Safety of Rwanda (Asylum and Immigration) Bill

Lord Sharpe of Epsom Excerpts

2nd reading
Monday 29th January 2024 Lords Chamber

[The Parliamentary Under-Secretary of State, Home Office (Lord Sharpe of Epsom) (Con)]

My Lords, I am grateful to all noble Lords who have spoken today and shared their thoughts on this legislation. We have heard many thoughtful speeches from many noble Lords, but I welcome particularly the valued insights of my noble friends Lady Goldie, Lady Verma, Lord Wolfson, Lord Dobbs, Lord Horam and Lord Murray. It is clear from across the Benches that there is common ground in needing to find a solution to the challenges we face. Just for the record, of course I agree with the most reverend Primate the Archbishop of Canterbury on the worth of individuals.

Stopping illegal migration is an important issue for both the public and the Government. Parliament and the British people want an end to illegal migration, as my noble friend Lady Stowell powerfully argued; therefore, we need a deterrent. As noble Lords will have heard me say last week, we made progress towards stopping the boats but we must do more to break the business model of the criminal gangs and deter illegal migrants. I say to the noble Lord, Lord Kerr, that there is evidence of deterrence—and that it works. I am also grateful to my noble friends Lord Udny-Lister and Lord Horam for reminding us of Albania and the Australian example.

The dangerous channel crossings are often made by young, fit men in search of better life opportunities. Many of those have travelled through safe countries to reach the UK, as my noble friend Lord Hannan set out, and they have paid substantial amounts of money to the criminal gangs to facilitate their journey. As my noble friend Lady Goldie highlighted, these criminal gangs could not care less about the safety of migrants; they care only about the money. I think noble Lords are in agreement that we cannot let this continue.

The most reverend Primate the Archbishop of Canterbury and other noble Lords were right to place the Bill in its moral context, but proceeding with it is the moral course, as my noble friend Lord Blackwell powerfully noted. We must put a stop to the dangerous channel crossings that are putting lives at risk and to this mass trafficking of people in order to save lives. That is the humane thing to do, and it is the fair thing to do, as my noble friend Lady Verma argued.

By delivering our key partnership, relocating those with no right to be in the UK to Rwanda and not allowing them to stay in the UK, we will deter people from making these journeys and we will save those lives. We also need to ensure that we are meeting our international obligations, so the treaty the Home Secretary signed in December last year sets out to Parliament and the courts why Rwanda is, and will remain, safe for those relocated there. The Bill makes it unambiguously clear that Rwanda is safe and will prevent the courts second-guessing Parliament’s assessments.

The Prime Minister has been clear that he will not let a foreign court block flights. We simply cannot let Strasbourg dictate our border security and stop us establishing a deterrent.

I turn to the matters raised in the debate, including the points addressed in the amendment moved by the noble Lord, Lord German. A number of noble Lords asked why the legislation seeks to confirm that Rwanda is safe when the treaty simply sets out the aspirations of what should happen, and the measures are not in place. The Supreme Court recognised that changes may be delivered in future which could address the conclusions it came to. We have been working closely with Rwanda on these changes. The partnership with Rwanda is now set out in a new treaty, binding in international law, with specific provisions to address the court’s findings.

Since the evidential position considered by the UK domestic courts in summer 2022, we have obtained further specific information, evidence and assurances from the Government of Rwanda explicitly to address the challenges raised by the claimants and the UNHCR in the litigation, and the findings of the Supreme Court, following its judgment in November. This primarily takes the form of detailed standard operating procedures, reviews of contracts for services that the Government of Rwanda have procured—for example, with accommodation, facilities and medical insurance companies—and new and revised training programmes.

The noble Lords, Lord Purvis and Lord Coaker, mentioned this all in the context of the UNHCR. Rwanda has successfully hosted over 135,000 refugees and asylum seekers in collaboration with the UNHCR and other organisations. That is not including the nearly 2,000 supported in Rwanda by the emergency transit mechanism to evacuate to safety refugees and asylum seekers trapped in or fleeing civil war in Libya. That is also supported by the EU, which will support the operation of the ETM until 2026, and the EU announced a further €22 million support package for it. As recently as December 2023, the UNHCR evacuated 153 asylum seekers from Libya to Rwanda, and the European ambassador to Rwanda described the scheme as:

“A crucial life-saving initiative to evacuate people facing major threats and inhumane conditions in Libya to safety in Rwanda, It is a significant example of African solidarity and of partnership with the European Union. We are grateful to the Government of Rwanda for hosting these men, women and children”.


Regarding our agreement with Rwanda, we have taken crucial steps forward to respond to the Supreme Court findings, which recognise that changes could be delivered to address its conclusions. Both the Court of Appeal and the High Court found that the principle of relocating individuals to safer countries for their protection claims to be assessed was consistent with the UK’s obligations under the refugee convention, and the Supreme Court did not disturb this.

It is imperative that we continue to work at pace to stop the boats, save lives and break the business models of the evil criminal gangs. The fundamental accusation that Rwanda is incapable of making good decisions and is somehow not committed to this partnership is wrong, as my noble friend Lady Verma pointed out. I disagree with that. Rwandans, perhaps more than most, understand the importance of providing protection to those needing it. At this point, I say to the noble Lord, Lord Coaker, that the monitoring of all this is of course dealt with by the treaty, which we debated at some length last week.

I turn to the early intervention from the noble Lord, Lord Carlile, on the Motion set down by this House not to ratify the treaty. Your Lordships will be aware that a resolution made in this House on the treaty does not necessarily stop its progress. The International Agreements Committee report did not fundamentally find anything objectionable in the treaty itself. The report was about implementation, not any flaws in the treaty. The treaty will therefore follow the usual process with regard to scrutiny and ratification. Ultimately, the Minister responsible can decide to issue a statement declaring that the treaty should be ratified in any event, and the Home Secretary will confirm the Government’s position in due course.

The noble Lords, Lord Carlile and Lord Purvis, also asked about the timings of the Bill. This reflects an answer I also gave last week. Both the treaty and the Bill need to progress their respective paths through Parliament in the usual way before they can be ratified or receive royal assent respectively. Rwanda will also need to adjust its legislation and ratify the treaty on its side. Once these things have happened, the Bill and the treaty will be operable.

The noble Lords, Lord Ponsonby and Lord German, asked about the Government’s safe and legal routes. The UK is a generous country. We are proud of that fact, and we are proud of the fact that we have helped so many refugees to safety. The Government have made it clear that we will continue to provide sanctuary to those most in need, but we can act only within our capabilities. I say to the noble Lord, Lord Paddick, that it is not about “I’m all right, Jack”; it is about capability and capacity. While the compassion of the UK is unlimited, our capacity is not. Local authorities have played a vital role in delivery of our safe and legal routes, but they are feeling the pressures caused by both legal and illegal migration. We can bring people over on safe and legal routes only when local authorities are able to receive them. We remain committed to looking at new or expanded safe and legal routes to the UK for those most vulnerable, but only once we have drastically reduced the unacceptable number of illegal, dangerous and simply unnecessary small boat crossings, which are putting a huge amount of pressure on our public services.

[Lord Blunkett (Lab)]

Perhaps the Minister can answer the simple question which I put early in this debate. If that is true, why do the Government not accept that those who are accorded refugee status through the process that this Government wish to apply in Rwanda should be allowed back into the United Kingdom?

[Lord Sharpe of Epsom (Con)]

My Lords, I will come back to that.

On 20 October 2023, the Home Office launched the consultation on the cap on safe and legal routes, to understand local authority capacity. This consultation closed on 9 January 2024. Home Office officials are currently reviewing those responses and are planning further engagement with the respondents through a series of regional dialogues to validate responses and to determine a capacity estimate. We will produce a summary of the consultation by the spring and, in summer 2024, the Government will lay a statutory instrument in Parliament which will then need to be debated and voted on, before the cap comes into force in 2025. Therefore, in answer to the noble Lord, Lord Blunkett, we have to wait for all those things to take effect. I have no doubt that this matter will be up for debate again after 2025.

The noble Baronesses, Lady Whitaker and Lady Brinton, asked how we can deem Rwanda to be safe if we are granting Rwandan nationals refugee status in the UK. Rwanda is a safe country, which is what this Bill asserts. The meaning of a “safe country” is set out in Clause 1(5). However, our obligation when an asylum claim is lawfully lodged and admitted to the UK asylum process for consideration is to carry out an individualised assessment of a person’s particular circumstances. If, after that assessment, there is found to be a reason why a person, based on these individual circumstances, cannot be returned to their country of origin, then it is correct that we grant them protection. It is important to stress that people from many different nationalities apply for asylum in the UK and this includes—

[Baroness Kennedy of The Shaws (Lab)]

My Lords, where, under Clause 4, an individual is seeking the court’s ruling on whether their individual circumstances might give them a reason to not be sent to Rwanda, might that be because they are able to argue that “It may generally be safe but it is not safe for me”? Will they be able to argue that, because they are homosexual or ill, it is not safe for them?

[Lord Sharpe of Epsom (Con)]

My Lords, quoting from the Bill in answer to the noble Baroness, it is

“the person in question, based on compelling evidence relating specifically to the person’s particular individual circumstances (rather than on the grounds that the Republic of Rwanda is not a safe country in general)”.

That is pretty straightforward. It is important to stress that people from many—

[Baroness Whitaker (Lab)]

My Lords, I asked what the grounds were for people from Rwanda being given asylum here. What was their well-grounded fear of persecution about?

[Lord Sharpe of Epsom (Con)]

My Lords, each individual case is different. I do not know the particular circumstances.

It is important to stress that people from many different nationalities apply for asylum in the UK. This includes nationals from some of our closest European neighbours and other safe countries around the world. That is why there are a small number of cases where we have granted asylum to individuals from countries that we would otherwise consider safe. This is a reflection of our system working. An individual claim is not a reflection of the country as a whole. This process also reflects the safeguards which the Bill provides to individuals in Clause 4, which I have just read out. Each case will be considered on its individual merits by caseworkers who receive extensive training. All available evidence is carefully and sensitively considered in the light of published country information, but I cannot comment on the specifics of individual cases.

The right reverend Prelate the Bishop of London and the noble Lord, Lord Blunkett, asked what support will be available for those who are particularly vulnerable. Rwandan officials will have due regard to the psychological and physical signs of vulnerability of all relocated persons at any stage of the application and integration process. Screening interviews to identify vulnerabilities will be conducted by protection officers in Rwanda who have received the relevant training and are equipped to handle competently safeguarding referrals. Interpreters will be available as required to ensure that relocated individuals can make their needs known. All interviews will be conducted with sensitivity for the individual’s well-being.

The Government of Rwanda have processes in place to safeguard relocated individuals with a range of vulnerabilities, including those concerning mental health, gender-based violence and addiction. All relocated individuals will receive appropriate protection and assistance according to their needs, including referral to specialist services, as appropriate, to protect their welfare.

Article 13 of the treaty makes specific provision that Rwanda will have regard to information provided about a relocated individual relating to any special needs that may arise as a result of their being a victim of modern slavery or human trafficking and shall take all necessary steps to ensure that these needs are accommodated.

[Lord Purvis of Tweed (LD)]

How will they know? The Illegal Migration Act prevents someone who may well have been trafficked from even starting the process of claiming that they have been trafficked here, so how will the Rwandans know? We are not collecting that information.

[Lord Sharpe of Epsom (Con)]

My Lords, as I have just said, the treaty makes specific provision that Rwanda will have regard to information provided about a relocated individual by the United Kingdom.

[Lord Purvis of Tweed (LD)]

I am grateful, but that is prohibited in the Illegal Migration Act.

[Lord Sharpe of Epsom (Con)]

My Lords, I will have to write to the noble Lord on that very specific point.

These are also detailed in the standard operating procedures as part of the evidence pack released on 11 January in support of the Bill. Furthermore, the UK is providing additional expertise to support the development of Rwanda’s capacity to safeguard vulnerable persons.

The noble Lord, Lord Cashman, and the noble and learned Lord, Lord Etherton, asked about the treatment of LGBT persons, if sent to Rwanda. Rwandan legal protection for LGBT rights is generally considered more progressive than that of neighbouring countries. The constitution of Rwanda includes a broad prohibition of discrimination and does not criminalise or discriminate against sexual orientation in law or policy. As set out in paragraph 36 of the Government’s published policy statement, the constitution of Rwanda prohibits, at article 16, discrimination of any kind based on, among other things, ethnic origin, family or ancestry, clan, skin colour or race, sex, region, economic categories, religion or faith, opinion, fortune, cultural differences, language, economic status, and physical or mental disability.

The noble Baroness, Lady Brinton, asked about unaccompanied children deemed to be adults being relocated to Rwanda. As the treaty sets out in Article 3(4), we will not seek to relocate unaccompanied individuals who are deemed to be under 18 to Rwanda. Any unaccompanied individual who, subsequent to relocation, is deemed by a court or tribunal in the UK to either be under 18 or to be treated temporarily as being under 18, shall be returned to the UK.

[Lord Carlile of Berriew (CB)]

I am sure the Minister wants to be accurate. Is it not the case that he should recognise that homosexuality is illegal in Rwanda? The penal code criminalises same-sex sexual activity and individuals found guilty of engaging in such activity can face imprisonment. If that is right, is Rwanda really a safe country?

[Lord Sharpe of Epsom (Con)]

My Lords, I am afraid I am not familiar with that part. However, I have just read out the relevant clause in the Bill that deals with specific individual circumstances.

Any person who has been relocated to Rwanda but who subsequently receives a court or tribunal order from the UK that they must be treated as a minor, and are therefore a child who is in Rwanda without a parent or guardian, shall be provided with suitable accommodation and support that meets all the requirements for families with children set out within the treaty under paragraphs 1.1 and 1.2.2 of Part 1 of Annex A to the treaty until the child is returned to the UK.

With regard to concerns about the impacts of the policy on children treated as adults, I reassure noble Lords that there are safeguards in place to prevent that happening. The Home Office will treat an individual claiming to be a child as an adult without conducting further inquiries only if two officers—one of at least chief immigration officer grade or equivalent—have separately determined that the individual’s physical appearance and demeanour very strongly suggest that they are “significantly over 18 years” of age. If doubt remains about whether the claimant is an adult or a child, they are treated as a child for immigration purposes until a further assessment of their age by a local authority or the National Age Assessment Board. This will usually entail a careful, holistic age assessment, known as a Merton-compliant age assessment. Only once this assessment is complete could the individual then be treated as an adult if found to be so.

Many noble Lords have asked whether this Bill will comply with international law. Its provisions are consistent with our international law obligations. They retain rights challenge based on compelling evidence of serious and irreversible harm in specific individual circumstances, which will arise in narrow circumstances.

In response to the points made by the noble Lords, Lord German and Lord Howarth, I say that the Bill makes it clear that it is only for a Minister of the Crown to determine whether to comply with an interim measure of the Strasbourg court. I am grateful to my noble friend Lord Wolfson and the noble Lord, Lord Faulks, for their comments on this.

I will not get drawn into speculation about hypothetical scenarios, but the internationally binding treaty agreed between the UK and Rwanda contains binding commitments to ensure that the scheme is compliant with international law, including the ECHR. It also makes it clear that domestic courts may not have regard to the existence of any interim measures when considering any domestic application flowing from a decision to relocate a person to Rwanda in accordance with the treaty.

The Permanent Secretary for the Home Office has confirmed that if we receive a Rule 39, instead of deferring removal immediately—as the guidance currently indicates—officials will refer the Rule 39 to the Minister for an immediate decision. To answer the noble Lord, Lord Wilson, I say that the Cabinet Office has confirmed that it is the responsibility of civil servants under the Civil Service Code to deliver that decision. Consideration will be on a case-by-case basis depending on the facts. I also remind noble Lords that, as the Government have set out, both the UK and Rwanda are committed to making this partnership work.

As my noble friend Lord Murray set out, the Section 19(1)(b) statement is not specific to one provision; it applies to the Bill as a whole. A statement under Section 19(1)(b) makes it clear, in this instance, that the Home Secretary is not able to state now that the Bill’s provisions are more likely than not compatible with convention rights. There is nothing improper or unprecedented about pursuing Bills with a Section 19(1)(b) statement. It does not mean that the Bill is unlawful or that the Government will necessarily lose any legal challenges on human rights grounds. Parliament clearly intended Section 19(1)(b) to be used as it is included in the Human Rights Act 1998. It is an important measure to safeguard parliamentary sovereignty. Section 19(1)(b) statements have been used by Governments of all stripes before. For example, the Bill that became the Communications Act 2003 included a provision banning paid political advertising on TV. The use in this case recognises the novel and ambitious approach taken by this Bill, and the fact there is room for argument both ways. We are testing the limits but remain satisfied that this Bill is compatible with international law.

The Bill allows decision-makers and the courts to consider claims that Rwanda is unsafe for a person due to their particular individual circumstances, as we have discussed. As the right reverend Prelate the Bishop of London noted, the Bill does not disapply Section 4 on declaration of incompatibility, as this is the only substantive remedy against the conclusive presumption that Rwanda is safe. Retaining DOIs allows the courts to respond to changing circumstances and for this question to be brought back for parliamentary consideration. Of course, the final say on the matter will remain with Parliament and the Government because Section 4(6) of the Human Rights Act makes it clear that a declaration cannot affect the operation or validity of domestic legislation.

The effect of retaining this Section 4 is therefore beneficial in limiting domestic and international legal challenge and, crucially, does not undermine the operation of the Bill, and in doing so reaffirms parliamentary sovereignty. The court could not grant interim relief on the basis of a DOI having been granted because of the clear and unambiguous language of Section 4(6) of the Human Rights Act.

The noble Baroness, Lady O’Loan, asked about the impact of the Bill in Northern Ireland. The Bill will apply fully in Northern Ireland in the same way as it does in the rest of the United Kingdom. This is explicit in the Bill and will always be the case, reflecting that immigration policy is a UK-wide matter. Nothing in the Windsor Framework, including Article 2, or the trade continuity agreement affects this. The Bill’s provisions do not diminish the rights and commitments we have made on the convention on human rights in the Belfast agreement. The Government remain fully committed to that agreement in all its parts. The Government are unshakable in their commitment to the Belfast/Good Friday agreement, and the Bill does not undermine this.

[Baroness O'Loan (CB)]

Has the noble Lord actually read the Northern Ireland Human Rights Commission’s advice on this matter? Has he taken cognisance of the number of measures he lists which are affected, and the fact it is an obligation under Article 2 of the Windsor Framework?

[Lord Sharpe of Epsom (Con)]

As I have just set out to the noble Baroness, the Government takes a different view to those opinions.

The noble Lord, Lord Ponsonby, asked about the costs of this partnership. The spend on the MEDP with Rwanda so far is £240 million. Further funding will be provided to Rwanda once the partnership is operational. Costs and payments will depend on the number of people relocated, the timing of when this happens and the outcomes of individual cases. Spending will continue to be reported as part of annual Home Office reports and accounts in the usual way. Those focusing solely on the costs of this partnership are missing the point. It is incredibly frustrating for the British people and the taxpayer to spend billions to house illegal migrants in hotels. The daily cost of hotels for migrants is £8 million and the cost of the UK’s asylum system has roughly doubled in the last year; it now stands at nearly £4 billion. Criminal smuggling gangs are continuing to turn a profit using small boats. We must bring an end to this.

The Government recognise the extraordinary level of interest in this partnership, and we take our responsibility to be transparent seriously. However, that must be balanced with the nuances of managing our international relationships and respecting commercial sensitivities. We have said we will do what it takes to curb illegal migration and stop the boats. As we explore avenues of doing this, it would be against our direct interests to release all financial information. Costs and payments of course will depend on the number of people relocated, the timing of when this happens, and the outcomes of individual cases. Every individual’s needs are different, and funding will only be provided while an individual remains in Rwanda. Spending will be reported as part of the annual Home Office reports and accounts in the usual way.

I am getting to the end. Noble Lords have asked whether this Bill will, by disapplying international law, have a knock-on impact on wider international treaties and potentially worsen the UK’s relationship with the ECHR. We have a long and diverse history of freedoms in this country, and we are proud of the UK’s heritage and culture on human rights and democracy. But no country has all the answers to global human rights challenges. We continue to engage others about our ongoing journey on these issues—a point made by many noble Lords and emphasised by my noble friend the Foreign Secretary on 16 January.

I am again thankful for all the contributions made to today’s debate. It is absolutely essential that we tackle illegal migration, bring an end to such dangerous channel crossings and save lives. To the noble Lord, Lord Coaker, I say that the integrity of our border also matters. I therefore urge noble Lords to support the Government in delivering the partnership with Rwanda, and our wider plans to take control of our borders and stop the boats. These are difficult choices to make with regards to tackling this issue. That is what this Government are doing, and we will continue to do so. The Bill will enable us to stop the boats, and I commend it to the House. I invite noble Lords to reject the amendment standing in the name of the noble Lord, Lord German.

--- Later in debate ---

Moved by

[Lord Sharpe of Epsom]

That the bill be committed to a Committee of the Whole House.

Motion agreed.

Safety of Rwanda (Asylum and Immigration) Bill

Lord Sharpe of Epsom Excerpts

Committee stage
Monday 12th February 2024 Lords Chamber

[Lord Coaker (Lab)]

My Lords, it is a great privilege to wind up on this group for His Majesty’s Opposition. The quality of the contributions has been truly outstanding. I start by saying to the noble Lords, Lord Green and Lord Howard, that whatever our views on the various amendments in this and the other groups, we are fundamentally and totally opposed to the whole Bill and have voted against it at all stages. That lays out our position fairly clearly.

It was helpful for the noble Viscount, Lord Hailsham, to lay out as we start Committee that this debate is not about whether to stop illegal migration or reduce immigration, but how we do it. This Bill is not the way to do it, so he was right to remind us of that.

We support the thrust of Amendments 3 and 7, as did many noble Lords, including the noble Lords, Lord Anderson, Lord Hannay and Lord Kerr, the noble and learned Lord, Lord Garnier, the right reverend Prelate the Bishop of Southwark and my noble friend Lady Chakrabarti—I will come back to her lead amendment in a moment—because they go to the heart of the Bill. Clause 1(2)(b) replaces a judicial finding of fact with Parliament simply declaring that Rwanda is safe, irrespective of the Supreme Court judgment. I will not go into the legal niceties we have heard, but it seems remarkable to me that Parliament should make a judgment that the court has got it wrong and just change it without reference to the court.

There is a missing word in that paragraph which gives great credibility to many of the contributions made this afternoon:

“this Act gives effect to the judgement of Parliament that the Republic of Rwanda is a safe country”.

As many noble Lords and the committees that have reported on this Bill have said, this paragraph says that Rwanda is safe now, not that it will become safe. The Supreme Court said that that is the point of difference between them. It has not said that the Government cannot act in this way—I would have thought they would be pleased and say, “Look, the Supreme Court says that what we’re doing conforms with international law”—but that they cannot say that Rwanda is safe now. The Government are saying: “Don’t worry about that; we’ll just pass a law saying that it is”. That is the point of conflict, as it flies in the face of the Supreme Court, the International Agreements Committee and many others.

The contribution of the noble Lord, Lord Tugendhat, was remarkable in its honesty and openness. He said that, as a member of the Conservative Party for decades—I apologise if I get his wording wrong—he was disappointed by the Government coming forward with legislation such as this, which he felt flew in the face of the party’s traditions. He said that Margaret Thatcher herself would have refused it because it flies in the face of her belief that Governments have to act in accordance with the law, or the constitution would be at stake. Many of these amendments seek to reassert the principle that this country has always operated on—that this Parliament operates according to the law. Parliamentary sovereignty is paramount and Parliament can pass what it wants, but as part of that, under our unwritten constitution, there is a belief that it will always operate according to the law even while recognising its sovereign power.

We broadly support much of my noble friend Lady Chakrabarti’s lead amendment. To answer the noble Lord, Lord Howard, my noble friend, in the spirit of Committee, said that if she has not got the amendment completely right, it might need to be changed. That is the whole point of Committee; she accepted that he might have a point and that making the UNHCR the sole body advising the Government or preventing them from acting might not be the best way forward.

Many noble Lords, particularly the noble Baroness, Lady Helic, my noble and learned friend Lord Falconer and my noble friend Lady Chakrabarti, drew attention to a point in Amendments 1 and 2. This may be flowery language that Governments put at the front of Bills—I am sure that we did it in government and may well do it again when, I hope, we are in government in future—but Amendment 1 would add

“the purpose of compliance with the rule of law to that of deterrence”,

and Amendment 2 says:

“The second purpose is to ensure compliance with the domestic and international rule of law”.


That is the fundamental point. Any Bill we pass into law should be compliant with international law. That is why our country has such standing across the world. What on earth are we doing? The UNHCR has said that the Bill is not compliant with the refugee convention, and that is why Amendments 1 and 2 are so important. Do we not care that the UNHCR has said that? Is it of no consequence to us? Have we gone beyond caring? Are we not bothered? Are we saying it is simply an irrelevance? If that is so, I honestly cannot believe that that is the way we want our country to go.

What are we doing? Ministers have stood at the Dispatch Box and said, with respect to Putin and Ukraine, that we are not going to stand for someone driving a coach and horses through the international rules-based order. That is what the country has always stood for and what we are proud of. Therefore, we are going to continue that tradition. We are right to do so. Why are we taking action against the Houthis in the Red Sea? Last week, I heard the Minister, the noble Earl, Lord Minto, say that it was because are not going to allow a group of terrorists to hold the world’s trading system to ransom and break every single rule of the international rules-based order.

These are the rules we adhere to and conventions we have signed. As a sovereign Parliament, we took the decision that, in certain areas of international life, it is better to pool sovereignty and stand together; that is the way to overcome common problems, not to retreat into your own country. That is why the compliance with international law is important. The amendments in the names of the noble Baroness, Lady Chakrabarti, the most reverend Primate the Archbishop of Canterbury, the noble Viscount, Lord Hailsham, and others, seek to say—as a point of principle—that a Bill dealing with migration, refugees, asylum or whatever should comply with international law.

I am astonished and astounded and find it unbelievable that His Majesty’s Government have to be reminded that we want our Government to comply with international law. I would have thought that was a statement of the obvious. I would have thought it was something around which we could unite, no matter our party or faith. We could have stood together and said that is why we are proud of our country.

What are we going to say when we go to the United Nations, the Council of Europe, the Commonwealth, the EU—if we still have talks with it—NATO or any other part of the world where there is an international organisation? How on earth can we lecture those people about conforming to the international rules-based order when we are prepared to drive a coach and horses through it ourselves? That is why much of what the noble Baroness, Lady Chakrabarti, and many others have said in their amendments is so important. The Government may dismiss it, but they will not win the argument on this one.

[The Parliamentary Under-Secretary of State, Home Office (Lord Sharpe of Epsom) (Con)]

My Lords, I thank all noble Lords who have spoken in the debate. The overriding purpose of the Bill is to ensure that Parliament’s sovereign view that Rwanda is a safe country is accepted and interpreted by the courts to prevent legal challenges which seek to delay removals and prevent us from taking control of our borders.

Amendments 3 and 7, in the name of my noble friend Lord Hailsham, suggest that the legislation is replacing a judicial finding of fact. The Government respect the decision of the Supreme Court in its judgment. However, the judgment was based on information provided to the court on Rwanda up until summer 2022. Their Lordships recognised, explicitly and in terms, that those deficiencies could be addressed in future.

In response, the Home Secretary signed a new, internationally binding treaty between the United Kingdom and the Government of Rwanda, which responds to and resolves the concerns raised by the court. Alongside the treaty, the Government have also introduced the Safety of Rwanda (Asylum and Immigration) Bill, which buttresses the treaty, and supports the relocation of a person to Rwanda under the Immigration Acts.

It is our view that Parliament and the Government are appropriately equipped to address the sensitive policy issues involved in this legislation and, ultimately, tackle the major global challenge of illegal migration.

--- Later in debate ---

[Viscount Hailsham (Con)]

On that point, would my noble friend consider a domestic assessor—for example, the Joint Committee on Human Rights? If it were to advise, would he accept that?

[Lord Sharpe of Epsom (Con)]

My Lords, one of the groups that we are coming on to looks at the organisations and committees that are set up under the treaty. We will return to that discussion about the provisions of the treaty in respect of what my noble friend has just asked. As I say, it would not be right for the delivery of our policy, which is key to our commitment to stop the boats, to be left solely dependent on this.

Amendments 11 and 12 tabled by the noble Lord, Lord German, seek to ensure that individuals relocated to Rwanda must have any asylum claim determined and be treated in accordance with the UK’s international obligations. This is unnecessary in view of the comprehensive arrangements that we have in place with the Government of Rwanda. It is important to remember that Rwanda is a country that cares deeply about supporting refugees. It works already with the UNHCR and hosts more than 135,000 refugees and asylum seekers and stands ready to relocate people and help them to rebuild their lives.

We will get on to this again in a later group, but I remind the Committee that the UNHCR has signed an agreement with the Government of Rwanda and the African Union to continue the operations of the emergency transit mechanism centre in Rwanda, which the EU financially supports, having recently announced a further €22 million support package for it. Indeed, as recently as late December, the UNHCR evacuated 153 asylum seekers from Libya to Rwanda.

The noble Baroness, Lady Hamwee, asked about the international agreements that Rwanda has signed. That is dealt with at paragraph 25 of the policy statement. I will read it for convenience:

“Rwanda is a signatory to key international agreements protecting the rights of refugees and those in need of international protection. It acceded to the Refugee Convention, as well as the 1967 Protocol, in 1980. In 2006 it acceded to the 1954 Convention relating to the Status of Stateless Persons and the 1961 Conventions on the Reduction of Statelessness. Regionally, it is a signatory of the Organisation of African Unity Convention on Refugees in Africa and the 2012 Kampala Convention”.


Paragraph 26 goes on to say that:

“Rwanda’s obligations under these international agreements are embedded in its domestic legal provisions. The Rwandan constitution ensures that international agreements Rwanda has ratified become domestic law in Rwanda. Article 28 of the constitution recognises the right of refugees to seek asylum in Rwanda”.


The presumption which appears to underpin this amendment is that Rwanda is not capable of making good decisions and is somehow not committed to this partnership. I disagree. Rwandans, perhaps more than those in most countries, understand the importance of providing protection to those who need it. I remind the Committee that my noble friend Lady Verma spoke very powerfully on that subject at Second Reading.

The core of this Bill, and the Government’s priority, is to break the business model of the people smugglers. That will not happen if we undermine the central tenet of the Bill, which is the effect of these amendments, and a point that was well addressed by my noble friend Lord Howard. We are a parliamentary democracy, and that means that Parliament is sovereign. Parliament itself is truly accountable, and I therefore invite the noble Baroness, Lady Chakrabarti, to withdraw her amendment.

[Baroness Butler-Sloss (CB)]

Clause 1(2)(b) says that Rwanda is a safe country, so why is Clause 1(3) necessary?

[Lord Sharpe of Epsom (Con)]

Clause 1(3) is just a simple restatement of the various facts of the Bill.

[Lord Hannay of Chiswick (CB)]

My Lords, the noble Lord has rather disappointed me, because he declined totally to address any of the points that your Lordships’ House voted for a few weeks ago—in particular, the 10 criteria by which it would be possible to judge whether the Government’s statement that Rwanda was a safe place was actually true or not. Could he now stand up and deal with those 10 criteria? It would be quite interesting for the Committee to have his account of the Government’s view of those criteria and whether they have been met; if they have not, when they will be met; and what tests they will put them to.

[Lord Sharpe of Epsom (Con)]

My Lords, this is Committee, and I am speaking to the various amendments in this group. As I have just reminded my noble friend Lord Hailsham, we will get to another group which debates the clauses in the treaty—as regards the various committees and so on that are in place—later in the day.

[Baroness Hamwee (LD)]

My Lords, I know it is very boring, but could the Minister respond to my question about the legal status and the effect of Clause 1? I am still not clear what attention we should pay to it, were we to be in very formal proceedings rather than debating the situation broadly. In other words, if there is a breach of Clause 1—I do not know whether it can be called a breach; if there is no compliance with Clause 1—then what, in formal legal terms?

[Lord Sharpe of Epsom (Con)]

My Lords, it is simply the introduction to the Bill, so I am not entirely sure I get the drift of the question of the noble Baroness.

[Lord Alton of Liverpool (CB)]

My Lords, before the noble Lord concludes, can he say whether he will be formally responding to the Joint Committee on Human Rights, especially before we reach Report?

[Lord Sharpe of Epsom (Con)]

I have not yet had a chance to read the report, which I believe was published only today, but I will of course read it in due course and respond accordingly.

[Lord Paddick (Non-Afl)]

My Lords, the Minister seems to rely on the emergency transit mechanism on which Rwanda works with the UNHCR. Can he confirm that this mechanism—which has a maximum capacity of 700—is a temporary processing point for asylum seekers from Libya, and that none of the 1,453 evacuated to Rwanda has actually opted to stay in the country?

[Lord Sharpe of Epsom (Con)]

My Lords, I do not rely on that at all. As I tried to explain, a variety of aspects of the UNHCR’s work are included in our safety assessment—and that is just one of them.

[Lord Garnier (Con)]

I apologise for interrupting, because I know that my noble friend the Minister wants to sit down for good. When he spoke to Clause 1(2)(b), was he speaking for Parliament or the Government?

[Lord Sharpe of Epsom (Con)]

As my noble and learned friend is aware, I speak for the Government.

[Lord Falconer of Thoroton (Lab)]

Can the Minister indicate when the Government will respond to the report on the Bill by the Constitution Committee of this House?

[Lord Sharpe of Epsom (Con)]

I am afraid that I do not know; I will find out.

[Lord Falconer of Thoroton (Lab)]

And write to me with the answer.

--- Later in debate ---

[Lord Coaker (Lab)]

My Lords, my Amendments 64 and 65 seek to address the problem that all noble Lords have been seeking to address: Clause 1(2)(b), which basically says that Rwanda is a safe country. The noble and learned Lord, Lord Hope, was quite right, when moving his Amendment 6, to point out that the word “is” is absolutely fundamental to the meaning of the Bill and is why there is such a debate among your Lordships.

The Government are stating that Rwanda is safe, but all the evidence points to it perhaps becoming safe in the future or, in the words of the noble and learned Lord, Lord Stewart, “working towards” being safe. That is not the same as “is” safe, which is the fundamental dilemma. I say to the Government that if something is completely and utterly wrong—such as the use of the present tense when it should be a future tense—it does not matter what you do, you simply cannot answer the questions that are being put. Two and two has to make four, yet the Government are arguing that two and two is three. It is ridiculous, it is nonsense, and it will not stand up.

I do not mind if my Amendments 64 and 65 are not legally watertight. I accept that. I am not sure the amendment in the name of the noble and learned Lord, Lord Hope, is the best amendment, though I am sure it will be legally watertight. The noble Lord, Lord Anderson, has proposed an independent reviewer. There can be a debate between us as to which is the best option, and there may be other, better options. I would prefer that the whole Bill was opposed and defeated, but we have said we are not going to block or delay it. I know it is disappointing to some, but that is the reality of where we are.

What we are seeking to do, therefore, is to work with others to mitigate the impact and improve the Bill. However, the Government’s response so far has been to say that all the criticisms are not correct and Rwanda is safe because we are legislating to say it is; the rest of the debate and the very reasonable points that are being put forward are dismissed. I am sure when the Minister replies, he will—unless I am mistaken —have a brief which says that the monitoring committee has established in Article 15 of the treaty and there is no need for any of this to be included.

That way lies a legislative impasse. We are asking the Government to listen to what is being put forward. The real question of the debate is not whether Amendment 6, 16 or 64 is better, but what are the Government going to do in response to the legitimate criticisms being made? We want some sort of mechanism to understand how the Government are going to implement the treaty and ensure that implementation is successful. What happens if it is not? What happens if the obligations are put forward but not achieved?

The noble and learned Baroness, Lady Butler-Sloss, asked: if Clause 1(2)(b) is right, why do you need Clause 1(3)? The Minister could not answer her question because Clause 1(3) sets out the future obligations on Rwanda, whereas Clause 1(2)(b) says that there is no need for those obligations because it is already safe. The Bill contradicts itself, as the noble and learned Baroness, Lady Butler-Sloss, pointed out. However, all the Government say is that we are wrong and they are right and so they are going to carry on. That is no way to legislate. The Government want their Rwanda Bill, so they are going to get their Rwanda Bill. The least they can do, however, is listen to what people are saying and make the Bill make sense and actually do what it says it will.

As for my Amendment 64, I am perfectly willing to look and see whether other amendments are better or whether there is a better way of doing this. The real question is: are the Government simply going to dig in and refuse any amendment or appeal to them to make the Bill more logical than it currently is? I say to the Minister that we will have to come back to this on Report. It is clearly important for us, in deciding how we do that, to hear what the Government have to say.

[Lord Sharpe of Epsom (Con)]

My Lords, I thank all noble Lords for speaking in this group, and in particular the noble and learned Lord, Lord Hope, for his introduction.

The UK and Rwanda entered into the migration and economic development partnership with a commitment to develop new ways of managing flows of irregular migration by promoting durable solutions, and so breaking the existing incentives that make people embark on dangerous journeys to the UK. The UK and the Government of Rwanda have a shared vision regarding the necessity for the global community to enhance international protection for asylum seekers and refugees, underlining the importance of effective and operational systems that provide protection to those most in need.

This partnership is part of a suite of measures to tackle illegal migration and builds on wider collaboration with Rwanda on many shared issues. As I have set out previously, we have assurances from the Government of Rwanda that the implementation of all measures within the treaty will be expedited. The treaty itself will follow the usual process with regards to scrutiny and ratification. I say to the right reverend Prelate the Bishop of Norwich that I am afraid I cannot improve on that, and I will continue to defer to the Home Secretary.

I would like to provide reassurance to noble Lords that the treaty enhances the role of the previously established independent monitoring committee, which will ensure that obligations under the treaty are adhered to in practice and will be able to take steps to address any concerns at an early stage. Therefore, the Government argue that the amendments in the name of the noble and learned Lord, Lord Hope of Craighead, are not necessary, although I of course take his points about words. As the noble and learned Lord said, the Bill reflects the strength of the Government of Rwanda’s protections and commitments given in the treaty to people relocated to Rwanda in accordance with the treaty. It addresses the point made by the Supreme Court that Rwanda’s systems could be strengthened, on the basis of the facts before the Supreme Court at the time.

Amendment 14 in particular would impose a requirement for the joint committee for the migration and economic development partnership to provide a declaration to the Secretary of State confirming that the mechanisms specified in Article 2 of the treaty have been implemented. Without such a declaration, the effect of the amendment would be that the treaty could not be regarded as fully implemented. This is unnecessary. We have assurances from the Government of Rwanda that the implementation of all measures within the treaty will be expedited.

I turn to Amendments 15, 16, 77, 83 and 88 in the name of the noble Lord, Lord Anderson of Ipswich, and Amendments 64 and 65 in the name of the noble Lord, Lord Coaker. The monitoring committee is independent of both the UK and Rwandan Governments. It was established under the memorandum of understanding that originally underpinned the partnership. The treaty enhances the monitoring committee’s role. Article 15 of the treaty provides that the UK and Rwanda must establish and maintain a monitoring committee for the duration of the term of the agreement. This means that both parties are obliged to ensure that the monitoring committee continues in operation for the life of the agreement, and this obligation is binding in international law.

The Government have already established robust reporting mechanisms. The monitoring committee’s terms of reference and enhanced monitoring plan are available publicly on GOV.UK. They set out that, during the period of enhanced monitoring, the monitoring committee will report to the joint committee, which is made up of both UK and Rwandan officials—as set out in Article 15(4)(b)—in accordance with an agreed action plan, which will include weekly and bi-weekly reporting as required.

It would be helpful to go into more detail on this. The treaty includes enhanced provisions to provide real-time independent scrutiny of Rwanda’s asylum procedures, aimed at preventing the risk of mistreatment contrary to Article 3 of the ECHR before it has the chance to occur. This addresses the findings in the Supreme Court proceedings that under the previous arrangements, as set out in the memorandum of understanding, the work of the monitoring committee would necessarily be retrospective.

In addition, the new provision of the monitoring committee’s own complaints system will allow relocated individuals and their legal adviser to make direct and confidential complaints regarding any alleged failure to comply with the obligations in the agreement. That enhanced phase will ensure that monitoring and reporting take place in real time, so that the monitoring committee can rapidly identify, address and respond to any shortcomings or failures to comply with the obligations in the agreement, identify areas for improvement, or urgently escalate issues prior to any shortcomings or breaches placing a relocated individual at risk of real harm. That will include reporting to the joint committee co-chairs within 24 hours in emergency or urgent situations.

As per Article 15(4)(c) of the treaty, the monitoring committee will make any recommendations to the joint committee that it sees fit. The monitoring committee will otherwise produce a formal written report for the joint committee on a quarterly basis over the first two years of the partnership, setting out its findings and making any recommendations. Following notification to the joint committee, the monitoring committee may publish reports on its findings as it sees fit. At least once a year, it will produce a summary report for publication. We consequently consider these arrangements, which have been carefully agreed with the Government of Rwanda and will be binding in international law, to be sufficient to ensure continued compliance with all the terms of the treaty.

Finally, I am grateful to the noble Lord, Lord Blunkett, for his Amendments 8 and 72. Clause 1 sets out the obligations to which the Government of Rwanda have committed under the new treaty. The proposal in these amendments does not reflect the arrangements under the treaty. Requiring persons whose claims are successful in Rwanda to be returned to the UK would be against the spirit and intention of the treaty and the partnership. Those relocated to Rwanda are not intended to be returned to the UK, except in very limited circumstances.

It is the Government of Rwanda who will grant refugee status to those relocated to Rwanda through the treaty, which will underpin the migration and economic development partnership, not the UK Government. The grant of refugee status in Rwanda does not confer on that person any rights in the UK, as would be the case for any other person granted refugee status in Rwanda who had not been relocated from the UK. Anyone who wishes to come to the UK in future would have to apply through legal routes—through a work or family route. However, there would be no guarantee that they would be accepted.

As my noble friend Lord Murray of Blidworth noted, relocating asylum seekers to a safe third country to process their claim is compliant with the UK’s obligations under the refugee convention, as confirmed by the High Court and the Court of Appeal. The Supreme Court did not disturb that finding.

[Lord Blunkett (Lab)]

Perhaps the Minister will answer two very simple questions. First, where else in the world have people been offshored but actually offloaded, as opposed to having the process completed and their refugee status acknowledged in the country they have reached? Secondly, what happens if people do not claim asylum in Rwanda?

[Lord Sharpe of Epsom (Con)]

Under the terms of the Bill, a person will be relocated if they have made a protection claim—that is, an asylum claim—in the UK. But, to be clear, we can also remove those who do not. On the other point, we have heard a very lively debate on other examples from around the world; I am afraid that I am not an expert on those examples, so I am not able to opine further.

[Lord Hannay of Chiswick (CB)]

My Lords, I was living in hope that the Minister would respond to my comments. On an earlier group he declined to answer my questions about the compatibility of what is being proposed by the Government with the criteria set out by this House some weeks ago, with a majority of 43, as being necessary to have been operationalised and in effect before Rwanda could be considered a safe place. Will he now take the opportunity to work his way through those 10 points? I am of infinite patience, but he said that he would do so on a later group. Can he now do so, please?

--- Later in debate ---

[Lord Sharpe of Epsom (Con)]

I am afraid that I will not at this precise moment, but I again defer to the Home Secretary, who made his views very clear on operationalising the Bill.

As my noble and learned friend Lord Stewart of Dirleton set out earlier in the debate, Rwanda has a strong record of welcoming asylum seekers and looking after refugees, and it has also been internationally recognised for its general safety and stability. Those relocated to Rwanda will be given safety and extensive support, as detailed in the treaty. I am grateful to the officials in the Government of Rwanda for all their efforts, particularly for the provisions for real-time and comprehensive monitoring of the end-to-end relocation and asylum process for individuals relocated under the partnership. I hope that I have at least been able to go some way to responding to the amendments from the noble and learned Lord, Lord Hope, and that, on that basis, he is content not to press them.

Safety of Rwanda (Asylum and Immigration) Bill

Lord Sharpe of Epsom Excerpts

Committee stage
Wednesday 14th February 2024 Lords Chamber

[Lord Ponsonby of Shulbrede (Lab)]

My Lords, in this Bill we are discussing many of the same issues we discussed during the passage of the Illegal Migration Bill. Given the importance of the issues that were raised and the strength of the arguments, it is unfortunate that we are here, not even a year later, asking the Government to ensure protections for vulnerable people, children, those trafficked or sold into slavery and those who have proven themselves friends and allies of our country in Afghanistan in the face of great personal danger. It is disappointing that the Government did not listen on that previous occasion and I hope the Minister has listened to the arguments put forward by noble Lords in Committee today and will respond fully to those concerns.

As the noble Lord, Lord Randall, said, this has essentially been a debate about exceptions. The noble and learned Baroness, Lady Butler-Sloss, introduced her amendments about exceptions for those who may be victims under the Modern Slavery Act and, as she pointed out, there is a process to go through to make those sorts of assessments. She talked about, first, the referral, then the reasonable grounds submission and the final positive grounds submission. As the noble Lord, Lord Purvis, said, the whole purpose of that Act, an Act which the whole of Parliament is proud of, introduced in 2017, is to stop double victims, and that is one category of people who, we argue, through the amendments, should be exempt from the provisions of the Bill.

My noble friend Lord Browne, in his Amendment 75, gave particular focus to this when he gave those open-source examples of three Afghans who arrived irregularly here on UK shores and who face deportation to Rwanda. His amendments seek to make an exception for those cases as well. I have to say that I think my noble friend’s amendment should be very difficult for the Back Benches of the party opposite to resist. I thought the contribution from the noble and gallant Lord, Lord Stirrup, was particularly supportive when he said that the number one objective is to be seen as a trustworthy country.

I thank the noble Lord, Lord Horam, because he was the noble Lord who most clearly articulated the purpose of the Bill as drafted. He said that there needs to be a sharpness and narrowness of definition to achieve the ends and facilitate the removals of people to Rwanda. That was a very clear statement of what is indeed the object of the Bill, but we are talking here about exceptions, about people who may be victims of modern slavery or may have served our country in Afghanistan or elsewhere. The power of the debate is where the moral authority lies. I thought that the noble Lord, Lord Bellingham, made an interesting point. Of course, he is a loyal member of his own party, but he urged the Minister to look for alternative ways to achieve the same ends, and I will listen very carefully to what the Minister has to say to that challenge.

I conclude by saying that this has been an extraordinary debate. It goes to the very heart of what our country stands for. It is about integrity, about moral authority and about the rule of law and how our rule of law is viewed by other countries, which are probably watching our debate as we are having it right now. It is in that spirit that I will listen very carefully to the answer of the Minister.

[The Parliamentary Under-Secretary of State, Home Office (Lord Sharpe of Epsom) (Con)]

My Lords, I thank all noble Lords who have taken part in this very thoughtful debate. I reassure noble Lords that my noble and learned friend and I have paid very close attention to all the points that have been made.

As we have heard, these amendments relate to the position of potential and confirmed victims of modern slavery, and exempting people from being relocated to Rwanda, including those who have supported His Majesty’s Armed Forces or the UK Government overseas in certain circumstances.

Of course, we greatly value the contribution of those who have supported us and our Armed Forces overseas, and we have accepted our moral obligation. That is why there are legal routes for them to come to the UK. For example, all those who enlist and serve in His Majesty’s Armed Forces are exempt from immigration control until they are discharged from regular service. After that, non-UK HM Armed Forces personnel can apply for settlement under the Immigration Rules on discharge, when their exemption from immigration control ends. There are also provisions for family members of HM Armed Forces personnel to come to the UK legally. Anyone eligible for the Afghan relocations and assistance policy and Afghan citizens resettlement scheme should apply to come to the UK legally under those routes. As regards the specific case of British Council personnel, they are qualified under the third pathway of the ACRS and places are offered to them. To correct the noble Lord, Lord Scriven, these are not Home Office-run programmes, they are run by the MoD and the Foreign Office.

I have no doubt that, with regard to Amendment 75, the noble Lord, Lord Browne of Ladyton, would agree with me that we need to deter people from making dangerous and unnecessary journeys to the UK. A person who arrives in the UK illegally should not be able to make the UK their home and eventually settle here. Regardless of the contribution they have previously made, a person who chooses to come to the UK illegally, particularly if they have a safe and legal route available to them, should be liable for removal to a safe country. Having said that, the noble Lord, Lord Alton, and the noble and gallant Lord, Lord Stirrup, know that service- men are a subject of considerable personal importance to me. If they have any particular instances of personnel struggling to access one of those safe and legal routes, I ask them to raise them with me directly.

[Lord Browne of Ladyton (Lab)]

I feel I have to point out to the Minister facts which I took for granted, because they had instructed the Government’s apparent U-turn on the ARAP scheme to review those who had been told they were ineligible for it. That implies that the Government accept the overwhelming evidence that these decisions were made in error on our relationship to people who were otherwise members of the Afghan forces and not our forces, and therefore not able to avail themselves of the provisions that the Minister has described—unnecessarily, I think—to the Committee. It is not those people we are talking about.

We have a group of people who were refused because errors were made. They may also have been refused, in some cases, because there was a deliberate, venal reason by other forces to block them from that arrangement. I do not want to debate that issue; I do not know the facts of it, it is subject to an investigation, and we should not trouble ourselves with it. However, that may be the case.

It comes to this: many of these people applied for the status that would allow them a legal way to come. They were refused—in error, deliberately, or maliciously. The review will tell us that. They were then faced with the choice to stay in Afghanistan and face certain death or to get here somehow. They chose to get here somehow; they had no alternative. There was no legal route open to them. That is the dilemma. It is not that they chose not to “hop on” a British Airways flight and come here, showing their status to allow them to do it. It was taken from them wrongly and they were left in this situation. They had the choice of waiting for their death or getting here. These are not people doing something because they want to—they have no alternative.

[Lord Sharpe of Epsom (Con)]

I take the noble Lord’s point, and I deeply regret any errors that were made in regard to these personnel. I certainly hope that the investigations are rigorous, and if there is any suggestion of any malicious refusal, the full force of the law should be brought to bear. Those errors have been identified, partly because of the noble Lord’s campaigning, and I am assured that they have been corrected now. Therefore, the point stands: there are safe and legal routes to this country for personnel in these positions.

[Lord Alton of Liverpool (CB)]

I will reinforce the point that the noble Lord, Lord Browne, has made and I am grateful to the Minister for his patience. The individual cases that I have referred to the Minister have failed to qualify under the ARAP scheme, and yet he, through his own interventions and those of other Ministers, has been able to rectify those issues; there will doubtless be similar cases in the future as well. Should we not at least have a review of how the schemes are running—an open and transparent process—and a review of some of the cases that have already been referred to the Minister, and to the MoD and the Foreign Office, so that we can see how many we are talking about and what is going wrong inside the system that those cases were turned down in the first place?

[Baroness Hamwee (LD)]

My Lords, I am not sure whether I picked up in the Minister’s response that he included the cohort listed in paragraph (b) of the amendment of the noble Lord, Lord Browne; that is, not people who have supported our Armed Forces overseas but

“persons who have been employed by or indirectly contracted to provide services to the United Kingdom Government”.

[Lord Sharpe of Epsom (Con)]

Regarding the applications to the ARAP scheme, clearly, I am not qualified to comment on individual circumstances as described by the noble Lord. I am afraid I do not know the precise details of who is qualified to apply under the ARAP scheme, so I will find that out and come back to the noble Baroness in due course. I cannot give any further comment at this point.

I have heard what has been said, and I will now turn to Amendments 70, 73 and 85, proposed by the noble and learned Baroness, Lady Butler-Sloss, and Amendments 18, 23, and 47, in the name of the noble Lord, Lord German. The UK has a proactive duty to identify victims of modern slavery, and we remain committed to ensuring that where indicators that someone is a victim of modern slavery are identified by first responders, they continue to be referred into the national referral mechanism for consideration by the competent authorities. Steps will be taken in all cases to identify whether a person may be a victim of modern slavery, and if a person is referred into the national referral mechanism, a reasonable grounds decision will be made.

Amendment 70 would act to impede the provisions already passed in the Nationality and Borders Act and the Illegal Migration Act that introduced the means to disqualify certain individuals from the national referral mechanism on grounds of public order before a conclusive grounds decision is considered. The amendment is also unnecessary—it is important to be clear on this point—as the Government of Rwanda have systems in place to safeguard relocated individuals with a range of vulnerabilities, including those concerning mental health and gender-based violence.

Regarding victims of modern slavery, Article 5(2)(d) of the treaty obliges the UK to provide Rwanda with

“the outcome of any decision in the United Kingdom as to whether the Relocated Individual is a victim of trafficking”,

and this includes positive reasonable grounds decisions, as well as positive conclusive grounds decisions. Article 13 of the treaty makes specific provision that Rwanda will have regard to information provided by the UK

“about a Relocated Individual relating to any special needs that may arise as a result of them being a victim of modern slavery or human trafficking, and shall take all necessary steps to ensure that these needs are accommodated”.

[Lord Purvis of Tweed (LD)]

This is the point I made at Second Reading. Section 22 of the Illegal Migration Act disapplies all of what the Minister just said when someone arrives by an irregular route. It disapplies the process of someone claiming that they are a victim of trafficking; it disapplies their ability to be referred to the NRM; and it disapplies the Home Office or the receiving officer taking this information. How are they interacting?

[Lord Sharpe of Epsom (Con)]

My Lords, I will repeat the point: the first responders will be expected to refer individuals into the NRM where there are indicators of modern slavery. One of those indicators is whether they claim to be victims of modern slavery.

[Lord Purvis of Tweed (LD)]

I am still waiting on the letter. Section 22 of the Illegal Migration Act, on modern slavery, disapplies that. It is not possible for that to happen under the Illegal Migration Act.

[Lord Sharpe of Epsom (Con)]

I repeat the points that I have made. I will write the letter to the noble Lord. I have the information, but it is incredibly lengthy and I do not want to repeat it all now. I will make sure it is put down in a letter to the noble Lord.

[Lord Scriven (LD)]

The Minister cannot get away with this. This is a clear issue of an amendment that has been put specifically regarding these people. Section 22(2) disapplies the prohibition of removing that person. Basically, the Illegal Migration Act does exactly what my noble friend says: these people will not be referred. The answer that the Minister has given from the Dispatch Box does not apply to people who have arrived by an illegal route. What route will they have to be assured that any protection that he has just said will be offered to them in Rwanda will in fact be offered there? There will be no data, no evidence and no protection for them.

[Lord Sharpe of Epsom (Con)]

My Lords, I will go into the detail that I have on what happens when someone arrives illegally and claims to be a victim of modern slavery, both under the Illegal Migration Act and pre-IMA. First responders will be expected to refer individuals into the national referral mechanism where there are indicators of modern slavery, whether IMA or pre-IMA.

Under the IMA, when somebody has arrived in the UK illegally and is therefore subject to the Section 2 duty to make removal arrangements, and has received a positive modern slavery reasonable grounds decision from the competent authorities in the NRM, they will be disqualified from the protections that typically flow from a positive RG decision unless the exceptions in Section 22 of the IMA apply.

Under pre-IMA, when someone has arrived in the UK illegally and they have received a positive modern slavery reasonable grounds decision in the NRM, they are eligible for the protections and support of the recovery period. However, if a public order disqualification, as set out in Section 63 of NABA, is made for an individual, that eligibility for support will not apply and they may be eligible for removal.

The other point is that, as I have said before from the Dispatch Box, the treaty specifically provides that we share information with Rwanda and that extra measures will be provided with regards to the specific vulnerabilities of the types that we are discussing. I hope that goes some way to clarify the picture. I appreciate that it is quite complex to keep up with, and I will write a letter.

Amendments 23 and 47 overlap with later amendments in the name of the noble Lord, Lord Dubs. I hope that the noble Lord, Lord German, will be content if I deal with the substance of that amendment when we reach that debate. In summary, Article 3 of the UK-Rwanda treaty makes specific reference to unaccompanied children not being included in the treaty and that the UK Government will not seek to relocate unaccompanied children under the age of 18 to Rwanda.

Amendment 85 looks to put a block on commencement and seeks to ensure that there are detailed assessments of the impact of the Bill on victims of modern slavery and human trafficking. The independent monitoring committee, established on 2 September 2022 under the terms of the initial MoU, has subsequently been enhanced by the treaty between the UK and Rwanda to ensure that the obligations under the treaty are adhered to in practice. The treaty already makes clear that the agreed monitoring mechanisms must be in place by the time the partnership is operationalised.

As noble Lords also know, the new Independent Anti-Slavery Commissioner started her role on 11 December 2023. The Government will work collaboratively with the commissioner to ensure that modern slavery is effectively tackled in the UK, and will work with international partners to promote best practice.

As set out in the earlier debate, the Government’s assessment in the published policy statement, drawing on wider evidence documents, is that Rwanda is a safe country with respect for the rule of law. The treaty that the UK has agreed with Rwanda makes express provision for the treatment of relocated individuals, demonstrating the commitment of both parties to upholding fundamental human rights and freedoms without discrimination and in line with both our domestic and our international obligations.

Rwanda is a country that cares deeply about refugees, and I thank my noble friend Lord Bellingham for his perspective on this. That is demonstrated by its work with the UNHCR to temporarily accommodate some of the most vulnerable populations who have faced trauma, detention and violence. We are confident that those relocated under our partnership would be safe, as per the assurances negotiated in our legally binding treaty.

In answer to the noble Lord, Lord Kerr of Kinlochard, Clause 7(2) of the Bill says:

“In this Act, references to a person do not include a person who is a national of the Republic of Rwanda or who has obtained a passport or other document of identity in the Republic of Rwanda”.


All relocated individuals, including potential and confirmed victims of modern slavery, will receive appropriate protections and assistance according to their needs, including referral to specialist services, as appropriate, to protect their welfare.

Morality was mentioned by a number of speakers. I would like to put on the record a slightly different perspective on morality. I think it is immoral not to try to stop vulnerable people being exposed to dangerous and involuntary channel crossings. It is immoral to facilitate the activity of criminal gangs, most of whom, by definition, are also human traffickers. It is our moral imperative to stop these modern-day slavers and smash these criminal gangs that are exploiting people and putting others’ lives at risk. If any victims are identified, as I have repeatedly said, there are safeguards within the treaty to make provision for their vulnerabilities.

[Lord Deben (Con)]

On that point, those of us who raised the question about morality agree with all the Minister said about it but, at this moment, we are clearly uncertain about whether people who have been trafficked are able to get support in this country, from a system that was laid down by a Conservative Prime Minister, before there is any question of them being exported to Rwanda. If the Minister can show that to us in the letter, which I hope he copies to me and to others, we will be prepared to accept that we are being moral, at least in that category. At the moment, it looks to us as if we are not dealing with the issue of people who could not be deterred from coming here because they are being brought here compulsorily.

[Lord Sharpe of Epsom (Con)]

I thank my noble friend for that and will of course make sure that he is copied in to the letter. I heard very clearly what he said, and I speak on behalf of my noble and learned friend. Clearly, we would not wish to argue for a lack of morality in the safeguards that we are putting in place for vulnerable people.

[Lord Purvis of Tweed (LD)]

I have a specific question to ask. I do not doubt the Minister’s motives or morality; I think that doing this is just wrong. On 12 July—I checked the record—the Minister’s predecessor, the noble Lord, Lord Murray, told the House when we were voting on the trafficking amendments to the Illegal Migration Bill that only British nationals could be referred to the NRM. The Minister needs to be very clear in confirming that any national who arrives on a small boat can now be referred to the NRM. That is the clarification that I am seeking from the Minister; it is a very simple question.

[Lord Sharpe of Epsom (Con)]

Based on the information that I have available to me here, the answer to that is yes. However, I reserve the right to correct that in the letter if I am wrong, for which obviously I will issue the appropriate apologies.

If, despite all those safeguards, an individual considers that Rwanda would not be safe for them, Clause 4 means that decision-makers may consider a claim on such grounds other than in relation to alleged onward refoulement if such a claim is based on compelling evidence relating specifically to the person’s particular individual circumstances rather than on the ground that Rwanda is not a safe country in general.

I hope that I have been able to provide some reassurance to noble Lords and that the noble Lord will be content to withdraw his amendment.

[Lord Scriven (LD)]

My Lords, I thank all noble Lords for contributing to what has been a very powerful and at times deeply moving debate. It reminds us that we are talking not about a group with a label but about fathers and mothers, sons and daughters, brothers and sisters. In this group we have been talking about some of the most vulnerable of the vulnerable: those who have been trafficked, who have not arrived on our shores of free will but who are here because, as my noble friend Lord Purvis of Tweed said, they have been trafficked, have been brought here against their will and are being held in slavery against their will.

This debate has shown that when reality hits rhetoric, rhetoric never wins. I have not been convinced by the Minister’s responses, and in a way I feel sorry for him, because I am sure that, in his heart of hearts, he does not believe in the majority of the nonsense that comes out of his official briefs on this. It is so incredible that it could be read in a parallel universe, because it is not based in the reality which I think most sensible people in this country would understand.

It is amazing that we as a House of the British Parliament, to use the phrase of the noble Lord, Lord Randall of Uxbridge, now have to plead in order to try to put in a league table the right of the most vulnerable of the vulnerable for some basic protections that we would want to give every single human being. I do not think that the Minister has convinced me or the majority of the House that the answers he has given do that.

However, despite that, I am sure that on Report we will come back to these important issues of protecting mothers, fathers, sons and daughters. I beg to withdraw Amendment 18.

Safety of Rwanda (Asylum and Immigration) Bill

Lord Sharpe of Epsom Excerpts

Committee stage
Monday 19th February 2024 Lords Chamber

[The Parliamentary Under-Secretary of State, Home Office (Lord Sharpe of Epsom) (Con)]

My Lords, the independent monitoring committee was established on 2 September 2022 under the terms of the initial memorandum of understanding. Its role has subsequently been enhanced by the treaty between the UK and Rwanda to ensure that the obligations under the treaty are adhered to in practice. The monitoring committee’s role is to provide an independent assessment of delivery against the assurances set out in the treaty. The noble Lord, Lord Coaker, asked last week about how many members of the committee have been appointed, whether the committee has yet agreed the terms of reference that it is supposed to have agreed, and whether they have been published.

The monitoring committee is made up of eight independent experts, whose full details can be found on GOV.UK. Prior to the signing of the treaty between the UK and Rwanda by the Home Secretary and its subsequent laying in Parliament, the monitoring committee met on 4 December 2023 to formally agree the enhanced monitoring provisions the treaty sets out. These build on the terms of reference and monitoring plan that the monitoring committee had produced following the Court of Appeal judgment, the primary purpose being to address the Supreme Court’s concerns about real-time monitoring and thus ensure that mechanisms were in place to prevent the risk of harm to relocated individuals before it could occur. The monitoring committee discussed and approved forward-looking changes to the terms of reference and monitoring plan to enhance the monitoring regime in line with the provisions proposed in the treaty.

To make it clear, the terms of reference and enhanced monitoring plan are available publicly on GOV.UK. However, to summarise, it sets out the following details of the committee’s remit: monitoring compliance with the assurances given in the treaty and associated notes verbales; reporting to the joint committee on its findings as to, for example, His Majesty’s Government’s and the Government of Rwanda’s implementation of the obligations in the treaty, reception conditions, accommodation, processing of asylum claims, and treatment and support of relocated individuals at all times while they remain in Rwanda; it may publish its reports following notification to the joint committee; it is expected to report any significant issues to the joint committee straightaway; it may provide advice or recommendations to the joint committee on actions which should be taken to address identified issues; monitoring complaints handling by His Majesty’s Government and the Government of Rwanda; and developing its own complaints system to allow relocated individuals and their legal advisers to make confidential complaints regarding any alleged failure to comply with the obligations in the treaty—including as to treatment of a relocated individual—or any element of the processing of their asylum claim in accordance with the treaty.

As I set out in earlier debates in response to similar amendments tabled by the noble Lord, Lord Anderson of Ipswich, Article 15 of the treaty provides that the UK and Rwanda must establish and maintain a monitoring committee for the duration of the term of the agreement. This means that both parties are obliged to ensure that the monitoring committee continues in operation for the life of the agreement, and this obligation is binding in international law.

Noble Lords last week also asked about safeguarding arrangements for relocated individuals. Article 13 of the treaty makes specific provision that Rwanda will have regard to information provided about a relocated individual relating to any special needs that may arise and shall take all necessary steps to ensure that those needs are accommodated. The treaty makes it clear that the agreed monitoring mechanisms must be in place by the time the partnership is operationalised. It specifically provides that there will be an enhanced initial monitoring period for a minimum of three months—from the date removal decisions commence in the United Kingdom—where monitoring shall take place daily, to ensure rapid identification and response to any shortcomings.

Under the treaty, the monitoring committee will have the power to set its own priority areas for monitoring, have unfettered access for the purposes of completing assessments and reports, and have the ability to publish those reports as it sees fit. The committee will monitor the entire relocation process from the beginning—including initial screening—to relocation and ongoing settlement and integration in Rwanda.

The monitoring committee will have the ability to make unannounced visits to accommodation, asylum processing centres and any other locations where documents or information relating to relocated individuals, or their claims and appeals, are held. It will also be able to sit in on interviews by the first instance body with the express consent of the individual being interviewed and to observe hearings before the appeal body.

[Lord Falconer of Thoroton (Lab)]

I apologise for interrupting the Minister, but are we right to understand that he is saying that there will be no deportations to Rwanda until the monitoring committee is up and running?

[Lord Sharpe of Epsom (Con)]

As far as I understand it, that is the case.

On a point that we will debate further in relation to Amendment 76A tabled by the noble Lord, Lord Purvis of Tweed, and the noble Baroness, Lady Hamwee, during the period of enhanced monitoring, the monitoring committee will report to the joint committee in accordance with an agreed action plan to include weekly and bi-weekly reporting as required. It will otherwise produce a formal written report for the joint committee on a quarterly basis over the first two years of the partnership, setting out its findings and making any recommendations.

The monitoring committee will be supported in all its work by a new support team—

[Lord Kerr of Kinlochard (CB)]

Will the Minister say whether the reports from the monitoring committee to the joint committee will be made available to the House?

[Lord Sharpe of Epsom (Con)]

I cannot say that at the moment, but, as I have said, they will be published on a regular basis.

The monitoring committee will be supported in all its work by a new support team, as set out in Article 15.(8) of the treaty. The new support team will consist of individuals who do not work for either the UK Government or the Government of Rwanda. The monitoring committee has already met three times since its inception and has agreed to the publication of its terms of reference and enhanced monitoring plan, which are both available online as part of the supporting evidence document that the Government have published. Therefore, we consider that Amendment 86, tabled by the noble Lord, Lord Coaker, is unnecessary.

Amendments 81 and 82 tabled by the noble Baroness, Lady Chakrabarti, and my noble friend Lord Hailsham seek to ensure that the Act does not come into force upon ratification of the treaty but instead requires secondary legislation to be laid before commencement requiring a JCHR report on the safety of Rwanda and agreement on this point from the House of Commons and the House of Lords. Amendment 71 in the name of the noble Lord, Lord German, would introduce a new clause whereby the Secretary of State must lay a statutory instrument before Parliament every six months stating that their assessment is that Rwanda is a safe country. This Bill reflects the strength of the Government of Rwanda’s protections and commitments given in the treaty to people transferred to Rwanda in accordance with the treaty. The treaty, alongside the evidence of changes in Rwanda since summer 2022, already enables Parliament to reach the conclusion that Rwanda is a safe country. There is therefore no requirement for any further legislation or additional reporting prior to commencement.

The UK-Rwanda partnership is a long-term policy and forms part of a wider set of measures to tackle illegal migration. A review of the policy every six months or two years would be an inefficient use of both government and parliamentary time. Furthermore, as I have set out, this is not needed, as the functions of the independent monitoring committee have been enhanced to ensure that obligations under the treaty are adhered to in practice. These arrangements, which have been carefully agreed with the Government of Rwanda and will be binding in international law, will ensure continued compliance with all the terms of the treaty.

It is also worth noting that Article 4.(1) of the treaty sets out clearly that it is for the UK to determine the timing of a request for relocation of individuals under the terms of the agreement and the number of such requests made. The treaty does not place on the UK an obligation to make any such request. This means that the Government would not be obligated to remove individuals under the terms of the treaty if there had been, for example, an unexpected change to the in-country situation in Rwanda that required further consideration. As is the case in many scenarios, the Government would be able to respond and adapt as necessary.

I turn to Amendments 69 and 87 in the name of the noble Lord, Lord Coaker, and Amendment 74 in the name of the noble Lord, Lord Purvis of Tweed. This legislation does not impact the financial agreement with Rwanda which was reached in 2022 through the memorandum of understanding for the migration and economic development partnership. Noble Lords will be aware that we have provided Rwanda with £220 million as part of the economic transformation fund and £20 million as an advance credit to pay for operational costs in advance of flights commencing. The spend on the MEDP with Rwanda so far is £240 million. In response to a point raised by the noble Lord, Lord Purvis, the £100 million is not a credit line, as he indicated last week.

There was an initial investment of £120 million in 2022 as part of a new economic transformation and integration fund, ETIF, created as part of the MEDP. The ETIF is for the economic growth and development of Rwanda. Investment has been focused in areas such as education, healthcare, agriculture, infrastructure and job creation. A further payment of £100 million was made in 2023 through the ETIF as part of the partnership. We anticipate providing another £50 million in the next financial year. This is not new but follows the same arrangement from 2022. We also made a separate payment of £20 million to the Government of Rwanda in 2022 in advance of flights to support initial set-up costs of the asylum and processing arrangements under the MEDP.

With regard to the question of whether there will be another tranche of funding for the Hope hostel in the next financial year, procurement of accommodation is for the Government of Rwanda. Accommodation costs are covered by the funding stream for operationalisation, and it is then up to the Government of Rwanda as to which accommodation they procure. This legislation also does not impact the process for removals to a safe third country, so the appraisal set out in the illegal migration impact assessment remains unaffected. The published economic note on this legislation explained that the exact cost will depend on the details of the implementation and the level of deterrence. The Government are already committed to disclosing further payments made as part of the economic transformation fund and the per-person relocation costs as part of the department’s annual accounts in the normal way.

Your Lordships will also be aware that the National Audit Office will be producing a factual report on the costs of this partnership. Officials have been working closely with the National Audit Office to ensure that they have the relevant information required for this. I cannot give any opinion on the date of publication, but it will likely be in the near future.

Finally, with the—

[Lord Purvis of Tweed (LD)]

My Lords, I am grateful to the Minister for outlining the elements of the ETIF and the MEDP, but could he place in the Library a more detailed breakdown? The £20 million credit line for operational does seem to be one part of a credit line. The Minister says that I was incorrect in stating that there was a total of £100 million. I will happily take him at his word if that is the case, but a more detailed breakdown of how much of the expenditure of the Rwandan Government will be UK taxpayers’ money would be helpful. Also, can he confirm whether this is being scored as overseas official development assistance or not?

[Lord Sharpe of Epsom (Con)]

I am happy to commit to providing as much detail as I can in the letter that the noble Lord requests. I am afraid that I do not know the answer to the foreign development aid question, so I will have to look into that and come back to him.

With regard to Amendments 35 and 90 in the name of the noble Lord, Lord German, it is right that this Bill should apply to anyone arriving after the Rwanda treaty enters into force. It is the treaty, working together with the provisions in this Bill, that underpins the safety of Rwanda. As such, once the treaty is in force the basis for removal under this Bill is established. Clause 9(1) ensures that the Bill and the treaty come into force on the same day. This legislation builds on the Illegal Migration Act 2023, the Nationality and Borders Act 2022 and other immigration Acts. To the extent that those Acts have retrospective effect, this Bill does nothing to change that.

Accommodating migrants in hotels is costing us £8 million each day. That is billions per year, which is clearly not sustainable. If people know that there is no way for them to stay in the UK, they will not leave safe countries such as France to risk their lives and pay criminals thousands of pounds to arrive here illegally. It is therefore only right that we stop the boats and break the business model of the criminal gangs who exploit vulnerable people. The Government consider this partnership to be a vital investment and therefore I invite the noble Lord to withdraw his amendment.

[Lord Falconer of Thoroton (Lab)]

My Lords, the noble and learned Lord, Lord Stewart of Dirleton, indicated in an earlier amendment that the Government would say how Parliament was going to keep its judgment that Rwanda was a safe country under review because circumstances could change. He was going to tell us, but then said that it was going to come in a later amendment. I indicated, at the beginning of this group, which was adjourned from Wednesday, that we were assuming that it would be the noble Lord, Lord Sharpe of Epsom, on this amendment, who was going to tell us how Parliament was going to keep its judgment under review. If it will be in a later amendment, by all means say, but if it is intended to be under this amendment, can the Minister tell us how Parliament is to keep the judgment that it is said we are about to make under review going forward in the future?

Separately from that question, the Minister dealt very shortly with retrospectivity. Does he agree that this Act applies to people who arrived in this country and made a claim for asylum before the Act came into force—and therefore applies retrospectively to them? If it does, what is the Government’s justification for retrospective legislation?

[Lord Sharpe of Epsom (Con)]

Well, my Lords, I recollect the discussion last week between the noble and learned Lord and my noble friend Lord Wolfson. I think my noble friend pointed out that the right to asylum is not a vested legal right—that there is a right to asylum, but not necessarily in the UK. The Government have consistently won in the courts on the point that you can send somebody to another country for asylum—so this is not, in effect, retrospective legislation. As the noble and learned Lord will be aware, I am not a lawyer, but it seemed to me to make some sense when my noble friend was making the argument, so I suggest we go back to that in this case.

[Lord Falconer of Thoroton (Lab)]

Do I take it, then, that the Government’s position reflects the speech made by the noble Lord, Lord Wolfson?

[Lord Sharpe of Epsom (Con)]

No, but I think that the noble Lord, Lord Wolfson, summed up the Government’s position rather well, and probably better than I can. I am afraid that we will have to return to the first question asked by the noble and learned Lord in a later group.

[Lord Coaker (Lab)]

Before the Minister sits down, I have a practical question. He says that this will apply retrospectively—what is the Government’s assessment of the numbers of people that this applies to?

[Lord Sharpe of Epsom (Con)]

I appreciate that the noble Lord asked me about this in the debate last week as well. I will not give him a precise answer at this moment, but will come back to him.

[Lord Scriven (LD)]

My Lords, I thank all noble Lords who took part in this group of amendments. It has been an interesting group and I think we have teased out quite a bit of the Government’s intentions. It is clear that thousands of people will have these rules applied to them even though they arrived on the shores of this country when it was admissible for them to stay in the UK. There is no desire in the Government for this Parliament to have effective monitoring of both the treaty and the operational arrangements of what will happen.

It is very clear from this group, from the Minister’s answers and from what noble Lords have teased out, that there is no trigger to determine exactly, on the ground, that Rwanda is safe—it is only a sentiment in this Act of Parliament—and that the treaty arrangements do not have to be in place for Rwanda to be deemed a safe country by the Government. The treaty only has to be signed, rather than the operational arrangements be in place.

It is also clear that the costings and budgets for this are so diffuse that there will be no real public scrutiny or transparency of the costs of this scheme—it will take many years to get to the bottom of that. Even though the monitoring committee will be in place, the important point is that it has no powers of remedy over anything that it sees as wrong.

So this has been a useful part of Committee. There have been very good questions that have teased out some of the issues. I, like many noble Lords, am not convinced that the Government have answered some serious issues regarding the suite of amendments, and I am sure we will come back to some of them on Report. Having said that, I beg leave to withdraw my amendment.

--- Later in debate ---

[Lord Ponsonby of Shulbrede (Lab)]

My Lords, this group is concerned with members of specific social groups. I welcome the points made by the noble and learned Lord, Lord Etherton: the Government have repeatedly put forward plans in legislation which appear to ignore the very real danger posed to members of certain social groups, including LGBT+ people, in many countries around the world including Rwanda. It again raises the issue of refoulement and the danger it poses; my noble friend Lord Coaker has already spoken about refoulement and has tabled amendments that would address this concern.

I also welcome the amendment tabled by my noble friend Lord Dubs and spoken to by my noble friend Lord Cashman who, alongside Humanists UK, has pointed out the dangers posed to the religious minorities or those who have no religion in Rwanda.

This group has been interesting. It has been a relatively short debate but has focused on the core issues raised by the noble and learned Lord, Lord Etherton, the noble Lord, Lord Carlile, and my noble and learned friend Lord Falconer and my noble friend Lady Chakrabarti about the false dichotomy between individuals and groups in general. I think it was my noble and learned friend who said that the effect of the amendment in the name of the noble and learned Lord would be that the Minister is not tied to the Government’s stated view that Rwanda is a safe country; rather, it would be for the courts to decide that in individual cases where, for example, someone may be gay.

Surely involving our courts in the decision-making process goes to the very heart of the absurdity of the Government making a blanket decision that Rwanda is a safe country. It is doing no more than dipping our toe into the court system by asking it to review individuals who are particularly vulnerable. The amendment is not in any way driving a coach and horses through the legislation; it is trying to reflect concerns for vulnerable individuals through well-established practices within our courts. We support it.

[Lord Sharpe of Epsom (Con)]

My Lords, as we have previously set out, the purpose of the Bill is to stop the boats and end the perilous journeys being made across the channel as it is the busiest shipping lane in the world. These journeys are overwhelmingly made by young, fit men in search of better job opportunities, who are travelling from a safe country. Males represented 88% of small boat arrivals in the year ending September 2023. This is a similar proportion as each year from 2018 to 2021.

Since January 2018, 75% of small boat arrivals have been adult males aged 18 and over. We need a strong deterrent to stop illegal migration and measures to prevent removals being frustrated; we have therefore taken bold steps. However, to ensure that we are meeting our international obligations, Clause 4 provides that a Home Office decision-maker or a court or tribunal can consider a claim that Rwanda is unsafe based on compelling evidence relating specifically to a person’s individual circumstances.

As the Government have set out, since the partnership was announced, UK officials have worked closely with the Government of Rwanda to ensure that individuals relocated under the agreement will be safe and that their rights will be protected. The Government’s legal position, published on 11 December 2023, further sets out that the treaty, and the evidence pack, provide for compliance with the Government’s substantive obligations under international law. Therefore, no one will be removed to Rwanda if they face a real risk of serious and irreversible harm.

I turn to Amendments 38, 40, 43, 45 and 51 in the name of the noble and learned Lord, Lord Etherton, and Amendment 41 in the name of the noble Lord, Lord Dubs, as spoken to by the noble Lord, Lord Cashman. These proposed amendments to Clause 4 would undermine one of the principles that the Bill is seeking to address; namely, to limit the challenges that can be brought against the general safety of Rwanda, even with the signed treaty and updated evidence presented by the Government.

The legislation is clear and affords the appropriate safeguards to ensure that decision makers make a decision about the particular circumstances of each case. The Bill already allows decision-makers and the courts to consider certain claims that Rwanda is unsafe for an individual person due to their particular circumstances, despite the safeguards in the treaty, if there is compelling evidence to that effect.

I of course entirely understand the desire of the noble and learned Lord, Lord Etherton, and the noble Lord, Lord Cashman, to get clarity and certainty on this issue. For people who identify as LGBT+, that consideration would include any assessment of any compelling evidence reviewed in line with the principles outlined in HJ (Iran)—as referenced by the noble Baroness, Lady Chakrabarti—that being LGBT+ would mean that Rwanda was not safe for them in their particular circumstances.

As in all cases under the provisions of the Bill, individuals will be given the opportunity to provide that compelling evidence that they would be at risk in their particular circumstances if they were relocated to Rwanda. That would include any alleged harm as a result of an individual’s gender or sexuality. As I say, any such claims would be assessed on a case-by-case basis, and in the case of LGBT+ claims, that would include any assessment in line with the principles outlined in HJ (Iran).

I make it clear that the Rwandan penal code does not punish homosexuality or relations between people of the same sex. The constitution of Rwanda includes a broad prohibition of discrimination and does not criminalise or discriminate against sexual orientation in law or policy. As regards the FCDO advice, which I was asked about, paragraphs 173 and 174 of the policy statement deal with this, stating:

“As experts on the bilateral relationship between the UK and Rwanda and its development over the past thirty years, FCDO officials based in the relevant geographic and thematic departments working closely with colleagues in the British High Commission in Kigali have liaised with the Home Office throughout the production of this Policy Statement … Information drawn from their institutional expertise as to the in-country situation in Rwanda, and Rwanda’s history of compliance with its international obligations is reflected as appropriate throughout”.


The noble Baroness, Lady Bennett of Manor Castle, raised concerns about the unequal treatment of women in Rwanda during Monday’s debate. The Rwanda country report refers to the National Commission for Human Rights, or NCHR, which is a constitutional commission provided for by the Rwandan constitution. The NCHR is made up of seven commissioners. Each of them has a specific area of focus, including the rights of women. There is a commissioner who is a focal person for or who is in charge of those rights.

The country report concludes that the general treatment of women is good. Women and children’s rights, among those the NCHR monitors, have seen an improvement since the creation of the NCHR. That is reflected in the laws and the constitution, which provides for specific groups’ rights; for example, women, children, and the disabled. The situation is the same for women as for those who are disabled. They are allowed to be elected, and at each administrative level at least 30% of representatives have to be women. In Parliament, more than 60% of representatives are women; the current Rwandan cabinet is 50% women, and five out of the seven commissioners in the NCHR are women.

Women’s rights are respected in every area. Although the NCHR receives some complaints about rights to property, Rwandan family law was amended to allow women to inherit from parents in 1999. The country information note also refers to the police response to victims of gender-based violence and the Gender Monitoring Office, which considers specific issues relating to gender-based violence. The National Women’s Council is represented from village level and at every level above and is a channel for sharing information on anything regarding gender-based violence. It is the responsibility of local leaders to ensure that there are no gender-based violence issues in their area of control. Police monitor what is going on; they can investigate and come up with a report or action.

Furthermore, the rule of law index, which ranks countries on indicators including equal treatment and the absence of discrimination, ranks Rwanda 26th out of 142 countries worldwide and first out of 34 countries in the region. That is a measure of whether individuals are free from discrimination—based on socioeconomic status, gender, ethnicity, religion, national origin, sexual orientation or gender identity—with respect to public services, employment, court proceedings and the justice system. I add that the 2022 US State Department human rights practices report on Rwanda noted:

“Women have the same legal status and are entitled to the same rights as men, including under family, labor, nationality, and inheritance laws. … The law requires equal pay for equal work and prohibits discrimination in hiring decisions”.


As I indicated at the start, this clause provides the foundations for the Bill as a whole; it is fundamental to the effective operation of the scheme, and the amendments put forward would serve only to weaken its effectiveness. I therefore invite the noble and learned Lord to withdraw his amendment.

[Lord Etherton (CB)]

I am very grateful to the Minister for his reply and to those who have spoken. What the debate has shown, short as it was, is that the issue of social groups and how they fit into the legislation is very important. Many points were made on various issues that were all extremely valuable, including the wonderful examples given by the noble Lord, Lord Cashman. The noble Baroness, Lady Kennedy of The Shaws, referred to the ongoing discrimination even after decriminalisation took place here; the noble Lord, Lord Purvis of Tweed, made criticism of the equality impact assessment; and the noble Lord, Lord Scriven, referred to Human Rights Watch’s latest report.

In addition to those points, what this debate has teased out—and this fits in with the amendment spoken to by the noble Lord, Lord Cashman, on behalf of the noble Lord, Lord Dubs—is what the noble Baroness, Lady Chakrabarti, referred to as the “false binary”. It is a critical issue. For this, I am extremely grateful to my noble friend Lord Carlile, the noble Baroness, Lady Chakrabarti, and the noble and learned Lord, Lord Falconer. Even after the Minister’s reply, it remains unclear how one treats someone who has not personally experienced persecution, because, for example, they have hidden their sexuality, their religious views or their political views, but who is a member of a group that has a well-founded fear of persecution were there to be an honest expression of their sexuality or their political and social views or a display of their ethnicity or race. How would one treat those people? The false binary does not allow one to take into account the effect of being a member of a group, as opposed to—as my noble friend Lord Carlile referred to it—being “about me”.

I ask the Government to consider carefully whether, without any undermining of the Bill and its purposes, the introduction of the amendments that I have tabled would not add an important element of clarity, both for those assessing claims—the Ministers, the Government and immigration officers—and for the courts. Subject to that, and on that basis, I beg leave to withdraw the amendment.

--- Later in debate ---

[Lord Ponsonby of Shulbrede (Lab)]

My Lords, this group has been about children. We spoke at length during the passage of the then Illegal Migration Bill about the danger posed to children by the changes in that legislation. To open, I have a couple of questions for the Government. Can the Government give an update on the number of children who have previously been identified as adults but have later been identified as children? How many of them would have been on the list to be moved to Rwanda had the scheme been working?

It is clear that the asylum system is failing, and failing vulnerable children. Beyond the risk of children being sent to Rwanda before their age has been identified, there have been ongoing reports about missing children, children exposed to assault, and children waiting potentially years for a decision on their protections claims. Given this, how can we trust the Government to make the correct decisions for children when it comes to Rwanda?

My noble friend Lady Lister of Burtersett said that it was cruel for children who come in under the age of 18 and live here for a number of years to be sent to Rwanda when they get to 18. She rightly said that this provides an incentive for children to disappear when they know that birth date is arriving. The noble Baroness, Lady Neuberger, talked about the age-old issue of age assessment. I know that very well because, as a youth magistrate, one of the first bits of training I did was on age assessment. Despite all the processes which are rightly in place, sometimes you are bounced into making those decisions, both as an adult magistrate and as a youth magistrate. I am very conscious of the difficulty in making those decisions. I think it was last week that somebody referred to Luke Littler, the darts player, and how he does not look like a 16 year-old boy.

All noble Lords have set out the case very well, and I will not go over the same points that they have raised. I will raise a different point, which I have raised in previous debates. This arises out of a trip with my noble friend Lord Coaker to RAF Manston about a year ago, facilitated by the noble Lord, Lord Murray. At that trip, it became evident to me from talking to the officials there that there is a reasonably large cohort of young people who identify as adults. I have debated this with the Minister—the noble Lord, Lord Sharpe—before, and he has written me a letter about it. They identify as adults because they want to work when they get here. They may well have been working in their own countries since they were about 14 years old. They identify as adults, they may look like adults, and they move into an economy—maybe an underground economy—because they want to work. It seems to me that by having the provisions within the Bill, they will have no incentive to identify as an adult. That will be taken away from them. They would prefer to identify as a youth. Have the Government made any assessment of the increase in people likely to identify as youths when they are coming irregularly into the country? I suspect it is not an insignificant figure and that it is actually quite a large figure.

Nevertheless, this is a very important group of amendments, and I look forward to hearing the Minister’s response.

[Lord Sharpe of Epsom (Con)]

My Lords, I thank all noble Lords who have participated in this debate, which, as we have heard, brings us on to the relocation of unaccompanied children and the subject of age assessments.

Amendment 54 tabled by the noble Baroness, Lady Lister, would reinstate the statutory duty to consult the independent family returns panel in circumstances where we would seek to remove families with children under 18, who fall within the remit of the Illegal Migration Act, to the Republic of Rwanda. This amendment would effectively undo Parliament’s previously agreed position in relation to the removal of families to Rwanda, taking them out of line with those being removed to any other destination, either a safe third country or their home country where it is safe to do so.

I reassure noble Lords that the welfare of a family will continue to be at the forefront of decisions to detain and remove them, regardless of the proposed destination, and we remain in open dialogue with the independent family returns panel about the role that it will have in the removal of families under the Illegal Migration Act.

The intended effect of Amendment 55 is not clear, as the Bill is an additional legislative provision that will apply to removals under the 2023 Act. However, I consider that the amendment is intended to mean that when a decision is made to remove someone under the 2023 Act to Rwanda, Section 57 of the 2023 Act will not apply if there is a decision on age.

I also thank the noble Lord, Lord Dubs, for Amendment 76, which inserts a new clause on age assessments. The intended effect of this amendment is that when a decision is made to relocate someone to Rwanda under the Illegal Migration Act 2023, Section 57 of that Act will not apply if there is an outstanding decision on age. It also seeks to prevent the removal of an age-disputed person from the UK to Rwanda if they are awaiting an age assessment decision under Sections 50 or 51 of the Nationality and Borders Act 2022 or have received a negative decision under these sections and are awaiting a final determination of either an appeal under Section 54 of the 2022 Act or a judicial review application.

It is important that the Government take steps to deter adults from claiming to be children, and to avoid lengthy legal challenges to age assessment decisions preventing the removal of those who have been assessed to be adults. Assessing age is inherently difficult, as all noble Lords have noted. However, it is crucial that we disincentivise adults from knowingly misrepresenting themselves as children. Receiving care and services reserved for children also incurs costs and reduces accessibility of these services for genuine children who need them.

Accordingly, Section 57(2) of the 2023 Act disapplies the yet to be commenced right of appeal for age assessments that was established in Section 54 of the Nationality and Borders Act 2022, for those who meet the four conditions in Section 2 of the 2023 Act. Instead, under Section 57(4) of the 2023 Act, those wishing to challenge a decision on age will be able to do so through judicial review, which will not suspend removal and can continue from outside the UK after they have been removed.

Section 57(5) of the 2023 Act also provides the basis on which a court can consider a decision relating to a person’s age in judicial review proceedings for those who meet the four conditions in Section 2 of the 2023 Act. It provides that a court can grant relief only on the basis that it was wrong in law and must not on the basis that it was wrong as a matter of fact, distinguishing from the position of the Supreme Court in the 2009 judgment in R (A) v Croydon London Borough Council, UKSC 8. The intention is to ensure that the court cannot make its own determination on age, which should properly be reserved for those qualified and trained to assess age, but instead consider a decision on age only on conventional judicial review principles.

In the scenario whereby the Home Office has doubts over a person’s age, they would not be subject to the duty to remove until such time as a final decision on age has been made by the relevant authority referred to in Section 57(6) of the 2023 Act. We consider that those provisions are entirely necessary to safeguard genuine children and guard against those who seek to game the system by purporting to be adults. The noble Lord, Lord Ponsonby, asked me whether we have looked into the opposite. The honest answer is that I do not know, but I will find out and come back to him if we make any assessment of that.

--- Later in debate ---

[Baroness Brinton (LD)]

When I spoke earlier, I asked whether the scientific age assessment had been introduced. The Minister has just referred to other European countries. I said that all those European countries gave the child an independent representative to work with them and to help and support them. Is that happening for children going through this process in the UK?

[Lord Sharpe of Epsom (Con)]

Yes. Basically, all individuals will also have access to interpreters. There will be appropriate adults to assist the young person with understanding, as well as providing support with communications. As I said, the interpretation services—

[Baroness Brinton (LD)]

I am very sorry, but the language here is important. An appropriate adult need not necessarily be independent of the process that is assessing them. When we debated this during the passage of the Illegal Migration Bill, it was made clear to us that that person would not be independent of the process. Is that person independent or, in effect, employed by the Home Office?

[Lord Sharpe of Epsom (Con)]

My Lords, this is a new and obviously complex process, and the full plans for integrating scientific age assessment into the current process are being designed. The statutory instrument that is now in place specifies X-rays, MRIs and so on as scientific methods—they are the building blocks. I will have to come back to the noble Baroness on the question of who is also in the room with the individuals, because I am not 100% sure of the answer.

As has been discussed many times during the course of this Bill and various others, these methods have been recommended by the Age Estimation Science Advisory Committee.

I will respond to the comments made last week by the noble Baronesses, Lady Brinton and Lady Hamwee, on the incidence of potential children being assessed by the Home Office as adults, which was highlighted in a Guardian article and the published January report that had input from various children’s rights NGOs. According to the assessing age guidance details in the Home Office’s age assessment policy for immigration purposes, an individual claiming to be a child will be treated as an adult without conducting further inquiries only if two Home Office members of staff independently determine that the individual’s physical appearance and demeanour very strongly suggest that they are significantly over 18 years of age. The lawfulness of that process was endorsed by the Supreme Court in the case of R (on the application of BF (Eritrea)) v Secretary of State for the Home Department [2021] UKSC 38.

Where doubts remain and an individual cannot be assessed to be significantly over 18, they will be treated as a child for immigration purposes and referred to a local authority for further consideration of their age, usually in the form of a Merton-compliant age assessment. That typically involves two qualified social workers undertaking a series of interviews with the young person, taking into account any other information relevant to their age. “Merton compliant” refers to holistic, social worker-led assessments adhering to principles set out by the courts in several court judgments dating back to 2003.

[Baroness Brinton (LD)]

I apologise for intervening again, but the Minister referred to the AESAC’s report, which is now being implemented. I will not repeat the detail, but in five different paragraphs it asked questions of the Home Office that it said needed to be further looked at before it could give a clean bill of health. Has that now happened? I will write to the Minister with the references in Hansard to our debate on that, which was on 27 November. Does he know whether the AESAC’s concerns about some of the science have now been answered? They had not when we discussed it on 27 November.

[Lord Sharpe of Epsom (Con)]

My Lords, as I pointed out in answer to the previous intervention, the system is still being designed, so I do not know the precise answer to that.

[Baroness Brinton (LD)]

Oh!

[Lord Sharpe of Epsom (Con)]

I am sorry if that upsets the noble Baroness, but I do not know the precise answer. I will find out more and write.

[Baroness Brinton (LD)]

I am very sorry for intervening and grateful to the Minister for giving way. We are now back to the same sort of the debate that we had on the previous group, where we are just going round in circles, being told that it is all being developed and that it will all be fine in the future. Yet we are being asked to agree to legislation without protection for children. That is the real issue: it does not provide protection for children.

[Lord Sharpe of Epsom (Con)]

My Lords, the Government fundamentally disagree with that; we do provide protection for children. As I said, I will come back to the noble Baroness’s specific points. Any decision—

[Lord Falconer of Thoroton (Lab)]

I apologise for also intervening. I was very interested in much of the answer that the Minister gave, and I am genuinely grateful to him for doing his best on this. He said that a judicial review could be taken against the Government where somebody asserts that he or she is under 18, but they have deemed him or her to be over 18. That can be challenged by a judicial review. So, presumably, the courts could stay the deportation until the conclusion of the judicial review. Is that right?

[Lord Sharpe of Epsom (Con)]

No. As I understand it, the judicial review will take place when a person has been relocated to Rwanda.

[Lord Falconer of Thoroton (Lab)]

I am very interested in that answer, too. Surely that is not right. If a judicial review is possible, it is a matter for the court to decide, in its discretion, whether it should give interim relief pending the conclusion of the judicial review. For example, if it took the view that the person who brings the judicial review would be harmed by being sent to Rwanda before a conclusion of the judicial review, the court would have the power to stay it pending the hearing of the judicial review. There is nothing that I see in this Bill that would prevent that. If there is, could the Minister refer me to it?

[Lord Sharpe of Epsom (Con)]

I have to respect the noble and learned Lord’s point of view on that; I am afraid that I am not as well up on the court process as perhaps I should be. I will have to come back to him, if he will allow me to do so.

[Lord Murray of Blidworth (Con)]

My noble friend the Minister might want to make reference to the powers that this Parliament has already passed in Section 57 of the Illegal Migration Act, which provide for those judicial reviews to be conducted abroad once the section comes into force.

[Lord Sharpe of Epsom (Con)]

My noble friend is right; I might very well want to refer to that.

[Baroness Hamwee (LD)]

My Lords, when the noble Lord, Lord Murray, referred to this in his contribution, he used the term “simply”. He said that it would simply have to be dealt with by the young person in Rwanda. Does the Minister agree that “simply” is an appropriate word to use in this context?

[Lord Sharpe of Epsom (Con)]

I am not in a position to agree or disagree, because I do not know how the judicial review process take place; I am afraid that I am not a lawyer.

Any decision on age made by the Home Office for immigration purposes is not binding on the civil or criminal courts. Where an individual is charged with a criminal offence and the presiding judge doubts whether the individual is a child, the court can take a decision on the age of an individual before them based on the available evidence or request that a Merton-compliant age assessment be undertaken.

The noble Baroness, Lady Lister, asked me a consider number of questions on safeguarding, so I will go into some detail on the safeguarding arrangements. They are set out in detail in the standard operating procedure on identifying and safeguarding vulnerability, dated May 2023. It states that, at any stage in the refugee status determination and integration process, officials may encounter and should have due regard to the physical and psychological signs that can indicate that a person is vulnerable. The standard operating procedure sets out the process for identifying vulnerable persons and, where appropriate, making safeguarding referrals to the relevant protection team. Screening interviews to identify vulnerabilities will be conducted by protection officers, who have received the relevant training and are equipped to handle safeguarding referrals competently. The protection team may trigger follow-up assessments and/or treatment, as appropriate. In addition, protection officers may support an individual to engage in the asylum process and advise relevant officials of any support needs or adjustments to enable the individual to engage with the process. Where appropriate, the protection team may refer vulnerable individuals for external support, which may include medical and/or psychosocial support, or support within their accommodation; and, where possible, that should be provided with the informed consent of the individual.

[Baroness Lister of Burtersett (Lab)]

Perhaps the Minister can clarify this since he is answering my questions. Are we talking about here or Rwanda? Does Rwanda have those kinds of safeguarding systems?

[Lord Sharpe of Epsom (Con)]

My Lords, as we discussed in previous groupings, with any of these decisions and any of the evaluations that take place in this country, all the relevant information will be shared with Rwanda. I think that answers the noble Baroness’s question.

[Baroness Lister of Burtersett (Lab)]

I am sorry, it does not. I raised a concern, asking a specific question: how can the Government be sure that the complex mental and physical health needs of child asylum seekers will be met in Rwanda, especially as those needs are likely to be intensified by the process of removal on top of what they have gone through to get to the UK? You can send all the information you like from here to Rwanda, but—this is not a criticism of Rwanda but being realistic—what kind of support does it have for traumatised children?

[Lord Sharpe of Epsom (Con)]

My Lords, I cannot give details on the very specific question about traumatised children but I will find out, and again, I will come back to the noble Baroness.

Amendments 78 and 79, tabled by the noble Lord, Lord Dubs, seek to prevent the relocation of unaccompanied children aged under 18 from the UK to the Republic of Rwanda. The Government consider these amendments unnecessary. The noble Lord, Lord Dubs, will be aware that Article 3 of the UK-Rwanda treaty makes specific reference to unaccompanied children not being included in the treaty and that the UK Government will not seek to relocate unaccompanied children under 18 to Rwanda.

Amendments 46 and 56, also tabled by the noble Lord, seek to ensure that a person previously recognised as an unaccompanied child has the ability to challenge their removal to Rwanda when they cease to be an unaccompanied child at 18, on the basis that removal would be contrary to their rights under the ECHR. Our asylum system is under increasing pressure from illegal migration and the Government must take action to undercut the routes smuggling gangs are exploiting by facilitating children’s dangerous and illegal entry to the United Kingdom, including via such dangerous routes as small boats. These amendments would increase the incentive for adults to claim to be children and would encourage people smugglers to pivot and focus on bringing over more unaccompanied children via these dangerous journeys. The effect would be to put more young lives at risk and split up more families.

The noble Baroness, Lady Brinton, asked a number of questions about the educational opportunities that will be available under the arrangements with Rwanda. I refer the noble Baroness to paragraph 5 on page 3 of the Second Reading letter that I wrote, which details some of those. However, education is also dealt with in paragraph 8 in Annex A to the treaty, and I can go through some of that if it would be helpful. It is headlined “Quality education”, and 8.1 says:

“To support successful integration (and in accordance with the Refugee Convention) … each Relocated Individual shall have access to quality education and training at the following stages (as relevant to their age and needs) that is at least of the standard that is accorded to Rwandan nationals: … early childhood … primary education … catch up programmes and accelerated learning, that is, short-term transitional education programmes providing children with the opportunity to learn content that they may have missed due to disruption to their education or their having never had access to education … secondary education … tertiary education … and … vocational training”.


In addition:

“Rwanda shall recognise foreign school certificates, diplomas and degrees as provided for by MINEDUC regulations”.


I think I also referred in an earlier group to the initial investment of £120 million in 2022 as part of the economic transformation and integration fund, which was created as part of the MEDP. I said then, and I will reiterate for the record now, that the ETIF is for the economic growth and development of Rwanda, and investment has been focused in areas such as education, healthcare, agriculture, infrastructure and job creation.

The Government recognise the particular vulnerability of unaccompanied children who enter the UK by unsafe and illegal routes. It is for this reason that unaccompanied children are not considered for third-country inadmissibility action under the current guidance. Furthermore, the duty to remove in the Illegal Migration Act does not require the Secretary of State to make removal arrangements for unaccompanied children until they turn 18, at which point they will become liable for removal as an adult, either to their home country if safe to do so, or to a safe third country.

In answer to this debate more generally, it seems self-evident—I think my noble friends Lady Lawlor and Lord Murray, and the noble Lord, Lord Green, pointed this out—that a child’s best interests are best served by claiming asylum in the first safe country that they reach. I therefore respectfully ask the noble Baroness to withdraw her amendment and other noble Lords not to press theirs.

[Lord Falconer of Thoroton (Lab)]

My Lords, the Minister did not deal with the question—perhaps understandably—about how this House, which has been constituted as a court by the Government, will get a chance to keep under review the question of whether Rwanda is safe. The noble and learned Lord, Lord Stewart, said it was coming in a later amendment; it has not come in any of the amendments so far. I simply raise it now to ask the Minister: when is it coming? We will end Committee only an hour or two after dinner, so could he give an indication when we might hear the answer to that question, which has been promised on a number of occasions by the Front Bench?

[Lord Sharpe of Epsom (Con)]

I reassure the noble and learned Lord that we will have an answer by the end of the evening.

[Baroness Lister of Burtersett (Lab)]

My Lords, I am grateful to everyone who has spoken. I hope those who spoke in support of the amendment will forgive me if I do not spell out what they said, but they strengthened the case remarkably, helping to make a very strong case. I am conscious that other noble Lords want to get on with the dinner-break business so I will be as quick as possible.

I wanted to say something in response to the noble Lords who spoke against the amendment, particularly around the point about deterrence, which a number of noble Lords raised, including the Minister. I just remind them about the impact assessment on the Illegal Migration Act, which said:

“The academic consensus”—


I speak as an academic—

“is that there is little to no evidence suggesting changes in a destination country’s policies have an impact on deterring people from … travelling without valid permission, whether in search of refuge or for other reasons”.

I am sorry, but I do not think that all those arguments about deterrence are very compelling.

The noble Lord, Lord Green, seemed to use what was supposed to be our opportunity to focus on the best interests of children to make a much more general point about a whole list of amendments that are not in this group at all—and I am not sure that that is valid in Committee procedure. He did not make convincing points about children as such. However, he made the point about the British public being very angry. Has anyone asked the British public what they think about children being wrongly assessed as adults and then being put in adult accommodation? I suspect they would not be very happy about that. So I do not see the relevance of the more general point—the noble Lord is trying to get up; perhaps he has some evidence about that.

Safety of Rwanda (Asylum and Immigration) Bill

Lord Sharpe of Epsom Excerpts

Committee stage
Monday 19th February 2024 Lords Chamber

[Baroness Hamwee (LD)]

My Lords, it is certainly the case that we ask for a lot of information, but if there is no obligation on the Government to provide the information, where do we go from there?

[The Parliamentary Under-Secretary of State, Home Office (Lord Sharpe of Epsom) (Con)]

My Lords, I thank all noble Lords who have spoken in this relatively short debate. Just for the record, I point out that my noble friend Lord Hailsham extended the courtesy of letting me know that he would be unavailable today, which I appreciate.

This legislation builds on the Illegal Migration Act 2023, the Nationality and Borders Act 2022, and other immigration Acts. It does not seek to replicate the provisions of the Illegal Migration Act for other case types. It is limited to the issue of the safety of Rwanda and makes some consequential changes to give proper effect to the presumption that Rwanda is a safe country.

The Government are considering plans for delivery of the provisions of the Illegal Migration Act in light of the Supreme Court judgment. Provisions in the Illegal Migration Act to support removal of people to Rwanda whose asylum and human rights claims are inadmissible will be commenced after Parliament has given its view on the safety of Rwanda.

As drafted, Amendment 67, tabled by the noble Lord, Lord Coaker, asks for information normally used only for internal government planning. This is not information that is normally shared since it is not Parliament’s role to examine the details of internal operational planning, nor is it necessary to meet the Government’s primary objective of ensuring that flights can relocate people to Rwanda.

However, I can confirm that, where claims are declared inadmissible for those who are subject to the duty to remove, the Government will provide support and accommodation in line with Section 9 of the Illegal Migration Act. Furthermore, in response to both Amendments 66 and 67, once the partnership is operationalised and flights commence, as soon as practicable following Royal Assent, removal data will be published online in the usual manner as part of the quarterly immigration statistics.

With regard to reporting on the current location and immigration status of any individuals relocated under the Rwanda treaty, it would be wholly inappropriate for the Government to report on personal data pertaining to the locations of relocated individuals in this manner. We believe that is also unnecessary. As we have set out, the treaty provides that no one relocated will be removed from Rwanda except, in very limited circumstances, to the UK. We have also been clear that anyone relocated who wishes to leave Rwanda voluntarily is free to do so.

The UK and Rwanda will co-operate to ensure that removal contrary to this obligation does not occur, which may include systems for monitoring the locations of relocated individuals. However, this would be with their express consent only and would, of course, not be for wider sharing or publication. This is in addition to the robust monitoring mechanisms already in place via the monitoring committee to ensure the effective operation of the partnership in practice and the well-being of those relocated, the findings of which will be reported in line with the agreed procedures set out in the monitoring committee terms of reference and enhanced monitoring plan, which, as set out earlier in this debate, are published online.

I turn to Amendment 76A, tabled by the noble Lord, Lord Purvis. The terms of reference set out clearly that during the period of enhanced monitoring, the monitoring committee will report to the joint committee, which is made up of both UK and Rwandan officials. This is set out in Article 15(4)(b), in accordance with an agreed action plan, which will include weekly and bi-weekly reporting, as required. As per Article 15(4)(c) of the treaty, the monitoring committee will make any recommendations to the joint committee which it sees fit to do. The monitoring committee will otherwise produce a formal written report for the joint committee on a quarterly basis over the first two years of the partnership, setting out its findings and making any recommendations.

Following notification to the joint committee, the monitoring committee may publish reports on its findings as it sees fit. At least once a year, it will produce a summary report for publication. I have set out that the treaty includes enhanced provisions to provide real-time independent scrutiny of Rwanda’s asylum procedures aimed at preventing the risk of mistreatment contrary to Article 3 of the ECHR before it has the chance to occur. This addresses the findings in the Supreme Court proceedings that under the previous arrangements, as set out in the memorandum of understanding, the work of the monitoring committee would necessarily be retrospective. The treaty further provides at Article 15(9) for the monitoring committee to develop a complaints system that can be used by relocated individuals to lodge confidential complaints regarding alleged failure to comply with the obligations agreed, and that the monitoring committee will investigate all such complaints received directly during the enhanced three-month monitoring period.

Since the partnership was announced, UK officials have worked closely with the Government of Rwanda to ensure that individuals relocated under the agreement will be safe and that their rights will be protected. For example, the treaty sets out at paragraph 3 of Part 2 of Annex B a new process for Rwanda’s first instance body, responsible for making decisions on claims for refugee or humanitarian protection status at first instance. These changes, which will require the introduction of a new domestic asylum law, will move Rwanda’s asylum system to a caseworker model and address the Supreme Court’s conclusions as to the system’s capacity.

The UK Government have already worked with Government of Rwanda to build the capacity of their current asylum system. This work has included agreeing detailed standard operating procedures, reviews of contracts for services the Government of Rwanda have procured—for example, with accommodation facilities and medical insurance companies—and new or revised training programmes. The Home Office has also conducted ground visits, detailed guidance reviews, table-top exercises and walk-throughs to map out the end-to-end process of this partnership and better identify prospective areas for strengthening. This is in addition to ongoing training and capacity building for Rwandan officials within the refugee status determination process. Home Office officials are working on a daily basis with the officials in Rwanda to deliver this partnership.

I do have an answer for the noble and learned Lord, Lord Falconer, as to how the joint committee can report to Parliament. It is not the answer that he will want, but it is all I can say at the moment. The joint committee is due to meet this week, when discussions on treaty implementation will continue. Senior Home Office officials will be in attendance, and I hope to have more to say on this before we get to Report.

[Lord Falconer of Thoroton (Lab)]

The question that is being asked all the time is: how does Parliament keep it under review and raise the question that the country is no longer safe? That is not an answer.

[Lord Sharpe of Epsom (Con)]

I appreciate that it is not the answer that the noble and learned Lord was seeking—

[Lord Falconer of Thoroton (Lab)]

Sorry, but it is not an answer at all to the question: how does Parliament in some way or another keep the question under review? The Minister has given an answer to a completely different question.

[Lord Sharpe of Epsom (Con)]

I do not believe I have, my Lords. What I am trying to say here is that the joint committee has to make reports to Parliament in order for Parliament to keep it under review. That is what is under discussion at the meeting this week. So it does answer the question—perhaps not in the way that the noble and learned Lord would like, for which, obviously, I apologise.

[Lord Purvis of Tweed (LD)]

I am grateful for that comment. Just for the record, it is 11.13 pm on the last day of Committee, and it might be that the Government are thinking about something that we have been talking about. I thank the Minister for that. We will have an update with regard to how the joint committee operates. However, in order for Parliament to make its judgment, it must have access to independent information. The joint committee is the two Governments, so it does not really meet the criteria of Parliament making a judgment on the basis of Rwanda being safe, if the only information that we can use to make that judgment is that of the Government of Rwanda.

[Lord Sharpe of Epsom (Con)]

My Lords, we have gone into the operation of the joint committee and various other bodies in considerable detail today, so I am not going to rehash those now. I am sure we can refer back to the record.

The noble Lord, Lord Coaker, asked me about the timetable. Obviously, I would say this, but the treaties need to be ratified and laws need to be passed, so I am afraid I cannot give a timetable at the moment.

With regard to numbers, as we have discussed many times before, the scheme is uncapped so I cannot provide a commentary on the possible likely numbers.

[Lord Falconer of Thoroton (Lab)]

What steps beyond the passage of this Bill are required for the UK Government to ratify the treaty?

[Lord Sharpe of Epsom (Con)]

Again, I say to the noble and learned Lord that we had a lengthy debate about that a couple of weeks ago on the International Agreements Committee report, and those are the steps that will be required of the Government. Also, as discussed before, the Government of Rwanda still need to pass their new laws in order to be able to ratify the treaty.

[Lord Falconer of Thoroton (Lab)]

I am not sure that is an answer. Apart from the passage of this Bill, which is the only thing that Mr Jenrick’s statement referred to for what was required for the UK to ratify the treaty, what else is required?

[Lord Sharpe of Epsom (Con)]

I am sorry, I disagree. I think I answered the question about what has to happen in order for the treaty to be ratified. It was under discussion at considerable length in the International Agreements Committee debate that we had three or four weeks ago, whenever it was.

[Lord Carlile of Berriew (CB)]

The Minister has just said that the numbers are uncapped, but in the walkthroughs and exercises, some of which have taken place in Uganda, someone will have told the Government how many spaces are currently available in Rwanda. How many spaces are currently available in Rwanda?

[Lord Sharpe of Epsom (Con)]

My Lords, I do not have the precise number. I will find it and write to the noble Lord. As I say, the fact is that the scheme is uncapped. In a perfect world, we would not send anyone to Rwanda because the deterrence would work. Surely that is the point, as alluded to by my noble friends Lord Lilley and Lord Murray, and indeed by the noble Lord, Lord Carlile, who pointed out that deterrence is entirely a binary argument. The Government take one view and others take another.

I think I have answered most of the questions—or at least I have tried to, although I appreciate not necessarily to all noble Lords’ satisfaction. We will have more to say before Report. The Bill buttresses the treaty. Alongside the evidence of changes in Rwanda since the summer of 2022, it enables Parliament to conclude that Rwanda is safe and provides Parliament with the opportunity to do so. For the reasons I have outlined, the amendments are not necessary, and I therefore respectfully ask noble Lords not to move them.

[Lord Coaker (Lab)]

My Lords, I do not often say this to the noble Lord, Lord Sharpe, but that was a really disappointing response, partly because the Committee is seeking numbers and information and numbers were there none. The Government will have assumptions about what is happening. The other place has spent months and months debating Rwanda and this place has spent months doing so too; we have spent weeks on this Bill, including three days in Committee.

What I was asking with Amendment 67—and I am grateful to the noble Lords, Lord Carlile and Lord Purvis, for their support—was what the Government’s assumption is about the number of people who are going to go to Rwanda. It is no answer to say that the numbers are uncapped. That is a Civil Service response; it is what you say when it is difficult to answer and you do not want to do so.

--- Later in debate ---

[Lord Scriven (LD)]

My Lords, I have added my name to this amendment. Because of the lateness of the hour, I will not repeat any of the arguments for why the amendment is needed. I will add an extra point, again looking at the treaty. It was partly alluded to by my noble friend Lord Purvis of Tweed. Amendments to the agreement are by executive order. This Parliament is being asked to say that Rwanda is safe. Rwanda is safe on the basis of this treaty; that is the basis on which this Parliament is being asked to say that Rwanda is safe.

However, Article 20 on amendments to the agreement states:

“This agreement may be amended at any time by mutual agreement between the Parties”.


Therefore, tenets that are deemed to make Rwanda safe based on the judgment of the Supreme Court could, by executive order, be amended. This Parliament would not be able to change its view that Rwanda is safe. The treaty could be changed.

Therefore, when this treaty falls on the date that has been said in two years’ time, it is quite right that this Parliament should therefore be able to look at everything in the round, including any amendments to this treaty, to determine whether Rwanda is still safe. That is why this amendment is needed.

[Lord Sharpe of Epsom (Con)]

Once again, I thank noble Lords who have contributed to this debate. As we have heard throughout today’s debate, we have to do more to break the criminal gangs’ business model, and to deter illegal migrants. These journeys are extremely dangerous. People have lost their lives attempting to cross the channel, as is well reported. These journeys are also unnecessary, as those making these crossings are coming from safe countries, such as France, where they could have claimed asylum. I say respectfully to the right reverend Prelate that that is surely the fundamental issue.

While the Government have made progress towards stopping the boats—with small boat crossings down by a third in 2023, while the numbers of illegal migrants entering some European countries have risen by 80%—we still need to do more. By delivering our key partnership, relocating people to Rwanda and not allowing them to stay in the UK, we will prevent people making these dangerous crossings, and we will save lives.

I thank the right reverend Prelate the Bishop of Chelmsford for tabling Amendment 91, but we do not think it is necessary. It is clear from the evidence pack that the Government published on Thursday 11 January, and from the treaty itself, that Article 15 of the treaty enhances the role of the independent monitoring committee, ensuring that obligations under the treaty are adhered to in practice. I am sorry that I will be going over some old ground, but, as my noble friend Lord Howard pointed out, this is not dissimilar to some earlier amendments.

We have repeatedly made clear that the monitoring committee will have the power to set its own priority areas for monitoring, unfettered access for the purposes of completing assessments and reports, and the ability to publish these reports as it sees fit. Crucially, the monitoring committee will undertake real-time monitoring of the partnership for at least the first three months. This period of monitoring can be extended if required. The monitoring committee will be able to urgently escalate issues prior to any shortcomings or breaches placing a relocated individual at real risk of harm. This will include reporting directly to the joint committee co-chairs within 24 hours in emergency or urgent situations.

To expand on the points made by the noble Lord, Lord Faulks, I also refer the right reverend Prelate to my remarks earlier. Article 4.1 of the treaty sets out clearly that it is for the UK to determine the timing of a request for relocation of individuals under the terms of the agreement, and the number of such requests made. This means that the Government would not be obligated to remove individuals under the terms of the treaty if there had been, for example, an unexpected change to the in-country situation in Rwanda. As is the case in many scenarios, the Government would be able to respond and adapt as necessary and there is therefore no need to include a sunset provision as suggested.

Rwanda has a long history of supporting and integrating asylum seekers and refugees in the region; for example, through its work with the UNHCR to host the emergency transit mechanism. A specific example of Rwanda’s successful work with the UNHCR is the memorandum of understanding between Rwanda and the UNHCR to host a transit facility in Gashora for asylum seekers fleeing civil war in Libya, which has operated since 2019.

The noble and learned Lord, Lord Falconer, is correct: if the agreement is not extended beyond the date he mentioned, in effect, it dies. Rwanda has a strong history—

[Lord Falconer of Thoroton (Lab)]

If the agreement dies, will the future Act die with it?

[Lord Sharpe of Epsom (Con)]

As I understand it, yes.

Rwanda has a strong history of providing protection to those who need it, and it currently hosts more than 135,000 refugees and asylum seekers who have found safety and sanctuary there. The terms of the treaty we have negotiated with Rwanda address the findings of the UK domestic courts and make specific provision for the treatment of relocated individuals, guaranteeing their safety and protection. I invite the right reverend Prelate to withdraw her amendment.

[Lord Purvis of Tweed (LD)]

Before the Minister concludes, I would be grateful if he could say what the mechanism will be for ending this legislation, if the treaty is not extended. Could he also answer my noble friend’s question on amendments to the treaty? It is long-standing practice that amendments to a treaty must come before Parliament through the CRaG process. Can he confirm that that would be the case?

[Lord Sharpe of Epsom (Con)]

My Lords, I am not expert on treaty law but, as far as I understand it, that is the case. I am afraid that I do not know the process behind the noble Lord’s question; I will have to find out.

[The Lord Bishop of Chelmsford]

My Lords, I am grateful to those who have participated in this debate. Given the late hour, I hope they will forgive me for not going through the particulars; I am sure that everybody wants to get home at this stage.

It has been genuinely very interesting to hear the different perspectives on this matter. I am not yet entirely convinced; I want to reflect on this and speak to others about whether we might come back to this on Report. For now, I beg leave to withdraw my amendment.

Safety of Rwanda (Asylum and Immigration) Bill

Lord Sharpe of Epsom Excerpts

Report stage
Monday 4th March 2024 Lords Chamber

[Lord Ponsonby of Shulbrede (Lab)]

My Lords, I wonder whether the Minister would care to comment on whether he agrees with the analysis from the noble Lord, Lord Lilley, of the status of this Bill we are debating. The noble Lord said it was inconceivable that there would be any refoulement and that it is okay to proceed without the various recommendations in place. In the longer term, they would need to be in place—because it was in the longer term, I think, that he was suggesting that there might be justification in the suspicions that have been raised. I think that was the point the noble Lord was making.

I thank the noble and learned Lord, Lord Hope, for tabling these amendments and for his constructive communication before doing so. In Committee there was clear interest in developing a mechanism to ensure that the terms of the treaty are and continue to be adhered to. I hope the House will see that there is value in how he has integrated these ideas into these amendments. Amendments 4 and 7 together provide a clear framework for ensuring the ongoing safety of Rwanda, rooted in the terms of the treaty the Government have negotiated. I will not say any more, because the noble and learned Lord set out the terms of his amendments very clearly.

[The Parliamentary Under-Secretary of State, Home Office (Lord Sharpe of Epsom) (Con)]

My Lords, I thank all noble Lords for their contributions. The partnership between the UK and Rwanda is rooted in a shared commitment to develop new ways of managing flows of irregular migration by promoting durable solutions, thereby breaking the existing incentives that result in people embarking on perilous journeys to the UK. We saw again only last week how perilous those journeys are, as my noble friend Lord Hodgson noted. The UK and Rwanda share a vision on the need for the global community to provide better international protection for asylum seekers and refugees, emphasising the importance of effective and functioning systems and safeguards that provide protection to those in most need.

Noble Lords will know that Rwanda has a long history of supporting and integrating asylum seekers and refugees in the region, for example through its work with the United Nations High Commissioner for Refugees to host the emergency transit mechanism. It has also been internationally recognised for its general safety and stability, strong governance, low corruption and gender equality. My noble friend Lord Hodgson noted this, and my noble friend Lady Meyer gave her very welcome perspective on her recent visit. I say gently to the noble Lord, Lord German, that I heard a great deal in her comments about structures and systems.

As the noble and learned Lord, Lord Hope of Craighead, has explained, these amendments seek to allow Parliament to deem Rwanda to be safe only so long as the arrangements provided for in the Rwanda treaty have been fully implemented and are being adhered to in practice. The UK Government and the Government of Rwanda have agreed and begun to implement assurances and commitments to strengthen Rwanda’s asylum system. In advance of agreeing the treaty, we worked with the Government of Rwanda to respond to the findings of the courts by evidencing Rwanda’s existing asylum procedures and practice in standard operating procedures relating to and reflecting the current refugee status determination and appeals process.

Amendment 7 imposes a duty on the Secretary of State to obtain a statement from the independent monitoring committee confirming that the objectives specified in Article 2 of the treaty have been secured. This is unnecessary; the Government will ratify the treaty in the UK only once we agree with Rwanda that all necessary implementation is in place for both countries to comply with the obligations under the treaty. We have assurances from the Government of Rwanda that the implementation of all measures in the treaty will be expedited, and we continue to work with the Rwandans on this. The legislation required for Rwanda to ratify the treaty passed the lower house of the Rwandan Parliament on 28 February and it will now go to the upper house, as my noble friend Lord Murray noted in the debate on the previous group. Once ratified, the treaty will become law in Rwanda. It follows that the Government of Rwanda would then be required to give effect to the terms of the treaty in accordance with its domestic law as well as international law.

The Bill’s provisions come into force when the treaty enters into force. The treaty enters into force when the parties have completed their internal procedures. These amendments therefore confuse the process for implementing the treaty with what is required for the Bill’s provisions to come into force. The Bill builds on the treaty between the UK and the Government of Rwanda signed on 5 December 2023. It reflects the strength of the Government of Rwanda’s protections and commitments given in the treaty to people transferred to Rwanda in accordance with the treaty. Alongside the evidence of changes in Rwanda since summer 2022, published this January, the treaty will enable Parliament to conclude that Rwanda is safe and the Bill provides Parliament with the opportunity to do so. I say to my noble friend Lord Deben that that is the truth.

[Lord Deben (Con)]

I accept everything the Minister says, but it is all about what will happen in future. He is asking me to accept that what will happen in future has happened now. That is the only argument. He would not ask me to do that in any other circumstances. Can he explain why I have to do it now?

[Lord Sharpe of Epsom (Con)]

My Lords, I have been extraordinarily clear on this subject. As I said, the Bill provisions come into force when the treaty enters into force. The treaty enters into force when the parties have completed their internal procedures, and these amendments therefore confuse the process for implementing the treaty with what is required for the Bill provisions to come into force.

[Lord Clarke of Nottingham (Con)]

My noble friend says that it will confuse it; it is actually perfectly straightforward. If everything happens as smoothly as he says it will happen—and I hope it does, because I do not object to the safe country policy that is being pursued if we can find a safe country—the monitoring committee will presumably confirm that it has happened. Why is he resisting it, except to save the Secretary of State having to send a letter asking for the monitoring committee’s principle? Why is this amendment a threat to the Government’s stated policy?

[Lord Sharpe of Epsom (Con)]

I say to my noble friend that I am about to come on to the workings of the monitoring committee in great detail, if he will bear with me.

I turn to the points raised with regard to introducing a duty on the Secretary of State to consult with the monitoring committee every three months during the operation of the treaty. The committee is independent of both the UK and Rwandan Governments. It was always intended to be independent, to ensure that there is a layer of impartial oversight of the operation of the partnership. Maintaining the committee’s independence is an integral aspect of the design of the policy, and, as my noble and learned friend Lord Stewart of Dirleton set out, the treaty enhances the monitoring committee’s role.

The committee will ensure that obligations to the treaty are adhered to in practice and, as set out in Article 15(4)(b), it will report to the joint committee, which is made up of both UK and Rwandan officials. As per Article 15(4)(c) of the treaty, the monitoring committee will make any recommendations it sees fit to the joint committee. Therefore, these amendments are both unnecessary and risk disturbing the independence and impartiality of the monitoring committee.

[Lord Falconer of Thoroton (Lab)]

I apologise for interrupting the Minister. Could he confirm to the House that the Minister, which I assume means the Secretary of State for Home Affairs, will not seek to bring the Bill—the Act—into force until he is satisfied that all the provisions of the treaty have been implemented and are being properly operated?

[Lord Sharpe of Epsom (Con)]

I think I have already answered that. The Bill provisions come into force when the treaty enters into force, and the treaty enters into force when the parties have completed their internal procedures.

[Lord Falconer of Thoroton (Lab)]

Sorry for interrupting again, but that is not quite an answer to my question. Could the Minister give the House an assurance that the Home Secretary will bring the treaty into force only once he is satisfied that the treaty’s provisions have been implemented and it is operational?

[Lord Sharpe of Epsom (Con)]

My Lords, I disagree. I am afraid that is an answer to this particular question. I think it is. To assure noble Lords further, the joint committee met on 21 February to discuss implementation and readiness for operationalisation and, as set out in the published terms of reference for the joint committee, minutes will be produced after each meeting for agreement by the co-chairs.

The monitoring committee will undertake daily monitoring of the partnership for at least the first three months to ensure rapid identification of and response to any shortcomings. This enhanced phase will ensure that comprehensive monitoring and reporting take place in real time. As I set out in earlier debates, during the period of enhanced monitoring, the monitoring committee will report to the joint committee in accordance with an agreed action plan, to include weekly and bi-weekly reporting as required.

During the enhanced phase, the monitoring committee will place particular emphasis on monitoring asylum procedures, asylum case assessments, and any asylum decisions made in this timeframe. The monitoring committee will ensure that decisions are objective and based on a legally sound foundation in accordance with international laws and convention.

The following minimum levels of assurance have been agreed by the monitoring committee for the enhanced phase: two visits to the UK to see the selection process; observing two boardings and two disembarkations; observing three induction sessions; weekly visits to accommodation and reception centres; monthly visits to health and education facilities; observing education and language training sessions; observing interviews and appeal hearings; reviewing the process and paperwork for all individuals relocated to Rwanda in this phase; monitoring the status of people relocated to Rwanda, captured through the quarterly reporting process and visits to resettlement areas; reviewing a sample of at least 25% of complaints, including all serious incidents; investigating all complaints received directly; and interviewing on a voluntary basis a sample of one in 10 relocated individuals at various stages of the process.

The published terms of reference are accompanied by a detailed monitoring plan—as agreed by the monitoring committee—which was published on 11 January. These documents provide a comprehensive and transparent framework for the operations and procedures of the monitoring committee, starting from the immediate departure period of the first cohort of relocated individuals and including the details of the enhanced initial monitoring phase.

The plan provides an overview of the monitoring committee’s specific activities, monitoring techniques, and the personnel involved. It also outlines reporting procedures—

[Lord Hannay of Chiswick (CB)]

I am most grateful to the Minister, who has given us a great deal of new information about the monitoring committee. But all he has told the House demonstrates that the monitoring committee is extremely well placed to provide the Government the information they need to act as in my noble and learned friend’s amendment. What is holding them back? The fact of the matter is that the monitoring committee has no means of reporting to this Parliament, but the Government do. That is what this amendment suggests is the right thing to do.

[Lord Sharpe of Epsom (Con)]

I hear what the noble Lord says, but I have answered this in considerable detail now.

[Lord Clarke of Nottingham (Con)]

The more detail the Minister gives about the virtues of the monitoring committee, the stronger his argument is in favour of the amendment proposed to this House by the noble and learned Lord, Lord Hope. The briefing he has been given is totally contradictory to the conclusion that he is trying to invite us to reach.

[Lord Sharpe of Epsom (Con)]

I am afraid I disagree again.

[Noble Lords]

Oh!

[Lord Sharpe of Epsom (Con)]

My Lords, as set out in the monitoring plan, the monitoring committee will ensure that there is a daily presence of the support team on the ground through the initial enhanced phase. For the enhanced phase, a minimum of two monitoring committee members will be actively engaged in the monitoring.

Implementation continues at pace, including of the support team for the monitoring committee and the new appeals body. I put on record my thanks to all officials, including those in the Government of Rwanda, for all their hard work in implementing the treaty and delivering the crucial partnership. The partnership is one important component of a much broader bilateral relationship. We co-operate closely with Rwanda on a number of issues, including the Commonwealth, climate change, education, trade, governance, and conflict issues, and delivering a successful and long-standing development partnership.

To conclude, we have agreed and begun to implement assurances and commitments to strengthen Rwanda’s asylum system. These assurances and commitments provide clear evidence of the Government of Rwanda’s ability to fulfil its obligations generally and specifically, to ensure that relocated individuals face no risk of refoulement. I therefore respectfully ask the noble and learned Lord—

[Lord Carlile of Berriew (CB)]

Before the Minister sits down, I return to the question I asked him earlier: will he now tell the House which of the nine provisions highlighted in paragraph 45 of the International Agreements Committee’s report are now completed?

[Lord Sharpe of Epsom (Con)]

My Lords, as has already been discussed, the lower house of the Rwandan Parliament passed its treaty ratification only earlier this week. As I have just tried to explain, implementation continues at pace. I do not yet have the very specific information the noble Lord requires, but, as I have also explained, we will not implement until all the treaty obligations are met.

I therefore respectfully ask the noble and learned Lord to not press his amendment, but, were he to do so, I would have no hesitation in inviting the House to reject it.

[Lord Hope of Craighead (CB)]

My Lords, I am very grateful to all noble Lords who have taken part in the debate. I do not want to take up time by going over the issues all over again, but I want to pick up two points made by the noble Lord, Lord Hodgson of Astley Abbotts.

First, I think the noble Lord suggested that my amendments were treating Rwanda as a country that is untrustworthy; I absolutely refute that. When I introduced the amendments in Committee, I made it absolutely clear that I do not, for a moment, question the good faith of Rwanda, and I remain in that position. I absolutely understand that both parties to the treaty are treating each other on that basis. I am certainly not, in any way, questioning the good faith or commitment of Rwanda to give effect to the treaty; what I am talking about is implementation.

Secondly, I think the noble Lord said that my amendment would make the Bill unworkable. I simply do not understand that. I cannot understand why relying on the word of the monitoring committee in any way undermines the effectiveness or purpose of the Bill. For those reasons, I wish to test the opinion of the House.

--- Later in debate ---

[Lord Coaker (Lab)]

My Lords, we very much support Amendments 9 and 12, which the noble Lord, Lord Anderson, has led on. They would allow the presumption that Rwanda is a safe country to be rebutted by credible evidence presented to decision-makers, including courts and tribunals. If he were to test the opinion of the House, we would support him.

I will refer to my Amendment 29, which I hope gives some evidence of the need for the amendments from the noble Lord, Lord Anderson. Amendment 29 would take out Clause 4(2). I tabled it because Clause 4(2) says that

“subsection (1) does not permit a decision-maker”—

however that is defined, whether it is the Secretary of State, a court or a tribunal—

“to consider any matter, claim or complaint to the extent that it relates to the issue of whether the Republic of Rwanda will or may remove or send the person in question to another State in contravention of any of its … obligations”.

In other words, an individual cannot put before the court or a tribunal not that they “may” be refouled but, using the Government’s own words in Clause 4(2), that they “will” be refouled. I could just about understand it if it had “may”, but if an individual cannot even argue that they “will” be then I would find that quite astonishing. Therefore, I suggest that my Amendment 29 highlights why Amendments 9 and 12, in the name of the noble Lord, Lord Anderson, are needed.

[Lord Sharpe of Epsom (Con)]

My Lords, I thank noble Lords for their contributions to this debate. I will turn first to Amendment 39, tabled by the noble Lord, Lord Blunkett. As I set out in Committee, we do not consider it necessary to make this amendment.

Clause 1 sets out the obligations that the Government of Rwanda have committed to under the new treaty. The addition the noble Lord proposes does not reflect the arrangements under the treaty. Enabling persons whose claims are successful in Rwanda to return to the UK would be entirely inconsistent with the terms and objectives of the treaty. Those relocated to Rwanda are not intended to be returned to the UK, except in limited circumstances. Article 9 of the treaty clearly sets out that Rwanda shall process claims for asylum in accordance with the refugee convention and this agreement.

Since the partnership was announced, UK officials have worked closely with the Government of Rwanda to ensure that individuals relocated under the agreement will be safe and that their rights will be protected. Human rights have been a key consideration throughout this work, including the treaty, to confirm the principles for the treatment of all relocated individuals in an internationally binding agreement and strengthened monitoring mechanisms to ensure practical delivery against the obligations. For example, individuals, once relocated, will have freedom of movement. They will not be at any risk of destitution, as they will be accommodated and supported for five years. They will have access to a generous integration package so that they can study, undertake training and work, and access healthcare.

For those who are not registered as refugees, Rwanda shall consider whether the relocated individual has another humanitarian protection need. Where such a humanitarian protection need exists, Rwanda shall provide treatment consistent with that offered to those recognised as refugees and permission to remain in Rwanda. Such persons shall be afforded equivalent rights and treatment to those recognised as refugees and shall be treated in accordance with international and Rwandan laws. For those relocated individuals not recognised as refugees or granted protection, Article 10 of the treaty provides that Rwanda shall regularise their status in the form of a permanent residence permit and provide equivalent treatment as set out in Part 2 of Annex A.

It is the Government of Rwanda, and not the UK Government, who will consider asylum or protection claims and who will grant refugee or protection status to those relocated to Rwanda under the treaty that will underpin the migration and economic development partnership. As is made clear in the agreed terms of the treaty, those relocated will not be returned to the UK except in limited specified circumstances. Obtaining refugee status in Rwanda does not grant that person any rights within the UK, as would be the case for any other person granted refugee status in Rwanda who had not been relocated from the UK. Anyone seeking entry to the UK in the future would have to apply through legal routes, such as the work or family route, with no guarantee of acceptance.

Amendments 9 and 12 tabled by the noble Lord, Lord Anderson, and Amendment 19 tabled by the noble Baroness, Lady Chakrabarti, seek to qualify the requirement for decision-makers, including courts and tribunals, to conclusively treat Rwanda as a safe country, thus allowing individuals to challenge removal decisions on the grounds that Rwanda is not a generally safe country.

The treaty, the Bill and the evidence together demonstrate that Rwanda is safe for relocated individuals and that the Government’s approach is tough but fair and lawful. The Government are clear that we assess Rwanda to be a safe country, and we have published detailed evidence that substantiates this assessment. This is a central feature of the Bill, and many of its other provisions are designed to ensure that Parliament’s conclusion on the safety of Rwanda is accepted by the domestic courts. The conclusive presumption in the Bill that Rwanda is generally a safe country is not, as the noble Lord suggested, a “legal fiction”.

The courts have not concluded that there is a general risk to the safety of relocated individuals in Rwanda. Rather, the Supreme Court’s findings were limited to perceived deficiencies in the Rwandan asylum system and the resulting risk of refoulement should any lack of capacity or expertise lead to cases being wrongly decided. As we have repeatedly set out, the treaty responds to those key findings. The assurances we have since negotiated in our legally binding treaty with Rwanda directly address these findings by making detailed provision for the treatment of relocated individuals in Rwanda, ensuring that they will be offered safety and protection, with no risk of refoulement.

We have been clear that the purpose of this legislation is to stop the boats, and to do that we must create a deterrent that shows that, if you enter the UK illegally, you will not be able to stay. We cannot allow systematic legal challenges to continue to frustrate and delay removals. It is therefore right that the scope for individualised claims remains limited, to prevent the merry-go-round of legal challenges and enable us to remove from the UK individuals who have entered illegally. We cannot allow illegal entrants to be able to thwart their removal when there is a clear process for the consideration of a claim based on a risk of serious and irreversible harm. We cannot allow the kinds of spurious legal challenges we have been seeing for far too long to continue.

It is for this reason that I cannot accept Amendments 23 and 27 tabled by the noble Baroness, Lady Meacher, which seek to lower the threshold for a claim or appeal brought on the grounds that Rwanda is unsafe to succeed. These amendments undermine the core principle of the Bill, which is to limit challenges brought against the safety of Rwanda. The Bill makes it clear that Rwanda is generally safe and that decision-makers, as well as courts and tribunals, must treat it conclusively as such. This reflects the Government’s confidence in the assurances of the treaty and in Rwanda’s commitment and capability to deliver against these obligations. As I have set out, the UK Government and the Government of Rwanda have agreed and begun to implement assurances and commitments to strengthen Rwanda’s asylum system.

Following on from my previous point with regard to relocated individuals in Rwanda being offered safety and protection with no risk of refoulement, I now turn to Amendments 11, 14, 15 and 29 tabled by the noble Lord, Lord Coaker. I consider these amendments to be unnecessary. As I have just stated, yes, the Supreme Court did find deficiencies in the Rwandan asylum system that meant there was a risk that those relocated under the terms of the previous memorandum of understanding with Rwanda could be refouled. However, the UK and Rwanda have since worked closely together to address the court’s conclusions.

As noble Lords are aware, the Supreme Court could consider evidence only up to summer 2022, which was not reflective of the current evidential position. Not only could the court not consider additional work undertaken with the Government of Rwanda to build capacity in the Rwandan asylum system, but it had not had the opportunity to consider the terms agreed under our new legally binding treaty with Rwanda. The treaty makes very clear that no one relocated to Rwanda will be returned to another country, except, in very limited circumstances, back to the UK. This expressly addresses the court’s conclusions by eliminating the risk of refoulement.

As I have said previously, and as I stated in my letter to the noble Lord, Lord Kerr, following the debate on this matter in Committee, the treaty contains, among other provisions, a definitive undertaking from the Government of Rwanda that they will not remove any person relocated under the MEDP, except to the UK, in accordance with Article 11(1).

[Lord Kerr of Kinlochard (CB)]

Can the Minister confirm that the arrangement described in Article 10(3) of the treaty has been devised: that is, the arrangement to ensure that refoulement does not in practice occur? The treaty imposes an obligation on both parties to agree a process. Has it been agreed, and can we see it?

[Lord Sharpe of Epsom (Con)]

I am afraid I do not know the answer to that question. I will find out and come back to the noble Lord on whether it has been agreed and where we are.

We therefore believe that there is no need for this to be considered when making individualised assessments as to the safety of Rwanda.

The treaty also enhances the role of the independent monitoring committee, which we discussed on the previous group. The monitoring committee will provide real-time, comprehensive monitoring of the end-to-end relocation and asylum process, ensuring delivery against the terms of the agreement and in line with both countries’ international obligations. This will prevent the risk of any harm to relocated individuals, including potential refoulement, before it has a chance to occur.

Rwanda is one step closer to ratifying the treaty, as discussed, which has passed through its lower house in Parliament. Once ratified, the treaty will become law in Rwanda. It follows that the Government of Rwanda would be required to give effect to the terms of the treaty in accordance with its domestic law, as well as international law. Those in genuine need of safety and security will be provided with it in Rwanda.

Turning to Amendment 16 tabled by the noble Baroness, Lady Lister of Burtersett, we do not accept that individuals relocated to Rwanda would be at risk of torture or any other form of inhumane or degrading treatment. The Government’s assessment is that Rwanda is a safe country that respects the rule of law. Rwanda is a signatory to the United Nations convention against torture, the convention on refugees and other core UN human rights conventions. It has also signed the treaty with us which guarantees the welfare of all those relocated under the partnership. The enhanced monitoring committee will be in place to robustly monitor adherence to these obligations. Should somebody with a particular vulnerability be relocated to Rwanda, there will be the necessary treatment and specialist support available, with safeguarding processes in place.

Furthermore, Clause 4 preserves the ability of individuals to challenge removal due to their particular individual circumstances if there is compelling evidence that Rwanda is not a safe country for them. That is the appropriate mechanism to ensure that an individual’s circumstances have been considered.

[Baroness Lister of Burtersett (Lab)]

I am sorry to interrupt. What investigations have the Government made of whether that support is available in Rwanda? This is not a criticism of Rwanda but an acceptance of the fact that it is a country that has poor provision, as we heard from the noble Lord, Lord Scriven, and others. On being able to say that it is not safe for an individual, as the Minister’s colleague said in Committee, the Government expect this to be successful very rarely, so that is no safeguard, really.

[Lord Sharpe of Epsom (Con)]

I was about to answer the noble Baroness’s questions, because safeguarding arrangements are set out in detail in the standard operating procedure on identifying and safeguarding vulnerability, which states that, at any stage in the refugee’s status determination and integration process, officials may encounter and should have due regard to the physical and psychological signs that can indicate that a person is vulnerable. The SOP sets out the process for identifying vulnerable persons and, where appropriate, making safeguarding referrals to the relevant protection team.

Screening interviews to identify vulnerability will be conducted by protection officers who have received the relevant training and are equipped to competently handle safeguarding referrals. The protection team may trigger follow-up assessments and/or treatment as appropriate. In addition, protection officers may support an individual to engage in the asylum process and advise relevant officials of any support needs or adjustments to enable the individual to engage with the process. Where appropriate, the protection team may refer vulnerable individuals for external support, which may include medical and/or psycho-social support or support with their accommodation. Where possible, this should be with the informed consent of the individual.

As regards capacity, of course it will be in place. The policy statement sets out at paragraph 135:

“In line with our obligations under the Refugee Convention and to ensure compliance with international human rights standards, each Relocated Individual will have access to quality preventative and curative primary and secondary healthcare services that are at least of the standard available to Rwandan nationals. This is provided through a comprehensive agreement between the Government of Rwanda and medical insurance companies for the duration of 5 years and through MoUs with hospitals in Kigali”.


I also say at this point that it would be in the best mental health interests of those seeking asylum who are victims to seek asylum in the first safe country that they come to. Why would they risk their health and mental health crossing the channel in much more grave circumstances than they need to?

Noble Lords will know that over 135,000 refugees and asylum seekers have already successfully found safety in Rwanda. International organisations including the UNHCR chose Rwanda to host these individuals. We are committed to delivering this partnership. With the treaty and published evidence pack, we are satisfied that Rwanda can be deemed a safe country through this legislation. I would ask the noble Lord to withdraw his amendment.

[Lord Anderson of Ipswich (CB)]

I thank all noble Lords who have participated in this fast-paced debate, and for the generous and constructive contributions that we have heard from all corners of this House. I shall not dwell on them individually, but I will single out the contributions that we heard from the noble Baronesses, Lady Lister and Lady D’Souza, and the noble Lord, Lord Cashman, on the subject of torture. Although my amendments are broader than theirs, theirs serve as a reminder that even evidence of widespread torture would be off limits if Clause 2 were not amended as they and I wish.

I say to the noble Lord, Lord Murray, that I am delighted by what he says he has seen in Rwanda. However, with great respect to him, the points that he makes in no way remove the desirability of ensuring that, should protections not prove to be adequate—including, for example, protections against the risk of refoulement contrary to the terms of an agreement, as we saw when the Rwanda/Israel agreement was in force—the decision-makers and courts should be able to take those matters into account. That is all that these amendments contend for.

I agree with the noble Lord, Lord Horam, that it is operational measures that will make the difference; he must be right about that. Those are the sorts of measures that were identified by the International Agreements Committee in its list of nine or 10, and in Article 10(3) of the treaty. As the noble Lord, Lord Kerr, pointed out, these will be unfinished business even when the treaty is ratified. The purpose of the courts is simply to check that those measures meet the minimum thresholds laid down by law.

The Minister made the point that the concerns expressed by the Supreme Court were limited to specific issues regarding refoulement and suggested that, had they not been resolved already, those issues would be easily resolved in the near future. The Minister asks us to take a good deal on trust. I understand that a letter has been circulated this afternoon; it certainly did not reach me. Whether that includes, for example, full details relating to the Rwanda asylum Bill, which nobody seemed to have seen when we debated this in Committee, and whether it contains full details of the arrangements to ensure non-refoulement, which are referred to in Article 10(3) of the treaty, I cannot say.

--- Later in debate ---

[Lord Coaker (Lab)]

My Lords, as we come to the end of today’s consideration of the Bill before us, I start with the important point that the noble Lord, Lord Kerr, mentioned. I raised it in debate on the first group of amendments, when I said that the constitutional position is that the Government have the right to get their Bill through, but the House of Lords also has a constitutional position, which is the right for it to expect that its views and the amendments that it passes are considered properly by the Government. Unless I got it wrong, the noble Lord, Lord Kerr, was saying—it is certainly what I think—that our belief is that the Government are simply saying, “We’re not going to change the Bill at all. We don’t mind what the amendments are or what inconsistencies are brought forward, or how illogical what we are saying is. Such is our determination that we are going to drive this through and use our electoral majority to do it”. To that extent, the Government are undermining the constitutional conventions on which our Parliament is based.

I have been lectured, as many of us on this side of and across the House have been, on the Government’s right to get their Bill through. Indeed, the Home Secretary was at it again this morning in a newspaper, warning of the consequences of us not allowing the Bill through. Why would the Government simply ignore what the House of Lords is saying, which appears to be the intention? It may not be the intention of the noble and learned Lord, Lord Stewart, or the noble Lord, Lord Sharpe, but it will be interesting to see what amendments, if any, the Government make in response to what has happened in your Lordships’ House in Committee and, more importantly, in the votes that have taken place today.

I would appreciate us having some understanding of the Government’s view of what is being done here. As the noble Lord, Lord Kerr, mentioned, and as I am sure many other noble Lords feel, we have a right to be heard—and, at times, for our amendments to be acted upon—rather than simply ignored and dismissed as people who do not understand the problem and are simply trying to get in the way of dealing with the boats.

I started with that important point, notwithstanding the fact that some really important points reflecting on the Bill have been made on this group of amendments, as with many other groups. This group of amendments deals with individual claims and exemptions that may be made with respect to the general principle of the law. As somebody who has great respect for the law, although not a lawyer myself, it has always been my understanding that not many good laws do not have exemptions within them. A good law may have a generality of application to the population—the noble and learned Lord, Lord Stewart, will know this better than me, in his current position—but it will have exemptions within it because the impact of a general law on an individual may be such that justice is not served. Because of that, law therefore has to have exemptions built into it. As it stands, the Government are simply not able to have any exemptions within this. There is a blanket application of the law to particular individuals, whatever their circumstances.

We heard three very passionate and moving speakers leading on these amendments. The noble and learned Lord, Lord Etherton, supported by my noble friend Lord Cashman, outlined the circumstances that may occur with a particular social group. My noble friend mentioned the LGBT community, and the noble and learned Lord, Lord Etherton, will also appreciate that. Does that need to be considered within the Bill? We will have to see, but it appears to be another thing that the Government will just dismiss.

We heard from the noble and learned Baroness, Lady Butler-Sloss, about her amendments with respect to victims of modern slavery and trafficking. People who are trafficked have no choice. They do not say “Yes, traffic me”. That is different; that is smuggling. We are talking about people who are trafficked and have no part in the decision. The Government’s Bill just does not care about that. Those people will be subject to automatic deportation or going to Rwanda. As the noble and learned Baroness, Lady Butler-Sloss, said, quite rightly, surely that could be considered for exemption under the terms of the Bill.

My noble friend Lord Browne’s amendment, supported by the noble and gallant Lord, Lord Stirrup, and others, pointed out that a consequence of the Bill as it stands will be that people who served this country and put their lives on the line for us will simply be treated as illegal and deported to Rwanda. Does the Minister think that is right? Does he actually agree with that? It would be interesting to know whether he thinks that somebody, as my noble friend Lord Browne pointed out, who has fought for this country, served this country and put their life on the line, and who has had to come because of the situation in Afghanistan that my noble friend outlined, should be deported. Who in this House thinks that they should be deported to Rwanda? I do not believe the Government Front Bench think that. It is a rhetorical question; I will save the Minister from answering it. If they do not think that, then they should sort it out.

We are not playing at this; these are things that affect real people’s lives. The point the noble and gallant Lord, Lord Stirrup, made, is really important. What credibility will this country have if it finds itself in a similar situation in the future and says, “Work with us because we will ensure that you are protected”? What possible credibility would we have as a country or as part of an alliance? If we said to people, “If you serve with this country, do not worry about the consequences of it, because you will be protected”, what will we be able to say to them when, as the noble and gallant Lord pointed out, they simply turn around and say, “That is not what happened with those who served in Afghanistan”? Many of them were forced to stay and the consequences of that for some of them have been very severe.

The Government need to act on my noble friend Lord Browne’s amendment. We do not need warm words such as, “Yes, we need to consider this and think about it. It is a very important, interesting point that has been made”. The Government make the law. With respect to this, they should change the Bill to make sure that those people are protected and they should change the Bill in the way the noble and learned Baroness, Lady Butler-Sloss, has outlined, with respect to victims of modern slavery and trafficking. As my noble friend Lord Cashman and the noble and learned Lord, Lord Etherton, said, the Bill needs changing with respect to LGBT people—although I note my noble friend’s Amendment 33, which we will consider on Wednesday, may be a way of doing that. We will leave that for Wednesday.

This is a very important group of amendments dealing with individual claims and exemptions. This is not only about the law; it is about the way that justice works in this country. Justice demands these changes and I hope the Government respond.

[Lord Sharpe of Epsom (Con)]

My Lords, these amendments go to the issue of whether it is safe to relocate a person to Rwanda for particular individuals. It remains the Government’s view that these amendments are not necessary. I will again set out the Government’s case. Before I do, on the comments from the noble Lord, Lord Kerr, regarding amendments from noble Lords, obviously I cannot pre-empt what the other place will do or what that will prompt. I am sure that noble Lords will understand that.

Amendments 22, 24, 26, 28 and 30, tabled by the noble and learned Lord, Lord Etherton, would undermine one of the core principles of the Bill, which is to limit the challenges that can be brought against the general safety of Rwanda. The Government do not accept that these amendments are required to safeguard claims against removal to Rwanda on the basis of an individual’s LGBT identity, or indeed for any other characteristic, such as religious belief. These amendments would unnecessarily and significantly broaden the Bill’s provisions.

The Bill provides appropriate safeguards to ensure that decision-makers will make a case-by-case decision about the particular circumstances of each case. The Bill also allows decision-makers and the courts to consider certain claims that Rwanda is unsafe for an individual person due to their particular circumstances, despite the safeguards in the treaty, if there is compelling evidence to that effect.

As in all cases, decision-makers will make case-by-case decisions about whether the particular circumstances of each case would mean that an individual would be at real risk of harm were they to be relocated to Rwanda. That consideration would include an assessment of whether individuals faced a real risk of harm as a result of their sexuality. Furthermore, for LGBT individuals, that consideration would include any assessment of any compelling evidence reviewed in line with the principles outlined by HJ (Iran)—to which many noble Lords referred—that being LGBT would mean that Rwanda was not safe for them in their particular circumstances.

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[Lord Scriven (LD)]

Can the Minister tell the House what legal provisions are on the statute book in Rwanda for the “T” part of “LGBT” in particular?

[Lord Sharpe of Epsom (Con)]

No, I cannot. I will have to come back to the noble Lord.

Rwanda is a signatory to the 2011 United Nations statement condemning violence against LGBT people, and it has joined nine other African countries to support LGBT rights. As part of the published evidence pack, the updated country policy information note gave careful consideration to evidence relating to the treatment of LGBT individuals in Rwanda. The Rwandan legal protection for LGBT rights is generally considered more progressive than that of neighbouring countries, as has been alluded to.

Amendment 25, tabled by the noble Lord, Lord Dubs, relates to claims on religion or belief grounds being taken into consideration for whether Rwanda is a safe country. The amendment specifically mentions an individual’s “religion or belief”, but the effect would be to permit the Secretary of State to consider whether an individual who is due to be relocated to Rwanda has any refugee convention reasons why Rwanda would not be safe for them, including on grounds of religion or belief. In effect, this would be considering a protection claim for a third-country national whose home country is not Rwanda.

A number of noble Lords raised concerns about religious tolerance in Rwanda and sought to argue that it would be unsafe for individuals who followed minority faiths or had no faith at all. The Government disagree with this contention. As our policy statement and the country information note on human rights make clear, and as I set out in my letter following Second Reading, the Rwandan constitution provides protection for individuals of different religions and faiths, as well as prohibiting discrimination of the grounds of religion or faith. Taken with the appropriate safeguards, which are set out in the Bill and elsewhere in our partnership with Rwanda, decision-makers will be in a position to consider the particular circumstances of each case, including where they involve an individual’s religious beliefs.

As I set out during an earlier debate, the Bill, along with the evidence of changes and the treaty, makes it clear that Rwanda is safe generally, and decision-makers, as well as courts and tribunals, must treat it conclusively as such. This ensures that removals cannot be delayed or frustrated by systemic challenges on safety. For this reason, I cannot accept Amendments 31 and 32 tabled by the noble Baroness, Lady Meacher.

Amendment 31 would remove the need for the risk of harm, when a serious and irreversible harm test is carried out, to be imminent. If accepted, this would enable a court or tribunal to delay or prevent a person’s removal to Rwanda based on a risk of harm that may not materialise for many months, if not years, after the person’s removal to Rwanda. This cannot be right. We cannot have a position whereby a person’s removal from this country is prevented based on a risk that does not currently exist and may not exist until a significant amount of time has elapsed after the person is removed. These provisions are consistent with the measures introduced in the Illegal Migration Act, agreed by this House last year. “Imminent” features in the European Court of Human Rights’ practice direction on interim measures. Clause 4(4) is not out of step with the Strasbourg court.

Amendment 32 would disapply Section 54 of the Illegal Migration Act, enabling the UK courts to grant an interim remedy preventing removal to Rwanda in cases where the duty to remove applied. This would undermine the suspensive claims procedure provided for in that Act. It risks vexatious claims being brought at the last minute in an attempt to frustrate removal, which would weaken the effectiveness of that Act. These amendments ultimately undermine the core principles of the Bill, and the Government cannot support them.

I turn to the position of potential and confirmed victims of modern slavery. The UK has a proactive duty to identify victims of modern slavery. We remain committed to ensuring that, when indicators that someone is a victim of modern slavery are identified by first responders, they continue to be referred into the national referral mechanism for consideration by the competent authorities. For all cases, steps will be taken to identify whether a person may be a victim of modern slavery. If a person is referred into the national referral mechanism, a reasonable grounds decision will be made.

The amendment proposed would act to impede the provisions already passed in the Nationality and Borders Act and the Illegal Migration Act, which introduced the means to disqualify certain individuals from the national referral mechanism on grounds of public order before a conclusive grounds is considered. Furthermore, the amendment is unnecessary, because it is important to be clear that the Government of Rwanda have systems in place to safeguard relocated individuals with a range of vulnerabilities, including those concerning mental health and gender-based violence.

If there is a positive reasonable grounds decision in a pre-Illegal Migration Act case, the provisions in Part 5 of the Nationality and Borders Act will protect the person from removal pending a conclusive grounds decision, unless they are disqualified on the grounds of public order.

As I set out in my letter to the noble Lord, Lord Purvis, under Article 5(2)(d) of the treaty the United Kingdom may, when necessary for the purposes of relocation and when UK GDPR compliant, provide Rwanda with

“the outcome of any decision in the United Kingdom as to whether the Relocated Individual is a victim of trafficking”,

and this includes positive reasonable grounds decisions. Under Article 13(1) of the treaty, Rwanda must

“have regard to information provided about a Relocated Individual relating to any special needs that may arise as a result of their being a victim of modern slavery or human trafficking, and … take all necessary steps to ensure that these needs are accommodated”.

[Lord Scriven (LD)]

The Minister has just said something at the Dispatch Box that is not factually correct. He said that under Article 13(1) on trafficking Rwanda must take all necessary steps. The treaty actually says that it

“shall take all necessary steps”.

Those are two very different things.

[Lord Sharpe of Epsom (Con)]

Is that correct? It sounds very moot to me, legally. I said that Rwanda must

“have regard to information provided about a Relocated Individual relating to any special needs that may arise as a result of their being a victim of modern slavery or human trafficking, and … take all necessary steps to ensure that these needs are accommodated”.

That sounds very much the same to me.

All relocated individuals, including potential and confirmed victims of modern slavery, will receive appropriate protection and assistance according to their needs, including referral to specialist services, as appropriate, to protect their welfare. So it is simply not correct to assert that the Government do not care.

Finally, if, despite those safeguards, an individual considers that Rwanda would not be safe for them, Clause 4 means that decision-makers may consider a claim on such grounds, other than in relation to alleged onward refoulement, if such a claim is based on compelling evidence relating specifically to the person’s individual particular circumstances, rather than on the ground that Rwanda is not a safe country in general.

I turn to Amendment 44, tabled by the noble Lord, Lord Browne of Ladyton, and spoken to by the noble and gallant Lord, Lord Stirrup. Although this amendment is well intentioned, it gives rise to the possibility that criminal gangs operating in northern France and across Europe will exploit this carve-out as a marketing model to encourage small boat illegal entry to the UK. The terms “agents, allies and employees” will likely result in people who have arrived illegally falsely claiming to be former agents and allies as a tactic to delay their removal, completely undermining this policy’s priority to stop the boats and promptly remove them, either to their home country or to a safe third country such as Rwanda.

The Government deeply value the support of those who have stood by us and our Armed Forces overseas. As a result, there are established legal routes for them to come to the UK. For example, those who enlist and serve in His Majesty’s Armed Forces are exempt from immigration control until they are discharged from regular service. After this time, non-UK HM Armed Forces personnel can apply for settlement under the Immigration Rules on discharge when their exemption from immigration control ends.

There are also provisions for family members of HM Armed Forces personnel to come to the UK legally. Anyone eligible for the Afghan relocations and assistance policy and the Afghan citizens resettlement scheme should apply to come to the UK legally under those routes.

I take what the noble Lord, Lord Browne, and the noble and gallant Lord, Lord Stirrup, say very seriously, and His Majesty’s Government regret that so many cases need to be reassessed. The MoD is taking the necessary steps to ensure that all future decisions are made in accordance with the enhanced guidance being produced for the review to which the noble Lord, Lord Browne, referred. This was recently announced by the Defence Secretary and while many former members of Afghan specialist units, including the Triples, have been found eligible under ARAP and safely relocated to the UK with their families, a recent review of processes around eligibility decisions demonstrated instances of inconsistent application of ARAP criteria in certain cases. In light of that, the MoD is taking the necessary steps to ensure that the ARAP criteria are applied consistently through reassessments of all eligibility decisions made on ineligible applications with credible claims of links to Afghan specialist units on a case-by-case basis.

This review will move as quickly as possible, but we recognise that ARAP applications from this cohort present a unique set of challenges in assessing their eligibility. These units reported directly into the Government of Afghanistan, which means that HMG do not hold employment records or comprehensive information in the same way we do for many other applicants. It is essential that the MoD ensures this is done right and provides the opportunity for applicants to provide further information—which I note can sometimes take time—from these individuals.

[Lord Browne of Ladyton (Lab)]

Will the Minister answer the question I asked in February when this review was announced: will anyone who is eligible for ARAP but was told they were ineligible—and acted in a way in which a small number of them did in extremis to protect themselves from possible death—be disqualified from being allowed to become eligible on review? Will they be excluded from the requirement of the Illegal Migration Act and this Bill if it becomes law that they must be deported to Rwanda?

[Lord Sharpe of Epsom (Con)]

As I understand it, they will be deported to Rwanda.

In conclusion, the Government of Rwanda have systems in place to safeguard relocated individuals with a range of vulnerabilities. The Bill already includes adequate safeguards which allow decision-makers to consider certain claims that Rwanda is unsafe for an individual due to their particular—

[Baroness Butler-Sloss (CB)]

In relation to modern slavery, is there any law in Rwanda that protects those suffering from modern slavery or human trafficking?

[Lord Sharpe of Epsom (Con)]

I am unable to comment on Rwandan law, but, of course, the treaty takes care of this and I went into detail on that earlier. Under Article 5(2)(d) of the treaty, the United Kingdom may where necessary for the purposes of relocation provide Rwanda with

“the outcome of any decision in the United Kingdom as to whether the Relocated Individual is a victim of trafficking”,

and that includes a positive reasonable grounds decision. Under Article 13(1) of the treaty, Rwanda must have regard to information provided about a relocated individual relating to any special needs that may arise as a result of their being a victim of modern slavery or human trafficking, and must take all necessary steps to ensure that these needs are accommodated.

I have to answer the noble and learned Baroness, Lady Butler-Sloss, by saying that at the moment I do not know whether it has those laws enshrined in domestic laws, but when the treaty is ratified, it will.

[Baroness Butler-Sloss (CB)]

As far as I know, there is no legislation to that effect in Rwanda.

[Baroness Coussins (CB)]

My Lords, will the review of ARAP decisions apply to the Afghan interpreters and translators and not just to military personnel?

[Lord Sharpe of Epsom (Con)]

When I was explaining the ARAP situation, I pointed out the difficulty of assessing and accessing some of the records, but I will certainly make sure that is taken back to the Foreign Office, which, as I understand it, administers a large part of the ACRS, which is the agreement under which the Afghan interpreters come to this country. I will find out the answer.

[Lord Scriven (LD)]

The Minister will not be able to answer this, but I would appreciate it if he could write to me and the House on it. He keeps referring to the treaty saying “must”. There is a difference between “must” and “shall”. In law, “must” is an absolute obligation. Article 13(1) says that Rwanda they “shall” take necessary steps, not “must”. Will he write to me, as I have the treaty here and it says something different from what he has said three times from the Dispatch Box?

[Lord Sharpe of Epsom (Con)]

I am advised by my noble and learned friend Lord Stewart of Dirleton that “must” and “shall” both have a mandatory quality, but I will of course write to the noble Lord.

If there is compelling evidence, despite the safeguards in the treaty, decision-makers will be able to consider certain claims that Rwanda is unsafe for an individual due to their particular circumstances, as we have discussed a number of times. However, I say again that these amendments are unnecessary. On that basis, I invite the noble and learned Lord to withdraw his amendment and urge other noble Lords not to press theirs.

[Lord Etherton (CB)]

I am very grateful to the Minister for that analysis of the speeches made and the Government’s response to them. I am also grateful to all noble Lords who have spoken in this debate, which has raised some important points about people who are extremely vulnerable.

The noble Lords, Lord Kerr and Lord Coaker, articulated the point that all these amendments dealing with exemptions are objectively extremely reasonable and important, and do not involve huge numbers of people such as to undermine the effectiveness of this proposed legislation. Descending to details to say that they are not necessary, when it is plain that they are, shows a certain lack of not only sensitivity to the Chamber but a spirit of humanity which should underlie the Government’s response.

Turning to my Amendment 22 and its consequential amendments, I find it difficult to understand how the Government can justify dropping and effectively disfranchising one of the expressly specified categories of refugee in the convention. There is nothing in the policy statement issued by the Government when the Bill was published or in the Explanatory Notes to say that they would do this. I would have thought that dropping a specific category of refugee defined by this convention which we have signed up to is an extraordinary move.

The justification seems to be that the Government will not permit reference to groups because it would significantly enlarge the number of those entitled to claim. However, if they are entitled to claim by virtue of a convention which we have signed up to, the Government must accept that, like all the other 149 states signed up to it. You cannot simply say, “We’ll ignore this or that category of refugee” or “We’ll just rely on this category of refugee”. There must be an ability, in one way or another, for all those mentioned as refugees to explain why removal would result in persecution and serious harm.

Leaving that matter aside, I will comment on the intervention by the noble Lord, Lord Murray, on comments made by the noble Lord, Lord Cashman, about the situation of LGBT people in Rwanda. I do not want to go through this again, but there are two factors on which the noble Lord, Lord Murray, did not comment, and in fact have never been commented on appropriately by the Government, by way of some sort of excuse in relation to LGBT people and the risk that they face in leading an openly gay life in Rwanda.

First, the travel information provided by the Foreign, Commonwealth and Development Office remains the same as it always has done, as it was at the time of the Illegal Migration Act: there is a danger to LGBT people living openly as such in Rwanda. Secondly, and importantly, no reference has been made to something that I mentioned in Committee: the country report on Rwanda of the US State Department, which was published only one year ago, and which talks about persecution and the possibility of physical harm to LGBT people. The Government have never addressed those points at all, but I am not going to go further into that.

As to the others, I personally strongly support all the other exemptions, which seem to me to be reasonable, humane and entirely appropriate, not designed to undermine the Bill but really rising to the level of morality which we should display as a country in relation to these categories of people. Having said all of that, and having heard the Minister, the best thing that I can do is to leave it to the amendment in the next group, tabled by the noble Baroness, Lady Chakrabarti, which contains reference to groups. For my part, having had this debate will have been useful in honing the points that will have to be met in relation to that. On that basis, and that basis alone, I beg leave to withdraw my amendment.

Safety of Rwanda (Asylum and Immigration) Bill

Lord Sharpe of Epsom Excerpts

Report stage
Wednesday 6th March 2024 Lords Chamber

[Lord Ponsonby of Shulbrede (Lab)]

My Lords, the noble Baroness, Lady Lawlor, said that the Government were making tough decisions by their current policy to make a deterrent. I think that was the gist of the argument she used. As I have said in previous debates, I sit as a magistrate and occasionally I am put in the situation of having to make a decision on somebody’s age. It is usually a very unfortunate circumstance, but it is something I am sometimes called to do. In answer to the noble Baroness’s point, what we want to do on this side of the House is make accurate determinations so that the right decision is made, which defends our reputation as a country which observes domestic and international law and does the best for the children we find in our care. That is the purpose of these amendments, and I support my noble friend on Amendment 34.

[The Parliamentary Under-Secretary of State, Home Office (Lord Sharpe of Epsom) (Con)]

My Lords, I am grateful to all noble Lords for their contributions to this debate. Amendment 34, tabled by the noble Baroness, Lady Lister, would mean that when a decision is made to remove someone to Rwanda under the Illegal Migration Act 2023, Section 57 of that Act would not apply if there was a decision on age.

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[Baroness Brinton (LD)]

The Minister failed to quote the next part of the letter, which I started to quote, about the committee acknowledging that there is uncertainty in the data. It goes on to say that there is

“greater confidence in the assessment of whether the claimed age is possible”.

The point I was making is that it is still a guess. That is the issue, and it is why doctors are refusing to do these age assessments—they do not believe they can be relied on.

[Lord Sharpe of Epsom (Con)]

And the point I was making is that this is done in combination with a variety of other methods and therefore, in aggregate, those methods will deliver more accurate age assessments.

The tragic events this week, which saw a child as young as seven lose their life attempting to cross the channel in a small boat, are an unwelcome reminder of the desperate need to stop this vile trade. Like my noble friends Lady Lawlor and Lord Lilley, I would not allow a child or grandchild to make a dangerous and illegal channel crossing from a safe country. That is the best way to stop this.

This Government remain focused on doing everything we can to save lives, deter illegal migration and disrupt the people-smuggling gangs responsible for the dangerous channel crossings. I respectfully ask that the noble Baroness do not move her amendment.

[Lord Scriven (LD)]

I have an important question. The Merton assessment is the standard assessment that is done of an individual where the age is in dispute. Will any child or potential adult be sent to Rwanda before that Merton assessment is carried out, or is the assumption that no person whose age is in dispute will be sent to Rwanda before the Merton assessment is carried out?

[Lord Sharpe of Epsom (Con)]

As I have tried to explain, the initial assessment is made by two Home Office officers; the Merton assessment comes later in the process. I do not know quite where in the process, but I will find out.

[Lord Scriven (LD)]

May I therefore ask another question? What professionals are in Rwanda who can carry out that Merton assessment? Under the Bill and the treaty, a person comes back only if they have been assessed as an unaccompanied child under the age of 18. If the assessment is not done in the UK, how can it be done in Rwanda if that speciality is not developed enough?

[Lord Sharpe of Epsom (Con)]

My Lords, we have discussed on numerous occasions the question of a number of vulnerable individuals who may end up being relocated to Rwanda. The treaty makes specific provision for the precise and detailed professional help those people will need.

[Baroness Lister of Burtersett (Lab)]

My Lords, I thank noble Lords who have spoken in support of my amendment. To pick up what the noble Lord, Lord Scriven, has been saying, that is part of the point: if two immigration officials say that the child is an adult, the Merton assessment does not come into operation. The point is that we do not have professional social work assessment of the children.

I will not go into what noble Lords who have spoken in support said, but I point out that the right reverend Prelate raised two specific questions which were not addressed. One was about our still not having a child rights impact assessment; the other was a request. I do not know what will happen to these amendments but, at the end of the day, I hope there will be a meeting of all those who have signed them and that stakeholders are consulted on the assessment process, in order to address the very point raised by the noble Lord, Lord Scriven. Does the Minister wish to intervene?

[Lord Sharpe of Epsom (Con)]

My apologies: I meant to say that, yes, of course I am happy to meet.

[Baroness Lister of Burtersett (Lab)]

I thank the Minister very much, but there is no child rights impact assessment, needless to say.

Noble Lords who spoke against very much used the arguments used in Committee, and evidence was produced there to rebut those arguments. I thank the Minister for his response—he did engage with the evidence this time—but to be honest, if I am asked which evidence I believe more, the Home Office’s figures or the figures collected by people working in the sector with local authorities, I am afraid that I put more confidence in the latter.

I have heard nothing today that has effectively countered the rebuttal of the arguments made by the Minister and his colleagues—some of them put for the fourth time—that I gave in my opening speech. I do not propose to repeat them, in the interests of time. I simply note that the Home Secretary said this week that he would look closely at any amendments that your Lordships’ House supported but would reject any that wrecked or watered down the Bill. Mine is not a wrecking amendment and were the Government to accept it, that would demonstrate true strength in the willingness to be flexible in order to protect the best interests of children. I do not call that watering down. In the interests of children and their welfare, I would therefore like to test the opinion of the House.

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[Lord Deben (Con)]

My Lords, I support the noble Lord, Lord Hodgson, in his comments. The issues we should be concerned about are the ones that we have just been talking about. They are the real issues—the ones that really matter. We can all make party-political and cross-party references to the amount of money, and I must say that this is not the way I would spend £1.9 million on an individual. I am not known for total support for the Government on everything, but I do not think we really need to go into this. We know a great deal about it. The Government will not improve or lessen the effect of this Bill by telling us these figures. This is something I am perfectly prepared not to support, because I do not think it is important enough, and I do not want this House to be led astray from the key issues.

Throughout this debate, I have said that the thing I am interested in, because of my concern around climate change, is that I want us to clearly support international law. We have no hope of saving the planet, let alone anything else, unless we support international law. Therefore, if this is put to a vote, I shall support the Government, because this is an unnecessary addition, and I want the Government to concentrate on the key issue—that they are undermining our international reputation in a way that is unacceptable, damaging and dangerous. The fact that the Government are also spending a lot of money which does not look as if it will be useful is so much more minor than that, but I will support it.

[Lord Sharpe of Epsom (Con)]

My Lords, I thank the noble Lord, Lord Coaker, for introducing these amendments in such fine style. I thank him for acknowledging the Home Secretary’s remarks, but I am sure he would acknowledge that I, my noble and learned friend, and my noble friends on the Front Bench agree with him about respecting the constitutional importance of your Lordships’ House. In answer to the question about the responses to those reports, they are imminent—I promise to fire up the much-vaunted carrier pigeon on that one.

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[Lord Sharpe of Epsom (Con)]

I thank noble Lords for their contributions to this relatively brief debate. Amendment 45 relates to the commencement of the Act. The Government have already set out their assessment that Rwanda is a safe country and can comply with its treaty obligations. In reaching this assessment, we have closely and carefully scrutinised all the circumstances of the country and information from appropriate sources, all of which are set out in the policy statement which is available on GOV.UK.

In response to questions raised in Committee, in particular by the noble Lord, Lord Purvis, with regard to the process for making amendments and whether the treaty will follow the CRaG process, which I committed to look into further, I think it is worth stepping back quickly to remind noble Lords of the process and where we stand today. The Constitutional Reform and Governance Act lays out how treaties are to be introduced and the necessary steps before we can proceed to ratification. The normal CRaG process has been followed and will continue to be followed. The treaty was laid before both Houses for 21 sitting days as required; the Commons did not resolve to ratify the treaty; we acknowledged the Motion in this House not to ratify, and the Government are considering next steps.

The treaty sets out the international legal commitments that the UK and Rwandan Governments have made, consistent with their shared standards associated with asylum and refugee protection. It also commits both Governments to deliver against key legal assurances in response to the UK Supreme Court’s conclusions. As has been said before from this Dispatch Box, the Government will ratify the treaty in the UK only once we agree with Rwanda that all necessary implementation is in place for both countries to comply with the obligations under the treaty.

In answer to the noble and learned Lord, Lord Falconer, I am afraid I cannot comment on exactly when that will happen in Rwanda. As my noble friend Lord Murray pointed out, it still needs to go through the upper house.

[Lord Falconer of Thoroton (Lab)]

Will the Minister identify what “internal procedures”—I am using the phrase from Article 24—are left for the UK to go through before the treaty is ratified?

[Lord Sharpe of Epsom (Con)]

I am afraid I cannot clarify that but, as I have said, the Government will ratify in the UK only once we agree with Rwanda all those necessary steps and the implementation is in place.

[Lord Falconer of Thoroton (Lab)]

Will the Minister undertake to write to those of us in the House who are interested in this before Third Reading?

[Lord Sharpe of Epsom (Con)]

Yes, I can certainly undertake to do that.

Furthermore, I can confirm that under Article 20 of the treaty the agreement may be amended at any time by mutual agreement between the parties. Agreed amendments shall enter into force on the date of receipt of the last notification by the parties that their internal procedures for entry into force have been completed. To be clear, any amendments made to the Rwanda treaty would need to comply with CRaG.

On the amendment tabled by the noble Lord, Lord Scriven, as noble Lords will know, the department carefully considers each report’s findings and these are often complex matters. The Independent Chief Inspector of Borders and Immigration monitors and reports on the efficiency and effectiveness of the immigration, asylum, nationality and customs functions carried out.

I appreciate that the noble Lord said this is not about getting into the rights and wrongs, but I am afraid that is not the case; it is about getting into the rights and wrongs of why the contract with Mr Neal was terminated. I will repeat what I said earlier in a Question. He released sensitive and misleading information from unpublished reports well within the time commitment for publication, so the Home Office did not have time to fact-check and redact inappropriate material. That is germane to this debate.

On the number of reports that were released last week, yes, there were 13 and they were released at speed, as Parliament requested and demanded. In those 13 reports, there were 27 recommendations; 18 have been accepted, eight were partially accepted and one was not accepted. I rehearsed earlier today the arguments about the accuracy of some of those reports, and I therefore think that that is a high number in the circumstances. On the question asked by the noble Lord, Lord Ponsonby, the Home Secretary has committed to look into appointing an interim chief inspector, and I cannot improve on his words at the moment.

However, going back to the point that the noble Lord, Lord Scriven, made, the MEDP with Rwanda has its own independent monitoring regime in the form of the monitoring committee. This committee will have the power to set its own priority areas for monitoring and have unfettered access for the purposes of completing assessment and reports—we have discussed that at some length.

I agree with my noble friend Lord Murray of Blidworth; he is completely right about his reference to Article 15. As the noble Lord, Lord Scriven, pointed out, Article 16(5) says:

“The co-chairs may set terms of reference for the Monitoring Committee in addition to but not contrary to those provided in Article 15 of this Agreement”.


I will not read out all 10 paragraphs of Article 15, but they are very comprehensive indeed.

The need for a statement on the impact of this Act, before it comes into force, is simply not necessary. As we set out at length in earlier debates, the monitoring committee has been appointed; it will provide real-time comprehensive monitoring—with an initial period of enhanced monitoring—of the end-to-end relocation and claims process, to ensure compliance with the standards agreed in the standard operating procedures and the treaty obligations. The monitoring committee will undertake daily monitoring of the partnership for at least the first three months, to ensure rapid identification of and response to any shortcomings. This enhanced phase will ensure that the comprehensive monitoring and reporting takes place in real time, and the monitoring committee will ensure that there is a daily presence of the support team on the ground through this enhanced phase.

On that basis, I urge noble Lords not to press their amendments.

[Lord Scriven (LD)]

Before the Minister sits down, let me say that I asked four very specific questions about the chief inspector’s view on the country notes. Has the Home Office asked the chief inspector’s office? Has a view come back? If not, what would happen if that normal procedure has not taken place, particularly in light of the fact that Parliament is being asked to say that Rwanda is a safe place, for which that kind of information would be normally available from the chief inspector? Would the Minister please answer those questions, which he clearly overlooked at the Dispatch Box?

[Lord Sharpe of Epsom (Con)]

My Lords, I did not entirely overlook them; I thought they were redundant, on the basis that there is no chief inspector—he has been sacked—so, no, we have not asked the chief inspector to look at the matter. As and when an interim is appointed, I am sure that will be part of his remit.

[Baroness Chakrabarti (Lab)]

My Lords, as always, I am grateful to all noble Lords, not only those who have spoken in this group, which is supposed to be about commencement of the Act, but also to those who participated in this important Report stage where 10 very important amendments—all of which improve rather than wreck the Bill—have been passed.

However, there is an alpha and an omega, and I remind noble Lords and Ministers opposite that, right at the beginning of the Bill, we are told in Clause 1(2)(b) that

“this Act gives effect to the judgement of Parliament”—

not the judgment of the Government or the Prime Minister, or the Home Secretary of the day, but the judgment of Parliament—

“that the Republic of Rwanda is a safe country”.

Amendment 45 is about giving Parliament a role in commencement of the Bill, because ratification of the Rwanda treaty is obviously an Executive act, not a parliamentary one, in the current terms. That is all; that is not wrecking—it is improvement. Many noble Lords have made that point.

In earlier debates, noble Lords, including noble and learned Lords, and Ministers have spoken about decrees. But this is Britain in the first quarter of the 21st century and we do not rule by decree; we govern by consent, democracy and accountability built on the rule of law. Commencement of this very controversial legislation should be by parliamentary judgment, as the Bill provides in Clause 1, and not by Executive decree, as the noble and learned Lord, Lord Stewart, mentioned earlier, and certainly not by just simple treaty ratification, which is an Executive act.

I am not going to press this amendment, but before this Bill returns, much amended, to the other place, I ask the noble Lords and Ministers to consider—because their whole argument is based on accountability and parliamentary sovereignty—whether Parliament, rather than Ministers or the Executive alone, should have a role in determining whether Rwanda is actually safe and continually safe, and whether this Bill, which may become an Act, should be brought into force. With that, I beg leave to withdraw the amendment.

Safety of Rwanda (Asylum and Immigration) Bill

Lord Sharpe of Epsom Excerpts

3rd reading
Tuesday 12th March 2024 Lords Chamber

Moved by

[Lord Sharpe of Epsom]

That the Bill do now pass.

[Lord Howard of Lympne (Con)]

My Lords, I wish to make a point which I hope may be taken into account by honourable Members in another place, though I fear it is unlikely to find favour with most of your Lordships. I cast no aspersions on the motivation which has led to the amendments your Lordships have passed. An undeniable consequence of most of these amendments would be delay in dealing with an issue which is regarded as important and urgent by very many people in our country—an issue to which no alternative remedy has been advanced. I hope that this point may be taken into account by honourable Members in another place, even if not by most of your Lordships.

--- Later in debate ---

[The Parliamentary Under-Secretary of State, Home Office (Lord Sharpe of Epsom) (Con)]

My Lords, as the Bill nears completion of its passage through your Lordships’ House, it is obviously timely for me to say a few words. First, I want to say that I heard what the noble Lord, Lord Alton, said. The two responses to the JCHR and the Constitution Committee were cleared this morning and issued this afternoon. I apologise that this has taken a while longer than it should have. They deal with the questions raised by the noble Lord, Lord Kerr. The key point remains, of course, that the Government will ratify the treaty only once we agree with Rwanda that all necessary implementation is in place for both countries to comply with the obligations under the treaty. We have dealt with that at some length over the passage of the Bill.

I think we can all agree that there is common ground in the view that we need to stop the boats. We need to prevent the tragic loss of lives at sea and bring to an end the horrid trade of the criminal gangs who are exploiting people for financial gain. Where there is disagreement is on the means by which we can achieve that and the strength of our desire to carry out the will of the British public—to control our border and tackle this global crisis of illegal migration. I note the point made by the noble Lord, Lord Alton, that it is a global crisis that will inevitably require global solutions.

The Government have made progress towards stopping the boats. Small boat crossings were down by a third in 2023, when our joint work with France prevented more than 26,000 individuals crossing by small boat to the UK. There is, however, more to do. As we have made unequivocally clear, to stop the boats and prevent people taking such perilous journeys across the channel, we need to send out a message that if you arrive in the United Kingdom by such means, you will not be able to stay.

We need to be able to take bold and innovative steps to create a strong deterrent that will stop the loss of lives at sea. Our partnership with Rwanda provides just that. The new, legally binding treaty with the Government of the Republic of Rwanda responds to the Supreme Court’s concerns, reflecting the strength of the Government of Rwanda’s protections and commitments. Under our new legislation, migrants will not be able to frustrate the decision to remove them to Rwanda by bringing systemic challenges about the general safety of Rwanda. It is imperative that the scheme as provided for in this Bill is robust and sends the unambiguous message that if you enter the UK illegally, you will not be able to build a life here. Instead, you will be detained and swiftly returned either to your home country or to a safe third country.

In light of the non-government amendments agreed by your Lordships’ House on Report, it is clear that many noble Lords in this House do not agree on how to end the misuse of our immigration process. However, it is not an option for us to not act: without a plan or an alternative approach, more lives will be tragically lost at sea and the financial burden on the British taxpayer will grow as millions of pounds continue to be spent each day accommodating people in hotels. We have spoken at length about the protections needed for various vulnerable cohorts of people, which we are satisfied this Bill and partnership will provide. However, as I have said repeatedly, the people to whom we refer are those who have already reached a country of safety, where they could and should have claimed asylum.

As the noble Lord, Lord Dubs, noted, there was some debate on Report about consultation with the Crown dependencies. The Government, of course, recognise the concerns raised by some noble Lords and remain committed to consulting the Crown dependencies on any legislation which might affect them, including on the inclusion of a permissive extent clause, but I am grateful to the noble Lord, Lord German, for clarifying.

Although I have no doubt that the amendments passed by this House are well intended, some do indeed—as my noble friend Lord Howard noted—seek to undermine the core purpose of the Bill and would continue to allow relocations to Rwanda to be frustrated. No doubt, our debate on such matters will continue.

That said, I want to take this opportunity to thank noble Lords for their valued contributions during the passage of the Bill through this House. I want to express my appreciation to the noble Lords, Lord Coaker and Lord Ponsonby, for the courteous manner in which they have engaged with me on the Bill. I thank them also for their warm words. I also wish to extend my thanks to the noble Lord, Lord German, and his Front-Bench colleagues for their clarity of views, albeit ones with which I have not agreed.

I want also to record my gratitude for the invaluable support and assistance of my noble and learned friend Lord Stewart of Dirleton. I must also put on record my thanks to the Bill team, my private office, and all the officials and lawyers in the Home Office and the Ministry of Justice who have provided such thorough support and expertise.

In conclusion, the purpose of this Bill is to deter dangerous and illegal journeys to the United Kingdom, which are putting people’s lives at risk, and to disrupt the business model of the people smugglers who are exploiting vulnerable people. This Bill reflects the strength of the Government of Rwanda’s protections and commitments given in the internationally binding treaty to people transferred to Rwanda in accordance with the treaty. Alongside the evidence of changes in Rwanda since the summer of 2022, this Bill will enable Parliament to conclude that Rwanda is safe. I have no doubt that we will shortly be debating these matters vigorously again, but, for now, I beg to move.

Bill passed and returned to the Commons with amendments.

Safety of Rwanda (Asylum and Immigration) Bill

Lord Sharpe of Epsom Excerpts

Consideration of Commons amendments
Wednesday 20th March 2024 Lords Chamber

Moved by

[Lord Sharpe of Epsom]

That this House do not insist on its Amendments 2 and 3, to which the Commons have disagreed for their Reason 3A.

3A: Because the Commons consider that it is not necessary to refer expressly to the arrangements in the Rwanda Treaty being, and continuing to be, implemented and adhered to; the Bill is clear that it comes into force on the day on which the Rwanda Treaty enters into force and it is not appropriate for the Bill to legislate for Rwanda adhering to its obligations under the Treaty as Rwanda’s ongoing adherence to its Treaty obligations will be subject to the monitoring provisions set out in the Treaty.

[The Parliamentary Under-Secretary of State, Home Office (Lord Sharpe of Epsom) (Con)]

My Lords, we set out in earlier debates, and this was re-emphasised by Members in the other place earlier this week, the fundamental purpose of the Bill: to firmly place with Parliament—rather than with decision-makers in individual cases or with courts reviewing those cases—the decision on whether Rwanda is a safe country to relocate people to. It asserts parliamentary sovereignty on an issue that this Government are committed to tackling: stopping the boats.

Motion B, as well as Amendments 3B and 3C in the name of the noble and learned Lord, Lord Hope, relate to the status of Rwanda as a safe country. Amendment 3B seeks to make Rwanda’s status as a safe country conditional on the treaty arrangements being fully implemented and continuing to be fully implemented.

The UK Government and the Government of Rwanda have agreed, and begun to implement, assurances and commitments to strengthen Rwanda’s asylum system. In advance of agreeing the treaty, we worked with the Government of Rwanda to respond to the findings of the courts by evidencing Rwanda’s existing asylum procedures and practice in standard operating procedures relating to and reflecting the current refugee status determination and appeals process.

The Government will ratify the treaty in the UK only once we agree with Rwanda that all necessary implementation is in place for both countries to comply with the obligations under the treaty. The legislation required for Rwanda to ratify the treaty has now passed through both Chambers of the Rwandan Parliament—as my noble and learned friend mentioned earlier—and is awaiting presidential sign-off. The legislation implementing the new asylum system will be introduced to the Rwandan Parliament soon.

We have of course worked closely with the Government of Rwanda to ensure that there are safeguards in place to be able to continue to assert that Rwanda is safe. The implementation of provisions in the treaty will be kept under review by the independent monitoring committee, which will ensure that the obligations under the treaty are complied with in practice.

The monitoring committee will report to the joint committee, which is made up of both UK and Rwandan officials. As per Article 15(4c) of the treaty, the monitoring committee will make any recommendations to the joint committee that it sees fit to do.

As set out previously, the monitoring committee will undertake daily monitoring of the partnership for at least the first three months to ensure rapid identification of, and response to, any shortcomings. This enhanced phase will ensure that comprehensive monitoring and reporting take place in real time. During the period of enhanced monitoring, the monitoring committee will report to the joint committee in accordance with an agreed action plan to include weekly and bi-weekly reporting as required. Due to the structure of the monitoring committee, the Government cannot support Amendment 3C, which would require the Secretary of State to obtain and lay before Parliament a statement from the monitoring committee that the measures in Article 2 of the treaty had been secured.

The measures within Article 2 include, first, creating a mechanism for the relocation of individuals to Rwanda; secondly, providing a mechanism for an individual’s claim for protection to be determined in Rwanda or for alternative settlement in Rwanda; and, thirdly, providing those relocated to Rwanda with adequate tools to successfully integrate into Rwandan society. The amendment would create an imbalance in the independence and impartiality of the monitoring committee whereby the UK Secretary of State would be required to consult the committee directly. It is the joint committee, comprising both Rwandan and UK officials, that the monitoring committee reports to under the original MoU and under the terms of the treaty.

I remind the House of Rwanda’s track record in providing sanctuary to many refugees and how it has been internationally recognised for its general safety and stability, strong governance, low corruption, and gender equality. In doing so, I refer to the words of my noble friend Lord Hodgson of Astley Abbotts, who on Report quite rightly disagreed with

“the continued assertion underlying this group of amendments that somehow Rwanda as a country is untrustworthy unless every single ‘t’ is crossed and every ‘i’ is dotted”.

My noble friend referred this House to paragraphs 54 and 57 of the Government’s report on Rwanda dated 12 December 2023 and said:

“The Ibrahim Index of African Governance, an independent organisation, rates Rwanda 12th out of 54 African countries. The World Economic Forum Global Gender Gap Report makes Rwanda 12th—the UK, by the way, is 19th. The World Bank scored Rwanda at 16 out of a maximum score of 18 on the quality of its judicial processes. Lastly, the World Justice Project index on the rule of law ranked Rwanda first out of 34 sub-Saharan African countries” .—[Official Report, 4/3/24; col. 1351.]

To conclude, Clause 9(1) of this Bill is clear: the Bill’s provisions come into force on the day on which the treaty enters into force. The treaty enters into force when the parties have completed their internal procedures. I am grateful to the noble and learned Lord for the amendments in lieu, but they continue to confuse the process for implementing the treaty with what is required for the Bill’s provisions to come into force. I beg to move.

Motion B1 (as an amendment to Motion B)

Moved by

--- Later in debate ---

[Lord Coaker (Lab)]

My Lords, we are very pleased to say that should the noble and learned Lord, Lord Hope, wish to test the opinion of the House with respect to Motions B1 and B2, we would be very supportive of them as well. I just say to the noble and learned Lord, Lord Hope, that the change he has made in Motion B1 from “is” to “will be” is a very significant change, and indeed goes to the heart of the problem that this House has considered on many occasions; namely, that the Government’s declaration in the Bill is that Rwanda is safe and in the treaty that it will be safe should the mechanisms contained within the treaty be put in place. I find it incredible that the Government cannot accept what is basically a very simple amendment, which in a sense puts into practice what the Government themselves have accepted.

I will just reinforce to the noble Lord, Lord Sharpe, the point that the noble and learned Lord, Lord Hope, made, that the Minister in the other place implied that there was something to think about here and that the Government needed to think about how they responded to Amendments 2 and 3—as they were then—that had gone to the other place. That is why it is really important. Again, it goes back to what I said in the initial part of this debate: when the other place just dismisses amendments, it also denies itself the opportunity to properly reflect on a Bill and how it might improve it. This debate that we are having very much proves the point that we need to pass the amendments of the noble and learned Lord, Lord Hope. The Government may wish to adapt part of it to make it more consistent with what they themselves think. None the less, it is a really important amendment. As I say, we would be happy to support the noble and learned Lord, Lord Hope, should he choose to test the opinion of the House.

[Lord Sharpe of Epsom (Con)]

My Lords, I am very grateful for the contributions of noble Lords to this debate. I am grateful in particular to the noble and learned Lord, Lord Hope, for the very gracious way he introduced his amendments, as ever.

It is unnecessary, however, to record on the face of the Bill the position the Bill already sets out in Clause 9. This Act comes into force on the day on which the Rwanda treaty enters into force. The treaty sets out the international legal commitments that the UK and Rwandan Governments have made, consistent with their shared standards associated with asylum and refugee protection. It also commits both Governments to deliver against key legal assurances in response to the UK Supreme Court’s conclusions.

I am very grateful to my noble friends Lord Howard, Lord Lilley and Lord Horam for pointing out, perhaps rather gently, that the noble and learned Lord, Lord Hope, is placing not much faith in the safeguards that the real-time monitoring committee will offer. We believe that this will be much more effective than any other form of scrutiny. My noble and learned friend went through the monitoring committee’s terms of reference in the last group, and I will not repeat those. I will say that the enhanced monitoring that has been discussed—the enhanced phase—will take place over the first three months on a daily basis. An enhanced phase will ensure that monitoring and reporting take place in real time, so that the independent monitoring committee can rapidly identify, address and respond to any shortcomings or failures to comply with the obligations in the treaty and identify areas for improvement, or indeed urgently escalate issues prior to any shortcomings or breaches placing a relocated individual at real risk of harm. That will include reporting to the joint committee co-chairs within 24 hours in emergency or urgent situations. I could go through the various minimum levels of assurance that have been agreed by the monitoring committee, but I fear I would lose the patience of your Lordships.

I have made it crystal clear that the Government will ratify the treaty in the UK only once we agree with Rwanda that all necessary implementation is in place for both countries to comply with the obligations under the treaty. We have assurances from the Government of Rwanda that the implementation of all measures within the treaty will be expedited, and I am grateful for all the work that continues to be done by officials in the Government of Rwanda.

Just to conclude, again I agree with my noble friends Lord Lilley and Lord Howard, that the proper parliamentary response to any changes is of course to change the legislation, either by amendment or appeal. On that basis—

[Viscount Hailsham (Con)]

Before my noble friend sits down, he will have heard the noble and learned Lord, Lord Falconer, tell us what the Lord Chancellor said about a parliamentary occasion if the monitoring committee was to advise that Rwanda was not safe. Would my noble friend care to tell us what the parliamentary occasion would be?

[Lord Sharpe of Epsom (Con)]

Well, no. As I was not party to the comments of the Lord Chancellor, I think it would be very foolish of me to try to second-guess what he may have meant by that comment.

[Lord Hope of Craighead (CB)]

My Lords, I am very grateful to all noble Lords who have spoken in this debate, particularly the Minister, for the careful way in which he replied. There is only one thing I should say, and it is in response to the noble Lord, Lord Lilley: he is absolutely right that there was a list of safe countries in that legislation, and it certainly did not occur to me to question the proposition in that Bill.

But everything depends on the context, and we are dealing here with a Bill that has fenced around with barbed wire every possible occasion, as I said on an earlier occasion, to prevent anybody bringing any kind of court challenge whatever to protect their human rights and other rights in the event of their being faced with being sent to Rwanda. That context transforms the situation entirely from the measure the noble Lord was talking about. That is why, I suggest, it is so important to get the wording of that crucial sentence in Clause 1(2) of the Bill right. It is for that reason that I wish to test the opinion of the House.

--- Later in debate ---

Moved by

[Lord Sharpe of Epsom]

That this House do not insist on its Amendments 4 and 5, to which the Commons have disagreed for their Reason 5A.

5A: Because the Commons consider that it is not necessary or appropriate to amend the provisions in the Bill that require decision-makers to treat Rwanda as a safe country.

[Lord Sharpe of Epsom (Con)]

My Lords, my noble and learned friend has already spoken to Motion C, so I beg to move.

Motion agreed.

Moved by

[Lord Sharpe of Epsom]

That this House do not insist on its Amendment 6, to which the Commons have disagreed for their Reason 6A.

6A: Because the Commons consider that it is not appropriate to leave out clause 4 of the Bill and insert the new clause in the Amendment, as the Bill allows decision-makers to consider claims that Rwanda is unsafe for an individual due to their particular circumstances.

[Lord Sharpe of Epsom (Con)]

My Lords, again, my noble and learned friend has already spoken to Motion D, so I beg to move.

Motion D1 (as an amendment to Motion D)

Moved by

--- Later in debate ---

Moved by

[Lord Sharpe of Epsom]

That this House do not insist on its Amendment 7, to which the Commons have disagreed for their Reason 7A.

7A. Because the Commons consider that it is not appropriate to disapply the age assessment provisions of existing legislation.

[Lord Sharpe of Epsom (Con)]

My Lords, I will also speak to Motions E1, F, G, G1, H and H1.

We have now debated at length the individual provisions in the Bill. Far too many lives have been lost at sea as migrants have chosen to leave the safety of safe third countries, such as France, to make perilous journeys across the channel. It remains the Government’s priority to deter people from making dangerous and unnecessary journeys, but this deterrent will work only if we apply the same rules to everyone. Although I have no doubt these amendments are well intended, they will encourage more and more people to make spurious claims to avoid their relocation to Rwanda, as well as undermine legislation passed by Parliament in recent years.

Amendment 7B relates to Section 57 of the Illegal Migration Act 2023, “Decisions relating to a person’s age”, to amend the definition of a relevant authority for that section if a person is to be removed to the Republic of Rwanda. Section 57 applies to decisions on age made by a relevant authority on persons who meet the four conditions under Section 2 of the IMA. Section 57 disapplies the right of appeal for age-assessment decisions made under Section 50 or 51 of the Nationality and Borders Act 2022, prevents a judicial review challenge to a decision on age from suspending removal under the 2023 Act, and provides that the court can grant relief in that judicial review only on the basis that a decision is wrong in law and not because a decision is wrong as a matter of fact. A relevant authority is defined in Section 57(6) as the Secretary of State, an immigration officer, a designated person within the meaning of Part 4 of the 2022 Act and a local authority within the meaning of Part 4 of the 2022 Act.

If somebody is to be removed to Rwanda, this amendment changes the definition of a “relevant authority” in this scenario to mean only a local authority, as defined in the 2022 Act, that has conducted an age assessment under Section 50(3)(b) of the 2022 Act—that is, where the local authority has decided that it will conduct an age assessment itself and inform the Home Office of the result. Therefore, this amendment would result in Section 57 applying only to decisions on age made by local authorities under Section 50(3)(b) of the 2022 Act where the removal is to Rwanda. The amendment would prevent Section 57 of the 2023 Act from applying to decisions on age taken by the other listed decision-makers in Section 57(6) where the removal is to Rwanda—for example, decisions made by the National Age Assessment Board. This would result in treating differently those who are to be removed to Rwanda under the 2023 Act from those removed to another country.

The purpose of the IMA is to tackle illegal migration and create a scheme whereby anyone arriving illegally in the UK will be promptly removed to their home country, or a safe third country, to have any asylum or human rights claim processed. All cohorts who are removed under the Illegal Migration Act should therefore be treated the same for the purposes of Section 57.

On arrival, where an individual claims to be a child without any documentary evidence and where there is reason to doubt their claimed age, immigration officers are required to make an initial age decision to determine whether the individual should be treated as a child or as an adult. This is an important first step to prevent individuals who are clearly an adult or a child from being subjected unnecessarily to a more substantive age assessment, immediately routing them to the correct adult or child process for assessing their asylum or immigration claim.

Current guidance provides that immigration officers may treat that individual as an adult only where that individual has no credible and clear documentary evidence proving their age, and two members of Home Office staff assess that their physical appearance and demeanour very strongly suggest that the individual is significantly over 18. This approach to initial decisions on age has been considered by the Supreme Court in the 2021 case of R (on the application of BF (Eritrea) (Respondent) v Secretary of State for the Home Department, UKSC 38, and held to be lawful.

Where that threshold is not met but there remains doubt about the individual’s age, they will be treated as a child and transferred to a local authority for further consideration of their age. This often involves a further, more comprehensive Merton-compliant age assessment, if deemed necessary. This typically involves two qualified social workers undertaking a series of interviews with the young person, and taking into account any other information relevant to their age. The 2022 Act allows local authorities to refer age assessments to designated officials of the Home Office who form the National Age Assessment Board.

The National Age Assessment Board, which launched in March 2023, aims to achieve greater consistency in the quality of age assessments, reduce the incentives for adults to claim to be children, and reduce the financial and administrative burden on local authorities of undertaking assessments. The aim of achieving accurate age assessments is its primary consideration. The board consists of expert social workers whose task is to conduct full Merton-compliant age assessments on referral from a local authority or the Home Office. Local authorities also retain the ability to conduct age assessments themselves. The introduction of the board offers significant improvements to our processes for assessing age. It aims to create a greater consistency in age-assessment practices, improve quality and ensure that ages are correctly recorded for immigration purposes. It will also help to reduce the resource burden on local authorities: where the board conducts an age assessment, it also takes on the legal risk.

The National Age Assessment Board has shown that the social workers working within the Home Office can conduct age assessments to a high standard without political interference, or have their professional integrity as social workers and adherence to social work professional standards inhibited. Every assessment is conducted by two social workers on its own merits and reviewed by a team manager, and achieving accurate age assessment is the primary consideration. As I have set out before, assessing age is difficult, but it is important that the Government take decisive action to deter adults from knowingly claiming to be children. Given that unaccompanied children will be treated differently from adults under the IMA and the obvious safeguarding risks of adults purporting to be children being placed within the care system, it is important that we take steps to deter adults from claiming to be children and to avoid lengthy legal challenges to age-assessment decisions, preventing the removal of those who have been assessed to be adults.

We consider that these provisions within the IMA are entirely necessary to safeguard genuine children and guard against those who seek to game the system by purporting to be adults.

Between 2016 and September 2023, there were 11,977 asylum cases where age was disputed and subsequently resolved, of which nearly half—5,651 assessments—were found to be adults. We cannot allow this figure to rise, but by disapplying Section 57 of the IMA for removals to Rwanda, we will undoubtedly open up our systems to more abuse, given that adult males account for 75% of small boat arrivals. It is for that reason that the Government cannot support this amendment: it will simply open the floodgates for more abuse within the system and encourage adults to knowingly claim to be children to avoid being relocated to Rwanda, placing genuine children at risk of being disadvantaged.

Continuing our focus on the Illegal Migration Act, I now turn to Motion F and Lords Amendment 8. This amendment aims to secure a commitment from the Government to set out the process for how we will remove to Rwanda those who meet the four conditions of Section 2 of the Illegal Migration Act—the duty to make arrangements for removal—and who have arrived in the UK since 20 July 2023, the date of Royal Assent of the IMA. Specifically, it requires details on the numbers of asylum seekers impacted and a commitment to publishing a timetable for these removals. The Government cannot accept this amendment. As I have previously set out on Report, it is seeking information normally used only for internal government planning purposes, and this is not something that is normally shared, nor is it appropriate to legislate for such a commitment. We do, however, recognise the importance of having clear and coherent data.

The Home Office routinely publishes data on asylum, enforcement and irregular migration in the quarterly releases—the immigration system statistics quarterly release, and the irregular migration to the UK statistics. This includes information on people arriving irregularly to the UK; volumes and method of entry; information on cases being considered on inadmissibility grounds, including the number of cases who have received a notice of intent and who have been deemed inadmissible; the number of people returned, including breakdowns by destination; and initial decisions on asylum claims. Official statistics published by the Home Office are kept under review in line with the code of practice for statistics, taking into account a number of factors including user needs, as well as quality and availability of data.

This amendment is seeking information normally used for internal government planning only, and this is not something that is often shared, nor is it appropriate to legislate for such a commitment. The Government’s primary objective is ensuring flights can relocate people to Rwanda, and, once commenced, provisions in the Illegal Migration Act will support this objective.

Turning to Motion G, Amendment 9 would in effect prevent any removal to Rwanda for someone who has received a positive reasonable grounds decision in the national referral mechanism, irrespective of whether they had been disqualified from the NRM under the Illegal Migration Act, or, in relation to pre-IMA cases, by a decision in an individual case to make a public order disqualification based on criteria set out in the Nationality and Borders Act. Furthermore, confirmed victims with positive conclusive grounds decisions could not be removed from the UK without consideration of the specified factors and, if any of those factors apply, without the consent of the individual concerned.

The Government cannot accept this amendment for reasons similar to those I set out in relation to Amendment 7. It undermines provisions in existing legislation—the Nationality and Borders Act and the Illegal Migration Act—which introduced the means to disqualify certain individuals from the NRM on grounds of public order before a conclusive ground is considered. The provision in the Illegal Migration Act was intended to deal with the immediate and pressing broader public order risk arising from the exceptional circumstances relating to illegal entry into the UK, including the pressure placed on public services by the large number of illegal entrants and the loss of life caused by illegal and dangerous journeys.

Where someone has entered the UK illegally and is identified as a potential victim of modern slavery, we will ensure they are returned home or to another safe country, away from those who have trafficked them. The UK Government are committed to supporting victims of modern slavery and will continue to do so through the national referral mechanism. However, it is vital that the Government take steps to reduce or remove incentives for individuals to enter the country illegally. These illegal practices pose an exceptional threat to public order, risk lives and place unprecedented pressure on public services. The protections that the NRM provides are open to misuse and could act as an incentive for those making dangerous journeys, particularly in light of other ways of staying in the UK being closed off through the Illegal Migration Act.

The UK has led the world in protecting victims of modern slavery and we will continue to identify and support those who have suffered intolerable abuse at the hands of criminals and traffickers. As I set out on Report, we remain committed to ensuring that where indicators that someone is a victim of modern slavery are identified by first responders, they continue to be referred into the NRM for consideration by the competent authorities. For all cases, steps will be taken to identify whether a person may be a victim of modern slavery. If a person is referred into the NRM, a reasonable grounds decision will be made.

Under the treaty, the Government of Rwanda will have regard to information provided by the UK relating to any special needs an individual may have that may arise as a result of them being a victim of modern slavery and human trafficking. Rwanda will take all necessary steps to ensure that these needs are accommodated. The Government of Rwanda have systems in place to safeguard relocated individuals with a range of vulnerabilities, including those concerning mental health and gender-based violence. Therefore, this amendment is unnecessary and would undermine the core purpose of the Bill, which is to create a deterrence—not to create exceptions and loopholes which will lead to further abuse of our immigration systems.

Turning to Motion H, Amendment 10, the Government greatly value the contribution of those who have supported us and our Armed Forces overseas, and that is why there are legal routes for them to come to the UK. Having said that, in response to the remarks of the noble Lord, Lord Browne, subsections (7) to (9) of Section 4 of the Illegal Migration Act, passed by Parliament last year, enable the Secretary of State by regulations to specify categories of persons to whom the duty to remove is not to apply, whether on a temporary or permanent basis.

We want to reassure Parliament that once the UKSF ARAP review, announced on 19 February, has concluded, the Government will consider and revisit how the IMA, and removal under existing immigration legislation, will apply to those who are determined ARAP eligible as a result of the review, ensuring that these people receive the attention they deserve. This Government recognise the commitment and responsibility that comes with combat veterans, whether our own or those who showed courage by serving alongside us. We will not let them down. I beg to move.

Motion E1 (as an amendment to Motion E)

Moved by

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[Lord Coaker (Lab)]

My Lords, it is a pleasure to follow the noble Lord, Lord German, and I very much agree with the remarks he made. The Government has got themselves into a right mess with respect to this flagship Bill—partly caused by the fact that they have simply not been listening to the very serious and constructive amendments that noble Lords have tabled to it.

I ask again, because I did not get an answer from the noble and learned Lord, Lord Stewart: what happened to the Government’s plan to discuss this Bill next Monday in the other place and then bring it back on a further round of ping-pong next Tuesday? What happened to that particular plan? The Government are delaying their own legislation and people keep asking me why they are doing it. I do not know, so I am asking the Minister. Why are the Government delaying it until after Easter, when they could have brought it back next Tuesday? Were the noble Lord, Lord Sharpe, and the noble and learned Lord, Lord Stewart, asked about it? Did they put their views forward or is it simply something that came out of the blue? I know that government Members were asked to be here next Tuesday and then it was stopped. I do not know the answer and people keep asking me. So, I am asking the Government again: what has happened with this flagship, emergency piece of legislation, such that the Government have delayed it themselves? The only defence they have is to turn around and blame us for blocking it, when we have said all along that we will not block it.

I ask again because I need to know the answer, since Conservative Members keep asking me and I say, “Well, ask your own Front Bench”—mind you, those here will not know the answer either. Somewhere along the line, there is a serious point to be made on why the Government are delaying their own Bill by not providing time next week.

I support the remarks of my noble friend Lady Lister on Motion E1 and her very serious points about age assessment. I welcome the anti-slavery amendment tabled by the noble and learned Baroness, Lady Butler-Sloss, in her Motion G1. I make no apologies for saying again that I am astonished that Conservative Members of Parliament in the other place, Conservative Peers and others are driving a coach and horses through the Modern Slavery Act, an Act that as a proud Labour Minister I call one of the proudest achievements of a Government who happened to be a Conservative Government. It was flagship legislation that has been copied all over the world, but, in Bill after Bill over the last couple of years, we have seen a gradual erosion of some of the fundamental principles that drive it. I will not repeat the points made by the noble and learned Baroness, Lady Butler-Sloss—I should say that I am a trustee of the Human Trafficking Foundation, as mentioned in the register of interests—but I find that incredible. I hope that noble Lords will take account of the further amendment that the noble and learned Baroness has tabled.

I congratulate my noble friend Lord Browne on his Motion H1. I am incredulous that the Government could not accept his amendment in the other place. I think it astonished not just this side of the House but all sides of the House that, even if they did not accept his amendment, they could not find a way when considering it a few days ago of ensuring that this country met its debt to those people who had fought with us when we needed them to. Many of them have been excluded from that support. That is a stain on our country and should have been resolved as soon as possible. The Government had it within their power to do that last week but, as with the other nine amendments, they turned it down. I simply do not understand that.

I accept the words of the Minister, which he will have said in good faith, that this will be revised, looked at and brought forward in due course, and that regulations and secondary legislation will be used. However, there is absolutely no excuse for the Government of the day not standing up in here—they did not do it in the other place—and saying, “We will honour those who honoured us by ensuring that they are protected, and to do that we will accept Lord Browne’s amendment”. They could have done that today, and it would have meant that we had it in the Bill.

Notwithstanding that the Government clearly will not do that, I hope that noble Lords in vast numbers will support my noble friend’s amendment so that when it goes back to the other place to be considered—whenever that will be—Members there will have the opportunity to honour the debt that we owe to those who fought with us in our time of need in the war in Afghanistan. We owe it to them. As the noble and gallant Lord, Lord Stirrup, who is not in his place, said, in other conflicts to come, when we need support and help, what are we to say to translators, lorry drivers, interpreters and those who are fighting with us? Do we say, “Don’t worry, this country will support you in the aftermath of it?” They will look back at what we have done in Afghanistan and wonder whether we can be true to our word. We should resolve this and support the amendment. I hope that we do so in vast numbers.

[Lord Sharpe of Epsom (Con)]

My Lords, I am very grateful once again to noble Lords for their contributions and acknowledge the points that have been made. However, the Government are unable to accept these amendments.

It is worth me starting by again reading into the record Article 3(4) of the treaty for the avoidance of further doubt. It states that:

“The Agreement does not cover unaccompanied children and the United Kingdom confirms that it shall not seek to relocate unaccompanied individuals who are deemed to be under the age of 18. Any unaccompanied individual who, subsequent to relocation, is deemed by a court or tribunal in the United Kingdom to either be under the age of 18 or to be treated temporarily as being under the age of 18, shall be returned to the United Kingdom in accordance with Article 11 of this Agreement”.


The noble Baroness, Lady Lister, acknowledged, as I have from this Dispatch Box, that assessing age is challenging. That is why the National Age Assessment Board, which I went into in some detail in my opening remarks, was launched in March 2023. I will repeat some of those remarks.

The board was launched to achieve greater consistency in quality of age assessments, to reduce the incentives for adults to claim to be children and to reduce the financial and administrative burden of undertaking assessment on local authorities. The aim of achieving accurate age assessment is its primary consideration. The NAAB consists of expert social workers whose task is to conduct full Merton-compliant age assessments upon referral from a local authority or the Home Office. Local authorities also retain the ability to conduct age assessments. This is not some perfunctory nod in the direction of those who are obviously in a difficult position; it is a very comprehensive age assessment process. Let me make it clear that if an age-disputed individual requires a Merton assessment, they will be relocated to Rwanda only if determined to be an adult after that Merton assessment.

In terms of numbers of people, it was suggested that there were not very many. I will go through those again as well. Between 2016 and September 2023, there were 11,977 asylum cases where age was disputed. Of those, 5,651 were found to be adults. That is over 800 per year. I argue to the noble Lord, Lord Dubs, that it would be a mistake to put those people into a system that is designed for children. I was quite surprised to hear the noble Lord, Lord German, suggesting the opposite. Those are the statistics that I recognise.

As I have previously set out, we cannot allow legislation to pass that would enable those who are to be removed to Rwanda to be treated differently from those removed to another country. The purpose of the IMA and this Bill is to ensure that anyone arriving illegally in the UK will be promptly removed to their home country or a safe third country to have any asylum or human rights claims processed. I will of course make sure that the comments of the noble Lords, Lord Browne and Lord Coaker, are carefully scrutinised over the coming weeks. I apologise to the noble Baroness, Lady Coussins, for being unable to comment on the individual case that she cited.

The Government of Rwanda have systems in place to safeguard relocated individuals with a range of vulnerabilities, including those concerning mental health and gender-based violence. Rwanda has a proven track record of working constructively with domestic and international partners including the UNHCR, the International Organization for Migration and other non-government organisations to process and support the asylum seeker and refugee population. By temporarily accommodating some of the most vulnerable refugee populations who have faced trauma, detentions and violence, Rwanda has showcased its willingness and ability to work collaboratively to provide solutions to refugee situations and crises.

We need to focus on getting flights off the ground to Rwanda to create the reality that everyone who enters the UK via a small boat will not be able to stay but will be swiftly removed. This will help us to continue to stop illegal immigrants from taking dangerous journeys across the channel and to save lives at sea.

[Lord Coaker (Lab)]

Can the Minister answer the question that I put to him and to the noble and learned Lord, Lord Stewart? What happened to the Government’s plans to do this next week? It was due to go to the other place on Monday and come back here on Tuesday. What happened to those plans and why have they been ditched?

[Lord Sharpe of Epsom (Con)]

My Lords, the noble Lord will not like my answer, but the scheduling of business is a matter for business managers.

[Noble Lords]

Oh!

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Moved by

[Lord Sharpe of Epsom]

That this House do not insist on its Amendment 8, to which the Commons have disagreed for their Reason 8A.

8A: Because the Commons consider that it is not necessary to impose the operational reporting obligations mentioned in the amendment.

[Lord Sharpe of Epsom (Con)]

My Lords, I have already spoken to Motion F. I beg to move.

Motion agreed.

Moved by

[Lord Sharpe of Epsom]

That this House do not insist on its Amendment 9, to which the Commons have disagreed for their Reason 9A.

9A: Because the Commons consider that it is not necessary to include the modern slavery provisions mentioned in the Amendment as provisions for modern slavery and human trafficking victims are set out in existing legislation.

[Lord Sharpe of Epsom (Con)]

My Lords, I have already spoken to Motion G. I beg to move.

Motion G1 (as an amendment to Motion G)

Moved by

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Moved by

[Lord Sharpe of Epsom]

That this House do not insist on its Amendment 10, to which the Commons have disagreed for their Reason 10A.

10A: Because the Commons consider that it is not necessary as the only way individuals should come to the UK is through safe and legal routes.

Safety of Rwanda (Asylum and Immigration) Bill

Lord Sharpe of Epsom Excerpts

Consideration of Commons amendments
Tuesday 16th April 2024 Lords Chamber

Moved by

[Lord Stewart of Dirleton]

That this House do not insist on its Amendment 1B, to which the Commons have disagreed for their Reason 1C.

1C: Because the Commons consider that the provisions of the Bill are compliant with domestic and international obligations, and that it is therefore not necessary to refer expressly to having due regard for domestic and international law when setting out the purpose of the Bill.

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Moved by

[Lord Sharpe of Epsom]

That this House do not insist on its Amendments 3B and 3C, to which the Commons have disagreed for their Reason 3D.

3D: Because the Commons consider that it is not necessary to refer expressly to the arrangements in the Rwanda Treaty being, and continuing to be, implemented and adhered to; the Bill is clear that it comes into force on the day on which the Rwanda Treaty enters into force and it is not appropriate for the Bill to legislate for Rwanda adhering to its obligations under the Treaty as Rwanda’s ongoing adherence to its Treaty obligations will be subject to the monitoring provisions set out in the Treaty.

[The Parliamentary Under-Secretary of State, Home Office (Lord Sharpe of Epsom) (Con)]

My Lords, in moving Motion B I will also speak to Motions D, D1, E, F and F1. At this late stage in the Bill’s passage through both Houses, it has been made unequivocally clear, here and in the other place, that it remains the Government’s priority to stop the boats. As I have stated before, the deterrent will work only if we apply the same rules to everyone. We need to take swift action now to put in place the policy that will enable relocations to Rwanda to take place, to create that deterrent and stop the boats. We have seen the deterrent effect work for Albania and we need to replicate it for everyone else.

I turn to Motion B and Amendment 3E. We have made it clear that the Government will ratify the treaty in the UK only once we agree with Rwanda that all necessary implementation is in place for both countries to comply with the obligations under it. Clause 9 clearly sets out that the Bill’s provisions come into force when the treaty enters into force, and the treaty enters into force when the parties have completed their internal procedures. Furthermore, the Government maintain periodical and ad hoc reviews of country situations, including Rwanda, and this will not change. The published country information notes include information from a wide range of sources, such as media outlets, local, national and international organisations, and the Foreign, Commonwealth and Development Office.

The treaty also sets out clearly in Article 4.1 that it is for the UK to determine the timing of a request for relocation of individuals under the terms of the agreement and the number of such requests made. This means that the Government would not be obligated to remove individuals under the terms of the treaty if there had been, for example, an unexpected change to the in-country situation in Rwanda that required further considerations.

The Government of Rwanda’s commitment to the partnership and their obligations under the treaty has been demonstrated by the progress they are making towards implementation. The recent steps taken were set out by my noble and learned friend Lord Stewart in the last group. On Thursday 21 March, the Rwandan Senate passed the legislation ratifying the treaty. The domestic legislation to implement the new asylum system has been approved by the Cabinet and is now with Parliament for consideration. A complaints process has been set up and will be further developed as we progress further into the partnership.

Motion D1 and Amendment 7D would result in the provisions of Section 57 of the 2023 Act applying only to decisions on age made by a designated person or local authorities under Section 50(3)(b) of the 2022 Act where the removal is to Rwanda, and would prevent Section 57 of the 2023 Act from applying to decisions on age taken by the other listed decision-makers in Section 57(6) where the removal is to Rwanda—for example, initial age decisions of immigration officers at the border. The initial decision on age is an important first step to prevent individuals who are clearly an adult or a child being subjected unnecessarily to a more substantive age assessment.

As part of this process, on arrival individuals will be treated as an adult only where two immigration officers assess that their physical appearance and demeanour very strongly suggest they are significantly over 18. This is a deliberately high threshold and the principle of the benefit of the doubt means that, where there is doubt, an individual will be treated as a child pending further observation by a local authority, usually in the form of a Merton-compliant age assessment. This approach has been confirmed by the Supreme Court in the landmark case BF (Eritrea) v the Secretary of State for the Home Department 2021, UK Supreme Court 38.

We know that assessing age is difficult, but it is important that the Government take decisive action to deter adults from knowingly claiming to be children. Unaccompanied children will be treated differently from adults under the 2023 Act, and there are obvious safeguarding risks of adults being placed within the care system. It is therefore crucial that we take steps to safeguard and swiftly identify genuine children, and avoid lengthy legal challenges to age decisions preventing the removal of those who have been assessed to be adults. This amendment would simply open the floodgates for more abuse within the system and encourage adults to knowingly claim to be children to avoid being relocated to Rwanda, placing genuine children at risk of being disadvantaged.

Furthermore, this amendment would give rise to differential treatment. The amendment would result in Section 57 of the 2023 Act applying only to decisions by local authorities and the National Age Assessment Board if the person is to be removed to Rwanda. That would result in treating differently those who are to be removed to Rwanda under the 2023 Act from those removed to another country under the 2023 Act. Decisions of immigration officers and the other listed decision-makers in Section 57(6) would therefore not fall within Section 57 if removal is to Rwanda. In judicial reviews to these decisions suspensive appeal rights could apply, and the judicial review could be heard on a matter-of-fact basis. There is simply no justification for that differential treatment.

I turn to Motion E and Amendment 9. As I have previously set out, under the internationally binding treaty the Government of Rwanda will have regard to information provided by the UK relating to any special needs that an individual may have that may arise as a result of them being a victim of modern slavery and human trafficking. Rwanda will take all the necessary steps to ensure that those needs are accommodated. Safeguarding arrangements are set out in detail in the standard operating procedures on identifying and safeguarding vulnerability, dated May 2023, which state that

“At any stage in the refugee status determination … and integration process, officials may encounter and should have due regard to the physical and psychological signs that can indicate a person is vulnerable”.


The standard operating procedures set out the process for identifying vulnerable persons and, where appropriate, making safeguarding referrals to the relevant protection team. Screening interviews to identify vulnerabilities will be conducted by protection officers who have received the relevant training and are equipped to competently handle safeguarding referrals. The protection team may trigger follow-up assessments and/or treatment, as appropriate. In addition, protection officers may support an individual to engage in the asylum process and advise relevant officials of any support needs or adjustments to enable the individual to engage with the process.

Victims of human trafficking and human slavery will receive the necessary support that they need in Rwanda, as they would in the UK. The Government of Rwanda have systems in place to safeguard relocated individuals with a range of vulnerabilities, including those concerning mental health and gender-based violence. To that end, the government amendment in lieu—Amendment 9C—requires the Secretary of State to publish an annual report about the operation of this legislation as it relates to the modern slavery and human trafficking provisions in Article 13 of the treaty.

[Baroness Hamwee (LD)]

My Lords, can the Minister explain to the House how far the scope of the annual report will go beyond what the monitoring committee will be doing, so that both the Government and Parliament are able to scrutinise exactly what is going on?

[Lord Sharpe of Epsom (Con)]

I am afraid that I do not know how far it will differ—or not, as the case may be—from the monitoring committee, so I will have to write to the noble Baroness on that subject.

[Lord Falconer of Thoroton (Lab)]

My Lords, I apologise for interrupting. Can the Minister confirm that, before the Government are satisfied that Rwanda is a safe country, they will seek the views of the monitoring committee?

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[Lord Sharpe of Epsom (Con)]

My Lords, in the last group my noble and learned friend discussed how the Government will be made aware of whether or not treaties should be ratified and so on. That is also dealt with in considerable detail, as we have rehearsed from the Dispatch Box on a number of occasions, in the agreement that was published in January of this year—starting, I believe, at paragraph 101—so I will not go through it all again.

I turn to Motion F and Amendment 10D. As we have set out before, the Government recognise the commitment and responsibility that comes with combat veterans, whether our own or those who have shown courage by serving alongside us, and we will not let them down. Once again, I reassure Parliament that, once the UKSF ARAP review has concluded, the Government will consider and revisit how the Illegal Migration Act and removal under existing immigration legislation will apply to those who are determined ARAP eligible as a result of the review, ensuring that they receive the attention that they deserve. For now, I beg to move.

Motion B1 (as an amendment to Motion B)

Moved by

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[Lord Coaker (Lab)]

My Lords, I rise briefly to say how much I support the remarks of the noble and learned Baroness, Lady Butler-Sloss, with respect to slavery, and my noble friend Lady Lister’s comments with respect to children. We will also support the noble and learned Lord, Lord Hope, on his amendment, should he test the opinion of the House. We think it is a very sensible amendment; it simply seeks reports saying that the things that are required to be implemented have actually been implemented. One has only to look at the International Agreements Committee report, which lists out 10 things in particular that it feels should be implemented before you can say that Rwanda is safe. As the noble and learned Lord has pointed out to the noble Lord, Lord Sharpe, there has been no answer from the Government, other than some vague platitudes as to progress being made and steps being taken to ensure that these things will happen, rather than that they have happened.

Similarly, we support the point that the noble and learned Lord, Lord Hope, has made with the second part of that amendment: to actually reflect on what happens in the future should, for whatever reason, changes happen in the environment with respect to Rwanda—political or whatever—that would require Parliament to reconsider its original decision that it was safe. We very much support the amendment that the noble and learned Lord, Lord Hope, has put before us.

I congratulate my noble friend Lord Browne on his amendment, and say how much we support it. The case was made in the Sunday Telegraph, as my noble friend pointed out, with 13 military and diplomatic leaders putting forward the case for exempting those who have served this country from the provisions of the Bill. This is something that we as a country should embrace without any debate or controversy at all. I say that because it is important that we support my noble friend Lord Browne’s amendment, but also that the size of the majority is such that the other place is forced to reconsider the bland statement it made: “Don’t worry. We’ll revisit this at the end of the deliberations we are having”. There is no certainty in what the Government are saying.

It is so important that my noble friend Lord Browne’s amendment is in the Bill. What it requires, and what the people of this country want, is not some reconsideration of the policy in future but a certainty that those who have served with our Armed Forces, or served us in whatever circumstances, can be assured that the promises made to them are adhered to and kept.

I cannot believe that we as a country would turn our back on those who have served with us. It is unbelievable that we should be in this situation. I say to the Minister and others who may feel it important that they vote with the Government that we are talking about men and women who have served our country, stood alongside our Armed Forces and served with us to deliver the objectives of His Majesty’s Government. How on earth can we think it appropriate that the provisions of this Bill and the treaty should apply to them? It is simply unacceptable. As such, my noble friend Lord Browne’s amendment gives us a way of saying to the Government: “Think again. We believe it should be on the face of the Bill”. I hope that noble Lords will support my noble friend when he tests the opinion of the House.

[Lord Sharpe of Epsom (Con)]

My Lords, once again I am very grateful to all noble Lords for their contributions to this debate. To restate for the record, the Government’s priority is obviously to stop the boats. Although we have made progress, more needs to be done. We need a strong deterrent; we need to operationalise this partnership with Rwanda. Only by applying this policy to everyone without myriad exceptions will the deterrent work. We are not diminishing our responsibilities to provide support to those who are vulnerable, and we have ensured that the necessary support will be provided in Rwanda. We are sending the clearest signal that we control our borders, not the criminals who charge migrants exorbitant amounts to come here via illegal routes on unsafe small boats.

I will endeavour to deal with all the points that have been raised. I turn first to the points of the noble Baroness, Lady Lister. I restate for the record that as part of the process, upon arrival individuals will be treated as an adult only where two immigration officers assess that their physical appearance and demeanour very strongly suggest that they are significantly over 18 —I emphasise “significantly”. This is a deliberately high threshold, and the principle of the benefit of the doubt means that where there is doubt, an individual will be treated as a child, pending further observation by a local authority, which will usually be in the form of a Merton-compliant age assessment.

I turn to Amendment 3E from the noble and learned Lord, Lord Hope. As he correctly pointed out, Clause 9 clearly sets out that the Bill’s provisions come into force when the treaty enters into force. The treaty enters into force when the parties have completed their internal procedures. Furthermore, the Government maintain periodical and ad hoc reviews of countries’ situations, including Rwanda’s, and that will not change.

One of the things we have discussed in previous debates on this subject is that there will be a real-time enhanced monitoring phase by the monitoring committee. The enhanced phase will ensure that the monitoring and reporting takes place in real time, so that the monitoring committee can rapidly identify, address and respond to any shortcomings, and of course identify any areas of improvement or urgently escalate issues that may place a relocated individual at risk of real harm. This enhanced phase is dealt with in paragraphs 106 to 112 of the policy statement, and I say to my noble friend Lord Hailsham that, of course, if the facts change, this means that the Government would not be obligated to remove individuals under the terms of the treaty. That may very well prompt the parliamentary occasion to which he referred. I am afraid I cannot say quite what form such an occasion may take; if I have anything to do with it, it will definitely include alcohol.

[Lord Deben (Con)]

Will my noble friend give way on that point? My first problem with the Bill is that I am asked to say that something is safe when it is clearly not safe, and the Government have said that it is not. What I am really asked to say is that after all this has happened it will be safe, but the Government do not seem to explain to me exactly what will happen before we get to that.

I have another problem: how can I possibly vote that it will always be safe? I am not very keen on lawyers, but surely it is a very simple matter of saying that if the monitoring committee recommends to the Secretary of State that Rwanda is no longer safe, the Secretary of State can in fact change the situation as regards Rwanda. It seems very simple to me. If I had been the Minister, the first question I would have asked my civil servants is, “What happens if the situation changes?”, and my civil servants would not have left that room until they had given me an answer. How did he allow his civil servants to leave the room?

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[Lord Sharpe of Epsom (Con)]

My Lords, I have already stated that the Government would not be obligated to remove individuals under the terms of the treaty if there has been a change, unexpected or otherwise, in the in-country situation in Rwanda.

[Viscount Hailsham (Con)]

The Minister uses the phrase “not be obligated”. That just means they do not have to do it, but it does not alter the legal position.

[Lord Sharpe of Epsom (Con)]

My Lords, I understand the definition of the word “obligated”.

The Bill builds on the treaty and the published evidence pack and makes it clear in UK law that Rwanda is a safe country, and it does address the concerns of the Supreme Court. The courts have not concluded that there is a general risk to the safety of relocated individuals in Rwanda. Rather, the Supreme Court’s findings were limited to perceived deficiencies in the Rwandan asylum system and the resulting risk of refoulement should any lack of capacity or expertise lead to cases being wrongly decided. My noble and learned friend Lord Stewart of Dirleton and I have dealt with exactly where Rwanda is in terms of ratification and so on. The Court of Appeal unanimously upheld the High Court’s finding that a policy of removing individuals to safe third country where their asylum claims would be determined did not breach the UK’s obligations under the refugee convention, and the Supreme Court did not disturb that finding. The Supreme Court recognised that changes may be delivered in future which could address those concerns, and those changes are being delivered.

Turning to Motion F1, in the name of the noble Lord, Lord Browne, and spoken to powerfully, if I may I say so, by other noble Lords, I again reassure Parliament that once the UKSF ARAP review has concluded, the Government will consider and revisit how the Illegal Migration Act and removal under existing immigration legislation will apply to those who are determined ARAP eligible as a result of the review, ensuring that these people receive the attention they deserve. I will go a little further here and say to the noble Lord, Lord Coaker, that there is no intention to turn our backs on those who have served.

Finally, I am sorry to hear that the noble and learned Baroness, Lady Butler-Sloss, does not like the Government’s amendment in lieu, but I am afraid there is very little else that I can say on that subject.

[Baroness Butler-Sloss (CB)]

Before my noble and learned friend sums up on his Motion, I say to the Minister that he has not answered the question about what happens if there is a change in Rwanda and it is no longer safe.

[Lord Sharpe of Epsom (Con)]

I beg to differ from the noble and learned Baroness. I appreciate that it is a difficult place to be, but I think I have answered the question. As I have said before on a number of occasions, the Government are not obligated to send anybody to Rwanda if the facts change.

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Moved by

[Lord Stewart of Dirleton]

That this House do not insist on its Amendment 6B, to which the Commons have disagreed for their Reason 6C.

6C: Because the Commons consider that it is not appropriate to leave out clause 4 of the Bill and insert the new clause in the Amendment, as the Bill allows decision-makers to consider claims that Rwanda is unsafe for an individual due to their particular circumstances.

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Moved by

[Lord Sharpe of Epsom]

That this House do not insist on its Amendment 7B, to which the Commons have disagreed for their Reason 7C.

7C: Because the Commons consider that is it not appropriate to amend the age assessment provisions of existing legislation.

[Lord Sharpe of Epsom (Con)]

My Lords, I have already spoken to Motion D. I beg to move.

Motion D1 (as an amendment to Motion D) not moved.

--- Later in debate ---

Moved by

[Lord Sharpe of Epsom]

That this House do not insist on its Amendment 9 and do agree with the Commons in their Amendment 9C in lieu.

9C: Page 5, line 23, at end insert—
“Report about victims of modern slavery or human trafficking
(1) The Secretary of State must—
(a) prepare and publish an annual report about the operation of this Act as it relates to the modern slavery and human trafficking provisions in Article 13 of the Rwanda Treaty, and
(b) lay a copy of each report before Parliament.
(2) The first report must—
(a) relate to the period of 12 months beginning with the day on which this Act comes into force, and
(b) be laid before Parliament and published as soon as reasonably practicable after the end of that period.
(3) Subsequent reports must—
(a) relate to the period of 12 months beginning with the day after the last day of the period to which the previous report related, and
(b) be laid before Parliament and published as soon as reasonably practicable after the end of the period to which the report relates.”

[Lord Sharpe of Epsom (Con)]

I have already spoken to Motion E. I beg to move.

Motion E agreed.

--- Later in debate ---

Moved by

[Lord Sharpe of Epsom]

That this House do not insist on its Amendment 10B, to which the Commons have disagreed for their Reason 10C.

10C: Because the Commons consider that it is not necessary as the only way individuals should come to the UK is through safe and legal routes.

[Lord Sharpe of Epsom (Con)]

My Lords, I have already spoken to Motion F. I beg to move.

Motion F1 (as an amendment to Motion F)

Moved by

Safety of Rwanda (Asylum and Immigration) Bill

Lord Sharpe of Epsom Excerpts

Consideration of Commons amendments
Wednesday 17th April 2024 Lords Chamber

Moved by

[Lord Sharpe of Epsom]

That this House do not insist on its Amendment 1D, to which the Commons have disagreed for their Reason 1E.

1E: Because the Commons consider that the provisions of the Bill are compliant with domestic and international obligations, and that it is therefore not necessary to refer expressly to having due regard for domestic and international law when setting out the purpose of the Bill.

[The Parliamentary Under-Secretary of State, Home Office (Lord Sharpe of Epsom) (Con)]

My Lords, in moving Motion A I will also speak to Motions B, B1, C, C1, D and D1. I am grateful to noble Lords on all Benches for their careful consideration of this Bill. We have debated the same issues for some time, and it is of course right that the Bill is properly scrutinised. However, the time has come to get the Bill on to the statute book.

Motion A relates to Lords Amendment 1D in the name of the noble Lord, Lord Coaker, which seeks to make it clear in the Bill that it must have due regard to international law and specific domestic legislation. As I made clear yesterday, the Government take their responsibilities and international obligations incredibly seriously. The Bill simply ensures that Parliament’s sovereign view that Rwanda is a safe country is deferred to and binding in domestic law. This is to avoid systemic legal challenges frustrating removals. What it does not mean is that the Bill legislates away our international obligations. There is nothing in the Bill that requires any act or omission that conflicts with our international obligations.

In relation to domestic law, I have set out in previous debates the provisions in the treaty that take account of the needs of children and those who are victims of modern slavery. Rwanda has a long history of supporting and integrating asylum seekers and refugees, having already hosted over 135,000 refugees and asylum seekers, including women and children, and it has the necessary provisions in place to support those who are vulnerable.

I turn to Amendment 3G in the name of the noble and learned Lord, Lord Hope. At this late stage in the passage of the Bill I fear I am repeating much of what I have previously stated, but it is important to make it clear and to re-emphasise that we will ratify the treaty in the UK only once we agree with Rwanda that all necessary implementation is in place for both countries to comply with the obligations under the treaty.

Article 24 of the treaty states that the treaty will

“enter into force on the date of receipt of the last notification by”

Rwanda or the UK

“that their internal procedures for entry into force have been completed”.

Both I and my noble and learned friend Lord Stewart of Dirleton set out yesterday the details of the internal procedures that are now in place and continue to be put in place. We have spoken at length during our many debates about the monitoring committee, so I do not propose to reiterate all the details which are clearly set out in the Government’s published policy statement. However, it is important to point out again that the joint committee and the independent monitoring committee will oversee the partnership and ensure that the obligations under the treaty are adhered to in practice. This will prevent the risk of any harm to relocated individuals, including potential refoulement, before it has a chance to occur. As I said yesterday, there will be an enhanced phase of monitoring.

As I also set out yesterday, Article 4(1) of the treaty sets out that it is for the UK to determine

“the timing of a request for relocation of individuals under this Agreement and the number of requests”.

This means that the Government would not be obligated to remove individuals under the terms of the treaty if there had been, for example, an unexpected change to the in-country situation in Rwanda that required further consideration. Pausing removals to a particular country in response to any potential changes which may affect that country’s safety and suitability for returns is the general approach the Government take across the board and will continue to take when looking to relocate individuals to Rwanda.

Moving to Amendment 6F in the name of the noble Baroness, Lady Chakrabarti, as clearly expressed by the other place on several occasions now, this is an amendment the Government simply cannot accept. It seeks to undermine the key measures of the Bill and is completely unnecessary. We have made it clear that we cannot allow relocations to Rwanda to be frustrated and delayed as a result of systemic challenges on its general safety. In this context, the safety of a particular country is a matter for Parliament, and one on which Parliament’s view should be sovereign. The evidence we have provided and the commitments made by the United Kingdom and the Government of Rwanda through the internationally binding treaty enable Rwanda to be deemed a safe country. This Bill makes it clear that this finding should not be disturbed by the courts.

Turning to Motion D, which relates to Amendment 10F in the name of the noble Lord, Lord Browne, as I said yesterday—and I again reassure the House—once the UKSF ARAP review has concluded, the Government will re-visit and consider how the Illegal Migration Act and removal under existing immigration legislation will apply to those who are determined ARAP-eligible as a result of the review, ensuring that these people receive the attention they deserve and have earned. The Government recognise the commitment and responsibility that comes with combat veterans, whether our own or those who have shown courage by serving alongside us. We will not turn our backs on those who have served.

[Lord Hope of Craighead (CB)]

My Lords, I shall speak to Amendment B1, as an amendment to Motion B.

I have asked for a further amendment in lieu to be put down, because I have raised important issues which need to be resolved before the Bill finally passes. As has been mentioned by the Minister, the Act will come into force on the day on which the Rwanda treaty enters into force. This means that your Lordships are being asked to say that, as from that very moment and without more, Rwanda is a safe country. That is not all, as Clause 2 states that from that date, every decision-maker, including the Secretary of State himself,

“must conclusively treat the Republic of Rwanda as a safe country”.

That is so, whether or not the treaty has been fully implemented, and whether or not Rwanda ceases to be safe some time in the future. The Secretary of State, just like any other decision-maker, will be locked by the statute into the proposition that Rwanda is a safe country, with no room for escape. In other words, it is no use his advisers saying that things still need to be done before all the protections and systems that the treaty provides for are in place. Nor is it any use his advisers saying that as these arrangements have broken down, Rwanda can no longer be considered safe. The Secretary of State is required by the statute to disregard that advice. He has no discretion in the matter. That is what the word “conclusively” in Clause 2 means.

The Minister has told the House several times that the Government are not obligated by the treaty to send anybody to Rwanda if the facts change. That may well be so, but that is not what the Bill says. The Secretary of State is bound by the statute to ignore any such changes. He is required by Clause 2 to treat Rwanda as safe, conclusively, for all time. If the Minister will forgive me, his head is buried in the sand, like that of the proverbial ostrich.

My amendment seeks to add two provisions to Clause 1. Before Rwanda can be judged to be a safe country, the mechanisms that the treaty provides for must be put into practice. Ratifying the treaty is an important step, but that is not enough. As has been pointed out repeatedly, the situation on the ground is still being developed. The treaty must be implemented before Rwanda can be considered safe. My amendment seeks to write into the Bill a provision whereby Rwanda cannot be treated as a safe country until the Secretary of State has laid before Parliament a statement from the independent monitoring committee that the key mechanisms the treaty provides for have been created. It provides that Rwanda will cease to be a safe country for the purposes of the Act if the Secretary of State makes a statement to Parliament to that effect. In other words, it provides the Secretary of State with the escape clause he needs if he is to escape from the confines of Clause 2, should that situation develop.

I remind your Lordships of what Sir Jeremy Wright said in the other place when my amendment was being considered there on 18 March:

“But it is simply not sensible for Parliament not to be able to say differently, save through primary legislation, if the facts were to change … the Government … should give some thought to the situation of the Bill…it must be right for Parliament to retain the capacity to reconsider and if necessary revise it”.—[Official Report, Commons, 18/3/24; cols. 679-80.]


Developing the point this afternoon, he said that I was wrong in my then amendment to give it to the monitoring committee to decide whether Rwanda was safe, as this should be a matter for Parliament. I agree with him and, as it happens, I have already deleted the reference to the monitoring committee from this part of my latest draft. What I am proposing now is that it be left entirely to the Secretary of State to decide, although he would no doubt seek the advice of that committee.

Sir Bob Neill and Sir Robert Buckland, both of whom spoke in favour of my amendment last time, also spoke in support of it this afternoon. Sir Robert Buckland accepted that there needs to be a system by which it can be verified that the treaty has been fully implemented. He said that to do this would reduce the possibility of legal challenge. He said that a reliable method of doing this was to use the monitoring committee set up by the treaty itself. He also said that there needs to be a mechanism for dealing with the situation if Rwanda is no longer safe, without resort to the time-consuming method of primary legislation. That is what my amendment seeks to provide, and as to the question of what happens in the future, my system is flexible: the Secretary of State can come to Parliament and say that Rwanda is not safe. He does not need primary legislation, so the Act is still there, and he could come back when the situation is cured to say that Rwanda can be regarded as safe now. It provides not only an escape clause but flexibility to enable the Act to continue if necessary, without the amending legislation.

The Commons reasons set out in the Marshalled List are exactly the same as last time. They state that my amendments are “not necessary” because the Bill comes into force when the treaty comes into force, and that

“it is not appropriate for the Bill to legislate for Rwanda adhering to its obligations under the Treaty as Rwanda’s ongoing adherence to its Treaty obligations will be subject to the monitoring provisions set out in the treaty”.

No doubt that is so, but that still fails to face up to what I am saying on both points.

In short, the coming into force of the treaty is not enough. We need confirmation and verification that it has been implemented before we can make the judgment that Rwanda can be considered safe. It simply is not sensible for Parliament not to be able to say differently, save through primary legislation, if the facts were to change.

I regret that I have had to press my points yet again. It is not my intention to obstruct the operation of the Bill in any way. My amendment is necessary to make sense of the Bill. It is modest, simple and easy to operate. The other place needs to think yet again.

--- Later in debate ---

I do not believe that those on the Front Bench here agree with their own Government on this. Their Government are asking them and all their Back-Benchers to vote for something that is morally bankrupt—something that goes against what we promised those who stood with us in Afghanistan. We promised that we would protect them—but we are not going to do that, because my noble friend’s amendment will not be passed if we send it to the other place and those there do not give way. We are not going to exempt them from the provisions of the Bill. It does not matter what political party you stand for; that cannot be right. I ask and urge every Member of your Lordships’ House not only to consider the noble and learned Lord’s Motion B1 but, when we come to my noble friend’s Motion D1, to consider what the consequences will be for this country if we cannot ensure that our word is our bond.

[Lord Sharpe of Epsom (Con)]

My Lords, I thank all noble Lords for their contributions to this relatively short debate. The House of Commons has now considered and rejected these amendments on several occasions. I will keep my remarks brief and simply remind noble Lords of the key points.

We will ratify the treaty only once we agree with Rwanda that all necessary implementation is in place for both countries to comply with the obligations under the treaty. Rwanda has a strong track record of welcoming asylum seekers and looking after refugees, and it has also been internationally recognised for its general safety and stability. The Bill complies with our international obligations and allows direct access to the courts and an appropriately limited possibility of interim relief, consistent with what is required by the ECHR. No word is being broken. We will not turn our backs on those who have supported our Armed Forces and the UK Government.

It is simply not right for criminal gangs to control our borders and decide who enters the UK. It is not right that they exploit vulnerable people and put lives at risk—their own and others’. It would not be right if this Parliament did not pass this legislation, which will enable us to protect those being exploited, protect our borders and stop the boats.

Motion A agreed.

--- Later in debate ---

Moved by

[Lord Sharpe of Epsom]

That this House do not insist on its Amendment 3E, to which the Commons have disagreed for their Reason 3F.

3F: Because the Commons consider that it is not necessary to refer expressly to the arrangements in the Rwanda Treaty being, and continuing to be, implemented and adhered to; the Bill is clear that it comes into force on the day on which the Rwanda Treaty enters into force and it is not appropriate for the Bill to legislate for Rwanda adhering to its obligations under the Treaty as Rwanda’s ongoing adherence to its Treaty obligations will be subject to the monitoring provisions set out in the Treaty.

[Lord Sharpe of Epsom (Con)]

My Lords, I have already spoken to Motion B. I beg to move.

Motion B1 (as an amendment to Motion B)

Moved by

--- Later in debate ---

Motion C

[Lord Sharpe of Epsom]

Moved by

That this House do not insist on its Amendment 6D, to which the Commons have disagreed for their Reason 6E.

6E: Because the Commons consider that it is not appropriate to leave out clause 4 of the Bill and insert the new clause in the Amendment, as the Bill allows decision-makers to consider claims that Rwanda is unsafe for an individual due to their particular circumstances.

[Lord Sharpe of Epsom (Con)]

My Lords, I have already spoken to Motion C; I beg to move.

Motion C1 (as an amendment to Motion C) not moved.

Motion D

[Lord Sharpe of Epsom]

Moved by

That this House do not insist on its Amendment 10D, to which the Commons have disagreed for their Reason 10E.

10E. Because the Commons consider that it is not necessary as the only way individuals should come to the UK is through safe and legal routes.

[Lord Sharpe of Epsom (Con)]

My Lords, I have already spoken to Motion D; I beg to move.

Motion D1 (as an amendment to Motion D)

[Lord Browne of Ladyton]

Moved by

At end insert “, and do propose Amendment 10F in lieu—

Safety of Rwanda (Asylum and Immigration) Bill

Lord Sharpe of Epsom Excerpts

Consideration of Commons amendments
Monday 22nd April 2024 Lords Chamber

Moved by

[Lord Sharpe of Epsom]

That this House do not insist on its Amendment 3G, to which the Commons have disagreed for their Reason 3H.

3H: Because the Commons consider that it is not necessary as the Bill comes into force on the day on which the Rwanda Treaty enters into force and Rwanda’s ongoing adherence to its Treaty obligations will be subject to the monitoring provisions set out in the Treaty.

[The Parliamentary Under-Secretary of State, Home Office (Lord Sharpe of Epsom) (Con)]

My Lords, in moving Motion A I will also speak to Motions B and B1. I am very grateful to noble Lords on all sides of the House for the careful consideration of this Bill. It is important that we have such detailed debates, and that the Bill has been scrutinised to the extent it has, but we must now accept the will of the elected House and get this Bill on to the statute book.

I turn now to the amendment in the name of the noble and learned Lord, Lord Hope. Having now debated this issue on so many occasions, I will not repeat the same arguments, but I remind the House of a key point of which I am sure, by now, noble Lords are fully aware. The Bill’s provisions come into force when the treaty enters into force, and the treaty enters into force when the parties have completed their internal procedures. We will ratify the treaty in the UK only once we agree with Rwanda that all necessary implementation is in place for both countries to comply with the obligations under the treaty.

I refer to the remarks of the noble and learned Lord, Lord Hope of Craighead, during our debate on 20 March, when he said:

“I want to make it plain that I do not for a moment question the good faith of the Government of Rwanda when they entered into the agreement or when they seek to give effect to what the treaty says. I do not for a moment question their determination to fulfil the obligations that they are undertaking”.—[Official Report, 20/3/24; col. 226.]


The Government entirely agree with this sentiment. The noble and learned Lord was right not to question the determination of the Rwandan Government to fulfil the obligations that they are undertaking. Their commitment to the partnership and their obligations under the treaty have been demonstrated by the progress they are making towards implementation.

I set out last week the recent steps that have been taken to implement the treaty and I do not intend to repeat those again, but I am pleased to be able to confirm further progress. On 19 April, the Rwandan Parliament passed domestic legislation to implement its new asylum system. The new Rwandan asylum law will strengthen and streamline key aspects of the end-to-end asylum system, in particular decision-making processes and associated appeals processes.

I remind noble Lords of the role of the independent monitoring committee, which, as noble Lords will all be aware by now, has been enhanced under the terms of the treaty to ensure compliance in practice with the obligations under the treaty. The monitoring committee will have the power to set its own priority areas for monitoring. It will have unfettered access for the purposes of completing assessments and reports, and it will have the ability to publish these reports as it sees fit. It will monitor the entire relocation process from the beginning, including initial screening, to relocation and settlement in Rwanda. Crucially, the monitoring committee will undertake daily monitoring of the partnership for at least the first three months to ensure rapid identification of and response to any shortcomings.

As we have made clear, if the monitoring committee were to raise or escalate any issues to the joint committee, where standing members of the joint committee are senior officials of the Government of the UK and the Government of the Republic of Rwanda with responsibility for areas related to the partnership, or areas with a strong interest in and relevance to this activity, the Government will of course listen. I remind noble Lords that it is up to the independent monitoring committee to raise any issues at any point.

The Government are satisfied that Rwanda is safe. Of course, I cannot predict what will happen in the future but, as I have set out, I can assure this House that we have already established the right mechanisms so that, should a situation ever arise, the Government will respond as necessary. This would include a range of options to respond to the circumstances, including any primary legislation as required. Therefore, this amendment is not necessary.

I turn to the Motion in the name of the noble Lord, Lord Browne. As I have said previously, the Government greatly value the contribution of those who have supported us and our Armed Forces overseas. That is why there are legal routes for them to come to the UK. On 1 February the Ministry of Defence updated Parliament on developments relating to the Afghan relocations and assistance policy—ARAP—scheme, announcing a reassessment of decisions made on applications with credible links to Afghan specialist units. This followed the Ministry of Defence’s review of processes around eligibility decisions for applicants claiming service in Afghan specialist units, which demonstrated instances of inconsistent application of ARAP criteria in certain cases. We are taking necessary steps to ensure that ARAP criteria are applied consistently.

As such, the Ministry of Defence has decided to undertake a reassessment of all eligibility decisions made on ineligible applications with credible claims that have links to Afghan specialist units. This reassessment is being done by a team that is independent of those who conducted the original casework. It will review each application thoroughly on a case-by-case basis.

In existing legislation, including but not limited to the Illegal Migration Act, the Secretary of State has a range of powers to consider cases and specific categories of persons. I have already made clear, and given a clear commitment on behalf of His Majesty’s Government, that we will consider how removal under existing immigration legislation would apply. That means that once this review of ARAP decisions for those with credible links to Afghan specialist units has concluded, the Government will not remove to Rwanda those who have received a positive eligibility decision as a result of this review, where they are already in the UK as of today. The Government recognise the commitment and responsibility that comes with combat veterans, whether our own or those who showed courage by serving alongside us. We will not let them down.

The House of Commons has considered and rejected these amendments four times. For the reasons I have set out, they are not necessary. We will ratify the treaty only once we agree with Rwanda that all necessary implementation is in place for both countries to comply with the obligations under the treaty. We will not relocate people to Rwanda if circumstances change that impact on the safety of the country, and we will not turn our backs on those who have supported our Armed Forces and the UK Government.

Illegal migration is costing billions of pounds and innocent lives are being lost. Bold, novel solutions are required, and our partnership with Rwanda offers just that. Rwanda is a safe country that has proven time and again its ability to offer asylum seekers a safe haven and a chance to build a new life. I beg to move.

Motion A1 (as an amendment to Motion A)

Moved by

--- Later in debate ---

[Lord Browne of Ladyton (Lab)]

My Lords, I will speak to Motion B1 and Amendment 10H in lieu. I have given a great deal of thought, in recent times, to the question of what courage and strength look like. I ask myself today whether it a desperate and unpopular Prime Minister threatening to keep some of us septuagenarians up all night if we do not bow to his will, or putting yourself and your family in mortal peril by fighting totalitarianism alongside British forces with no idea of how that struggle will end. I know which I consider to be brave and strong, and I believe that the overwhelming majority of your Lordships, like others up and down the United Kingdom, of whatever age or political persuasion, agree. For weeks, Ministers have toured the TV and radio studios, saying that to repay our debt of honour to those who have served the Crown, in Afghanistan in particular, would open the floodgates of applications. If the concession I seek would open such floodgates, creating oceans of imposters, this would be only as a result of the Government’s own incompetence and lack of preparation. It is incompetence, as well as dishonour, that has brought us here this evening.

In the summer of 2021, the former Foreign Secretary, Dominic Raab, told us in a statement to the Foreign Affairs Select Committee, that the Government were developing a plan for the evacuation of our exposed allies and agents from Afghanistan. If your Lordships will allow me a moment, I will read my exact words when reporting this to the House:

“Dominic Raab told the Foreign Affairs Select Committee that, back in July, the Government were planning for the possibility of an evacuation of British citizens and those who were quite rightly entitled to think that we had a moral obligation to secure their lives”.—[Official Report, 7/9/21; col. 812.].

I remember, post Operation Pitting, asking if someone would share that plan with me, to see whether it included the reality that those who were sent to help people evacuate left before those who needed to be evacuated could be.

In a Statement repeated in your Lordships’ House and set out in full in Hansard on 7 September, the Prime Minister, Boris Johnson, told your Lordships that the Taliban must ensure safe passage and that the Government would keep ongoing evacuation plans under review in respect of such people. He said this:

“Let me say to anyone to whom we have made commitments and who is currently in Afghanistan: we are working urgently with our friends in the region to secure safe passage and, as soon as routes are available, we will do everything possible to help you to reach safety”.—[Official Report, Commons, 6/9/21; col. 21.]


Those are the words of the Prime Minister, repeated here. After the Statement was repeated in your Lordships’ House, we were told that this plan had been in existence for most of that year and that it had been reviewed in January, and was repeatedly reviewed, so that the chaos that we saw at Kabul airport would not happen—but it did.

You would have thought that, with all of that planning and information behind it, and having recruited and trained the Triples and paid them out of the embassy in Kabul, the 2,000 people who made them up—who were most at risk, and who had been working for us, in harm’s way—would have been known about, recorded and evacuated, and that it would have been the simplest thing in the world to triage anybody who claimed to be of that group out of the ARAP process. That is not how it turned out. Instead, a great many were left behind, and so the disastrous evacuation plan of 2021 continues.

The Government created this problem, which has caused at least nine of those who fought for us to be executed by the Taliban because the promised safe passage never appeared. His Majesty’s Government told us, even last week, that there would be no concession in respect of those people who had come here because they were frightened for their lives, and were entitled to be frightened for their lives and to find a way of getting here if there was no safe passage.

Why no concession for so long? I am asked this question every day—every day, since we started debating this issue, I am asked by many people, including many Conservative politicians, why there has been no concession: “Why have they not been able to work something out with you? Why the delay?”, they ask me. Either the Government have no confidence in their ability to implement this plan and are seeking in some way to delay it—considering it to be not their responsibility—or they just want the theatre of delay to their flagship Bill, so as to blame Labour, the Lords, the courts and so on. Today, the Government finally bring a concession: having offered and then withdrawn it last week, they refused to put it in the Bill.

I break away now to ask the Minister to re-read the passage of his speech that I call a concession—I know he does not—and to read it a bit more slowly, so that we can understand its implications. If not, if he has a printed a copy, I will read it slowly. I invite him to read it again, please. Will the Minister do that now, as it is important to the rest of my speech?

[Lord Sharpe of Epsom (Con)]

With the leave of the House, I will read it very slowly:

“That means that once this review of ARAP decisions for those with credible links to Afghan specialist units has concluded, the Government will not remove to Rwanda those who have received a positive eligibility decision as a result of this review, where they are already in the UK as of today”.

[Lord Browne of Ladyton (Lab)]

You cannot be removed and deported to Rwanda unless you are here by what the Government call illegal means and what I call irregular means. Those words are important for this reason. The Minister does not believe this to be a concession; it is to him a restatement of what he has been telling us for some time, but in a different form. In my view it is quite clearly a concession, although I guarantee that the media out there are being briefed that it is not, because there can be no concessions on this Bill.

Let me tell noble Lords why it is a concession. At Report on this Bill in your Lordships’ House, on 4 March, as recorded at col. 1420 in Hansard, I asked this question of the Minister:

“Will the Minister answer the question I asked in February when this review was announced”—


meaning the Triples review of eligibility for ARAP—

“will anyone who is eligible but was told they were ineligible—and acted in a way in which a small number of them did in extremis to protect themselves from possible death—be disqualified from being allowed to become eligible on review? Will they be excluded from the requirement of the Illegal Migration Act and this Bill if it becomes law that they must be deported to Rwanda?”

The Minister answered—it was the first time he was in a position to do so:

“As I understand it, they will be deported to Rwanda”.—[Official Report, 4/3/24; cols. 1420-1421.]


Now they will not be. That is a concession in anybody’s language.

It is an extremely important concession, because these are the small number of people who I have said, in every speech I have made in support of my amendment, are the target of my ambition that they will not be deported. Today, the Government finally bring a concession, having offered then withdrawn it, so should I trust them at their word? They left these people behind; they messed up any subsequent evacuation plan. This is a third opportunity competently to do the right thing. Why should I trust them now?

I will tell your Lordships why I am minded to consider doing so, although I have not yet made up my mind. It is because we are now part of a grand coalition, including noble and gallant Lords, many very senior politicians and officials, who have secured this country for years and put their names to this, veterans, campaigners and many voters of all persuasions and traditions across our nations—and we will not be silent until today’s promise is honoured by this Government or the next one.

Finally, what does this ignominious history tell us about the Rwanda policy as a whole? There were no safe routes for those heroes to whom we owe a debt of honour, still less are there safe routes for any other genuine refugees worthy of the promise of the refugee convention—also paid for in courage and strength in an earlier war, so many years ago. While I may not press my Motion this evening, I look forward to the day when a Labour Government repeal this immoral and unlawful excuse for legislation in total.

--- Later in debate ---

It is your Lordships’ House at its finest: the Government being forced to concede in a way that they should have done before. But we should not underestimate that the Government have made an important concession and, as such, we welcome it.

[Lord Sharpe of Epsom (Con)]

My Lords, as ever, I thank all noble Lords who have contributed to this relatively short debate. I will deal with the points in the order in which they were made, starting with the noble Lord, Lord Anderson, with whom I am afraid I am going to have to respectfully disagree. I do not believe that we have debased our principles; I believe that we have upheld them. We have upheld the principle of the integrity of our sovereign borders; the principle of not ceding our immigration policies to criminal gangs; the principle to safeguard lives and deter, of course, dangerous and illegal channel crossings. That is and always has been the point of the Bill and it deserves to be restated.

Going back to my opening remarks, things have progressed since we were last discussing these matters, and I shall repeat them for the record. On 19 April, the Rwandan Parliament passed its domestic legislation to implement its new asylum system. The new Rwandan asylum law will strengthen and streamline key aspects of the end-to-end asylum system—in particular, decision-making processes and associated appeals processes. I am very grateful to my noble friend Lord Hodgson for reminding us of Rwanda’s high standing in international league tables. Things could not be clearer: there has been significant progress towards many of the things that the noble Lord was asking for. That includes, of course, the monitoring committee, and I will repeat this too. If the monitoring committee were to raise or escalate any issues to the joint committee where standing members of the joint committee are senior officials of the Government of the UK and the Government of Rwanda with responsibility for areas relating to the partnership or areas with a strong interest and relevance in this activity, the Government will of course listen. I remind noble Lords that it is up to the independent monitoring committee to raise issues at every point.

The future is not fantasy, as has been alleged. As is well known, the Government are satisfied that Rwanda is safe. We have acknowledged that we cannot predict what will happen in the future but, as I also set out, we can assure the House that we have already established the right mechanisms so, should a situation ever arise, the Government will respond as necessary. I repeat: this would include a range of options to respond to the circumstances, including any primary legislation as required. We do not regard this, as the noble Lord, Lord Carlile, asserted, as inexplicable. We regard this amendment as unnecessary.

Turning to the amendment of the noble Lord, Lord Browne, I am not going to get into the semantics of what this is or is not. What it actually is is the right thing to do. I say to the noble Lord, Lord German, that his remarks seem to have missed the entire point of the Bill. The simple answer to his question is: “Do not come here illegally”. There will be no possible pull factors. There is a safe and legal route available to those in Afghanistan who have served and can prove their eligibility under ARAP, and over 15,000 people have already availed themselves of it.

The noble Lord, Lord Carlile, raised the issue of Passover, and I heard what he said. The start of Passover was considered and very much understood and we completely understand the noble Lord’s concerns, but, ultimately, scheduling decisions are made with a variety of different factors in mind. However, I hear what he said.

I will also go back to the fact that stopping the boats is not an idle boast; it is actually in the introduction to this very Bill. I repeat for the record:

“The purpose of this Act is to prevent and deter unlawful migration, and in particular migration by unsafe and illegal routes, by enabling the removal of persons to the Republic of Rwanda under provision made by or under the Immigration Acts”.


The purpose is not an idle boast; it is on the face of the Bill.

The noble Lord, Lord German, referred to refoulement. This is from Article 10(3) of the treaty:

“No Relocated Individual (even if they do not make an application for asylum or humanitarian protection or whatever the outcome of their applications) shall be removed from Rwanda except to the United Kingdom in accordance with Article 11(1)”.


The treaty needs to be ratified before the Bill comes into effect, so I say to the noble Lord that that is when we will see the provisions being acted upon.

As I said earlier, the Commons have considered and rejected these amendments four times now and, for the reasons I have set out, they are not necessary. We will ratify the treaty only once we agree with Rwanda that all the necessary implementation is in place for both countries to comply with their obligations under the treaty, including refoulement. We will not relocate people to Rwanda if circumstances which impact upon the safety of the country change. We will not turn our backs on those who supported our Armed Forces and the UK Government.

I say to the noble Lord, Lord Coaker, who I am going to struggle not to think of as Lord Indiana Jones from now on, that I obviously hope I am not in his place in a few months’ time, but of course I respect his right, which he frequently deploys, to make my life difficult—and he does. Seriously, illegal migration is costing billions of pounds and innocent lives are being lost. Bold, novel solutions are required and our partnership with Rwanda offers just that. Rwanda is a safe country that has proven, time and again, its ability to offer asylum seekers a safe haven and a chance to build a new life. I beg to move.

[Lord Carlile of Berriew (CB)]

Before the noble Lord sits down, will he deal with one piece of nitty-gritty? Will he tell us a little more about the contract that apparently was reached with an airline?

[Lord Sharpe of Epsom (Con)]

No, I will not. That is an operational matter; we are discussing the amendments in ping-pong.

[Lord Anderson of Ipswich (CB)]

I thank all noble Lords who have spoken to my Motion A1. Perhaps I may make two short points in response. First, I say to the noble Lord, Lord Hodgson of Astley Abbotts, who knows how much I appreciate the work he does in this House and its committees, that a vote for this amendment is not a vote for delay. It simply gives the Secretary of State a power to declare Rwanda safe, having consulted his monitoring committee. He could do that tomorrow if he had the evidence for it. If he does not have the evidence for it, how can he expect us to do it tonight?

Secondly, I thank the Minister for his measured response, not to mention the best laugh of the evening, and for the additional scrap of information concerning the Rwandan law, I assume the asylum law, that he says was passed on Friday. I am afraid that it is the first I have heard of that. I do not know how many of us in the House have had an opportunity to study that law. He knows that these scraps fall far short of the comprehensive picture that we would need if we were seriously to make our own judgement that Rwanda is safe and that the concerns identified by the Supreme Court and our own International Agreements Committee in great detail, only in January, have been satisfied.

In a less frenetic political environment, this common-sense amendment or something like it could, I am sure, have been hammered out between sensible people around a table. Sadly, that does not appear to be the world that we are in. I am afraid that I see no alternative to pressing Motion A1 and testing the opinion of the House.

--- Later in debate ---

Moved by

[Lord Sharpe of Epsom]

That this House do not insist on its Amendment 10F, to which the Commons have disagreed for their Reason 10G.

10G: Because the Commons consider that it is not necessary as the only way individuals should come to the UK is through safe and legal routes.

[Lord Sharpe of Epsom (Con)]

My Lords, I have already spoken to Motion B. I beg to move.

Motion B agreed.

Safety of Rwanda (Asylum and Immigration) Bill

Lord Sharpe of Epsom Excerpts

Consideration of Commons amendments
Monday 22nd April 2024 Lords Chamber

Moved by

[Lord Sharpe of Epsom]

That this House do not insist on its Amendment 3J, to which the Commons have disagreed for their Reason 3K.

3K: Because the Commons consider that it is not necessary as the Bill comes into force on the day on which the Rwanda Treaty enters into force and Rwanda’s ongoing adherence to its Treaty obligations will be subject to the monitoring provisions set out in the Treaty.

[The Parliamentary Under-Secretary of State, Home Office (Lord Sharpe of Epsom) (Con)]

My Lords, this Bill has now been scrutinised a number of times. The Government have rejected this amendment several times, so we must now accept the will of the elected House, bring the debate on this last amendment to an end and get this Bill on to the statute book. Having now debated this issue on so many occasions, I will not repeat the same arguments but reiterate a few key points. The Bill’s provisions come into force when the treaty enters into force, which is when the parties have completed their internal procedures. We will ratify the treaty in the UK only once we agree with Rwanda that all necessary implementation is in place for both countries to comply with the obligations under the treaty.

I have set out the steps that have been taken to be ready for the treaty to be ratified, and I will remind noble Lords once again of the most recent step. Last Friday, 19 April, the Rwandan Parliament passed its domestic legislation to implement the new asylum system. Rwanda has a proven track record of working constructively with domestic and international partners, including the UNHCR, the International Organization for Migration and other non-government organisations to process and support asylum seekers and the refugee population. As I have already set out this evening, the Government are satisfied that Rwanda is safe and has the right mechanisms in place should a situation ever arise that would change that view. The Government will respond as necessary, and this will include a range of options to respond to the circumstances, including any primary legislation if required.

The monitoring committee will undertake daily monitoring of the partnership for at least the first three months to ensure rapid identification of, and response to, any issues. This enhanced phase will ensure that comprehensive monitoring and reporting take place in real time. During the period of enhanced monitoring, the monitoring committee will report to the joint committee in accordance with an agreed action plan to include weekly and biweekly reporting, as required. The implementation of these provisions in practice will be kept under review by the independent monitoring committee, whose role was enhanced by the treaty, which will ensure compliance. I beg to move.

[Lord Anderson of Ipswich (CB)]

My Lords, Amendment 3J in my name turned out to be the last one standing. Perhaps I may say just a few words at its funeral. It was not much, perhaps, compared with some of those amendments that had already been defeated. Indeed, it survived so long under the guidance of the noble and learned Lord, Lord Hope of Craighead, who I am delighted to see back in his place, precisely because it was so modest and unthreatening to the Government’s policy. But it at least touched on a central disease of this Bill and perhaps of our body politic more generally: the imputation of decisions to Parliament to reduce the possibilities for challenge and the pretence that by asserting something to be true, even in the teeth of the evidence, one can not only make it true but keep it true for ever.

Many people, some of them perhaps still watching even now, will have wished us to keep on fighting, but without the threat of double insistence—which remains part of our constitutional armoury, but which did not command the necessary political support on this occasion—there would have been no point in doing so. The purpose of ping-pong is to persuade the Government, through force of argument, to come to the table and agree a compromise. They have refused pointedly to do so, and after four rounds of ping-pong, their control of the Commons remains as solid as ever.

The time has now come to acknowledge the primacy of the elected House and to withdraw from the fray. We do so secure at least in the knowledge that the so-called judgment of Parliament was not the judgment of this House, and that we tried our hardest to achieve something a little more sensible. We must take comfort from such assurances as the Minister has been able to give and hold the Government to them. This is the Government’s Bill, resolutely free of any outside influence. As a patriot, I can only hope—though I am afraid, without much optimism—that it will bring benefits, in some way, commensurate to its real and painful cost.

--- Later in debate ---

[Lord True (Con)]

My Lords, I hope it is in scope for the Leader of the House to interpose his body, particularly when the noble Lord is active and spirited, as he is at this hour. I will say two things. First, we have had many hours of debate on this legislation. I think the doubts about the Bill, and we believe the beliefs and proprieties about it, are entirely clear. So far as further discussion and the development of events are concerned, we in the usual channels are always open to discussion with other parties about when or in what way further discussion can be made. I apologise to the House for my intervention but these are important things which we need to reflect on. Perhaps this has been a prolonged process, but I would like, in the immortal phrase of the Senate of the United States of America, to yield the floor to my noble friend Lord Sharpe to conclude the proceedings.

[Lord Sharpe of Epsom (Con)]

I thank my noble friend for his intervention. He put his points across extremely eloquently, and I agree with all of them.

I say gently to the noble Lord, Lord Anderson, and the noble Baroness, Lady Bennett, that the Bill does comply with international law. It is profoundly moral and patriotic to defend the integrity of our borders, and it is profoundly moral and patriotic to prevent the needless loss of life in the channel and to put the criminal gangs out of business.

I also ask the noble Baroness, Lady Bennett, why the Green group is currently a solo act. Where is her partner?

[Baroness Bennett of Manor Castle (GP)]

I have been asked a direct question. I am sure the House would have been delighted to hear from both of us this evening, but we made a choice to have one representative. If the House would like to hear and see more of us, we would welcome being invited to do that.

[Lord Sharpe of Epsom (Con)]

Speaking personally, I would rather hear a lot less, but there we are.

Rwanda is a safe country that has proven time and again its ability to offer asylum seekers a safe haven and a chance to build a new life. Rwanda has a strong history of providing protection to those who need it and currently hosts over 135,000 refugees and asylum seekers, who have found safety and sanctuary there. Binding provisions in the treaty place obligations on the Government of Rwanda to provide for those relocated under the partnership, and this is long overdue. I put on record my thanks to officials in the Government of Rwanda for all their efforts in delivering this partnership. I commend the Motion to the House.

Motion A agreed.