National Citizen Service Bill [HL]

Lord Wallace of Saltaire Excerpts

2nd reading (Hansard - part two): House of Lords
Tuesday 25th October 2016 Lords Chamber

[Lord Wallace of Saltaire (LD)]

My Lords, when, halfway through the coalition Government, I found myself translated into being the only Cabinet Office spokesman and Minister in this House, I thought I had better find out a bit about some of the things I would be responsible for. Among other things, I asked if I could visit a National Citizen Service scheme in Bradford, not far from Saltaire, given my initial scepticism about the scheme.

On arrival, the young people running the scheme said, “It’s tremendous to have you here. You’re here for a long afternoon. We’d like you to teach these children how to give a public speech”. After a good two minutes’ panic, I got down to it. By the end of the long afternoon I had persuaded several of them, from their starting positions that they absolutely could not do it, that they could—and they did. I came away thinking that they had gained an extra skill and a bit of extra confidence. The way the course was managed was first class. This was a cross-section of teenagers from all the rough schools in Bradford—there were not very many from the posh schools around, by the way—and I became a strong supporter of the National Citizen Service. I think that all of us who have come across the scheme know that it does something that is very worth while.

Our questions are much more about how it fits into a wider context of what others have been doing and continue to do and how it relates to opportunities that follow—local voluntary organisations and the role of local government and the like. I think that several of us were a little worried when we read the briefing from The Challenge where it said that large-scale provision was the answer, because we want it to be rooted in local communities with local charities and therefore also with local government.

I was also struck by one briefing which said that the scheme sets out to deal with the challenges of social cohesion, social mobility and social engagement. That is a pretty large agenda and this is a pretty modest initiative as part of that. If we are to tackle those huge challenges, we have to implicate the concept of citizenship, which involves ideas of empowerment and political as well as social engagement and starts, as has been mentioned by several noble Lords, with citizenship education in primary and secondary schools. We will therefore want to take advantage of scrutinising this Bill to challenge the Government on these wider questions.

My own perspective comes from my involvement in politics in west and north Yorkshire, from visiting schools in and around Bradford and, above all, from working in the former council estates of Bradford, Leeds, Sheffield and Wakefield, where government funding for local authorities had been cut, often by closer to 40% than to 30%. I have just checked: Bradford is cutting its youth services by 60%, which means closing a lot of the non-statutory youth services. Incidentally, youth services have been cut across the country; it is estimated that in London spending will be cut by 90%—Westminster Council is cutting its spending on youth services completely and setting up a new foundation to encourage voluntary initiatives

In the former council estates of west and north Yorkshire, there is passive alienation. You blame the council and the Government for not doing anything for you. There are lots of troubled families and very little outside engagement. I spent a long afternoon in the middle of August looking at a local, Liberal Democrat-led initiative to mount a summer school for children between primary school and secondary school because the council no longer provides any support for them in that crucial period. There was of course a massive vote for Brexit in those areas. It was a vote against London as much as against Brussels—a vote against political elites and the rich; a vote against all outsiders; in other words, a massive “sod off to the lot of you”.

So this is one initiative that deals with this massive challenge in our divided country. When I first read about it, I thought, “Private Eye would call this the David Cameron Memorial Big Society Trust”. That is a little unfair, but Private Eye always is. When it comes to justifications, we have to ask the Minister how, when the Government are cutting related funding, they can justify funding this; and how it relates to other government and voluntary initiatives such as the Scouts, Guides and City Year UK, and to what schools and local authorities and other local bodies do.

My own involvement in another area of this, as the noble Lord, Lord Hodgson, and others will know, is with partnerships between independent schools and state schools. If one is talking about social cohesion—introducing the socially excluded to the socially exclusive, if you like—that is a very important thing to do. I spent a day with a magnificent scheme in York, led by the Quaker-founded independent schools there, where a number of Saturday schools take place ending in a week camping together in the Lake District for children from different schools in the area. It is a really worthwhile scheme.

Depressingly, in other areas I have been told by independent school heads that their parents resist such schemes because they say, “We pay for our children to come here and why should we allow others whose parents don’t pay to come and share our facilities, let alone our teachers?”. On this point, having been persuaded not to move an amendment to the Charities (Protection and Social Investment) Act, I have got much tougher on the charitable status and obligations of independent schools. That is something that I, the noble Lord, Lord Moynihan, and others will not give up on.

I mention in passing that if one wants to reintroduce grammar schools we might raise the question of how that affects social cohesion. I also mention in passing the question of pay, which plays quite a large part in this Bill and is sensitive for all trusts and charities—as the noble Lord, Lord Hodgson, and others will know. My own strong view on this is that acting as a non-executive director of a trust is volunteering for the well to do and should not be remunerated. Perhaps we will come back to that in Committee.

On the wider context of citizenship and social engagement, I got out the Goldsmith report on citizenship of 2008, which deserves not to be forgotten. It talks about citizenship education—as the noble Lord, Lord Blunkett, and others did—and longer-term periods of citizen service, allowing for certain diminutions of tuition and other fees for those who undertake that. The issue is out there. It is a question of how far we wish to take it up again.

The report also talks about citizenship education throughout school, an issue that successive Governments have funked over the years. That means political as well as social engagement. Again from my own perspective, the removal of local democracy affects most of our northern cities, in which there are somewhere between 12,000 and 15,000 electors per ward, so that your local councillor is not really local and has no chance of being engaged with the local communities there. That raises large questions about whether we need to reinvent local democracy, urban parish councils and the like. I am also persuaded that a reduction in the voting age to a point where you would begin to vote while still at school is one way to engage people in the political process at an early stage. Clearly, in this deeply divided country we must re-engage people in constructive, democratic politics.

Social engagement is also very important here. I trust the Minister will be able to tell us something about the Government’s thinking on longer terms in the citizen service and whether they are reviewing this whole area. If not, some of us might wish to suggest that there should be a Lord’s committee to review it in the next Session. We very much wish to promote a cross-party approach to all this. If the Government are to fulfil their promise to bring the country together and govern in the interests of all, they have a very broad agenda to follow and a hard task. We on these Benches offer a welcome, but a cautionary one, to the Bill. It is only a small contribution to what this country needs to bring back the concept of citizenship, social engagement and social cohesion.

National Citizen Service Bill [HL]

Lord Wallace of Saltaire Excerpts

Committee: 1st sitting (Hansard): House of Lords
Wednesday 16th November 2016 Grand Committee

[Lord O'Shaughnessy (Con)]

My Lords, I am grateful for the opportunity to speak in this debate and pleased to put my name to the amendments tabled by the noble Lord, Lord Blunkett, and to Amendment 17 with those of my noble friends Lady Finn and Lord Maude. I thoroughly endorse the comments both of the noble Lord, Lord Blunkett, and of my noble friend Lord Maude and their passionate defence of the purpose of the NCS programme and of its independence.

The noble Baroness, Lady Barker, asked whether this is a unique programme—which I think gets to the heart of it. It is true that some of the activities that take place in NCS may be found in a range of other volunteering social action organisations, but there are things that are unique about NCS. The first is the idea of a rite of passage and the ambition that it should be something that every 15 year-old, 16 year-old or 17 year-old goes through as a binding experience that builds into a sense of social cohesion and social mixing, which are inherent to the whole programme. That is not to say that every activity in the programme is unique, but its ambition, its potential scale and the idea that is something that everyone goes through, with an opportunity to mix with others, are unique.

The NCS is not a threat to the sector. Rather, as others have said, it is an enabler of the sector. It is delivered by others. It is a beacon—a sense that the Government take incredibly seriously the idea of social action and are providing a centre of momentum that can push this agenda forwards. The amendments tabled by the noble Baroness, Lady Barker, and the noble Lord, Lord Wallace of Saltaire, not just in this group but in others, seem to face in different directions. They give a lower status to the NCS Trust by keeping it as a community interest company but they also add more control, which seems to be the precise opposite of what one would want for it to be a success. It needs to be more independent of government and to have a higher status. That is ultimately what the Bill attempts to do.

Two principles are at stake here: the actual independence of the body and its perceived independence —of course, one feeds the other. The royal charter seems to be a neat way through this. It provides independence as a well as a sense of permanence and, as the noble Lord, Lord Blunkett, said, puts the operation of the NCS Trust effectively beyond politics to become something that is seen as a public good and to be supported.

The royal charter sends a strong signal to all stakeholders that NCS is a permanent part of our national landscape, a new British institution that takes that most British of virtues—service to others—and elevates it to the appropriate position. Just as the National Trust might be seen as the protector of historic spaces, NCS can perform a similar role in the development of the nation’s young people.

That is why I absolutely support the amendments on not just the independence of the board but also the appointments process, which my noble friend Lady Finn will talk more about. It relates to this point about the public body, and it is quite right that given the level of state funding involved there is a new regime and greater accountability for the money spent. The clauses that deal with audit and accounts—and indeed appointments, subject, I hope, to some movement from the Minister—would provide the correct level of scrutiny, and of course it will continue to be audited by the National Audit Office and so on.

It is, however, incredibly important that the independence provided by the royal charter is not undermined by the NCS becoming classified, as my noble friend has said, as an NDPB—a quango—which could be a back route into the reassertion of government control. As we have discussed, that is the sure way to kill this thing in the eyes of the people we want to use it. For that reason, the right device is a royal charter. This is not my area of expertise by any means, but the Cabinet Office guidance on the classification of public bodies of various kinds provides for unclassified ALBs—arm’s-length bodies—when they are genuinely unique and unclassifiable, and I think this is genuinely unique. There is, therefore, a spot in the existing landscape that this body could land on. Another organisation with a similar classification is the Churches Conservation Trust—in receipt of public money but clearly carrying out a public good which is beyond the political realm.

In closing, those of us who have put our names to this amendment look to the Minister for his reassurance that the independence that he clearly wants to pursue through the royal charter will not be compromised by bureaucratic consequences of the classification process. It is so important that the fact that it should not be an NDPB is on the face of the Bill.

[Lord Wallace of Saltaire (LD)]

My Lords, I, too, should declare an interest. I have done most of my politics in places like Bradford, Huddersfield, Leeds and Manchester, particularly in areas where the people who we would now call the left-behind are clustered. That is where I have come across the National Citizen Service and been impressed by what it does. However, I also recognise that it is one useful initiative in places where government funding has been cut by 40% in the last 10 years, and where the state is not at all evident.

My worry—and the reason for all these probing amendments—is that we have here something that the noble Lord, Lord Blunkett, rightly called one part of a bigger jigsaw, and that can only be part of a bigger jigsaw. It needs not to be set too permanently in cement. It needs to have the flexibility to become part of a wider strategy, because we desperately need a wider strategy towards those who no longer feel that they are really citizens and part of our society. Other voluntary bodies are working in the same area. Just in the past six months I have visited the York schools partnership between independent schools and local state schools. It is excellent: Saturday extra curriculum throughout the year—including a week in the Lake District—funded by contributions and other sources. In the middle of August I visited a summer school run by local volunteers in north Bradford for children between primary school and secondary school, some of whom are still struggling to read or count. That point, at which children are moving from one area to another, is crucial. The local Tesco provided the food and we managed, with contributions from people like me, to take the children to the Lake District for a week to work together. Some of them had never been that far from their homes.

There is a range of activities run by the Scouts and others; they need to work together. If the National Citizen Service is to expand at speed, as is proposed, it also needs to be locally linked and networked, and not have yet more national organisation imposed on it. The choice of local partners and local providers is important.

We will need to develop a wider strategy and look at how one works the volunteer dimension and how far it can fit into the things that desperately need doing for younger people—not just the 15 to 17 year-olds but all the way through from when children enter nursery school. That needs to be discussed further. I worry a little. The reason why some of us are testing this royal charter is that, when one hears about permanence and cement, one wonders whether this is being put down as a great lump, when there is a huge amount that we need to do. Whatever we think about the outcome of the referendum, the scale of the vote that we saw not just against Brussels but against London, the elite and all the outsiders in these areas shows us that we have a major, long-term underlying problem, to which this is one useful response, but as part of a wider strategy—it is only part of a bigger jigsaw.

I have just a few hesitations from my limited experience in the coalition Government about the total independence of royal charter bodies if appointed by the Prime Minister on the advice of the Cabinet Office. There are occasional, small political interventions at that level. Perhaps I had better not say any more than that, but I have watched it with a degree of interest.

One should not overstate the contribution that NCS alone can make. The noble Lord, Lord O’Shaughnessy, talked about giving it a higher status. If this is to be a rite of passage—almost the rite of passage—we need to do a lot more. We need to do a great deal for those in secondary schools. This is a useful contribution to that, but there is a great deal more that this House might usefully debate—we might even have a sessional committee to investigate it further—because we know that we face a much wider problem.

[Baroness Finn (Con)]

My Lords, I have put my name to Amendments 14 and 15, in the names of the noble Lord, Lord Blunkett, and my noble friends Lord Maude and Lord O’Shaughnessy, and to Amendment 17, also in the names of my noble friends Lord Maude and Lord O’Shaughnessy, which relates to the wording on appointments in the royal charter.

I reiterate that I am completely delighted that the NCS Bill seeks to put the remarkable success story of the National Citizen Service on a statutory footing. I fully support the aim of the Bill to achieve that. I agree with the noble Lord, Lord Blunkett, and my noble friends Lord Maude and Lord O’Shaughnessy that the independence factor is vital. For me, it is absolutely critical that the National Citizen Service is not classed as a non-departmental public body.

This real and perceived independence will give the National Citizen Service a status that is above petty party politics. To imperil that independence would be completely wrong. The NCS must not be seen as an arm of the state. I believe that the royal charter route, which brings a sense of permanence, is the best route to achieve all these aims. Like my noble friend Lord O’Shaughnessy, I believe that the Cabinet Office guidance on this matter—that a publicly funded body can be unclassified if it is genuinely unique and unclassifiable—is the best solution in the case of the National Citizen Service Trust.

Having established that maximum independence with proper government oversight and accountability is essential, I turn to the vexed issue of appointments to the National Citizen Service board. The appointments lie at the heart of the real and perceived independence issues. I do not believe that the NCS Trust should have a formal government or opposition appointee on the board. There are several reasons for that. First, there is a very real conflict of interest. The Secretary of State has a role in regulating both the National Citizen Service and wider civil society. It would therefore be wrong to have the regulator as such sitting as a non-executive member of the board.

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[Lord Wallace of Saltaire]

My Lords, I shall speak to Amendment 20, which is on very much the same lines as those in the names of the noble Lords, Lord Cormack and Lord Bird. We are talking about citizenship and we are all saying that this is one part of what we need to do but it is not enough. We clearly need to go further. We may be unable to go much further in this Bill, but the problem, as the noble Lord, Lord Cormack, mentioned, is there before us in all our cities and in some of our rural areas: young people do not feel part of our society or our political system and they are deeply disillusioned. We want to encourage them to see themselves as citizens taking an active part in our political community and our society.

This scheme deals with society but not with the political community. Therefore, I tabled this amendment, which stresses that the National Citizen Service needs to be seen within a wider context of an approach to citizenship. If the answer determinedly from the Government is that they do not want to do that in this Bill, I suggest that we need to have a dialogue with them about how we take it further forward.

On a number of occasions in the past 15 or 20 years we have all talked about the need for citizenship education. I have been converted to the idea of 16 year-olds being able to vote because it would mean that in education they would talk about their citizenship and how to use their vote. I know that that is a controversial area but it is part of how one tries to get people into our political society. I repeat what I said earlier: if necessary, several of us should propose a sessional committee of the House next year to discuss the concept of citizenship and how we educate and encourage the younger generation into citizenship. That very much includes the sort of things that the noble Lords, Lord Bird and Lord Cormack, are talking about. This is a very important area.

Let us have no illusions: we have a society that is deeply disillusioned and alienated when it comes to politics. Westminster is not respected or liked. I was enormously cheered one evening last winter at a family party in Yorkshire when someone asked me what I did. I said, “I’m not sure you want me to tell you”, and she said, “Oh dear, you’re not a banker, are you?”. She told me that there are perhaps at least two professions that are further down the ranking than politicians, but not that many. For the future health of our democracy and our society, we all need to do something about that. The Bill makes a small contribution towards solving the problem, but not a large enough one. We need a large enough contribution.

[Lord Bird (CB)]

My Lords, I shall speak to my Amendment 50. I am sorry that I missed Second Reading but I was away. In spite of appearances, I am the father of very young children. There are things that I have to do and that was the case on that occasion.

I am very interested in the concept of a National Citizen Service, and I am very interested in the idea of a rite of passage. However, I would like to see it widened into moving from our obsession with representational democracy, where we get people in the other place speaking on behalf of our citizens, and towards the participatory democracy which we are all talking about, and that is why I believe in the NCS.

We are talking about people getting involved in their communities rather than just whingeing about the failure of national or local government—by whingeing I mean just talking about it rather than doing something about it. All those people who go on demonstrations, sign petitions and do all those things are in a sense on the road towards that kind of participatory democracy. I was on a trade union march last week about defending our libraries, galleries and all that. I took my family, and I was there participating in democracy.

--- Later in debate ---

[The Earl of Courtown]

My Lords, I agree with my noble friend Lady Byford that this has been rather a wander as opposed to a highly focused debate on these amendments, but it has also been very useful. I thank noble Lords for highlighting so articulately and passionately the ongoing importance that citizenship and citizenship education must play in our country. We agree with my noble friend Lord Cormack that NCS must be, as it says in his amendment, “for all young people”, no matter what their background. As we have discussed, the functions set out in full in the royal charter attempt to capture, in the most appropriate form, what the NCS is and should always be. They include an objective to seek to expand the number of participants.

We know that volunteering can promote a sense of citizenship, and social engagement is one of the NCS programme’s core elements. The latest independent Ipsos MORI evaluation showed that NCS graduates give back to their communities an extra six hours per month. They feel more able to have an impact on the world around them and say that they are more likely to vote, so there are elements of citizenship there. But the NCS is not designed to establish a national citizenship scheme. It is not equipped or funded to do so.

The Government wish to put the NCS Trust on a stable and assured footing so that it may promote the NCS programme across the country to young people, parents, carers, schools and local authorities, to become a scheme that can deliver these outcomes, as my noble friend was intimating, for every young person on the cusp of adulthood who wants a place. Our manifesto commitment is clear on that, so I hope my noble friend Lord Cormack can be assured of the Bill’s aspiration. But as we expand the scheme to allow more young people to benefit, we must concentrate on our primary goals to maintain the success and quality we have had so far, to which my noble friend referred. He also mentioned an obligation to do NCS, but the NCS must remain voluntary to retain its ethos. It will fail if young people feel it is compulsory for them to do it.

The second amendment in this group, in the name of the noble Baroness, Lady Barker, and the noble Lord, Lord Wallace, would require the trust to set out in its annual business plan the ways in which the NCS contributes to citizenship education more broadly. I fear I must repeat the point that the NCS Trust must be allowed to focus its resources and reporting on its primary functions, namely to enable participants from different backgrounds to work together in local communities to participate in projects to benefit society, and to enhance the skills of those participants. Although the links to citizenship are clear, it would not be practical for the trust to report more widely on citizenship education.

Citizenship education is mandatory in state-maintained schools, as part of the national curriculum. The citizenship curriculum aims to equip young people with knowledge, skills and understanding to prepare them to play a full and active part in modern Britain. The NCS is part of the citizenship landscape of this country, as are many organisations working with young people and helping them to become more resilient and informed members of society, but asking the trust to report on work wider than its core mission risks distracting it from delivering a quality programme. I hope that noble Lords can take assurance that the NCS complements an ongoing commitment to the importance of citizenship education in schools.

I thank the noble Lord, Lord Bird, for making the point that the NCS has the potential to encourage democratic engagement and participation among young people. We are in full agreement. The draft charter requires that the trust must have regard to,

“encouraging participants to take an interest in debate on matters of local or national political interest, and promoting their understanding of how to participate in national and local elections”.

This will ensure that the NCS Trust keeps these considerations at the front of its mind whenever it makes decisions about how to deliver its core mission. In short, the aim here was to capture, as concisely as possible, the very point the noble Lord makes. The NCS Trust is working jointly with the democratic engagement team in the Cabinet Office to explore the possibilities for the NCS to contribute to this agenda. I ask the noble Lord, Lord Bird, not to press his amendment.

Without making any commitment, I should say that my noble friend the Minister is only too happy to hold meetings with as many Peers as he can. I have always wanted to say that. None the less my noble friend Lord Ashton of Hyde is happy to meet noble Lords before the next stage of the Bill. I also make a commitment to the noble Baroness, Lady Scott, that we will write to her on the issue that she raised.

[Lord Wallace of Saltaire]

My Lords, the noble Earl has just remarked that this is a cross-departmental issue, involving the Cabinet Office, Department for Education, DCMS and one or two others. I urge him and the noble Lord, Lord Ashton, to take this back and perhaps write to us all with the suggestion that we might have a cross-departmental meeting with Peers to discuss how a broader approach to citizenship might be taken forward across Whitehall.

[The Earl of Courtown]

My Lords, we will of course consider what the noble Lord has said and write to him about our final decision on that matter, but at the moment I would ask my noble friend to withdraw his amendment.