Windsor Framework (Democratic Scrutiny) Regulations 2023

Debate between Lord Lexden and Earl of Kinnoull

Wednesday 29th March 2023 Lords Chamber

[The Earl of Kinnoull (CB)]

My Lords, a plethora of issues between the UK and the EU are currently unresolved and in cold storage due to the impasse over the Ireland/Northern Ireland protocol. If resolved, many, if not all, of these issues would give mutual benefits to both sides. The trade and co-operation agreement has 24 committees, one of which is the very powerful Partnership Council, which would approve the output of the other 23, which are staffed not by politicians but largely by officials. The agendas and minutes of those committees are public, and I have observed before that they are operational but not really operating, held back by the cold hand of the protocol impasse.

I cite one example in particular: Horizon Europe. The European Affairs Committee has been active in trying to persuade the parties of the mutual benefit of co-operation in science, research and innovation—in short, that Horizon was a win-win for both sides. In response to the committee’s March 2022 letter advancing this point, respected EU Commissioner Gabriel wrote, in April last year, that

“the current political setting of this relationship should be recalled: there are at present serious difficulties in the implementation of the Withdrawal Agreement”.

She went on to discuss the impasse:

“We look forward to a prompt resolution, and to the enhanced cooperation in research, space and other areas with the establishment of the association to Union programmes, including Horizon Europe.”


This is a polite, frank and clear expression of the wider impasse effects.

While our sister sub-committee, the Protocol on Ireland/Northern Ireland Sub-Committee, is looking at the specifics of the Windsor Framework agreement and is in the process of taking evidence, as my noble friend Lord Jay laid out very clearly, the European Affairs Committee has for a long time been well aware of the wider benefits to both sides that would accrue from the resolution of the protocol impasse. It is in that spirit that I fully support the statutory instrument and will vote against the fatal amendment.

Finally, can the Minister inform the House of what discussions are currently under way about the accession to the Horizon Europe programme?

[Lord Lexden (Con)]

My Lords, we should recognise that it is entirely understandable that the Democratic Unionist Party should find it impossible to support the Windsor Framework in its current form. It was betrayed by Boris Johnson in 2019, and it is natural that it should seek a complete reversal of that betrayal. In the Northern Ireland elections last year, it set out fully the tests against which it would judge any proposals to deal with the acute problems created by the Northern Ireland protocol. The party has examined the Windsor Framework carefully against its tests and concluded that it does not meet them all.

At some point, the DUP itself will be tested—at the ballot box, when the next elections take place in Northern Ireland. Those elections will show whether the party has correctly interpreted the wishes of that part of the electorate which supports it. In the meantime, the Windsor Framework will be implemented, and our country—our union as a whole—will be able to judge its efficacy. Surely that is the right way to proceed. Our Prime Minister conducted the negotiations which led to the framework with immense tenacity and skill, showing a mastery of detail that we have not seen in a holder of his office for quite some time.

Let us see what the implementation of the framework brings. It may show that further change is needed. In that case, the astute negotiator in No.10 will have further work to do. For now, let us rejoice that, surely, there are grounds for satisfaction that Northern Ireland’s union with the rest of the country is infinitely stronger than it was just over a month ago, before the Windsor Framework was agreed. It is a compromise, of course—just like the Belfast agreement 25 years ago.