talking about the right to choose on the basis of evidence. Indeed, we could have other stories of the consequences for some women denied abortions and the suffering that they have gone through. I do not think trading suffering really adds to the debate. There are fundamental differences of view. I respect that but let us recognise that we will use the arguments to support one side or the other.

What is being asked here is that the Assembly should be consulted. The noble and right reverend Lord, Lord Eames, said that we are talking about the theory of devolution. The problem is that we are not; we are talking about the practice of devolution, which is not being practised in Northern Ireland. Noble Lords from Northern Ireland need to reflect on the fact that the people of Northern Ireland need an Assembly so that devolution can happen. If devolution is not happening, they will have to suffer the debates that they are complaining about now. That is the consequence and the reality of not having devolution.

As the noble Lord, Lord Kerr, said, the previous amendment was about when and how—it was about the timing; it was not about whether it would happen. Amendment 16 is clearly about providing a veto in relation to the previous amendment. Proposed new subsection (3) in the amendment says:

“The second condition is that the relevant regulations under section 9 may only be before Parliament if a majority of the members of the Northern Ireland Assembly support the regulations”.


That is a clear veto. It is possible that a majority of Members would support the regulations, because opinions have shifted. I accept that. However, like the noble Lord, Lord Dubs, I worry that there is something uncomfortable about picking Members off one by one, possibly in a secret consultation as opposed to a plenary Assembly where votes, debates and opinions are discussed and recorded and accounted for in public. If the Assembly Members are to be consulted on these issues, then reconvene the Assembly and they can decide.

[Baroness Smith of Basildon]

My Lords, it has been a long debate and it has ranged rather wide of Amendment 16A. The noble Baroness, Lady O’Loan, said that Amendment 16 was an amendment to Amendment 12, but that is not correct. In fact, Amendment 16 would insert a new clause.

Northern Ireland (Executive Formation) Bill

Debate between Lord Bruce of Bennachie and Baroness Smith of Basildon

3rd reading (Hansard): House of Lords
Wednesday 17th July 2019 Lords Chamber

[Lord Bruce of Bennachie (LD)]

My Lords, very briefly, given the hour, I thank all those who have taken part, especially those who have worked so hard on these critical amendments. It was indeed a mutual process, with the Minister, of getting us to the point where we now have a Bill that looks much more fit for purpose than when it came to us, which is precisely what we are here to do. We must thank the staff for facilitating; we apologise for keeping them all up. We have done a job of work and people can say that the issues have been thoroughly and properly debated. I also reinforce my thanks and appreciation to the Minister for what he has done and the way he does it, which is much appreciated.

[Baroness Smith of Basildon (Lab)]

My Lords, despite the danger of sounding repetitive, I thank the Minister and the noble Baronesses, Lady Barker and Lady Finlay.

This Bill is now in better shape than when it was received from the House of Commons. It has been a fraught process at times. I am not sure whether it is the lateness or the earliness of the hour, but as well as thanking the staff—we ask a lot of our staff to be here at this time of the morning working on these issues and are very grateful for the support that have given us—without the Minister’s conciliatory attitude and his willingness to talk at all times to everybody involved, we would not be at this stage. We are grateful to him and thank him for the work that he has done.

Northern Ireland (Executive Formation) Bill

Debate between Lord Bruce of Bennachie and Baroness Smith of Basildon

Committee: 1st sitting (Hansard): House of Lords
Monday 15th July 2019 Lords Chamber

[Lord Bruce of Bennachie]

My Lords, I welcome this amendment and recognise the activity that the Bishops’ Benches have shown on this issue over the years. I hope they recognise that the Liberal Democrats have also been active on this, with both my noble friend Lord Foster in this House and Ed Davey in the other House putting on pressure to get rid of the £100 limit for fixed-odds betting terminals. It is fair to say that that pressure and the campaign that came with it, despite a number of false starts, has had results. But as the right reverend Prelate made clear, the situation in Northern Ireland is not legally enforceable. Therefore, observing the £2 limit is only voluntary for the industry. It would be beneficial to report that, even if it has in the short run, it should not lapse, but be maintained at that level so that abuses do not take place.

The other issue raised by the right reverend Prelate relates to the advertising of gambling. Nobody is suggesting—yet—that there should be a complete ban on advertising gambling, but the way it is focused should be monitored. One of the most insidious aspects of gambling and its promotion is the way it draws people in and becomes addictive to the point that it destroys lives, not just financially, but emotionally and, as we know, people have literally committed suicide. My noble friends and honourable friends have met too many families of those who have committed suicide. This has reinforced their belief that advertising gambling should be strictly controlled and done in a way as to make it clear what different types of betting, bonuses and gimmicks involve, and how much they could cost and draw people in.

The industry should also fund the help provided to people who become addicted to gambling. If the gambling industry is to have a justifiable existence—killjoys might want to stop it, but that is not necessarily the objective—it has to accept responsibility for the dangers associated with gambling and their consequences, and put resources into helping people who have become addicted. It should also put resources into ensuring that people do not become addicted in the first place, certainly not from the way the industry is promoted.

Given the practicality of the amendment, requiring the Government to report with a view to bringing the laws of Northern Ireland and the rest of the United Kingdom together, I hope that the Minister will be able to accept it. That would be beneficial. It may be perfectly right and proper to say that we can have different laws in different parts of the country—we have had this debate in Scotland as well—but the fundamentals of safe and responsible gambling should be UK-wide. It should be possible at least to establish a practice that applies across the United Kingdom even if there might be slight variations in the law—devolution can allow for that. The fundamental objective should be that gambling is non-addictive and does not draw people into levels of loss that they simply cannot support, leading to tragic consequences.

[Baroness Smith of Basildon]

I support the right reverend Prelates on this issue. This is one of those issues where if the Government were to take some action it might get support from the Assembly—very moderate action is proposed in the amendment. Anyone who has seen late-night or daytime TV will have seen adverts for gambling, aimed particularly at women in many cases, that encourage viewers to roll their winnings and depict all the glorious things that will happen to those who gamble. If there is a gap in legislation or enforcement in Northern Ireland—and I had not realised the extent of the differences until they were explained to us tonight—it is clearly a serious problem and I hope that the Minister will be able to respond positively.

Northern Ireland (Executive Formation) Bill

Debate between Lord Bruce of Bennachie and Baroness Smith of Basildon

Committee: 1st sitting (Hansard - continued): House of Lords
Monday 15th July 2019 Lords Chamber

[Lord Bruce of Bennachie]

My Lords, I welcome the tone of this debate and accept that the main purpose of the amendment is to translate the rules as applied in the rest of the UK to Northern Ireland. To that extent, it is welcome. Indeed, there was strong debate around the idea that there was never any attempt to force anyone to be involved in same-sex marriage or be required to perform or officiate at such a marriage. That was absolutely clear. The law makes that clear and I accept it entirely.

But I have two concerns. I have a slight concern about proposed subsection (1A)(d) in the amendment, which relates to protecting freedom for discussion,

“including urging persons to refrain from marrying a person of the same sex”.

That could become a pressure or indeed the beginnings of trying to convert people away from the idea of same-sex marriages. I draw attention to Schedule 7 to the same-sex marriage Act, which states:

“for the avoidance of doubt, any discussion or criticism of marriage which concerns the sex of the parties to marriage shall not be taken of it felt to be threatening or intended to stir up hatred”.

So it is not in itself an expression of hatred, but it could be in the way that it is applied. I have a slight concern that the amendment is unclear.

The other concern is about the role of education, which has caused plenty of problems on the mainland, never mind in Northern Ireland, on issues relating to gay rights and so forth in general. In that context, there are two issues that I think the movers of the amendment can take comfort from but should be aware of. First, teachers need to teach the facts. It is important that in any context, particularly if it happens in Northern Ireland that same-sex marriage is legalised, the fact of the law and the rights of that should be made clear in schools even if the school has a religious connotation that says, “We in our faith don’t necessarily agree with it”. The school has to accept that it is the law and that people are entitled to get married in that context.

Secondly, it is of course right for a school with a religious background to want to communicate its religious beliefs—and nobody is challenging people’s right to believe what they do. Nevertheless, in the process of doing that, discussions about the issue of same-sex relationships should be done in an appropriate, reasonable, professional and sensitive way. Some of that is difficult to put into law. It is about the culture and the environment in which the issue is expressed.

Many of us would reasonably accept that the speed with which people have moved from resistance to same-sex marriage to wide acceptance has been remarkable. That is very welcome for those people who experienced frustration and prejudice in not being able to get married. I suspect that, in spite of the arguments to the contrary, things may move more quickly in Northern Ireland than some people think. The noble Lord indicated that progress has been made in that direction and it is one area where contributions from outside this House say that it is now an accepted fact.

The amendments are understood. They recognise that people have a right to believe and they should be allowed to preserve that belief, but the balance is that they have to be careful that they do not impose those beliefs or share them and use them to extend prejudice.

[Baroness Smith of Basildon (Lab)]

My Lords, in some ways the debate strayed further than the amendment itself. I was grateful to the noble Lord, Lord Hayward. His explanation of what he was seeking to do with the amendment before the Committee was very helpful. When the same-sex marriage legislation went through this House, there was a lot of debate about some of the issues that noble Lords from the DUP have addressed. It was made clear that that legislation is permissive. It is not compulsory: it is permissive.

I disagreed when the noble Lord, Lord McCrea, spoke about the fundamental building blocks of society. People in a committed, loving relationship should have the same opportunities as everyone, whether same-sex couples or couples of different genders, to be able to celebrate and demonstrate that commitment to each other as being a long-term, permanent commitment, and not be ostracised for doing so.

Having said that, I think the points about this being similar to the legislation in England and Wales were entirely well made, as the noble Lord, Lord Hayward, said. Like the noble Baroness, Lady Barker, the only part I have some concerns about is the educational institution. I was recently fortunate enough to meet the head teacher of Anderton Park School in Birmingham and was deeply impressed by her dignity and her commitment to her pupils. I would hate to think that we would be getting into a position where other head teachers who are trying to do their best for their pupils, trying to instil in them tolerance and a commitment to understanding society as it is, would face such difficulties as she and her staff have had to in very difficult circumstances.

I look forward to hearing what the Minister says but I would imagine that any legislation he is discussing with the noble Lord, Lord Hayward, and Conor McGinn from the other place would be along the lines of the legislation that we have here in GB.

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[Baroness Smith of Basildon]

My Lords, given the lateness of the hour, I may not allow the Committee to enjoy my 15-minute contribution and will perhaps be slightly briefer. I am grateful to the noble Lord, Lord Duncan, for his discussions with me on my amendment and for the consideration he has given to this issue. My amendment deals with the historical abuse inquiry and the recommendations made following that inquiry. I say at the beginning that, as we discussed earlier today, this is not the only inquiry where the absence of an Assembly has disadvantaged the people of Northern Ireland.

The noble Lord and other Members of the Committee will recall that I have raised the hyponatraemia inquiry on many occasions now. It was an inquiry that I set up as a Health Minister in Northern Ireland after the deaths of a number of young children. That inquiry reported many years later, yet no action will be taken until a proper Executive and Assembly are up and running. To me, that is a sad and terrible state of affairs for the families of those young children. That issue, and many we have heard about this evening, tell us about the impatience building up in Northern Ireland among those suffering the injustice of local politicians not dealing with their crucial issues.

I pay tribute to the late Sir Anthony Hart, who chaired the historical abuse inquiry. He died suddenly last week, not having seen the progress he would have liked to see on the recommendations he made. We are waiting to take action to implement his recommendations to compensate those subjected to terrible abuse in children’s homes where they had been placed by the state, so the state had a duty of care. Those homes were run by churches, by charities and by state institutions between 1922 and 1995. The very places where children should have been safe from harm are where they were abused.

My amendment would require the Secretary of State to make regulations providing for a publicly funded scheme. I know that funding has been one of the handicaps and difficulties for the Government, but the funded scheme would be charged to the Northern Ireland Consolidated Fund by 21 October 2019 unless the Northern Ireland Executive are formed first. It builds on the amendments in the House of Commons requiring the Secretary of State to report on progress made in preparing the legislation.

We have not gone into the detail; we do not think it right to do so at this stage. What I seek—I am optimistic about this after our discussions with the Minister—is an absolute commitment to get the scheme in place in legislation so that no more victims die before they get their justified compensation.

[Lord Bruce of Bennachie]

I support the noble Baroness’s amendment. We have discussed this subject several times, and we all recognise that recommendations are in place. The Minister will tell us that things have been added to them, which has complicated the settlement. We are talking about abuse going back to 1922—nearly 100 years ago—and continuing until as late as 1995.

Let us be clear: these abuses have not been confined to Northern Ireland. In the Republic, in Scotland, in England and in the Channel Islands abuses have been unearthed, and Sir Anthony Hart produced a very comprehensive report. When we read about the scale of the abuse it leaves us feeling very angry that people who should have been responsible were perpetrating those acts of abuse. I happened to read a novel last year by Christina McKenna called The Misremembered Man. It is a total fiction, but it is based entirely on the kind of abuse that young children experienced in Northern Ireland and makes a lively dramatic impact, as perhaps a stark factual report does not.

I say to the Minister: people have waited an awfully long time. Many have died and many have suffered. There has been a recommendation, and there are clearly additional things. If he can say something about the timescale on which he feels we can get to a point when action can be taken, the Committee will be very appreciative.

Northern Ireland (Executive Formation and Exercise of Functions) Bill

Debate between Lord Bruce of Bennachie and Baroness Smith of Basildon

Committee: 1st sitting (Hansard): House of Lords
Tuesday 30th October 2018 Lords Chamber

[Baroness Smith of Basildon]

My Lords, I rise to move Amendment 9 on the hyponatremia inquiry, which may not be something that is well known to many noble Lords, but I have to tell the House that I have special interest in this issue. As a direct rule Minister in Northern Ireland and Minster for Health, I announced the setting up of this independent public inquiry on 18 November 2004. It was to be chaired by a highly regarded QC, Mr John O’Hara, now Mr Justice O’Hara.

For background information, hyponatremia is a condition where the concentration of sodium in the blood falls below safe levels. It can occur for different reasons: it may be that somebody has been vomiting or has diarrhoea and needs to be rehydrated. In hospital, where patients’ fluids are monitored, it is a preventable condition.

The inquiry was started because five children were identified who had died in hospital. They were Adam Strain, aged four; Claire Roberts, aged nine; Raychel Ferguson, also aged nine; Lucy Crawford, aged just 17 months; and 15 year-old Conor Mitchell. The deaths of Adam and Claire, the events following Lucy’s death, Raychel’s case and the issues presented by Conor’s treatment were all investigated by this inquiry.

Surely, there can be no greater or more painful loss for a family than that of a child. When this happens in hospital and that child was receiving treatment, a fundamental role for any inquiry has to be to understand precisely what happened both before and after, and to give recommendations for future actions to prevent something like that ever happening again. The inquiry, announced in 2004, was originally delayed because of police investigations. For other reasons, the report of inquiry was not published until January this year, nearly 14 years after I initiated it. That report has 96 recommendations. I have just re-read large parts of the report before the debate today, and in places it makes grim and very sad reading.

I want to refer to two key aspects that Mr Justice O’Hara identified, and they will form the background to my explanation for bringing this amendment before us tonight. The first is the number of errors made in treating the children, which, rightly, have been very carefully and painstakingly investigated and recorded. The second is the unacceptable difficulties in getting witnesses to be open and frank. In places, Mr Justice O’Hara refers to what he calls “unsatisfactory evidence”, with an attitude of deceit and defensiveness. He describes this as “frustrating and depressing”. That led to his first recommendation being a “statutory duty of candour”—in other words, a legal duty to tell the truth—and there are 95 other recommendations.

My amendment is about the implementation of those recommendations and to ask what has happened since that report was produced in the absence of a Northern Ireland Assembly, an Executive or Ministers to consider them and take action. Paragraph 1.70 of Mr Justice O’Hara’s report said:

“It is for the Department of Health to take them forward. Many will doubtless require significant detailed consideration to enable implementation. I expect the Department to indicate not only which of my recommendations it accepts but also to make clear how and when implementation is to be achieved. Further and subsequent reports should then be made detailing progress towards implementation with a final published confirmation of same”.


So Mr Justice O’Hara and his team took on this inquiry and made their report with every expectation that it would be properly considered and acted on, and the purpose of my amendment is to ensure progress.

In the intervening years since 2004, I would have expected that, as problems were identified, some of those recommendations would already have been evident and acted on, with new systems and practices being put in place, but we just do not know. Also, some recommendations—particularly the statutory duty of candour—require political decisions. Others might need political direction in terms of funding and others will be purely clinical.

Given the difficulties faced in the 14 years before the inquiry was able to complete and publish its investigations, what is needed now is a totally transparent and open process. However, the difficulty is that, because there is no Assembly and no Ministers or Executive, we do not know what progress has been made and there is no political direction. It seems wrong that a lack of political responsibility in Northern Ireland, with no Ministers and no Assembly, should prevent action, and prevent those concerned—particularly the families of the children I have mentioned—knowing what action is being taken. Even the Lord Chief Justice of Northern Ireland, Sir Declan Morgan, has described the situation as “shocking” and “appalling”. Ideally, local Ministers—I think there is also a role for a Stormont health committee here—should deal with this as a matter of urgency.

Therefore, my amendment provides for the Secretary of State to bring some humanity to this issue and to seek six-monthly reports with updates on progress—the amendment details the kinds of updates that we are seeking—so that the people of Northern Ireland can be confident that there is some political oversight and openness about what happens now. Whatever the political situation in Northern Ireland, this is too important a report to allow it just to fade away.

I am grateful to the noble Lord, Lord Bruce, for his amendment, and I know that he supports my amendment as well. I am also grateful to the Minister for the discussions that he and I have had on this issue. I know that he recognises the importance of and urgency behind it. I have had a letter from him this evening which indicates to me that, in so far as the limitations of this legislation allow, he is looking to see what can be done, and I shall be grateful if he can put that on the record tonight.

This matter is key. The families of these children are desperate to know what is happening and how progress will be made. In asking the Minister to respond and outline the commitments that he has been able to make to me in the letter so that they are on the record, perhaps I may press him a little further. In his letter to me, he says that he will seek that information at regular six-monthly intervals from the Department of Health. What is his expectation of the department’s responding? We need some expectation that it is going to respond and is prepared to do so. I note also that the Permanent Secretary of the Department of Health, Richard Pengelly, is prepared to meet with the noble Lord, Lord Bruce, and myself to discuss the issue. I hope the Minister can endorse the comments in his letter and explain what this House would expect. It is difficult—we understand that the Government do not want to have direct rule creep towards it, as it were—but unless there is some political responsibility, who else do the families have to turn to in order to see that justice is done and this report’s recommendations are seriously considered and implemented? I beg to move.

[Lord Bruce of Bennachie]

My Lords, I am very grateful to the noble Baroness, Lady Smith, who brings her first-hand experience to this amendment, which I have also tabled, and has given us in detail the history of this very sad set of circumstances involving children who appear to have died in circumstances of negligence within the health service. The fact that it took so many years is in itself a problem, but I do not need to reiterate what has been said.

I noted that on Friday the Lord Chief Justice of Northern Ireland, Sir Declan Morgan, said that it was “shocking” and “appalling” that the inquiry recommendations could be fully implemented because of the lack of an Executive in Northern Ireland. In particular, legislation is needed to introduce a legally enforceable duty of candour—a key recommendation of the inquiry. In light of our debates, I wonder how many times politicians in this House or in Northern Ireland are going to be saying to the public in Northern Ireland, their constituents and voters,“We can’t do anything because we don’t have an Executive”, and at what point the people themselves will say, “When on earth are you going to do something for us?”. They are living in a democratic and political vacuum, with no time limit. I take the point about direct rule, but it is heartless to say to people that we had an inquiry, we got recommendations, but because of political incompetence—the mildest way you could describe it—there is nothing we can do. I hope that the Minister can give some reassurance that this vacuum can be at least partially filled.