Autocrats, Kleptocrats and Populists

Lord Hannay of Chiswick Excerpts

Thursday 3rd February 2022 Grand Committee

[Lord Hannay of Chiswick (CB)]

My Lords, the last century, the one in which many Members of your Lordships’ House spent most of their lives, opened with a world dominated by empires and autocracies, and with true democracies very much in a minority. The century closed with democracies in the ascendant, the empires largely gone and something close to a rules-based international order having emerged from the ashes of two world wars and one long Cold War. Any complacency that that progress might have engendered has long since dissipated, with several autocracies or quasi-autocracies prominent, and with the rules-based order under threat, from within as well as from outside, as supporters of unfettered national sovereignty espouse policies that are inconsistent with their countries’ obligations under international law. So, today’s debate is timely and I warmly welcome the initiative of the noble Lord, Lord Browne of Ladyton, in securing it, and his excellent introductory speech.

What needs to be done to check the trends of the last few years and to secure what was once described as

“a world safe for democracy”?

First, we need to ensure that our own democracies are in good working order and that they are promoting, in practice as well as in rhetoric, policies that strengthen other democracies worldwide and further respect for human rights, as laid out in the UN’s Universal Declaration of Human Rights in 1948. We also need to ensure that our democracies encourage effective international co-operation to address the great challenges of our time: climate change, pandemics, the risks of nuclear proliferation and war, and trade protectionism. That will not be the work of one year or of one Government. It will require concerted effort over decades, and it is not happening—yet, at least.

Should this effort involve a more or less formal grouping of democracies? I rather doubt whether that is the right direction in which we or others should be moving. Such a grouping would raise plenty of problems—first, what is described as the “sheep and goats” problem. How do you decide, and who decides, which countries are truly democratic sheep and which are undemocratic goats? It is not easy, and certain to lead to many difficulties over borderline cases. Moreover, while such a grouping can apply policies and make rules for its own members, it cannot hope to make such policies and rules binding on others. Where globally applicable rules are needed, as with the global challenges that I mentioned earlier, this grouping will simply not be able to deliver the goods.

So, while it is right for democracies to work very closely together, I also suggest that they would best do so within global institutions, many of which already exist, even if their efforts are so far inadequate. Yes, we ourselves should be working to strengthen other democracies and working with regional bodies such as the European Union and the African Union, which are mandated by their founding charters to uphold democracy; but we should not regard democracy as something to be imposed by force nor, conversely, as in the case of Taiwan, to be reversed by force.

Those global institutions I referred to may not be working very effectively, but should they be replaced by something different? In my view, that would be an act of folly. Is there really any likelihood that they would be replaced by something better? Just read the UN charter, if you want an example, and ask yourself whether that document could be negotiated today. More likely, the world would slip back into the law of the jungle which prevailed in the first half of the 20th century and from which it had to be rescued by the democracies, with the expenditure of much blood and treasure and massive human suffering. What is needed, surely, are policies of incremental reform, which will make those global institutions more fit for purpose. I hope that our own country will play a prominent role in shaping the reforms needed, as we did with honour in the past, and that we will act by example and not just by assertion.

I have to say that some of the legislation that has come before your Lordships’ House in recent years—the internal market Act, the external operations Act and the Bill before the House this afternoon on frontiers and border protection—is inconsistent with our obligations under international law. The Minister can stand at the Dispatch Box and say that this Parliament is sovereign and can change these things if it wishes, and that is correct—but another Minister cannot succeed that Minister at the Dispatch Box and say that we are the great supporters of the rules-based international order.