Draft Immigration Act 2014 (Residential Accommodation) (Maximum Penalty) Order 2023 Draft Immigration (Employment of Adults Subject to Immigration Control) (Maximum Penalty) (Amendment) Order 2023

Debate between Neil Coyle and Tom Pursglove

Monday 15th January 2024 General Committees

[Tom Pursglove]

It is a pleasure to serve under your chairmanship, Mr Dowd. May I welcome you to the Chair and welcome members of the Committee to this debate?

I turn first to the draft Immigration (Employment of Adults Subject to Immigration Control) (Maximum Penalty) (Amendment) Order 2023. The Home Office is the first line of enforcement against illegal migration and works across Government to prevent individuals without lawful status in the UK from accessing work, benefits and services. Illegal working often results in abusive and exploitative behaviour, the mistreatment of unlawful migrant workers, and revenue evasion. It can undercut legitimate businesses and have an adverse impact on the employment opportunities of people who are lawfully in the UK.

Employers have a role to play in ensuring that all their employees have the right to work in the UK. Since 2008, this has been underpinned by the right-to-work civil penalty scheme, under which employers are required to carry out prescribed checks on individuals before employing them, to ensure that they are lawfully allowed to work in the UK. If an employer employs someone who does not have the right to work in the UK, that employer may be liable for a civil penalty. Employers can avoid liability for a civil penalty if the correct right-to-work checks are carried out before the individual commences employment.

The level of civil penalty for non-compliance has remained the same since 2014, diluting its impact as a deterrent to those who seek to allow illegal working and labour exploitation to take place. Accordingly, the Government intend to increase from £20,000 to £60,000 the civil penalty for employers, by virtue of the draft Immigration (Employment of Adults Subject to Immigration Control) (Maximum Penalty) (Amendment) Order 2023. This will ensure that the scheme continues to act as a deterrent to employers who employ illegal migrants, and will send a clear message that only individuals with the right to work in the UK can secure employment.

In the case of a first breach, the starting point is £45,000. Employers who elect to pay the penalty via the fast payment option will benefit from a further 30% reduction in the overall amount after reductions have been applied for any specific mitigating factors. It remains a criminal offence for migrants to work illegally in the UK, or where the individual is in the UK unlawfully. The offence of working illegally carries a maximum penalty of 51 weeks’ imprisonment in England and Wales, or six months’ imprisonment in Scotland or Northern Ireland, or a fine.

The draft Immigration Act 2014 (Residential Accommodation) (Maximum Penalty) Order 2023 will be in force in England only. Since 2014, anyone who offers rental accommodation in the private rented sector has had to carry out checks on new adult occupiers before renting to them. This is to check that the individual has the right to rent. These checks are commonly known as the right-to-rent scheme.

Allowing those without a lawful right to be in the UK to rent property enables them to establish a settled life in spite of being here unlawfully. This creates a cost to the public purse, including through the provision of local authority support, and reduces the amount of housing stock available to those who lawfully reside in the UK. The practice can result in abusive and exploitative behaviour, with rogue landlords housing unlawful migrants in what is often unsafe accommodation. The maximum civil penalty for landlords, including letting agents, will be raised from £3,000 to £20,000, by virtue of the draft Immigration Act 2014 (Residential Accommodation) (Maximum Penalty) Order 2023. In the case of a first breach, the starting point is £10,000.

[Neil Coyle (Bermondsey and Old Southwark) (Lab)]

Can the Minister tell us how many times the employer and landlord fines have been imposed, and what that money is used for?

[Tom Pursglove]

If I may, I will come back to the hon. Gentleman’s point. It is worth saying that the figure we are proposing is £45,000 per worker for a first breach and £60,000 for a repeat breach; that is the position we are taking. To give the hon. Gentleman some context as to the number of illegal working penalties issued, I am happy to write to him with a chart that sets out in a granular way, month by month, the number and the value of penalties issued.

I can give the Committee some illustrative examples. In November 2023, 123 illegal working penalties were issued, with a value of over £3 million—a considerable number, and important in context. In the same month, 40 illegal renting penalties were issued, with a value of £38,320. From January 2023 to November 2023, 140 right-to-rent civil penalties were issued, an increase of over 380% on the same period in 2022. Between January 2023 and November 2023, the value of right-to-rent civil penalties issued was over £136,000, an increase of over 495% on the same period in 2022.

[Neil Coyle]

I can see why the Government want to use employers and landlords to try to help the failing, chaotic Home Office, but the second part of my question was about what those funds are being used for, because they do not seem to be supporting the Home Office in delivering its core function.

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[Tom Pursglove]

I am covering this statutory instrument today for the Minister for Countering Illegal Migration, my hon. and learned Friend the Member for Mid Dorset and North Poole (Michael Tomlinson), but I will gladly come back to the hon. Member for Bermondsey and Old Southwark with a substantive answer to his specific point about the funds and the way in which they are deployed. I have been able to set out quite comprehensively, I think, the nature of the funds that are being collected for both these important schemes. If I may, in my wind-up speech I will pick up that point directly.

[Neil Coyle]

The Minister is being very generous in giving way. I was unaware that he was covering for his colleague, but of course it takes multiple Government Ministers to cover one excellent shadow Minister, my hon. Friend the Member for Aberavon.

In how many instances has the Home Office been notified of an employer illegally using someone who is unlawfully working in the UK, and then failed to take action? I have at least two constituency cases involving people who are working in this country who should not be in the country, because they have committed very serious criminal offences and should have been removed. One of them was in prison until 2016, and the Home Office has failed to issue the deportation order.

[Tom Pursglove]

I suppose I might say that it is very easy for a party to have one shadow Minister when it has a very limited policy platform to advance on the substance of the migration and borders portfolio.

On the Home Office’s ability to collect the fines, we have robust debt recovery strategies in place to maximise the opportunities to collect outstanding debt. This is difficult debt to collect, as the hon. Gentleman will appreciate. The organisations that we are dealing with are often determined to act in a non-compliant way. That is the nature of the activity to which we are responding through these schemes.

Of the £355 million raised throughout the life of the scheme, approximately 56% of debt has been recovered or discounted for compliance and faster payment. More recently, between January 2023 and November 2023, more than 1,400 right-to-work civil penalties were issued, to a value of over £26 million. Within the same period, 140 right-to-rent civil penalties were issued, to a value of over £136,000. I know that the Department continues to strive to improve collection rates wherever possible; it is a real area of focus.

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[Tom Pursglove]

May I express my gratitude to colleagues from across the House for the scrutiny and insight that this debate has brought to bear on the undoubtedly important subject of the fees and fines in established schemes?

Before I address some of the issues raised and questions asked, I want to make the general point that we can deliver a comprehensive response to tackle illegal migration only if we work with UK employers, landlords and letting agents to deny employment and housing to those without the right to work or rent in this country. Illegal working and renting are the main incentives for illegal migration and often involve exploitation and unfair competition.

The civil penalty scheme encourages employers, landlords and letting agents to comply with their obligations to check the right to work and rent of all employees and occupiers, without criminalising those who make a mistake. Legitimate employers, landlords or letting agents will not face higher costs through increased penalties. The scope of the penalty regime has not changed. Those that continue to act in a legitimate manner, by checking and recording the documents of their employees or tenants, will not be affected by the strengthened penalty regime.

I will now touch on several points raised during the course of the debate. First, I would be keen to see the details of the specific case raised by the hon. Member for Glasgow Central; if she shares them with me, I will look at the case with the utmost urgency to help vulnerable users of the online checking system. The Home Office is developing its digital products and services for use by all, including vulnerable users. Users can contact the UK Visas and Immigration resolution centre, which provides telephone and email support to those using online immigration status services and supports all individuals interacting with online services.

The services include a priority response helpline specifically for employers, landlords and letting agents who need help accessing or using the online immigration status services. To ensure that service demand is responsive to need, there are separate lines for EU settlement scheme applicants and for non-EUSS status-related queries. All callers speak to a trained agent who works to resolve their specific query. Again, if the hon. Lady shares the details with me, I will be happy to look at the specifics of the case.

[Neil Coyle]

In answer to an earlier question, the Minister did not say what the funds raised from the penalties actually pay for. Are the funds supposed to pay for this service? They are clearly not paying for crimes to be prevented or solved, given that nine out of 10 are unsolved, and they are clearly not cutting the asylum backlog. Where is the money raised through the fines going?

[Tom Pursglove]

The hon. Gentleman sort of pre-empts what I was going to say in my remarks; I was just trying to deal with each contribution in turn to ensure that the points are dealt with thoroughly. However, I can tell him that the Home Office is allowed to keep £19 million of the civil penalty regime income, and that is put into the consolidated fund, underpinned through the Immigration Act 2014.

The hon. Member for Glasgow Central rightly also asked about some of the safeguards around debt recovery and appeals against the civil penalties. People can appeal a civil penalty decision if, following an objection to the Home Office, that decision has been upheld. An appeal must be made on the same grounds as the objection, and the employer, landlord or letting agent must do so within 28 days, registering the appeal at a county court or sheriff court. The three grounds are as follows: the person is not liable to pay the penalty, which could mean they are not the employer, landlord or letting agent of the illegal migrant identified; they have a statutory excuse, which means they carried out checks as required; and the level of the penalty is too high. She specifically asked whether there is sensible discretion within the system, and the answer is yes: officials have discretion in order to deal with such matters appropriately.

[Tom Pursglove]

My understanding is that we try to deal with the matter as quickly as possible following an appeal being lodged and that we work to a similar 28-day timescale.

I understand why the hon. Lady asked about the devolved Administrations. They were not consulted on these measures, which are reserved policies, but the Government wrote to them to advise on the increase to the civil penalties when the draft orders were laid in November 2023. On whether the civil penalty increase applies across the UK, the right-to-work scheme has UK-wide application, as the hon. Lady knows, and the right-to-rent scheme is in force in England only. The longer-term intention is to explore rolling the scheme out to the rest of the UK.

The hon. Member for Bermondsey and Old Southwark asked an important question about how we ensure that the penalties are paid. The Home Office works closely with debt recovery providers and other Departments to do as much as we can to ensure that they are. Where a penalty is unpaid, it will be registered with the civil court and enforcement action commenced. Where companies take action to dissolve and be struck off the companies register, we may lodge an objection against the application when a penalty has not been paid. Where an employer remains non-compliant or becomes liquidated or bankrupt, details are shared with the Insolvency Service, which considers action under the Company Directors Disqualification Act 1986. Successful action to disqualify an employer as a director can tackle the practice of carrying on the same business successively through a series of companies each of which becomes insolvent. As I mentioned earlier, we look carefully at what more we can do to ensure that the fines are paid as expeditiously as possible.

Let me turn to how the increase was calculated. Civil penalties for non-compliance have remained the same since 2014, despite periods of high inflation, and the approach to the increase in the civil penalties was based on evidence and research on international comparisons and other civil penalty schemes operated in the UK. Where illegal working is identified, the increased penalty level for the right-to-work scheme aligns the UK at the higher range of sanctions applied across international comparators, including France, Germany, Spain, Belgium and Australia.

An employer, landlord or letting agent may request permission from the Home Office to pay a civil penalty in instalments over an agreed period, which is usually up to 24 months. In such cases, they should provide the full reasons for their inability to pay the full penalty amount in one payment. I reiterate that the Home Office has discretion to handle such matters sensibly and appropriately, which I think addresses the points raised by the SNP spokesperson, the hon. Member for Glasgow Central.

The shadow Minister, the hon. Member for Aberavon, had an interesting approach, in that he alluded to things being a little bit illegal or more illegal. The fact is that the activities and behaviours that we are seeing are illegal and unacceptable, and it is right that we have a firm and robust approach to them. We welcome the shadow Minister’s and Opposition Members’ support for the changes to the level of the penalty. The Home Office has delivered an extensive, wide-reaching engagement programme to employers, landlords and lettings agents. Extensive communication strategies, including online guidance, webinars and engagement events, are in place to help ensure that employers, landlords and letting agents understand their obligations.

Between the announcement of the proposals to increase the civil penalties in August 2023 and 20 January, Home Office officials have supported more than 30 engagement events, reaching more than 11,000 stakeholders across the relevant sectors. The Home Office continues to work with members of the Home Office employers consultative group and landlord consultative panel, which cover all major employment and rental sectors. It meets them quarterly to seek their input and to inform our future guidance and communication products in respect of the operation of the right-to-work and right-to-rent schemes. As the shadow Minister will appreciate, the employers that we engage with are those that behave in a compliant manner; the individuals and businesses that we interact with through the penalties often have a very different posture. There was no duty to consult at the outset, but we have had extensive engagement.

A very valid question was asked about discrimination. Of course, all of us in this House and in Government want to ensure that we get this right. The Home Office has published codes of practice for employers, landlords and letting agents on how to avoid unlawful discrimination when undertaking checks. The codes of practice clearly stipulate that employers, landlords and letting agents are advised to provide individuals with every opportunity to demonstrate their right to work or rent. They should not discriminate on the basis of nationality or any of the other protected characteristics. We are clear that those who discriminate are breaking the law.

The evaluation has found that the right-to-rent scheme is not discriminatory, although that does not rule out discriminatory behaviour from individual landlords and letting agents. It is often easier for landlords, letting agents and employers to carry out checks digitally, with no requirement for them to understand the types of documents that renters and employers have. In some cases, it is actually easier to bring a migrant into employment or a residential tenancy agreement than a British citizen.

My hon. Friend the Member for Amber Valley and the hon. Member for Aberavon raised a point about immigration enforcement. That of course fits within the portfolio of the Minister for Countering Illegal Migration, my hon. and learned Friend the Member for Mid Dorset and North Poole, but I can say that we are very much scaling up immigration enforcement work in tandem with the changes. The Home Office immigration enforcement teams are surging the number of enforcement operations being conducted to bring those violating our laws to justice.

Over the first three quarters of 2023, 10,509 enforcement visits took place, of which 4,721 were illegal working enforcement visits, which is a rise of more than 40% compared with the same period in 2022. Between January and November 2023, over 1,400 right-to-work civil penalties were issued, which is an increase of 40% compared with the same period in 2022; the value of right-to-work civil penalties issued was over £26 million, which is over 45% more than in the same period in 2022, and demonstrates that those efforts are being stepped up and are delivering results; 140 right-to-rent civil penalties were issued, which is an increase of over 75% compared with the same period in 2022; and the value of right-to-rent civil penalties issued was over £136,000, which is an increase by over 80% compared with the same period in 2022.

[Neil Coyle]

One loophole that a letting agent could use is the guarantor system. Does the Minister have any data or information on the number of fines paid by a guarantor as opposed to the letting agent? If the Government are serious about stopping a behaviour, they need to ensure that the business itself is fined rather than passing it on to a guarantor covering for someone who is illegally in the country.

[Tom Pursglove]

If the hon. Gentleman does not mind, I would like to take that point away. In the earlier part of the debate, I said that I would provide him with a letter that sets out in more granular detail the statistics that he asked for. I was able to give the headline numbers, but it is valuable for the scrutiny of these measures to share with him those more granular month-on-month numbers of fines issued, and the level at which they come in. That is a point that I am very happy to pick up on in my response to him.

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[Neil Coyle]

What about the wider loophole?

[Tom Pursglove]

On the wider loophole, we will gladly provide as much insight as we can. I will raise the point directly with the Minister for Countering Illegal Migration. The Home Office wants to continue to work closely with business, landlords and letting agents, across Government and with law enforcement partners to promote collaboration on activity aimed at tackling illegal working, ensuring safe and responsible recruitment and onboarding practices while upholding the safeguards that protect legitimate workers and those at risk of exploitation. As the hon. Gentleman would expect, in that spirit we want to directly deal with and address, in the fullest sense, all areas or avenues of abuse that emerge.

Addressing illegal working and renting not only protects the domestic labour and housing market but identifies unscrupulous employers, landlords and letting agents who exploit vulnerable migrants. Equally, it ensures that only those who are in the UK legally, with permission to work and rent, are able to do so. On that basis, I again commend the draft orders to the Committee.

Question put.

Oral Answers to Questions

Debate between Neil Coyle and Tom Pursglove

Monday 4th September 2023 Commons Chamber

[Neil Coyle (Bermondsey and Old Southwark) (Lab)]

16. Whether his Department plans to take steps to reduce the time taken by the decision-making process for applications to the Access to Work scheme.

[The Minister for Disabled People, Health and Work (Tom Pursglove)]

Access to Work has received a significant increase in applications over the past year and has recruited new staff to meet the increased demand and reduce the time it takes to make decisions. We are also transforming the Access to Work service through increased digitalisation that will make the service more efficient and the application process easier, and improve the time taken from application through to decision.

[Tom Pursglove]

I am sure the hon. Gentleman will be pleased to know that, last week, 88% of claims were paid within 10 days and that we are taking steps to drive further improvement. The online application capacity that came on stream in June is a significant part of that, but we are also putting additional staff on to processing claims. We are streamlining various processes to ensure that people get access to that support sooner. Anecdotally, officials are saying that that is beginning to bear fruit. What we are not doing is speeding up that process at the cost of getting the right decision and the right outcome. We will continue to move this forward, and we are already making progress.

[Neil Coyle]

A decade ago, the Government’s Sayce review recommended supporting 100,000 disabled people through specialist employment programmes, but, last year, Access to Work helped just 38,000, and Versus Arthritis and other organisations that support people navigate this difficult system saw a tripling in the delays. When will the Department meet the 100,000 target and end the delays hitting disabled people, employers and the UK economy?

[Tom Pursglove]

Like the hon. Gentleman, I am passionate about the positive difference that Access to Work makes in terms of opening up employment opportunities for people. He will be aware of the passports that we have introduced to help better understand people’s needs and passporting that between jobs and between, for example, education and employment. I refer him back to the steps that we have taken to see improvement in the journey times, but we will continue to work tirelessly to make sure that people get the Access to Work help as quickly as possible.

Nationality and Borders Bill (Sixteenth sitting)

Debate between Neil Coyle and Tom Pursglove

Committee stage
Thursday 4th November 2021 Public Bill Committees

[Tom Pursglove]

I am grateful to the hon. Member for Bermondsey and Old Southwark for tabling his new clause. In simple terms, the longer successful asylum-seekers remain in asylum accommodation, the fewer the beds available for those newly entering the asylum support system, including those temporarily accommodated in hotels at great expense to the taxpayer. We are aware of reports that some refugees do not access universal credit or other benefits, or adequate housing, within 28 days. The reasons for that are complex, but the available evidence to date does not show that the problem can be solved by increasing the 28-day “move on” period.

I also reassure the hon. Member that we have implemented several initiatives with the aim of securing better outcomes for refugees in the 28 day “move on” period. These include ensuring that the 28-day period does not start until refugees have been issued with a biometric residence permit—the document that they need to prove that they can take employment and apply for universal credit—and that the national insurance number is printed on the permit, which speeds up the process of deciding a universal credit application.

We also fund Migrant Help, a voluntary sector organisation, to contact the refugees at the start of the 28-day period and offer practical “move on” assistance, including advice on how to claim universal credit; advice on the importance of an early asylum claim and the other types of support that might be available; booking an early appointment at their nearest Department for Work and Pensions jobcentre, if needed; and advice on how to contact their local authority for assistance in finding alternative housing.

We evaluated the success of the scheme that books an early appointment with the local jobcentre for those who want one. That showed that all applicants for universal credit in the survey received their first payment on time—that is, 35 days from the date of their application—and that those who asked for an earlier advance payment received one.

Asylum accommodation providers are also under a contractual duty to notify the local authority of the potential need to provide housing where a person in their accommodation is granted refugee status. Refugees can also apply for integration loans, which can be used, for example, to pay a rent deposit or for essential domestic items, work equipment or training.

The UK has a proud history of providing protection to those who need it, and I reassure the hon. Member that the Government are committed to ensuring that all refugees can take positive steps towards integration and realising their potential. Although we keep the “move on” period under review, we must also consider the strong countervailing factors that make increasing that period difficult. I therefore invite him not to press his new clause.

[Neil Coyle]

I am almost sorry, but the Minister’s answer ignores the reality and the situation in which people find themselves. He does not have an answer about the anomaly in housing or social security policy, and he has not even tried to explain why the Government are ignoring the potential savings to the public purse. I will press the new clause to a Division.

Question put, That the clause be read a Second time.

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[Neil Coyle]

New clause 25 proposes a humanitarian visa route, and new clause 26 grants a right of appeal—something that made Tory MPs very excitable yesterday. I do not intend to push the new clauses to a vote; they are aimed at opening dialogue, and they link back to the points made by my hon. Friend the Member for Sheffield Central.

If the Government are serious about finding solutions to people smuggling and trafficking, they should consider providing practical routes for people seeking sanctuary, in the way that they do for Syria and Afghanistan, and undertake to review humanitarian routes and how they could work. I thank Bella Sankey of Detention Action for her work on these clauses. There are some fantastic people working on these issues.

The purpose of the new clauses is to offer the Government a constructive solution for safe routes. They would have the benefit of cutting smuggling and potentially saving money in the long term. If they are serious about safe and regular routes, the humanitarian visa option would create them. The new clauses also make use of the border anomaly in Calais.

The Government should commit to exploring safe routes if they are serious about preventing dangerous options. The example from Detention Action is of Dylan Footohi, an Iranian refugee who says,

“I came to the UK seeking asylum. I came irregularly simply because there was no legal way for me to do so. My journey to the UK took two years; two years of exploitation and abuse and life-threatening experiences.”

He felt that that way was the only option. If there had been an alternative, he would have taken it. These new clauses offer that alternative.

The new clauses provide for certain persons in France to be granted entry clearance to allow them to claim asylum in the UK. The new clauses set out who qualifies: they have to be in France; they cannot be an EU national or a national of Liechtenstein, Iceland, Norway or Switzerland; they have to intend to make a protection claim in the UK; their protection claim, if made in the UK, must have a realistic prospect of success; and there must be good reasons why their protection claim should be considered in the UK.

The first three criteria are self-explanatory. The fourth criterion—the realistic prospect of success—is a well-established test in UK immigration law. It is used in paragraph 353 of the immigration rules, which deals with a person who has been refused asylum and has later made further submissions on asylum grounds and says that they have a fresh right of appeal against the refusal of their further submissions. Home Office officials, courts and tribunals are well used to applying that test. The leading case on the realistic prospect of success is WM (DRC) [2006] EWCA Civ 1495.

To give an example of how the criterion could work in practice, applicant X applies for a France asylum visa. She is from country A and claims that she is wanted by the authorities of country A for a political offence. The applicable country guidance accepts that if a person is detained for political offence in country A, they are likely to be subjected to serious ill-treatment, so if applicant X’s claim is found to be credible she would be entitled to asylum. The appropriate decision maker believes that applicant X is credible. Applicant X’s claim is likely to have realistic prospect of success, so the criterion is likely to be satisfied. I will keep examples brief in the interest of time.

The fifth criterion is about good reasons and is intentionally open-ended. It allows the appropriate decision maker to make a fact-sensitive evaluation of the merits of the case. In considering whether there are good reasons, the decision maker will take into account the relative strength of their family or other ties to the UK and France; their mental and physical health and any particular vulnerabilities; and any other matter the decision maker thinks is relevant.

To give a brief example, applicant X applies for a France asylum visa. She is street homeless in France due to a shortage of available accommodation. She has PTSD and depression as a result of being tortured and has not been able to seek treatment due to her insecure living situation. She has no family and friends in France but has a brother in the UK with whom she has a close relationship and who could support her if she were here. She speaks good English but does not speak French. There are likely to be good reasons for her claim to be dealt with in the UK, so the criterion is likely to be satisfied. That is an illustrative example, but decision makers would make up their minds on the facts of each individual case, having regard to all relevant factors.

The procedure for making the application would be to the appropriate decision maker—an entry clearance officer authorised by the Secretary of State—and they would be required to waive biometric and other procedural requirements if satisfied that the applicant could not be reasonably expected to comply. There would be no fee for the application.

The successful applicant would be given leave to enter for a period of not less than six months, prescribed by the Secretary of State, who would also prescribe the conditions of such leave. On arrival, they would be deemed to have made a protection claim in the UK and go through the normal asylum process. They would have access to legal aid and there would be a right of appeal in the first-tier tribunal against the refusal of a France asylum visa application. That would be a full merits appeal and would not be limited to a review of the original decision-maker’s decision. The tribunal will decide for itself whether the criteria are met.

That appeal process utilises the existing machinery of immigration appeals under the Nationality, Immigration and Asylum Act 2002. There would be onward rights of appeal to the upper tribunal and Court of Appeal under sections 11 and 13 of the Tribunals, Courts and Enforcement Act 2007, as with other types of immigration appeal.

I ask that the Government consider those practical solutions that could take the power away from people smugglers and traffickers, who the Minister routinely calls evil, with which I agree, while honouring our commitment to the refugee convention. I commend the new clauses to the Committee.

[Tom Pursglove]

I am grateful to the hon. Gentleman for tabling the new clauses; it is fair to say that during the course of the Committee we have had many debates around many aspects of what they refer to. The Government’s position is clear: we are trying to stop dangerous journeys wholesale—in relation not just to the channel, but to the Mediterranean. We believe in upholding the long-standing principle that people should claim asylum in the first safe country that they reach. Of course, people should also avail themselves of our safe and legal routes. With that, I urge the hon. Gentleman to withdraw the new clause.

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[Neil Coyle]

I beg to move, That the clause be read a Second time.

I thank the British Red Cross for its help with the new clause, which is very simple and is line with what the Government have said they are committed to elsewhere. It would simply entail publishing a strategy to cover Home Office accommodation, and it aims to ensure an equitable distribution of people across England, Scotland and Wales, that financial support is provided to local authorities in areas where people are seeking asylum in Home Office accommodation, and other elements.

Although the Committee has heard that the Government’s intention is to move towards the use of reception centres, it is fundamentally unclear where accommodation is aimed to be and what the Government consider accommodation to be. I intend to table an amendment on the specific issue of what is and is not an accommodation centre on Report, especially with some of the sites being used as contingency accommodation, including a hostel in my constituency that Public Health England suggested should not be used for accommodation for the Everyone In scheme. The Home Office chose to override that advice and use it for refugee and asylum seeker accommodation. The Government now seem to think that dispersal is broken, and they want to open a parallel system of accommodation, but they want to use what they refer to as “reception centres”. I hope the Minister can provide some clarity on that and on whether the Government feel that they need to use the 2002 Act. Perhaps the Minister can clear up this messy situation.

Napier barracks has become synonymous with this issue. Its use has just been extended for five years, with the Home Office using a special development order to do so. In his letter to the Committee on 21 October, the Minister said Napier is not classified as an accommodation centre. I think that is a mistake, and I hope the Minister can explain why the Home Office is using a special development order, when the High Court has ruled that the standards and operational systems at Napier barracks are unlawful.

As things stand, we do not know what is and is not accommodation according to the Home Office. We have reports and court rulings on unlawful and unfit accommodation. We do not know where reception centres will be or the types of accommodation that the Government intend to provide while seeking to move away from dispersal in communities where service providers have argued that it is better for integration. That is why a strategy is required, and I hope the Government accept that they need to move towards a more co-ordinated approach.

On dispersal, the British Red Cross has said there is currently nothing in legislation that says people supported under sections 95, 98 and 4 of the Immigration and Asylum Act 1999 have to be accommodated in any particular way. Dispersal is not underpinned in the current legislation, so a strategy would help clarify the situation for the Home Office and the rest of us.

Like hotels, Napier and Penally barracks were seen as contingency accommodation—temporary measures because of a lack of suitable dispersal. The Government need to get the dispersal system in place. We do not know what the Government reception centres would look like or where they would be located, nor have the Government said whether people would be accommodated for the entirety of their asylum process. It is proposed that the centres would “provide basic accommodation” and

“allow for decisions and any appeals following substantive rejection of an asylum claim to be processed”,

but we are conscious of the delays in the asylum system, and it is possible that people could be living in the centres for several months, potentially in remote locations. I hope that the Minister will outline whether children are intended to be placed in those centres.

[Tom Pursglove]

I refer the hon. Gentleman to my comments on earlier clauses, when I confirmed that children would not be placed in those accommodation centres.

[Neil Coyle]

That is helpful, but it has been brought to my attention this week that a 16-year-old is in a Home Office accommodation hotel in my constituency. I do not know whether that is an age-disputed case for the Home Office, but there is clearly a mismatch between the Government’s intent and what is actually happening.

Rewan has been living with his two sons, aged 11 and 18, in a hotel room for 10 months. His sons cannot study, and although he is desperate to get work, their living circumstances do not allow for that. Umar was told in October 2020 when he moved into a hostel with his wife and four children—aged 7, 9, 13, and 14—that they would be there for a matter of weeks. They are still there. That is what is happening on the ground and why a strategy on dispersal is required. Dispersal is better in the local community: through work with the local community, and by using dispersal accommodation, people are better able to make connections and start feeling part of a city. As Asylum Matters states:

“Providing support for people seeking asylum, including finding suitable accommodation, should be carried out in partnership with local government and local community groups.”

That is not what we are seeing.

For the almost 700 recent arrivals in Southwark, there was absolutely no in-advance co-ordination with the council; the Home Office alerted the council only after opening accommodation. Bearing in mind that accommodation would have been commissioned and procured in advance, there was ample opportunity for discussions to ensure that support was in place, but the Home Office failed to engage. In fact, when I asked the Home Office what resources the council would receive to support the hundreds of new people, it wrote back saying, “We have given some money to the clinical commissioning group.” That is not part of the council.

I had a really useful discussion with the Local Government Association, which said that it would welcome a dispersal strategy and that it wants people to be able to work. There are workplaces that are desperate to take people on, but they cannot get them in. A proper dispersal strategy should look at employment levels in certain areas. Moving people into areas with high levels of employment, rather than into the cheapest accommodation across the country, would actually benefit the workforce and the economy. That strategy would be adopted by any sensible Government, so I do not hold high hopes.

I will give some background stats: in December 2020, around one in five people in Home Office accommodation were living in a hostel, B&B or hotel—triple the December 2019 figures. In Southwark, there were 1,022 people in dispersal accommodation in June, but, as I have just said, hundreds have arrived since then. The Red Cross suggested:

“The Home Office should, as a matter of urgency, address the supply of suitable asylum accommodation, and work with local authorities, devolved governments”,

and it pointed out an increase in the demand for asylum accommodation and a rise in the number of people living in inappropriate places. The increase in decision-making delays since 2018—prior to the pandemic—has resulted in people staying in asylum accommodation for far longer, which is something the Minister has just said he is determined to tackle, so a strategy should be welcome. The situation is unsustainable and only a strategy to build out of it will address the problem.

In April, we had a Backbench Business debate on accommodation, focusing on the National Audit Office and Public Accounts Committee reports into asylum accommodation. The NAO reported last July that the system the Government have adopted caused costs to escalate by 28%, and saw a 96% increase in short-term and more expensive accommodation. In November 2020, the Public Accounts Committee warned of a system in crisis, and it recommended:

“The Home Office should, within three months, set out a clear plan for how it will quickly and safely reduce the use of hotels and ensure that asylum seekers’ accommodation meets their individual needs.”

It would be great to hear from the Minister on how that clear plan is being developed. The new clause would help to address the problem that the Government have created.

The time involved comes with escalating costs to the Home Office and the taxpayer. Will the Minister update us on average times and what he is doing to tackle them? I have two examples from Bermondsey and Old Southwark. I have raised the cases of an Eritrean woman and a Mongolian man who have both been seeking asylum since 2017. Not only do they not have decisions four years later, but the Home Office cannot even give a timeframe for when their cases will be concluded. Perhaps the Minister can tell us today when and how the Home Office will cut the horrific backlog that his Government have created.

At the end of September 2020, there were 3,621 Sudanese, Syrian and Eritrean nationals who had been waiting longer than six months for a decision on their application. The grant rate across those countries was 94% in the most recent stats. That is an incredibly expensive waste. A strategy, as outlined in the new clause, would help address the underlying costs and focus Ministers’ and civil servants’ minds on cutting delays and lowering the cost to the public purse.

Earlier this year the hon. Member for Westmorland and Lonsdale (Tim Farron) asked the Home Office what the Government were doing to engage with local authorities to understand why offers for dispersal were not matching demand, and to ensure that there was true collaboration. He received a letter in response from the Home Office that stated:

“We remain fully committed to working towards the agreed change plan once we have been able to move people out of hotels and into more appropriate Dispersal Accommodation.”

I hope the new clause helps the Minister with that aim. I commend it to the Committee.

[Tom Pursglove]

I am grateful to the hon. Gentleman. I want to pick up on a few of the points that he raised. In relation to Napier, as I have said previously, we have seen several improvements recently: offering all residents covid vaccinations and personal cleaning kits, the introduction of NGOs on the site to provide assistance and advice, free travel to medical appointments and dentistry services or for meetings, sports and recreation. Those significant improvements have been made since the court judgment was handed down.

Hotels are provided as a contingency because of the lack of availability of other accommodation, but it is important to make the point that those are not accommodation centres. On the unaccompanied asylum-seeking children situation, it is difficult to comment on individual cases and a hotel in the hon. Gentleman’s constituency—I do not have the specifics to hand—but I can say that, broadly, the UASC, but not other children, would be accommodated in a hotel. That is my understanding of the situation.

On a broader point, we had a significant debate on new clause 2 and dispersal accommodation, where I set out the steps that the Government are taking to try to address that. That is being considered, and I refer Members to what I said before.

[Neil Coyle]

The Minister says that things have improved since the court judgment and that, for example, NGOs now have more routine access. The hostel accommodation in Bermondsey and Old Southwark was open for three months before the first visit of Migrant Help on site. I am just not convinced that the Minister has given an accurate portrayal of the current picture and the real situation in a real building affecting hundreds of people in my own constituency.

--- Later in debate ---

[Tom Pursglove]

I should start by noting that, as hon. Members know, the Government’s current policy does allow asylum seekers to work in the UK if their claim has been outstanding for 12 months, where the delay was caused through no fault of their own. Those permitted to work are restricted to jobs on the shortage occupation list, which is based on expert advice from the independent Migration Advisory Committee.

I should like to set out the rationale for that policy position. The policy is designed to protect the resident labour market by prioritising access to employment for British citizens and others who are lawfully resident, including those granted refugee status, who are given full access to the labour market. That is in line with wider changes we have made through the points-based immigration system. We consider it crucial to distinguish between those who need protection and those seeking to come here to work, who can apply for a work visa under the immigration rules. Our wider immigration policy would be undermined if individuals could bypass the work visa rules by lodging unfounded asylum claims in the UK.

[Neil Coyle]

Will the Minister give way?

[Tom Pursglove]

I have been very generous throughout the duration of the Committee, but I am afraid I need to make some progress at this point.

It is also the case that unrestricted access to employment opportunities may act as an incentive for more migrants to choose to come here illegally, rather than claim asylum in the first safe country they reach. While pull factors are complex, we cannot ignore that access to the UK labour market is among the reasons that an unprecedented number of people are taking extremely dangerous journeys by small boat to the UK. I trust that hon. Members would agree with me that the UK cannot have a policy that raises those risks, and that we must do everything in our power to put a stop to those journeys.

Relaxing our asylum seeker right-to-work policy is not the right approach in this respect. Indeed, in an article earlier this month, the French newspaper Le Figaro noted the perspective in France that the “economic attractiveness” of the UK is a reason migrants attempt to cross the channel in small boats. In addition, removing restrictions on work for asylum seekers could increase the number of unfounded claims for asylum, reducing our capacity to take decisions quickly and support genuine refugees.

I would like to take this opportunity to make it clear that I do acknowledge the concerns of hon. Members. The Government are committed to ensuring that asylum claims are considered without unnecessary delay to ensure that individuals who need protection are granted asylum as soon as possible and can start to integrate and rebuild their lives. It is important to note that those granted asylum are given immediate and unrestricted access to the labour market.

I absolutely agree with hon. Members that asylum seekers should be allowed to volunteer. That is why we strongly encourage all asylum seekers to consider volunteering, so long as it does not amount to unpaid work. Volunteering provides a valuable contribution to their local community and may help them to integrate into society if they ultimately qualify for protection.

We have been clear that asylum seekers who wish to come to the UK must do so through safe and legal routes. Where reasons for coming to the UK include family or economic considerations, applications should be made via the relevant route: either the new points-based immigration system or the refugee family reunion rules. We absolutely must discourage those risking their lives and coming here illegally.

The Nationality and Borders Bill will deliver the most comprehensive reform in decades to fix the broken asylum and illegal migration system, and our asylum seeker right-to-work policy must uphold that wider approach. There is, of course, a review of the 2018 report currently under way and I reassure hon. Members that the findings of the updated recent report will be built into this. For all those reasons, I invite the hon. Members for Enfield, Southgate and for Halifax to withdraw the new clause.

Nationality and Borders Bill (Twelfth sitting)

Debate between Neil Coyle and Tom Pursglove

Committee stage
Thursday 28th October 2021 Public Bill Committees

[Tom Pursglove]

There are a few points that I briefly want to address in concluding the debate on this clause. The first is the training that immigration officers have to undergo. I clarify again that all immigration officers have to pass the immigration foundation course to be appointed. This includes training on the Human Rights Act. Further specialist training is given to those officers working in the maritime environment, which includes vulnerability assessments in the context of human rights obligations. They will be exercising maritime powers using operational guidance that emphasises the need to take full account of relevant human rights aspects of the European Convention on Human Rights, and the Human Rights Act, in the context of safety of life at sea obligations. I know that the hon. Member for Sheffield Central is very keen that we include this in the Bill, but I respectfully disagree. There is already an established process in place that is delivering exactly what the hon. Gentleman wants to see. We are very mindful of these obligations on an ongoing basis.

The issue of immunity has also been raised; however, these protections are nothing new. Border Force has existing powers to intercept vessels in UK territorial seas; an officer is not liable in any criminal or civil proceedings if the court is satisfied that the act was done in good faith and there were reasonable grounds for it. This provision is also included in the Policing and Crime Act 2017, the Modern Slavery Act 2015, and applies in other contexts. This provision follows the same approach as the Immigration Act 1971.

The hon. Member for Glasgow North East raised a number of points in relation to search and rescue operations, which we had an extensive debate about during this morning’s session. Again, I make the point that this Government are absolutely committed to search and rescue operations, as would be rightly expected. That is an important function and service, and it is right that it continues to be a strong commitment. We are committed to it and that service must be provided. Again, I will emphasise that this Government will abide by their international obligations at all times.

[Neil Coyle]

Can the Minister be absolutely clear that no new powers, or attempts at immunity that arguably do not follow international law, are being sought? This is contrary to some of the Government reports on this issue.

[Tom Pursglove]

All I can say in response, is that I refer the hon. Member to what I have just said. There is an established position in relation to this; these protections are nothing new.

Question put, That the clause stand part of the Bill.

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[Neil Coyle]

I beg to move amendment 143, in clause 44, page 41, line 7, at end insert—

“(1A) A prisoner who arrived in the United Kingdom before their tenth birthday is not eligible for removal from the United Kingdom under subsection (1).”

This amendment would prevent deportation as an FNO for those who arrived in the UK before their tenth birthday, in line with the age of criminal responsibility.

The amendment is not down in my name; it was tabled by my hon. Friend the Member for Sheffield Central, who has an urgent constituency engagement. Forgive me if I am not as eloquent as my hon. Friend. I will try to do justice to his amendment.

In recent months and years we have seen a multitude of cases of individuals who have lived in the UK almost all of their lives, and in some cases were even born here, being deported as a result of past convictions. The amendment seeks to prevent that happening if the individual came to the UK before the age of 10, the age at which the UK deems one becomes criminally liable for their actions. Assuming that the age at which criminal liability kicks in is the age at which we believe someone starts to become at least partly responsible for their actions, why should their previous country of residence change how they are dealt with in the criminal justice system years or decades down the line? My hon. Friend the Member for Sheffield Central has provided a case study.

We hear of cases such as that of Sam Trye, who was born within sight of this room, just over the river in St Thomas’ Hospital, where my daughter was born and where perhaps the son of the hon. Member for Stoke-on-Trent North will be born. We might not agree on many things, not least a scattergun approach to facts, but I congratulate him on his news, which I hope his wife gave permission for him to share before breaking it to us this morning. I hope our children have better life chances than Sam was afforded because he has since served a prison sentence for a non-violent crime, and the Home Office has been trying to deport him to Sierra Leone, from where his family moved to the UK. Despite Sam being born in the UK, he is treated differently as he lacks birthright citizenship. He has two British children and cares for his mum here in London, so his right to family life is therefore well established.

There is a question here about the UK’s responsibility. When a child is born here and has been through our education system and our support services, and has grown up British in every sense, we have a duty to ensure that if they commit a crime, the British state takes responsibility for that individual. It is nonsensical to deport those who have never known another country, who came to the UK before they were ever criminally liable in UK law, let alone an adult with full independence and responsibility.

That issue was raised during the Windrush report, and by Sir Stephen Shaw in his 2016 “Review into the Welfare in Detention of Vulnerable Persons” and his 2018 follow-up progress report. Sir Stephen stated:

“I found during my visits across the immigration estate that a significant proportion of those deemed FNOs had grown up in the UK, some having been born here but the majority having arrived in very early childhood. These detainees often had strong UK accents, had been to UK schools, and all of their close family and friends were based in the UK… Many had no command of the language of the country to which they were to be ‘returned’, or any remaining family ties there… The removal of these individuals raises real ethical issues. Not only does their removal break up families in this country, and put them at risk in countries of which they have little or no awareness. It is also questionable how far it is fair to developing countries, without the criminal justice infrastructure of the UK, for one of the richest nations on earth to export those whose only chance of survival may be by way of further crime.”

Sir Stephen’s recommendation 33 was that

“The Home Office should no longer routinely seek to remove those who were born in the UK or have been brought up here from an early age.”

That recommendation has been routinely ignored by Ministers, but we do know that the Government accept that premise in specific circumstances, so there is a precedent. Last year, when there was an outcry over their attempted deportation of people to Jamaica, the Government reached a private agreement with the Jamaican high commission that it would not deport those who came to the UK under the age of 12. When there were further charter flights this year, despite Ministers refusing to answer parliamentary questions from my hon. Friend the Member for Sheffield Central on the subject, as they wanted to hush up the agreement, we know that when the flights departed, no one who came to the UK under the age of 12 was on board. So which other countries does the Minister have other such agreements with, and which other countries are negotiating with him or others in the Government to secure such agreements? If the Minister has an agreement with Jamaica, which we know is sensible, why will he not make it a blanket policy? I invite him to respond if he can.

The amendment reflects British values, in the opinion of my hon. Friend the Member for Sheffield Central, and it take steps to enact Sir Stephen Shaw’s recommendations. I urge the Government to accept it.

[Tom Pursglove]

I thank hon. Members for raising these important issues. Amendment 143 aims to prevent the deportation of a foreign national offender where they arrived in the UK before the age of 10. The clause enables the removal of a relevant prisoner at an earlier point in their sentence. The amendment would exempt FNOs who arrived in the UK before the age of 10 from the provision enabling them to be removed at an earlier point in their sentence, but it would not exempt them from deportation. I cannot see a rationale for exempting FNOs who arrived in the UK before the age of 10 from the provision enabling them to be removed at an earlier point in their sentence, given that they will still be liable to deportation at the end of the custodial part of their sentence if they have not been removed earlier.

The hon. Member for Bermondsey and Old Southwark stated that the purpose for the amendment is to align the age on arrival in the UK at which an exemption to deportation applies with the age of criminal responsibility. Almost all foreign national offenders that the Government deport from the UK have committed offences since they were adults. It does not make sense to provide an exception based on the age of criminal responsibility. Unlike England, Wales and Northern Ireland, the age of criminal responsibility in Scotland is 12.

[Neil Coyle]

I am keen to explore this on behalf of my hon. Friend the Member for Sheffield Central. Will the Minister tell us more about the arrangement with Jamaica, and those with any other countries? He says that it would not make sense to have such an arrangement, but there is an existing one with a country. Perhaps he can tell us more about that specific arrangement, and any other countries we have entered into similar arrangements with.

[Tom Pursglove]

I am grateful for that question. The hon. Member for Sheffield Central is not here. I promised earlier to write to Committee members on the RNLI issue. I will make sure that this issue is addressed in that letter, particularly so that the hon. Gentleman can see that information in its full context, given that he is unable to be here because of a constituency commitment.

The amendment is too broad in scope. It does not define what is meant by “arrived in” the UK. This could include anyone who visited the UK for a short period or who arrived here clandestinely, as well as those who have been lawfully resident here since the age of 10. It is technically deficient and, I argue, wrong in principle. I also refer hon. Members to the requirements under the UK Borders Act 2007, passed under the previous Labour Government. For these reasons, I ask the hon. Gentleman to withdraw the amendment.

[Neil Coyle]

I beg to ask leave to withdraw the amendment.

Amendment, by leave, withdrawn.

Question proposed, That the clause stand part of the Bill.

--- Later in debate ---

[Tom Pursglove]

It might assist the Committee if I say a little more. I am not concerned about covering ground that we may have already covered if it helps to clarify matters further and to put beyond any doubt the Government’s undertaking.

The purpose of clause 46 is to ensure that genuine victims of modern slavery are identified at the earliest possible opportunity, so that they can get the support they need to recover from their exploitation. The clause is part of the measures that seek to expand the current one-stop process to include modern slavery through the establishment of the new slavery and trafficking information notice, which can be issued alongside the new evidence notice introduced by clause 16.

Asylum and human rights claimants will need to provide relevant information relating to being a victim of modern slavery or trafficking within a specified period and, if providing information outside that period, set out a statement of their reasons for doing so. The slavery and trafficking notice aims to help identify possible victims at the earliest opportunity, to ensure that they receive appropriate support. It also aims to ensure that those who are not genuine victims are identified at the earliest possible stage.

The clause is underpinned by access to legal advice to help individuals understand whether they are a potential victim of modern slavery or human trafficking, and to support a referral into the national referral mechanism if that is the case. The clause works in tandem with clause 47, which sets out the impact of not providing information in good time without a good reason, such as the effects of trauma. Individuals will also be made aware from the start that if they fail to disclose information, save for good reason, their credibility may be damaged. We will set out our approach in guidance, giving decision makers the tools to recognise the impact of exploitation and trauma, and ensuring any changes to processes resulting from those measures are designed to take full account of the impact of trauma on victims of modern slavery. We intend to work with the sector to develop the guidance around that. I hope that will give Members confidence that the views and experiences of those groups will be taken into account when developing the guidance.

[Neil Coyle]

Perhaps the Minister could name one of the expert organisations that support the inclusion of clause 46 or 47. As it stands, the vast majority of organisations in the sector oppose the inclusion of those measures. It is all very well the Minister saying he will impose a requirement on the sector to work with the Government on that guidance, but they are saying categorically that they do not want the clauses.

[Tom Pursglove]

I think the hon. Gentleman may have misunderstood my point. I was not saying there was any intention to impose a requirement on the sector to work with Government to develop the guidance, but undoubtedly we would welcome the input of the sector, which has a lot of experience and knowledge. We think there is a genuine issue that we need to address. The point I have made several times is that we want people to access the help they need when they need it as quickly as possible.

--- Later in debate ---

[Neil Coyle]

I have always wanted to be a dame—[Laughter.]

I thank Tom Farr of CEASE and Kat Banyard of UK Feminista for assisting in the drafting of the amendments and for their valuable work. Before I address each amendment in turn, I want to quickly highlight the concern that we have seen online in response to today’s discussions about some of the language that the Minister has used, specifically the issue of “genuine cases”. It is my understanding that nine out of 10 “reasonable and conclusive grounds” decisions were positive last year, and I gently urge the Minister to consider the impact of his words, especially when it comes to more people coming forward in the future. He said that he will listen to the sector. I hope that is a genuine offer, given that the sector does not feel that it was listened to. The consultation period was very brief and unexpected and has left the sector very unhappy.

Amendment 181 would help ensure that the credibility of victims of human trafficking for sexual exploitation would not be called into question by a late disclosure of being trafficked, which clause 47 would do. If a person discloses that they have been a victim of human trafficking for sexual services, the lateness of the claim should not matter.

As we are all aware, the treatment of trafficked women and children subjected to sexual exploitation is unimaginable. It is widely understood to severely impact on their ability to escape from the situation they find themselves in. For many, it impacts on their ability even to understand or admit what has happened to them, for reasons of denial and other issues that my hon. Friend the Member for Halifax raised in the debate on clause 46.

There is a bureaucracy behind the Government’s plans. Many individuals who have been sexually exploited are wholly unaware of the process of having to declare themselves as a victim of sexual exploitation. Many are likely to be suspicious of any involvement with the authorities. There may be a very good reason why a person feels that way, including that they have not been in control of their activities and are unaware that they have committed specific immigration offences or other criminal offences that they have been forced to engage in under duress, such as soliciting.

Clause 47, in practice, means that if trafficking status is disclosed at a late stage, that will have a devastating impact on credibility. That simply cannot be justified. As my hon. Friend argued, victims of trafficking for sexual exploitation must not be precluded from legal protections simply because they are too frightened or traumatised—we have previously discussed post-traumatic stress disorder—to disclose information as soon as they come to the attention of the authorities. To encourage disclosure can very often take time and sensitivity, something that the Home Office does not always currently allow for, and which the proposals in this Bill will affect to an even greater level. The amendment would make sure some of the most vulnerable people who have been trafficked continue to be protected under the law.

Amendment 187 supports amendment 181. It details how a person making a late disclosure of trafficking for sexual exploitation might better be identified by any relevant authority. A person may be considered a victim of trafficking for the purpose of sexual exploitation in a number of ways: first, if there is evidence they have been transported from one place to another for the purpose of sexual exploitation; secondly, if a person has signs of physical abuse, including but not limited to branding, bruising, scarring, burns or tattoos; thirdly, if a person has no access to their own earnings—for example, a person who does not have access to a bank account—fourthly, if a person has limited or no English language skills, could not cope on their own and has been managed previously; fifthly, if a person lives at the same address as anyone who meets any of these criteria; and finally, if they sleep in the same place they have been or were exploited.

Although authorities may have the best interests of an exploited individual at heart when investigating any trafficking-related crime, they may not even be aware of how to recognise such an individual, given the distinct and specific treatment that they have been subjected to. Putting these comprehensive but by no means exhaustive guiding factors into the Bill aims to ensure that authorities have a deeper understanding of the factors they should be aware of and how to identify and help victims.

It is important to note that it is often only when the authorities make wider arrests of criminal gangs that exploited individuals are discovered, usually in brothels or closely-controlled transient places of residence. In a situation of criminality, it may be difficult for authorities to discern who may ultimately be responsible for such criminality.

Acknowledging that exploitation often manifests in ways such as physical and mental trauma, as well as a total lack of autonomy over their own lives, will improve the current legal situation in two tangible ways. First, it may deter lengthy and expensive prosecutions of victims of exploitation, who may otherwise fall between the cracks and be prosecuted for an offence they committed under duress. Secondly, it will put into law current Crown Prosecution Service policy, which is to treat these individuals as victims as and where they are discovered. That is not happening now—we see the prosecution rate for sex crimes in this country at a historic and terrible low.

Amendment 187 would allow the UK to further build its status as the world leader it wants to be when it comes to a toolkit to combat human trafficking and sexual exploitation. These individuals must be viewed as victims of crime and not criminals requiring punishment.

Amendment 182 is an alternative probing amendment that would require the Secretary of State to issue guidance on the specific factors that may indicate that somebody is a victim of trafficking for the purposes of sexual exploitation. I hope the Minister will give an indication of whether that is the direction of travel for the Government.

The amendment would also provide greater clarity for the relevant authorities. As already said, it would prevent the prosecution of individuals who may have been compelled to commit offences while being sexually exploited, as well as providing a framework for authorities to refer to when trying to discern exactly the type of exploitation that has taken place. I hope that the aim behind these amendments will be welcomed by the Minister today, even if they are not accepted.

New clause 42 would put into law a specific offence of trafficking for the purposes of sexual exploitation. The clause makes it an offence to arrange or enable the travel of another person for the purpose of sexual exploitation, regardless of whether the person consented to travel. Arranging or enabling travel can be done in numerous ways: by recruiting a person, by moving or carrying a person, by holding or receiving a person, or by transferring or exchanging control of a person.

Trafficking for the purposes of sexual exploitation means planning to sexually exploit a person during or after travel to the UK, or knowing another person is planning to sexually exploit a person during or after travel to the United Kingdom. Travel means arriving in the UK or leaving any country outside of the UK if the destination is the United Kingdom. A UK national commits the offence regardless of where the facilitating, arranging or travelling takes place. A non-UK national commits the offence by facilitating, arranging or travelling into and out of the UK. Committing the offence carries up to life in imprisonment if tried in a Crown court and would be a welcome step forward.

New clause 42 is necessary because while the Modern Slavery Act 2015 covers exploitation more broadly, the issue of sexual exploitation, specifically within the commercial sex industry, now merits being recognised as a distinct offence due to the catastrophically high numbers of trafficking victims brought into the commercial sex industry in the UK, organised by serious organised crime outfits.

The link between trafficking and commercial sexual exploitation—industrial-level prostitution—is undeniable, and the problem is getting worse. During the covid pandemic there was a 280% increase in the advertising of sexual services online in the west midlands, with the women being predominantly of eastern European origin. A 2010 report suggested that at least 10,000 women involved in off-street prostitution were victims of trafficking or non-UK nationals who were highly vulnerable. These statistics are shocking. We are not seeing provisions in current legislation to match the scale of the problem in the country.

Introducing new clause 42 would ensure that authorities and the Government recognise these intrinsic links and would aid in all our efforts to combat the scourge that is human trafficking and broader violence against women and girls. The benefits of the clause would include, firstly, requiring authorities to dig deeper to examine whether human trafficking has taken place when investigating any prostitution-related offence. Second, it would protect victims of sexual exploitation who have been trafficked. If an individual is being investigated for a prostitution-related offence, it is wholly unacceptable that they should be prosecuted for acts committed under duress or threat of violence from exploitative traffickers.

Placing this specific offence in law would encourage authorities to think more carefully about whether individuals who may initially be viewed as criminals are, in fact, victims of trafficking for the purposes of sexual exploitation. It would further allow for the specific prosecution of those who traffic people for the purposes of sexual exploitation, and the full scale of what is going on would perhaps become clearer. Amendments 181, 187 and 182 and new clause 42 would ameliorate and offer some specific protection to women trafficked into the UK for sexual exploitation. I hope the Government will look favourably on these probing proposals.

[Tom Pursglove]

I thank the hon. Members for setting out, through the hon. Member for Bermondsey and Old Southwark, their case and for putting forward their amendments. I appreciate their consideration of these clauses and their concern for a vulnerable group of individuals. They have raised important issues around identifying victims who have faced the most heinous crimes.

Ensuring that clause 47 enables decision makers to take account of individuals’ vulnerabilities is fundamental to our approach. That is why we have included the condition of good reasons, and ensured that decision makers have the flexibility and discretion to appropriately consider those without prejudging what that should cover. What constitutes good reasons has purposefully not been defined in the Bill: the detail on how to apply good reasons will be set out in guidance for decision makers, as we have already discussed. That will give decision makers the tools to, for instance, recognise the effect that traumatic events may have on individuals’ ability to accurately recall, share or recognise such events, while maintaining a case-by-case approach. Doing so in guidance will also ensure that we have the flexibility to update and add to the range of considerations undertaken by a decision maker in exercising discretion.

To create a carve-out for one group of individuals, as amendments 181 and 187 seek to do, would undermine this approach and create a two-tiered system based on the type of exploitation faced. I am sure this is not the intention of the hon. Member for Bermondsey and Old Southwark, but amendment 181 could also incentivise individuals to put forward falsified referrals regarding the specific forms of exploitation, or delay removal action. We believe that the right approach is to provide more detail on the varied and complicated reasons that may constitute good reasons in guidance, where these can be explored in more detail and where we can be more flexible as our understanding of exploitation develops.

[Neil Coyle]

The Minister has said that the intention is to address some of the issues and concerns raised by organisations and by the hon. Member for Cumbernauld, Kilsyth and Kirkintilloch East in the guidance. Can I request that the Minister meets those organisations and the hon. Member before Report, to make sure that any guidance plans take those concerns fully into account their concerns?

--- Later in debate ---

[Tom Pursglove]

I have made this point several times now, but it is certainly worth repeating: there is a real willingness and desire to engage thoroughly in relation to the development of the guidance. I would of course be very happy to consider any meeting requests that come in the usual way, but I assure the hon. Member for Bermondsey and Old Southwark that there is a firm commitment here, which I have made several times. As I have said, the hon. Member is a canny parliamentarian, and will take every possible opportunity to hold Ministers to account on that commitment to engage constructively with the shaping of the guidance.

[Neil Coyle]

There is a real test here, because the Minister is saying that he wants to listen to the sector. The sector is saying that it does not feel particularly listened to up to this point. It is a simple request to meet before Report, and the Minister has not quite said yes.

[Tom Pursglove]

What I would say to the hon. Member is that if he makes contact with my office in the usual way, with information about who he would like me to meet alongside him, I will absolutely consider that appropriately.

Decision makers’ considerations will include the indicators highlighted in the amendment, but they will also consider a wider range of potential reasons and indicators to avoid focusing specifically on one victim cohort. This approach will allow decision makers to consider each case on its merits while considering all the information relevant to that case without prejudice. To do otherwise would not be appropriate or fair to all victims.

Amendment 182 seeks to insert a specific reference to human trafficking for sexual services into clause 48. We are agreed that this provision must enable decision makers to identify the most vulnerable victims, including victims of trafficking for sexual services. However, to set out a particular purpose of trafficking on the face of the Bill would fragment the types of exploitation victims have faced.

Exploitation for the purpose of human trafficking is defined under section 3 of the Modern Slavery Act 2015, and that definition includes sexual exploitation. This is supported by the modern slavery statutory guidance in section 49 of the Act, which sets out considerations that may indicate that a person is a victim of human trafficking for sexual services. The existing guidance provides detail on indicators of specific types of modern slavery, including indicators that apply specifically to victims who have suffered from sexual exploitation. I am certain that hon. Members agree that there should be no grading of exploitation, and it is correct that exploitation for any one purpose should be considered with the same severity as exploitation for other purposes. We believe that to set out one particular purpose for exploitation on the face of the Bill would create fragmentation. Our guidance already provides detail on indicators of several types of modern slavery.

I will now turn to new clause 42. As I have already stated, I agree with hon. Members that the abhorrent crime of trafficking in individuals for the purposes of sexual exploitation should be treated with the utmost seriousness. That is why section 2 of the Modern Slavery Act 2015 already accounts for human trafficking offences, and makes specific reference to sexual exploitation in section 3. In fact, the Modern Slavery Act allows for a wider provision of the offence. Section 2 makes human trafficking an offence in any part of the world, which includes trafficking to the UK but also trafficking within the UK, which the amendment does not.

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[Neil Coyle]

I think the sector has a concern that the proposal in this legislation undermines the Modern Slavery Act and measures to encourage and support victims who have come forward. I hope that the Minister will hold that meeting before Report, but I beg to ask leave to withdraw the amendment.

Amendment, by leave, withdrawn.

Question proposed, That the clause stand part of the Bill.

[Tom Pursglove]

Clause 47 sets out the consequence if an individual who has been served with a slavery or trafficking information notice as discussed under clause 46 provides information relating to being a victim of modern slavery after the specified time period. The clause aims to ensure that possible victims are identified as early as possible to receive appropriate support and to reduce potential misuse of the national referral mechanism system from referrals intended to delay removal action. Under clause 47, the decision maker must decide whether information provided through the one-stop process is outside the specified time limit and therefore is late. This consideration will take into account whether there was a good reason for the late information, such as the impact of trauma, but where there are no good reasons, an individual’s credibility is damaged due to the provision of late information.

Nationality and Borders Bill (Ninth sitting)

Debate between Neil Coyle and Tom Pursglove

Committee stage
Tuesday 26th October 2021 Public Bill Committees

[Neil Coyle (Bermondsey and Old Southwark) (Lab)]

Will the Minister indicate where in international law there is a requirement on an individual to make such a claim in the first safe country they reach? Or is the UK seeking to impose its domestic law on the international community?

[Tom Pursglove]

It is fair to say that the Committee had an extensive debate about this issue last week in relation to earlier clauses. I would refer the hon. Member to the comments read out in the Committee from a previous Bill Committee under the last Labour Government, where the principles we are talking about here were very firmly established and endorsed. They have underpinned the approach that has been taken on these matters under successive Governments in this country, and we continue to believe that they are applicable.

I wholeheartedly agree with the importance of the UK continuing to meet its obligations under the refugee convention, including through the rights that we provide to refugees in the UK. I understand the spirit of amendment 56 in defining a safe third state in a way that ensures that an individual removed to that country is provided with adequate protection and their individual rights as a recognised refugee under the refugee convention. However, the definition of a safe third state as set out in clause 14 already ensures that the principles of the refugee convention should be met if we are to remove an individual to that country.

[Tom Pursglove]

As we have repeatedly made very clear during the passage of the clauses we have already debated, our obligations are being properly upheld through the provisions of this Bill. We believe that the Bill is fully compliant, and I maintain that that remains the case. The approach is not new; it has been part of our previous legislation on safe countries. We will only ever return inadmissible claimants to countries that are safe, so I do not agree that the amendment is necessary.

[Neil Coyle]

Defining what is safe is very important. It is not adequately set out in the Bill. Does the Minister believe that Afghanistan is a safe country?

[Tom Pursglove]

I refer the hon. Member to our earlier exchanges during the passage of the clauses we debated previously. In relation to Afghanistan, as that situation has evolved, the approach that we have taken has also evolved, and quite rightly so. No one is being returned to Afghanistan at the moment. That fully reflects the in-country situation in Afghanistan, of which we are incredibly mindful, as the hon. Member and people of this country would quite rightly expect.

[Neil Coyle]

The Home Office has published updated guidance that suggests that it is open to question as to whether there continues to be a situation of international or internal armed conflict in Afghanistan, and that should indiscriminate violence be taking place, it is only in some areas and to a far lesser extent following the Taliban takeover. Therefore, the Home Office is saying that Afghanistan is becoming safer because the Taliban are now in control. Does the Minister accept that position?

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[Tom Pursglove]

It is of course the case that situations in countries change. That is why the approach we take is flexible and means that we keep under constant review the circumstances in individual countries. We then make judgments on the approach that we take in response.

[Neil Coyle]

The Government’s resettlement scheme for citizens of Afghanistan is not even open and they are paving the way for Afghanistan to be redetermined as a safe country. Based on the previous example, if an Afghan asylum seeker ever gets to come through the scheme in this country and then goes back to visit Pakistan to see relatives—probably in one of the refugee camps there—they may be deemed to be okay to go back to Afghanistan.

[Tom Pursglove]

I can only the refer the hon. Gentleman to the point that I have now made several times about Afghanistan.

[Neil Coyle]

Have you got a more convincing argument?

[Tom Pursglove]

The hon. Gentleman says from a sedentary position that it is not a convincing argument. The bottom line is that we are not removing people to Afghanistan based on the current circumstances. I think that is the right approach.

The ability to return an individual declared inadmissible to any safe country, and not just the safe third country they have a connection to, has formed a part of our inadmissibility process since the changes to our immigration rules in December 2020. In seeking to remove that ability, amendment 19 would remove a provision that Parliament has already been provided an opportunity to scrutinise.

[Tom Pursglove]

Again, we have had extensive debates in Committee about the approach that the Government are seeking to take on these matters. We have to stop these dangerous, unacceptable crossings of the channel. We believe that the deterrent effect is very important.

Amendments 18 and 22 to 25, taken together, seek to narrow the meaning of whether we consider an individual to have a connection to a safe third country, and therefore whether it is appropriate to consider them inadmissible. If individuals have travelled via or have connections to safe countries where it is reasonable to expect them to have claimed asylum, they should do so, rather than making dangerous and unnecessary onward journeys to the UK.

We already have in place a well-established process, should it become clear that an individual cannot be returned to a safe country or if after a reasonable period no return agreement has been possible. Where that is the case, the individual’s asylum claim will be considered in the UK. The Bill provisions will not change that. Therefore, I do not agree that amendments 20 and 21 are required.

Agreements by a safe third country to accept an asylum seeker may not always be via a reciprocal arrangement. I believe it is right to also seek returns on a case-by-case basis where appropriate.

[Neil Coyle]

Will the Minister set out how many reciprocal arrangements we have at the moment? Will there be more detail in the Bill documents about what those arrangements might be?

[Tom Pursglove]

As I have said, there are case-by-case agreements that are reached in relation to returns. The Government are ambitious about the approach we want to take through the Bill. We want to try and forge fresh returns agreements with countries. The hon. Gentleman will note that this year we reached a returns agreement with Albania. That is a positive and welcome development. I will not give a running commentary on the negotiations we might be having with countries to forge returns agreements, and he would not expect me to do that.

[Tom Pursglove]

It is fair to say that my right hon. Friend was a proactive Immigration Minister. That was a significant achievement during his tenure.

[Neil Coyle]

While we are celebrating this one reciprocal arrangement that can be used, and having trashed the Dublin Accord and all that it provided, can I just remind the Minister that Albania provided, in the last full year we have stats, the second highest number of successful asylum claims to the UK? The Albanian Foreign Minister has described the Government’s approach to negotiations on offshoring with Albania as “fake news”.

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[Tom Pursglove]

The point that I would make is that we need to establish a clear principle that people should come to this country through safe and legal routes. We would argue that the best and most effective contribution that we can make as part of the global effort is to establish those safe and legal routes—there are many past and current examples. We think that is the right approach; we cannot in any way support or endorse people making dangerous and unacceptable crossings.

As a result, we strongly believe that the approach that we are taking in the Bill is right and builds on our proud traditions in this country of providing sanctuary to those who require it. That gets to the heart of the hon. Gentleman’s question. It is not about this country refusing to participate in the global effort, but about establishing clear expectations around how we intend to do that. We will continue to build on the proud traditions that we have in this country.

[Neil Coyle]

I am finding the Minister’s answers increasingly disappointing. Could he come back to the specific legal question from my hon. Friend the Member for Enfield, Southgate about article 33 of the refugee convention and the principle of non-refoulement?

[Tom Pursglove]

Again, I refer back to the point that has been raised, which is that we will not return individuals to countries where they would be unsafe as a consequence. Of course we would look at cases on an individual basis and at the concerns that have been raised. If there are concerns, it is important that they are properly taken into account. I am confident that the approach we are taking addresses that issue.

We know, however, that it may not always be appropriate to apply inadmissibility to all claimants. For example, we will not apply those procedures to unaccompanied asylum-seeking children. The introduction of the clauses on inadmissibility aims to strengthen our position on inadmissibility, further disincentivise people from making those dangerous journeys, and encourage them to claim asylum in the first safe country they reach. Those who fear persecution should claim asylum in the first safe country they reach. Parliament has already had an opportunity to scrutinise the measures when they were placed in the immigration rules in December 2020.

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[Tom Pursglove]

Thank you for that clarification, Sir Roger. I thank hon. Members for raising these important issues. I will start by addressing amendments 36 and 37.

We all recognise that young or particularly vulnerable claimants, sufferers of trauma such as sexual violence or ill treatment on account of their sexual orientation or gender identity, and survivors of modern slavery or trafficking need to be treated with care, dignity and sensitivity. It is important that they are able to fully participate in the asylum process so that, in the case of a genuine applicant, their claim for protection can be recognised and their status settled at the earliest opportunity. That is in the best interests of the claimant and the overall functioning of the asylum system.

At the same time, we recognise that it may be harder for some people to engage in the process. That may be because of their past experiences, a lack of trust in the authorities, or because of the sensitive and personal nature of their claim. That is why clauses 16, 17 and 23 provide for good reasons why evidence might be provided late. What constitutes “good reasons” has not been defined in the Bill, as that would limit the discretion and flexibility of decision makers to take factors into account on a case-by-case basis. It would be impractical to legislate for every case type where someone may have good reasons for not previously disclosing evidence in relation to their protection claim.

Good reasons may include objective factors such as practical difficulties in obtaining evidence. That may be where the evidence was not previously available or there was a lack of availability for an expert report. Good reasons may also include subjective factors, such as a claimant’s particular vulnerabilities relating to their age, sexual orientation, gender identity or mental health. Decision makers, including the judiciary, will be better placed to identify and assess those factors on an individual and case-by-case basis.

Rather than facilitate engagement in the process, amendments 36 and 37 would exclude claimants from it. They would artificially limit the circumstances in which the evidence notice would apply, favouring certain groups above others, who may have genuinely good reasons for providing late evidence. The amendment could create a perverse outcome, whereby it takes longer for the particulars of a genuine claim to be surfaced and to receive favourable consideration. Furthermore, this would create a situation in which unscrupulous claimants could cynically abuse the process by falsely claiming to be within one of those categories. That would tie the hands of decision makers, who are able to look at the facts of a case in detail and make an appropriate decision based on the facts before them. That would perpetuate the issues that the clauses are designed to address, to the detriment of genuine claimants.

[Neil Coyle]

I did point out earlier that 23% of these applications come from children. Is the Minister suggesting that they are making bogus claims and are cynical? Those are the words he is using. I urge him to distinguish more carefully between children and adults, and would make the case again that children should be exempt, specifically because of their age.

[Tom Pursglove]

I will develop my remarks a little further. I will come back to some of the points raised in the debate, but to start with I want to get through the rationale behind our thinking on the various amendments before the Committee.

Amendment 37 also fails to fully understand the remit of clause 16. The evidence notice applies solely to evidence in support of protection and human rights claims. The new slavery and trafficking information notice, covered in clause 46, will require a person to provide any information relevant to their status as a victim of modern slavery or trafficking.

On amendment 153, the Government take their responsibility towards those seeking international protection seriously. We recognise that particularly vulnerable claimants and survivors of modern slavery need to be treated with care, dignity and sensitivity. Individuals may be particularly vulnerable as a result of their age, their health, the experiences they have lived through or a range of other factors. It is because these factors can be so wide ranging that I am resisting this amendment.

Clause 16 and the new evidence notice will require those who make a protection or human rights claim to provide evidence in support of their claim before the date specified in the evidence notice. This clause works in parallel with clauses 17 and 23. Where evidence is provided late, claimants will be required to provide reasons for that. Where there are no good reasons for the late provision of evidence, this should result in damage to the claimant’s credibility, and decision makers must have regard to the principle that little weight should be given to that evidence.

By introducing a statutory requirement to provide evidence before a specified date, clause 16 will contribute to the swift resolution of protection and human rights claims, enabling decision makers to consider all the evidence up front and, where appropriate, grant leave. However, we recognise that it may be harder for some people to engage in the process. That may be as a result of trauma they have experienced, a lack of trust in the authorities, or because of the sensitive and personal nature of their claim. That is why clause 16, together with clauses 17 and 23, allows for good reasons why evidence might be provided late. As I say, what constitutes good reasons has not been defined in the Bill. It would be impractical to legislate for every case type where someone may have good reasons for not previously disclosing evidence in relation to their protection claim.

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[Tom Pursglove]

Of course, the situation will be set out clearly in guidance. We think that is the better approach, because it allows greater flexibility on the sorts of factors that might be relevant to the disclosure of late information, and obviously on matters that are relevant to individuals circumstances.

We tend to think that taking a less prescriptive approach than what the hon. Member is suggesting is the best way to address that, because we want to focus on individual cases and on ensuring proper consideration on a case-by-case basis, which is very difficult to capture in the circumstances being suggested here or by adopting the approach necessary to achieve that. That is why clause 16, together with clauses 17 and 23, allows for good reasons why evidence might be provided late.

As per the amendments directly commented on, rather than facilitate engagement in the process, amendment 153 would exclude claimants from it. This would have the perverse impact of some vulnerable claimants facing different evidential requirements simply because their particular vulnerability was not included in the list of exceptions. In addition, the amendment could create a situation where individuals who do not fall into one of the categories identified by the amendment were able to abuse the process by falsely claiming that they did. This would perpetuate the issues these clauses are designed to address to the detriment of genuine claimants, undermining their usefulness.

I am mindful that a number of detailed points were raised during the debate that I want to come to. The issue of deviation from the Home Office’s existing policy was raised by the hon. Member for Sheffield Central. I would not accept that depiction. I would say that the Home Office will have discretion over who is served an evidence notice and the extent to which credibility is damaged by late evidence. Where there are good reasons for late evidence, credibility will not be damaged. There is nothing automatic about this. Credibility is also not by itself determinative.

Building on that point, there are various safeguards in the clauses that mitigate a decision that could lead to removal in breach of the rights afforded by the conventions. First, claimants who raise matters late will have the opportunity to provide reasons for that lateness—and where those reasons are good, credibility will not be damaged. Decision makers will have the discretion to determine the extent to which credibility should be damaged, and that determination need not by itself be determinative of a claim, as I have already said.

The point was raised, understandably and quite rightly, about how we intend to deal with potential victims of trauma. Of course, how decision makers reach decisions is important in all this, and they should treat claims from vulnerable people in accordance with the guidance that we will set out. Extensive training will of course be put in place alongside that. Decision makers are already accustomed to ensuring that complex factors relating to trauma are properly considered.

[Neil Coyle]

How will this training operate in practice, given the points already made about how long it can take for PTSD symptoms and impact to emerge? No training on the planet can force those symptoms to emerge sooner, unless the Home Office is developing a particularly pernicious system.

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[Tom Pursglove]

Amendment 39 would render clause 17 inoperable. Clause 17 introduces two new behaviours into section 8 of the Asylum and Immigration (Treatment of Claimants, etc.) Act 2004. That section provides that a decision maker shall take account, as damaging the claimant’s credibility, of the behaviour to which the section applies. Without the consequent amendment to section 8, which amendment 39 seeks to remove, there is no penalty for late evidence or not acting in good faith, which would make such a measure inappropriate for primary legislation and would also render it pointless.

Clause 17 is not prescriptive as to how decision makers, within both the Home Office and the judiciary, determine credibility or the claim itself. It has always been the case that decision makers must consider egregious conduct by the claimant. It is then open to the Home Office or the courts to decide the extent to which credibility should subsequently be damaged. Amendment 39 simply seeks to do away with that well established principle.

Let me build on the point about the judiciary and the point that was raised by the hon. Member for Cumbernauld, Kilsyth and Kirkintilloch East. He asked, “Aren’t judges best placed to determine the credibility that evidence should have? Why be prescriptive?” The point that I will make in response is that clause 17 is not prescriptive as to how judges determine credibility or the claim itself. It adds two new behaviours to the existing section 8 of the 2004 Act. That section provides that a decision maker shall take account, as damaging the claimant’s credibility, of the behaviour to which the section applies. I think it is important to clarify this. It should be noted that clause 17 applies to all decision makers. That includes Home Office staff who make the initial decision on protection and human rights claims. Clause 17 adds new behaviours to the existing behaviours that should already be taken into account as damaging to credibility under section 8 of the 2004 Act. The concept that certain conduct should be damaging to credibility is nothing new. It has always been the case that decision makers must consider egregious conduct by the claimant. It is then open to the Home Office or the courts to decide the extent to which credibility should subsequently be damaged.

Clause 17 will also not be determinative of a claim. Decision makers will still be required to consider the claimant’s credibility in the round, as they would currently as part of their decision-making processes.

[Neil Coyle]

Clause 17 further compounds the damage potentially arising from clause 16. When answering the question about a child rights impact assessment, the Minister seemed to talk about an equality impact assessment. I wonder again whether a child rights impact assessment, as developed by his colleagues in the Department for Education for schools, would benefit the Government, to prevent them from imposing conditions that fall foul of other Government legislation—

Nationality and Borders Bill (Tenth sitting)

Debate between Neil Coyle and Tom Pursglove

Committee stage
Tuesday 26th October 2021 Public Bill Committees

[Neil Coyle (Bermondsey and Old Southwark) (Lab)]

This comes back to the point that we were discussing this morning about PTSD. The Minister seems to be saying that if PTSD were on the list and someone could not prove that they had it that would advantage those who could prove that the condition had been diagnosed while disadvantaging those who had not had a diagnosis. However, they would not get a diagnosis within the timeframe specified in the legislation. Perhaps a means to address that anomaly is the Government providing their own list of good reasons that could be used to distinguish between cases—on a case-by-case basis—based on how long someone has been in the process and whether they are undergoing assessment for PTSD. That could be a way to resolve that predicament. As it stands, the Minister seems to be saying that he cannot accept the amendment because it would advantage those whom the Government’s plans disadvantage.

[Tom Pursglove]

Our intention is to publish guidance to help operationalise the measures in the Bill that will set this out in more detail. We would expect, as I have said in relation to several amendments and clauses, that caseworkers will consider those factors properly when reaching judgments about individual cases.

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[Tom Pursglove]

We think that the appropriate place to be clear about these matters is in the guidance, rather than the Bill. As I say, I would expect decision makers to take into account all the relevant factors at play in an individual case when making decisions relating to it. Rather as we have discussed in relation to other clauses and amendments, there is flexibility in certain circumstances, where good reasons can be shown as to why evidence would not be produced sooner. We recognise that people may be in difficult circumstances and that issues arise in their lives. We want the system to be responsive to that and to take proper account of it, which is why we are proposing to proceed as we are doing.

To return to the point that I was making on amendment 139, it would perpetuate the issues that the clauses are designed to address to the detriment of genuine claimants, undermining their usefulness. Amendment 139 would also introduce a requirement to publish guidance on good reasons within 30 days of the Bill receiving Royal Assent. That is an arbitrary deadline and it is not necessary to include it on the face of the Bill. As I have indicated, good reasons will be set out in published guidance for decision makers and will be made available when the measures come into force.

[Neil Coyle]

Will the Minister give way?

[Tom Pursglove]

Very briefly.

[Neil Coyle]

It is a brief intervention. I am reminded of what the right hon. Member for Scarborough and Whitby said about being cautioned by the police. Will the good reasons clauses cover children specifically? We need to know, given that they represent almost a quarter of asylum claims, and given the issue of age and maturity.

Moreover, what evidence would a gay man trying to escape Iran or another oppressive have to provide in order to prove his circumstances? What would the threshold be, given how hard it has been to provide proof in multiple cases under the existing system?

[Tom Pursglove]

I can confirm that it will refer to children. To conclude my remarks, I respectfully invite the hon. Member for Sheffield Central to withdraw the amendment.

On clause 20, the unnecessary provision of late evidence, statements and information delays justice for those with genuine claims, and wastes valuable resources. Clause 20 will work in parallel with clauses 18 and 19 to support the new priority removal notice. Its focus is on encouraging persons liable to removal or deportation to provide at the earliest opportunity any information or evidence in support of their protection or human rights claim, or, for potential victims of modern slavery, in relation to a decision by the competent authority. Where information or evidence is provided on or after the cut-off date, as set out in the priority removal notice and without good reason, it is right that that should be taken into account as damaging to the person’s credibility. I hope that the Committee will agree to the clause standing part of the Bill.

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[Paul Blomfield]

Similarly, I want to ask a couple of questions of the Minister on why the opportunity has not been taken to go beyond the provisions in the clause, because there is a real problem with access to legal aid. Research by Refugee Action has shown that, since the changes introduced in 2012, it has been much more difficult to secure legal aid. There is also a vast difference in provision across the country, with provision concentrated in metropolitan areas such as London and Birmingham, and not in dispersal areas, where it is particularly difficult to access legal aid. Refugee Action’s report recommended that the Government should commit to ensuring that everybody in the asylum system who is eligible for legal aid representation has access to it. What are the Government proposing in respect of that?

If the clause is about ensuring that issues are resolved at the appropriate stage, why are the Government not extending legal aid to all stages of the process? If cases are successfully resolved at an earlier stage, surely it is to everybody’s benefit.

[Tom Pursglove]

I will try to respond to the various points that have been raised as best as I am able. I will, of course, happily feed through the views that have been expressed to Ministry of Justice colleagues who have direct responsibility for legal aid within their portfolio.

On the initial point about the seven hours, it is worth saying that the power we are proposing will allow the Lord Chancellor to amend the number of hours of advice available under the clause. The Lord Chancellor will have to lay affirmative legislation to ensure that Members of this House and the other place have full sight of the proposed changes. That power is necessary because the priority removal notice is a new process and, as with all new operational processes, it will take time to bed in. We must be able to change the number of hours to ensure that the purpose of the clause works how we intend in practice. Providing individuals with access to free legal advice ahead of their potential removal from the UK is clearly important. That is why we are making that commitment in the Bill.

I was asked what this extension of legal aid will cost. The estimates are in the region of £4 million to £6 million, so it is a significant increase to meet the need resulting from the new measures we are introducing. If, at the end of the seven hours, more advice is needed—and there are circumstances which dictate that—there is legal advice available for asylum claims and appeals.

[Neil Coyle]

Is that £4 million to £6 million just for the civil legal services under clause 22 for people under priority removal notices?

[Tom Pursglove]

Yes. That provision is made precisely for those in receipt of a PRN. I was making a point about the extension. It is worth making the point that, if people find that they require further advice at the end of the seven hours, any individual needing more legal advice on an immigration matter can apply for in-scope legal aid, such as for asylum advice or through the exceptional case funding scheme, subject to passing the relevant means and merits tests. I will make sure that colleagues in the Ministry of Justice are aware of the points raised today on legal aid more generally within the immigration and asylum system.

There was a question about access to justice in dispersal areas. The hon. Member for Bermondsey and Old Southwark asked where information about legal aid provision is provided. My understanding is that it is published online, so it is readily accessible to people. As hon. Members would expect on the issue of dispersal areas, the MOJ monitors the market capacity and works with the Home Office to ensure supply in dispersal areas. If the hon. Member for Sheffield Central wants to write to me with specific concerns on that matter in his community, I would be glad to look at those and make sure that they are considered by Ministers appropriately.

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[Tom Pursglove]

I will come back to that point and try to give the hon. Gentleman some further clarity, which I hope will be helpful. I will make the point again that, in the current circumstances that we find ourselves in regarding Afghanistan, people are not being removed there.

Of course, all the relevant information is taken into consideration when reaching decisions on individual cases. For example, if there is an assessment that a particular country is safe but for a particular individual there are grounds whereby it is not safe for them in their circumstances, that is reflected in the decisions that are taken.

To finish the point about amendment 44, it would create a system where those with a fear of the Taliban were treated differently from all other asylum seekers, no matter the risks they faced or the vulnerabilities of the individuals involved, simply on the basis of where they were from. That is discriminatory and cannot be right.

On the point about how decision makers can be told that they must apply minimal weight to evidence, clause 23 does not create a requirement for Home Office decision makers or the judiciary to give late evidence, following the receipt of an evidence notice or a priority removal notice, minimal weight. In protection and human rights claims, decision makers must have regard to the principle that minimal weight will be given to any late evidence, but they can consider the principle and determine that it should not be applied in a particular case.

[Neil Coyle]

rose—

[Tom Pursglove]

I have made that point previously and I have reiterated it now for the record. I will give way to the hon. Gentleman, but I have made the point pretty clear.

[Neil Coyle]

The Minister suggests there is clarity where no clarity exists. If the clause is not to reduce the weight that the evidence is given, what exactly is it there for? Is he suggesting that he will withdraw it?

[Tom Pursglove]

No, that is not for a moment what I am suggesting. The point that I am making is that, as I have alluded to on many occasions in relation to the clauses that we have considered, we want decision makers to have the appropriate discretion within the framework that we are establishing through the Bill. We think that is the right approach to reach the right decisions in individual cases, taking into account all the relevant circumstances and all the relevant information that is provided. We think that is the right way to proceed. More detail will of course be set out in the guidance.

The hon. Gentleman earlier alluded to very difficult circumstances that a particular individual has found challenging to talk about and disclose. I repeat that caseworkers are trained to be sympathetic to circumstances. The burden of proof, as he described it, will be set out in the guidance that follows. Again, I want to see proper discretion and proper consideration of cases on a case-by-case basis. That is the right and proper way to address such matters.

All individuals should be treated with respect by having proper consideration given to their case. As I said, the detail will be established in the guidance. There will also be training for decision makers, but there is already training for decision makers to ensure that they are sympathetic to the sorts of issues that the hon. Gentleman has raised.

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[Neil Coyle]

With the best will in the world, no amount of training will change the fact that, even if someone has come out in the UK, the Bill makes it harder for gay men in particular from certain countries. What do they need to provide to prove that they would face homophobic persecution if they went back? What do they need to show or do? I want a practical example of how it will work in practice. I cannot believe that one even exists at the moment.

[Tom Pursglove]

I am sure the hon. Gentleman will understand why it is difficult to set out in the Bill all the circumstances that would capture all the situations that individuals face in relation to such matters. It is just not possible to do that, which is why we are saying that we will establish that in the guidance that will be published if and when the Bill becomes law, as I hope it will. The guidance will set out the circumstances and the way that cases will be considered. Again, that discretion, flexibility and consideration will be shown to individual cases.

[Neil Coyle]

rose—

[Tom Pursglove]

I am conscious that we are going over this ground repeatedly, but I will give the hon. Gentleman the opportunity to intervene again.

[Neil Coyle]

Is the Minister saying that the guidance will set out what a gay man needs to provide in order to prove that they will face persecution? I think and hope that is what he is saying, and I hope that he will say why the Home Office has not published the review it has already undertaken of the existing process and when it will be published.

[Tom Pursglove]

I am not familiar with the review to which he refers, but the hon. Gentleman will appreciate that I have been in this role only for the past four weeks. However, I will go away and look into that.

I can only repeat the point that we will set out in guidance the relevant factors that will be taken into consideration when cases are determined. I would expect there to be sympathetic consideration of people’s individual circumstances. I have also made that point at the Dispatch Box when we have talked about the operationalisation of the policy. Of course, it is right that that information is established in full. With that, I encourage the hon. Member for Cumbernauld, Kilsyth and Kirkintilloch East to withdraw his amendment.

--- Later in debate ---

[Tom Pursglove]

If I may, I will set out the detail that underpins schedule 3 in the course of my remarks.

Clause 26 is designed to be part of a whole-system deterrent effect to prevent illegal migration. Access to the UK’s asylum system should be based on need, and not driven by the actions of criminal enterprise. Under current policy, it is too easy for removals of individuals with no right to remain in the UK to be delayed as a result of speculative and, in some cases, unfounded article 3 human rights claims.

Consequently, schedule 3 will also introduce a presumption that specified countries are safe, because of their compliance with obligations under article 3 of the European convention of human rights.

[Neil Coyle]

Earlier today, the Minister mentioned that Albania, from where we accept many asylum cases, could be considered a safe country. Can he tell us about other safe countries? Gibraltar, which was touted by the Government, has said categorically that it will not be a safe country for these purposes. Ghana and Rwanda have ruled themselves out, despite being touted by the Government. Morocco and Moldova have appeared in the press as potential examples, but the FCDO has said:

“No north African country, Morocco included, has a fully functioning asylum system”.

The Foreign Office stated that Moldova has “endemic” corruption, and that

“If an asylum centre depended on reliable, transparent, credible cooperation from the host country justice system we would not be able to rely on this”

in Moldova. Can the Minister tell us which safe country he is talking about?

[Tom Pursglove]

One thing I will say is that the measures are not about opening camps on overseas territories. I will not get into a running commentary about the negotiations or discussions that may or may not be taking place with individual countries.

Claimants will be required to present strong evidence to overturn this presumption to prevent removal. That will support the aim of swiftly removing individuals who have no basis to remain in the UK by preventing unnecessary delays where speculative article 3 claims are made prior to removal to safe countries. Adding to the existing removal power, schedule 3 will also provide the Secretary of State with a power to add countries to the safe list. That will ensure that the list of safe countries remains accurate.

Schedule 3 also ensures that rights of appeal are not afforded either to asylum seekers on the basis of removal to safe countries, or to clearly unfounded human rights claims, thus preventing unnecessary appeals for unsubstantiated claims.

--- Later in debate ---

[Neil Coyle]

The Minister says that he does not want to get into a running dialogue—that is fine—but can we have just a rough idea of how many countries are currently in bilateral negotiations with the Home Office? That may be useful. I think it is only right and proper that the Committee has an idea of the costs involved, because they will vary massively depending on the country—or indeed the continent, given some of the ludicrous examples that have been touted by people as high up as the Home Secretary. How many countries are in those negotiations, and how much can the public expect to pay for this particular part of this ridiculous Bill?

[Tom Pursglove]

The hon. Gentleman is a crafty parliamentarian who will, I have no doubt, try to elicit that information from me, but I am afraid that he will be unsuccessful in that endeavour, however hard he tries. The bottom line is that I am not going to get into a running commentary in this Committee about discussions that may or may not be taking place with countries around the world in relation to this policy.

--- Later in debate ---

[Tom Pursglove]

I would argue that I have already set out those safeguards.

The Government are clear that we must consider all options to break the business model of people smugglers and prevent people from putting their lives at risk by making perilous journeys from safe countries. Changes in schedule 3 are a key component of the wholescale system reform that we are committed to undertaking to prevent irregular migration. For those reasons, I ask hon. Members not to press amendment 159.

On schedule 3, the Government have been clear that the fastest route to safety is to claim asylum in the first safe country reached. We must dissuade all those considering making dangerous journeys to the UK to claim asylum. We are working closely with international partners to fix our broken asylum system and are discussing how we could work together in the future.

[Neil Coyle]

Will the Minister give way?

[Tom Pursglove]

I have been generous to the hon. Gentleman, but I will give way one more time.

[Neil Coyle]

I thank the Minister—he is being generous. On the first safe country, the Government might have more standing and the public more confidence in them had they not abandoned their obligations. Pakistan, for example, is seeing a cut of £62 million in aid from the UK to help manage the refugee crisis spilling over the border from the Taliban. Turkey is seeing a cut of £16 million in aid from the UK, Lebanon is seeing a cut of £71.5 million and Syria is seeing a drop of £105 million. If the Government were serious about people being able to stay nearer to their home country, those cuts, which certainly were not in their manifesto at the last election, would not be happening.

[Tom Pursglove]

In recent years, UK aid in crisis circumstances has made a significant difference in relation to properly caring for and ensuring—

[Neil Coyle]

If so, why cut it?

[Tom Pursglove]

Let me finish the point. We have regularly made additional aid available in crisis circumstances to help relieve particular pressures that have arisen, and UK aid has been essential as part of the global effort. I have been proud of the crisis measures we have put in place in relation to those circumstances as they have arisen. No doubt we will continue to have a commitment to that going forward.

[Neil Coyle]

Will the Minister give way on that point?

--- Later in debate ---

[Tom Pursglove]

Schedule 3 is designed to be part of a whole system deterrent effect to prevent illegal migration. Access to the UK’s asylum system should be based on need, and not driven by the actions of criminal enterprise. Under current policy, it is too easy for removals of individuals with no right to remain in the UK to be delayed as a result of speculative, and in some cases unfounded, article 3 human rights claims. Consequently, schedule 3 will also introduce a presumption that specified countries are safe, due to them being compliant with their obligations under article 3 of the ECHR. Claimants will be required to present strong evidence to overturn that presumption to prevent removal. This will support the aim to swiftly remove individuals who have no basis to remain in the UK by preventing unnecessary delays where speculative article 3 claims are made prior to removal to safe countries.

Schedule 3 will also provide the Secretary of State with a power to add countries to the safe list—that is in addition to the already held removal power. This will ensure that the list of safe countries remains accurate. The schedule also ensures that rights of appeal are not afforded to asylum seekers on the basis of removal to safe countries nor to clearly unfounded human rights claims, thus preventing unnecessary appeals for unsubstantiated claims.

We are committed to upholding our international obligations, including under the 1951 refugee convention. That will not change. While people are endangering lives making perilous journeys, we must fix the system to prevent abuse of the asylum system and the criminality associated with it. Our aim is that the suite of measures contained within this Bill, including those within schedule 3, will disincentivise people from making dangerous journeys across Europe to the UK and encourage people to claim asylum in the first safe country they reach.

I thank the hon. Member for Cumbernauld, Kilsyth and Kirkintilloch East for proposing new clause 18, which introduces new schedule 2. I agree wholeheartedly with the importance of ensuring the safety of those who are removed from the UK to third countries. However, we cannot support the proposals, which seek to limit our ability to remove individuals to a safe country. This Government have made our position clear throughout today’s debate: people should claim asylum in the first safe country that they reach. That is the fastest route to safety. I would like the Committee to consider each of the conditions in new schedule 2 in turn.

[Neil Coyle]

This comes back to the first safe country. The Minister makes the point that we both agree on—we are proud of the UK’s contribution to humanitarian support and of military interventions that prevented refugees from being created in the past. The Conservative manifesto said that the Army would not be cut and aid would not cut, but voters have been betrayed by the Government’s actions since. They have reneged on those manifesto promises. And asylum seekers have been betrayed by those same cuts. The Bill does nothing but compound that betrayal.

[Tom Pursglove]

On 3 September, we announced £30 million of life-saving aid to Afghanistan’s neighbouring countries to help those who choose to leave Afghanistan. That is part of the Government’s efforts to support regional stability. The hon. Gentleman spoke earlier about resources being made available to help in-region. Yet again, this country has demonstrated that commitment to try to help provide stability as far as possible, and to help to ensure that as much support as possible can be provided in the vicinity of where crises arise. I think that—

[Neil Coyle]

Will the Minister give way?

[Tom Pursglove]

I will not take another intervention from the hon. Gentleman on that point.

[Neil Coyle]

Frit.

[Tom Pursglove]

I have been very generous to the hon. Gentleman. I think that aside was a little bit unfair on his part, given the number of interventions that I have taken. I know that it was not meant in an unpleasant spirit, so I will move on.

I invite the Committee to consider each of the conditions in new schedule 2. Regarding the form of a transfer arrangement, we are currently in discussions with our international partners to consider the shared challenge of irregular migration. I do not wish to pre-empt the form or content of future arrangements as that could tie the hands of our negotiators, but I can assure the Committee that the Government will act in accordance with our international obligations, considering both the content and form of any arrangement reached. Furthermore, that condition would have the perhaps unintended consequence of preventing the removal of individuals in ad hoc cases, which has been a long-standing process within our asylum system to which I have alluded in response to earlier questions.

--- Later in debate ---

[Tom Pursglove]

I will briefly pick up on a few points that have been raised during the debate on clause 26. The Government argue that the suite of measures are intended to have a deterrent effect. The measures under the clause are just one part of system-wide reforms that make clear our position that individuals must claim asylum in the first safe country they reach. I recognise that there are fundamental differences of opinion in the Committee about some matters, but we argue that that is the fastest route to safety.

I want to clarify the situation. Although we are, of course, working with our international partners to meet our joint challenges, I assure Committee members that we are not working with Denmark to open an offshore detention centre. It is important to be clear on that point.

[Neil Coyle]

Will the Minister give way on that issue?

[Tom Pursglove]

I will give way, although I gave quite a bit of clarity in what I just said.

[Neil Coyle]

The Minister has given some clarity by saying that the Government are not working with Denmark, but, as he has already said today, he cannot tell us which countries the Government are working with. We know that Albania, Ghana, Rwanda and Gibraltar have all said, “No, thanks”, and that, frankly, we look like we have fewer friends than North Korea on this issue. However, the Minister cannot tell us which countries the Government are negotiating with or how much the measures will cost. When we are supposed to be going through a very costly and controversial set of plans in line- by-line scrutiny, I think that is a dereliction of duty.

Nationality and Borders Bill (Seventh sitting)

Debate between Neil Coyle and Tom Pursglove

Committee stage
Thursday 21st October 2021 Public Bill Committees

[Neil Coyle]

The Minister is seeking to reintroduce a system that the UK has used before. In the 1930s, German Jews who had reached these shores were, in some cases, sent back if they had been through other countries. Famously, in one case, Jewish brothers who were deported back to Belgium went on to be murdered by the Nazis. Why are the Government seeking to turn back the clock with such potentially disastrous consequences? Why is the Minister not more proud of the British tradition and of the British contribution to creating the refugee convention?

[Tom Pursglove]

I thank the hon. Member for that intervention. What I am proud of is this country’s long-standing tradition of doing right by those fleeing persecution from around the world. That is a proud tradition in this country, and something that I think Members on both sides of this House can agree on. It is something that this Government remain absolutely committed to. We are very clear that people should come here utilising safe and legal routes. That is the right way to come into this country.

[Neil Coyle]

rose—

[Tom Pursglove]

Let me just make this point, because I am conscious of the comparisons that the hon. Member sought to draw to the 1930s. We are, again, very clear—I say this for the record—that we do not return people to countries where they would be in danger.

[Neil Coyle]

The Minister simply must give way on this.

[Tom Pursglove]

I have not accepted the intervention. I would like to finish the point that I was making. We are very clear that we do not return people to countries where their return would put them in danger. Of course, we also look at cases on a case-by-case basis.

[Neil Coyle]

Will the Minister give way?

[Tom Pursglove]

I will give way, but I have made this point, and I am very clear about it.

[Neil Coyle]

The Minister can say it as clearly as he wants. The reality is that I have constituents whose casework—correspondence from the Home Office—tells me that it was safe for them to be sent back to Afghanistan in June, when the Taliban were marching across Afghanistan and beginning to take over the country! There is a big difference between the nonsense and rhetoric we get and the reality—the dangers and risk that this Government are putting people in.

[Tom Pursglove]

In response to the specifics that the hon. Member is raising on Afghanistan, I would make the point that returns to Afghanistan have been ceased, given the current circumstances, given the circumstances there at the moment. That takes into full account the considerations around the circumstances on the ground at any given point in time, and the Government have rightly been responsive to that ever-changing situation. I am not able to comment on the detail of the individual cases that the hon. Member is referencing, but I would ask him to please write to me with that detail so that I can take that away and look at it.

[Neil Coyle]

I think Members will be somewhat sceptical of the invitation to write, given that we were writing about hundreds of cases in Afghanistan in emails that were not even opened by the Foreign Office, the Home Office or the Ministry of Defence. I will write. I will take that opportunity. I still have hundreds of cases, including four Brits who are still in Afghanistan because they were abandoned by this Government. The Minister says he is proud of our tradition and proud that we offer safe and legal routes, but where in this Bill do we extend the ability to access safe and legal routes that avoid the need to use human traffickers and people smugglers?

[Tom Pursglove]

I thank the hon. Gentleman for that further contribution. I look forward to receiving the correspondence from him—it was a genuine offer made in the right spirit and I look forward to him taking it up.

As I say, this Government have a strong track record of providing safe and legal routes. This country has a proud record of providing safe and legal routes. It does not escape me that overall since 2015 we have settled more than any EU member state. That is something this country can be incredibly proud of. Various examples of safe and legal routes that people may avail themselves of include the UK resettlement scheme, the mandate resettlement scheme and the community sponsorship scheme. I am keen for communities to participate in that sponsorship scheme.

[Neil Coyle]

Will the Minister give way?

[Tom Pursglove]

I have been generous, but I will give way once more.

[Neil Coyle]

I welcome the Minister’s generosity and I am grateful for it, as I am sure Afghans will be if he can tell us when the Afghan citizens resettlement scheme will actually open, given that it has been two months since Kabul fell.

[Tom Pursglove]

The hon. Gentleman will appreciate some of the genuine difficulties for people in trying to leave Afghanistan—[Interruption]—and doing so in the safest way possible—[Interruption.] He keeps interrupting from a sedentary position. Will he let me finish the point that I am trying to make?

The bottom line is that we are firmly committed to that resettlement scheme. We will announce details of it as quickly as possible, having taken proper account of the very real difficulties that exist in getting people safely, as far as that is possible, out of Afghanistan. Ministers and officials are working tirelessly to work that up in an appropriate manner.

--- Later in debate ---

[Tom Pursglove]

In terms of the deceit and the appalling treatment of so many people, I have heard heartbreaking stories of the way that individuals have been treated by these evil people smugglers. That has only redoubled my determination to render their business model redundant.

This point goes to the heart of the intervention a moment ago from the hon. Member for Sheffield Central: the measures in the Bill do not just stand alone—it is not just about these measures. Tackling the problem requires a strong and co-ordinated response that also involves our international partners. For example, the collaboration through the arrangement we have with the French is very important contextually in tackling this issue. Clearly, supporting French law enforcement to try and stop some of the crossings happening in the first place is crucial, and the evidence is clear that that support is having a positive effect in achieving that goal.

Our international diplomacy is also important, because we want to send out a clear message that human rights must be respected and upheld across the world. The measures in the Bill, as important as they are, are not the only element in responding to these huge challenges. That international collaboration is very important as well, as is our diplomatic work.

[Neil Coyle]

I thank the Minister for giving way; he has been very generous. It is extraordinary to hear a Minister trash their own department’s equality impact assessment and point out its inadequacies.

[Tom Pursglove]

indicated dissent.

[Neil Coyle]

That is exactly what the Minister did. However, my question is around family reunion visas, which he mentioned. The number of family reunion visas granted in the UK fell by nearly 10% in the last year for which numbers were available. Will he agree to a review of the system to look at some of the issues around entitlements for those other than dependants or spouses?

[Tom Pursglove]

I will take that away to look at it. I refer the hon. Gentleman to my previous point in trying to address the matter of family reunion. I am conscious that in his earlier remarks he raised the particular case of an Afghan family. I will also go away and speak about that to the Minister for Afghan Resettlement, who is the Minister responsible for Operation Warm Welcome and our refugee policy in relation to Afghanistan. I undertake to take that point away and ensure that my hon. Friend is aware of it. It is very important and I will do that. It is crucial that that happens. I ask that the hon. Gentleman leave that with me, and that will happen later today.

To finish on this point, the powers under clause 10 enable the Secretary of State to differentiate in respect of family reunion. It is important to recognise that the power is flexible and will not be used where a refusal of family reunion would breach our international obligations. The policy will be set out, again, in guidance and in rules, but I thought it was important to get that point on the record. Suffice it to say that of course this Government will always act in accordance with our international obligations and the law.

With all that in mind, I ask the hon. Member for Cumbernauld, Kilsyth and Kirkintilloch East to withdraw the amendment.

--- Later in debate ---

[Tom Pursglove]

Amendment 15 is very specifically about Afghanistan. I would not wish to invoke your wrath, Ms McDonagh, by going wider than that, so I must keep my remarks to Afghanistan. The point that I have made stands, and I reiterate that cases are considered on a case-by-case basis, as the hon. Lady would rightly expect.

[Neil Coyle]

The Minister has been very generous in giving way. I am particularly concerned about this. He is suggesting that a safe route is available, when the Government guidance currently says not to make applications for family reunion for Afghanistan cases. Perhaps he can explore that issue in more detail with his hon. Friend the Member for Louth and Horncastle (Victoria Atkins), who is the Minister for Afghan Resettlement, and get back to us—certainly before Report.

[Tom Pursglove]

I am very happy to reflect the sentiment in my conversations with my ministerial colleague. As I was about to say before I took the intervention from the shadow spokesperson, I urge SNP Members to withdraw their amendment.

Nationality and Borders Bill (Eighth sitting)

Debate between Neil Coyle and Tom Pursglove

Committee stage
Thursday 21st October 2021 Public Bill Committees

[Tom Pursglove]

First, I will deal with the two amendments that we have debated. Amendment 87 seeks to make implementation of the differentiated asylum system contingent on issuing a report on its impact on local authorities and devolved Administrations. The report must also be passed by both Houses. Clearly, immigration is a reserved matter, so it is for Westminster to set policy in that regard. Local authorities and devolved Administrations have not only taken part in the public consultation, where they have shared substantive views, but have been included in targeted, ongoing engagement with the Home Office to discuss issues and implementation. I am afraid I do not see what further value such a report could offer, other than to delay the implementation of this important policy.

Amendment 161 seeks to ensure that nothing in the Bill or this particular section authorises any treatment or action that is inconsistent with the UK’s obligations under the refugee convention. This amendment is unnecessary because we are already under an obligation to meet our international obligations and, as I have continually set out, intend to do so in the Bill. Furthermore, section 2 of the Asylum and Immigration Appeals Act 1993 prevents us, in implementing this policy, from doing anything in the immigration rules that is contrary to the refugee convention. If we were to include such a provision in the Bill, the effect may be to suggest that in any other legislation where it is not included, the intention is not to comply with such obligations. I am certain hon. Members will agree that is neither desirable nor intended.

[Neil Coyle]

The Minister has rather blithely dismissed our concern about the potential illegality of the measure. What is it that the Minister knows that UNHCR, Amnesty International, British Red Cross, UN Refugee Agency, Salvation Army, Refugee Council, Children’s Society, Law Society, RAMP or the Refugee, Asylum and Migration Policy project, We Belong, Families Together Coalition, Refugee Law Initiative, British Overseas Territories Citizenship Campaign, Human Trafficking Foundation, Reprieve, Women for Refugee Women, British Association of Social Workers, Trades Union Congress, Mermaids, Stand with Hong Kong, One Strong Voice, Rights Lab, Public Law Project, Greater Manchester Immigration Aid Unit, Migrant Voice, Every Child Protected Against Trafficking or ECPAT UK, Justice and Peace, Project for the Registration of Children as British Citizens, Statewatch, Say it Loud Club, Logistics UK, Kaldor Centre for International Refugee Law, European Network on Statelessness, National Justice Project, Asylum Seekers Advocacy Group, Helen Bamber Foundation, Modern Slavery Policy Unit, Centre for Social Justice, and Justice do not? They all say it is unlawful—what do they not know? Why does the Minister think they are all wrong?

[Tom Pursglove]

I thank the hon. Gentleman for intervening again. I will come on to his point substantively when I speak to clause stand part. Meanwhile, I invite the Opposition Members to withdraw the amendments.

I do not intend to give a long stand part speech, because we have had a wide-ranging and substantive debate on the clause. It is fair to say that many views have been expressed. I do not remotely doubt their sincerity, but I hope that that acknowledgement of sincerity is extended to all Members, regardless of their views on the matter. When Members come to this House, at the forefront of their minds is wanting to do what they believe to be right. Members on the Government side have equally strongly and sincerely held views on the matters that we are debating, and we believe that the approach we are advocating is the right one.

--- Later in debate ---

[Tom Pursglove]

There have been references during the debate to detention. As I set out in an intervention previously, the accommodation centres are not detention. It is very important to establish that again. I want to make the point clear: anyone in one of those accommodation centres is able to leave at any time. It is important to re-establish that.

[Neil Coyle]

On the point about transparency and accountability in the centres and all accommodation used by the Home Office, will the Minister tell us whether the Bishop of Durham and other members of RAMP will be able to visit the centres? Perhaps the Minister will encourage them to be more open to visits by parliamentarians. Perhaps he will visit some of the accommodation used in Southwark, where people were told they should be moving and were not provided with interpreters, which has caused problems for them and for the wider community. Furthermore, covid outbreaks at hotel and hostel accommodation have put those people and the wider community at risk and placed the NHS under greater stress.

[Tom Pursglove]

The hon. Gentleman will appreciate that I have not been in post for long—for just over a month—and the accommodation element of the Government’s work on immigration does not fall directly within my brief. However, I want to visit Napier, to see the situation myself and to understand the nature of the accommodation, and my officials are in the process of organising that. I might have done it sooner had we not had the Bill Committee proceedings over the next few weeks. I assure hon. Gentleman that that is something I very much want and intend to do, and I will certainly do it.

On the bishop visiting, I am not aware of any restrictions that would prevent that from happening. I hate to do this to the hon. Gentleman again, but if he furnishes me with the details of issues that have arisen, I will gladly ensure that that is looked at. As far as I can see, there is no good reason why those sorts of external visits cannot take place, but I would appreciate a little more detail.

[Tom Pursglove]

As I have said repeatedly now, my understanding is that people are under no obligation to remain within the accommodation facilities if they do not wish to do so. Of course, one of the reasons why people may be in an accommodation centre is that they are destitute. In such circumstances, we want to ensure that appropriate accommodation is in place for them to be accommodated and properly cared for in the centres. That is the intention behind the policy.

It is worth saying something about future oversight of accommodation centres, which has been alluded to. We will establish advisory groups for each centre. The group will visit the site, hear complaints and report any findings to the Secretary of State. I value the input that the advisory groups will have. It is important that we are responsive to the issues that arise and that where improvements can be made, they are made.

[Neil Coyle]

On the point about section 33 of the 2002 Act—the advisory groups—will the Minister tell us why such groups have not been established at other existing centres? It is all very well to make a promise about the future, but that section has not been used for existing examples.

[Tom Pursglove]

There has been a very clear undertaking in Committee to establish those advisory groups, which is welcome. The hon. Gentleman will be aware that various transparency and accountability measures are in place for accommodation within our immigration system more broadly. That is right and proper but, again, where that can be enhanced and where we can bring greater transparency and improvement, we should do that. That is why I welcome the Government’s commitment with regard to oversight over the accommodation centres to ensure that there is regular engagement and that a clear channel is established through which to raise and take account of any issues.

[Neil Coyle]

Who, specifically, will be responsible for bringing forward the advisory group for each centre? Where do the responsibility and duty lie?

[Tom Pursglove]

We are getting into very granular detail, as we would expect. I will need to take further advice on that specific point, which I will make clear to the Committee. However, our commitment to establish those advisory groups stands; those groups will play an important role in the oversight of the accommodation that we propose to bring about through the measures in the Bill. I give way to the hon. Gentleman again.

--- Later in debate ---

[Neil Coyle]

The Minister may regret that. He is asking us to accept on good will that the advisory groups will exist in the future, but he cannot tell us who will set them up, who will be on them, or why they have not been used in the past, despite being in the 2002 Act.

[Tom Pursglove]

The hon. Gentleman will be pleased to know that the people who organise my diary have confirmed that I am set to visit Napier in the not-too-distant future. I have been able to be responsive to that point pretty quickly. I will make some progress on his other point, and I hope to be able to visit it very shortly to provide him with the clarification he requires before concluding my remarks. That is my undertaking to him: I will, for the Committee’s benefit, establish the mechanism that will enact our commitment.

Contrary to what amendment 17 seems to imply, it is not the Government’s intention to maximise the number of supported asylum seekers accommodated in flats and houses in the community. I understand that SNP Members take a different view on the matter, so I appreciate that that will come as a disappointment to them. However, it may be more suitable to house certain cohorts of asylum seekers in accommodation centres, and that is why we are setting them up. Where, for example, their protection claims are likely to be found inadmissible and they can quickly be removed to the appropriate third country, it is likely to be much more efficient to place them in an accommodation centre so that the practical arrangements for facilitating their departure, such as dealing with the necessary travel documentation, can take place at the site. That efficiency benefits the individuals as well as the overall asylum system.

One point that has been overlooked during the debate is that the Government’s whole intention around the policy we are seeking to establish is to deal with cases in a much quicker, speedier and—I would argue—more humane way. I think being able to give people certainty sooner is a good thing, and I would like to think that, whatever the outcome of individual cases, spending less time in any form of temporary accommodation can only be a good thing. It is important to recognise that the whole intention of the policy we are trying to develop is to get on with adjudicating on cases sooner.

--- Later in debate ---

[Tom Pursglove]

I will certainly take away the hon. Lady’s suggestion and feed that through to the Under-Secretary of State for the Home Department, my hon. Friend the Member for Torbay (Kevin Foster), who shares responsibility for immigration with me at the Home Office.

[Neil Coyle]

rose—

[Tom Pursglove]

He wants to come in again.

[Neil Coyle]

At what point is a centre of accommodation such as Napier deemed an accommodation centre by the Home Office in order to get an advisory group set up? How long will Napier be used before it is acknowledged that it is an accommodation centre?

[Tom Pursglove]

I dispute that interpretation of the situation at Napier, because Napier does not have the same wrap-around services that we envisage for accommodation centres. For example, the accommodation centres that we will seek to deliver will have significant caseworking functions built within them. That is a marked difference to Napier. Again, I am visiting Napier in a few weeks’ time and I will be interested to hear from the people there and to talk to the officials managing the accommodation to listen to their experiences. As I have said, and I think this is an important point, there is always a need to reflect on the appropriateness of the provisions in place and on whether governance and oversight arrangements remain adequate. That is something that we keep under constant review. I note with interest the suggestions that have been alluded to, and I will happily feed them back more broadly at the Home Office.

I want to make some progress, because I am conscious that time is marching on. The numbers of asylum seekers in different types of accommodation—if that is of interest to parliamentarians—can be obtained through existing channels, such as correspondence or parliamentary questions, so an annual report setting this information out is unnecessary. Amendment 98 is also unnecessary because there are no plans to place those with children in accommodation centres, and all other cases will only be placed in a centre following an individual assessment that the centre is suitable for them and that they will be safe.

Whether or not groups with the characteristics listed in the amendment are suitable to be supported at a particular accommodation centre will depend on a number of factors. These include their personal circumstances and vulnerabilities, and the facilities available at the particular site or in the particular area. It is not sensible to rule out large cohorts of cases from ever being placed in an accommodated centre in any circumstance, especially if their asylum case is more likely to be resolved quickly in a centre, which of course is in their best interests. I re-emphasise that our intention remains to get to a place where cases are processed quicker than they are at the moment, and that is something that we all should welcome.

--- Later in debate ---

[Tom Pursglove]

I think it is absolutely essential that there is an open dialogue with local authorities about any measures that are proposed in their areas, and that those local views are properly taken into consideration and reflected in the decisions that are reached. That is a commitment that we make, and is already a feature of the current system.

[Neil Coyle]

On that point, the hon. Member for Glasgow North East says she is a little cynical. I am afraid that I am a lot cynical. In Southwark’s example, the local authority was given absolutely no notice of a total of—I think—more than 700 asylum seekers being placed in hotel and hostel accommodation. That was just in my constituency. There were others in other parts of Southwark. When I asked the Home Office what resources were being allocated to local authorities to ensure that they could manage such a significant number, it replied that it had provided some small resource to the clinical commissioning group.

[Tom Pursglove]

I take on board the point that the hon. Gentleman raises. However, as a general principle, I think it is right and proper—as I think all Members of this House would expect—for local authorities to be properly consulted.

Nationality and Borders Bill (Fifth sitting)

Debate between Neil Coyle and Tom Pursglove

Committee stage
Tuesday 19th October 2021 Public Bill Committees

[The Parliamentary Under-Secretary of State for the Home Department (Tom Pursglove)]

I start by thanking Opposition colleagues for their warm welcome to me in my new role. It is welcome that, in the early provisions of the Bill, there is broad agreement across the Committee about the need to correct the injustices and to put things right.

I thank the hon. Members for Enfield, Southgate, for Halifax, for Cumbernauld, Kilsyth and Kirkintilloch East and for Glasgow North East for tabling amendments 29 and 84. They both refer to clause 1, which I am pleased to introduce because it corrects a long-standing anomaly in British nationality law. I appreciate hon. Members’ attention to detail in seeking to make sure that the new provision is clear and in line with the parallel provision in the British Nationality Act 1981 for the children of British citizen mothers. However, I do not think an amendment is needed, as the proposed wording here achieves what is intended. In saying that this provision applies to someone who would have been a citizen had their parents been treated equally, we are talking about a situation where the law applied equally to mothers or fathers, women or men.

The term “parents” is consistent with the wording used in section 23 of the 1981 Act, which determined which citizens of the United Kingdom and colonies became British dependent territories citizens on commencement. One of the three conditions that a person needs to meet to qualify for registration under this clause is that they would have become a British dependent territories citizen under section 23(1)(b) or (c) of that Act. That section refers to a person’s “parent”.

I wish to point out that we will further clarify the points that have been made in the underpinning guidance. I trust that will afford greater comfort because it is clear that the Bill is technical, so plain language will be used in the guidance itself to achieve what members of the Committee seek to achieve.

[Neil Coyle]

I, too, congratulate the Minister on his new role. If the Minister is saying that this may require further explanation in the guidance, will he agree to review it in more depth before the Bill reaches the Lords if organisations are able to present examples of case studies where the current wording may not meet the Government’s intent?

[Tom Pursglove]

I will of course be delighted to receive any such examples. I genuinely think that, as with so many cases of immigration law, the underpinning guidance plays an important role in making it clear, in plain English that people can understand, precisely what various aspects of the law entail. I am satisfied with the current wording of the clause.

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[Tom Pursglove]

I am grateful to the hon. Members for Cumbernauld, Kilsyth and Kirkintilloch East and for Glasgow North East for tabling amendments 8 to 12 and new clause 16, which provides the Committee with the opportunity to consider fees charged in respect of applications for British citizenship and British overseas territories citizenship.

Before I address the specific points in the proposed new measures, I want to provide some background information. Application fees for immigration and nationality applications have been charged for a number of years under powers set out under clause 68 of the Immigration Act 2014, and they play a vital role in our country’s ability to run a sustainable system, reducing the burden on taxpayers. Sitting beneath the 2014 Act are fees orders and fees regulations, which are scrutinised by both Houses before they come into effect; that is an important point. That ensures that there are checks and balances within the system and maintains the coherence of the fees framework. If we were to remove those fees during the passage of the Bill, as the hon. Member for Bermondsey and Old Southwark suggests, it would undermine the existing legal framework without proper consideration of the sustainability and fairness to the UK taxpayer.

[Neil Coyle]

Will the Minister give way?

[Tom Pursglove]

I will, although I know that you wanted us to make good progress, Sir Roger.

[Neil Coyle]

I want to comment on the point about the burden on taxpayers. First, there is a very significant profit margin—86% profit for some of the processes of the Home Office—so there is no burden there. Secondly, it is quite offensive language to those that are living, working and paying tax here to say that they are a burden, even though they are already contributing economically through national insurance and tax contributions. I find the language unhealthy.

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[Tom Pursglove]

The hon. Member is always on point in asking pertinent questions. I reiterate the point that the Home Office tends not to charge fees in instances where unfairness or injustice have occurred, and it remains our intention to continue to adopt that approach in relation to the provisions that we are enacting through the Bill. I hope that gives him the reassurance he is seeking.

[Neil Coyle]

I thank the Minister for giving way. Yesterday we saw Parliament at its finest, and I genuinely think that he is a decent man, but what he is saying today is not what was indicated previously and it does not address what the Court of Appeal has required the Home Office to do. If he is saying that there will be secondary legislation at some point, when is it coming, because we have an opportunity here to address the issue? The Court of Appeal found that the Home Office had failed to assess the best interests of children in setting the fee. To fail to do so again in this legislation will have only one outcome, which is the Government being back in court.

Also, I forgot to mention the case that I was speaking about earlier, so for reference it is R (The Project for the Registration of Children as British Citizens) v. the Secretary of State for the Home Department.

[Tom Pursglove]

I thank the hon. Member for that further intervention. Let me just set out the position on the point about child citizenship fees that he raises. I understand the concerns expressed about child citizenship fees. However, this is currently subject to legal challenge in the Supreme Court and the position will be reviewed after the judgments have been received.

[Neil Coyle]

So when the Government said in February that the issue was being reviewed, was it not being reviewed then? It is extraordinary that many months down the line the Minister is telling us that there will be a review only if they lose the case in the Supreme Court, which will incur further costs of millions of pounds for the taxpayer simply to go through the legal process.

[Tom Pursglove]

The hon. Member would be surprised if we did not want to review the situation and take into account fully the judgment of the Supreme Court in due course. I think that it is entirely proper that we take a view on this and that the situation should be reviewed in the light of any judicial ruling handed down. This exchange has been very useful, as it has allowed me to address many of the points that I would have picked up at the end of my remarks.

I turn now to subsection (1) of new clause 16, the aim of which is to limit the Secretary of State’s power to charge a fee for applying for British citizenship and British overseas territories citizenship to the cost to the Secretary of State of processing the application. As I have already outlined, imposing such a requirement would cut across the funding and coherence of the whole system and is not a matter for the Bill.

Subsection (2) would prevent the Secretary of State from charging a fee to register as a British citizen or British overseas territories citizen if the child is being looked after by a local authority. It is important to remember that any child, irrespective of nationality, who is looked after by their local authority can apply for both limited and indefinite leave to remain without being required to pay application fees.

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[Tom Pursglove]

I am conscious that I want to get through my remarks on this. I will write to the hon. Member on that point.

[Neil Coyle]

The Minister is being very generous in giving way. Perhaps he will be able to tell us how many applications for a fee waiver were denied by the Home Office in each of the last few years, or perhaps he could furnish us with that detail in another way. My understanding is that it is about 90%.

[Tom Pursglove]

Again, I do not have the figure to hand, but I will happily take that away and see if I can provide him with a written answer on that point. Information about becoming a British citizen is made available in published guidance on gov.uk and we are committed to ensuring information of this nature is fully accessible for all. I am conscious that we have had quite an extensive debate around fees in general, but I hope what I have said around the provisions in the Bill and the Government’s intentions for handling fees in relation to the nationality measures we are seeking to enact gives comfort to the Committee, and that the hon. Members will feel able to withdraw their amendments.

Nationality and Borders Bill (Sixth sitting)

Debate between Neil Coyle and Tom Pursglove

Committee stage
Tuesday 19th October 2021 Public Bill Committees

[Tom Pursglove]

I am grateful to the hon. Gentleman for the point that he raises. Broadly speaking, there is a view that the discretionary approach to cases is helpful in ensuring that we can reach the right decision in individual cases and that we are able to take into full account, in general terms, all the relevant factors.

[Neil Coyle (Bermondsey and Old Southwark) (Lab)]

Is it the Minister’s intention that the Government will publish the grounds on which decisions are made with discretionary purposes for each decision, regardless of whether they are successful or not?

[Tom Pursglove]

I will come back to the point that the hon. Gentleman raises but, as I say, there is a view that taking a discretionary approach to cases is helpful in reaching the correct decisions, and that the circumstances of individual cases are properly taken into account. There is precedent in the British Nationality Act 1981 for applications to be considered on a discretionary basis—for example, naturalisation is a discretionary provision. The law states that the Home Secretary may naturalise a person if she thinks fit and that person meets the statutory requirements. Members will be aware that the Home Office publishes caseworker guidance, which sets out the sorts of circumstances where discretion would normally be exercised, and that is relevant to the point that the hon. Gentleman raises.

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[Neil Coyle]

It is in part, but publishing the full grounds will help to determine whether people seek to take a case or not.

My further question is about the equality impact assessment. As I touched on this morning, the Government are suggesting that they will extend access to legal aid through the Bill. Is the Government’s intention that legal aid will be extended for this specific purpose, regardless of whether people can make a successful claim or not?

[Tom Pursglove]

Again, I am grateful to the hon. Gentleman for his question. The key point is that through the Bill, we are improving access to justice. Clearly, the improved access to justice offer is very relevant to the one-stop shop proposals that we are taking forward in the Bill and which we will no doubt debate in greater detail when we reach later clauses.

[Neil Coyle]

Is that a yes or no?

[Tom Pursglove]

We will no doubt debate this in great detail in due course. As I say, we are putting in place an improved access to justice offer more generally through the Bill.

[Tom Pursglove]

I want to pick up the points that have been raised by the hon. Members for Bermondsey and for Old Southwark and for Cumbernauld, Kilsyth and Kirkintilloch East. Clearly, the guidance is a very important element of the immigration system, so that people can understand very clearly what is required and precisely how cases will be handled. I am always in favour of trying to make such matters more transparent and to improve guidance wherever we can, and that is always ongoing work. I take on board the point that has been raised, and I will certainly reflect on it.

As I say, Members will be aware that the Home Office publishes caseworker guidance, which sets out the sorts of circumstances where discretion would normally be exercised. This works, and we intend that published guidance will also be available for the new adult registration route. The fact that the Home Secretary is not obliged to naturalise a person does not therefore impact practically on most applicants. However, we want to maintain the ability to refuse applications from people who might meet the requirements, but are nevertheless unsuitable to become British citizens.

Where registration is set out in legislation as an entitlement, it needs to be more tightly set out so that there is no doubt as to who does and does not benefit. Because of the historical nature of citizenship and the fact that issues can crop up that we might not have been aware of, we need the flexibility to be able to consider someone’s circumstances without being overly prescriptive. Equally, we recognise that people can be affected by a number of circumstances, which may be difficult to set out in detail. We are not making this a discretionary provision in order to refuse deserving people, but to allow us to respond to situations that cannot reasonably be foreseen.

I understand that hon. Members may wish to seek assurance that people who have missed out in the past will be granted citizenship, but we think that this can be achieved through a discretionary route, which will allow us to take into account all the circumstances of a case. That is why we are introducing the various provisions in the Bill in the first place: to right those historical wrongs. We want this to work.

On amendment 30, again, I thank the hon. Members for tabling the amendment. The new adult discretionary registration provision will allow the Home Secretary to grant British citizenship to anyone who would have been, or would have been able to become, a British citizen, but for historical legislative unfairness, an act or omission of a public authority, or the exceptional circumstances in play. I understand hon. Members’ concerns that that power should be used fairly and consistently, which is right.

Each case will be considered on its own merits, taking into account the particular circumstances of that person, including the reasons they were unable to become a British citizen automatically, through registration or through naturalisation. On that basis it would be unnecessary to have a legislative clause that effectively causes us to treat like cases in a similar way, because applications will be decided in line with the legislation and guidance.

I have already mentioned that we intend to publish caseworker guidance setting out when we expect that this power might be used and the sort of circumstances we will take into account. Of course, that is done very transparently and can be seen by hon. Members and by people out there seeking access to those routes. As I think is my colleagues’ intended purpose in proposing the amendment, that will help to maintain consistency in decision making.

However, I am not convinced that that would be helped by a statutory requirement to produce or amend guidance every time a person with different circumstances is registered. There may be concerns about reflecting an individual’s circumstances in published guidance, even if anonymised. We will reflect the overarching principles in guidance and amend as appropriate. Guidance will continue to be published on the gov.UK website. I can also assure hon. Members that work is done within UK Visas and Immigration to ensure consistency of decision making, particularly when a new route is introduced, and I think that that is right and proper.

I do not think we can commit in statute to publicise any grants of citizenship to people in a similar position. As I have said, we will publish guidance setting out the approach we will take and make it available to potential applicants, but it would not be right to impose a statutory requirement to do so. Indeed, some of those registered will be in unique positions and it would not be possible to identify others who might qualify on the same basis.

The reporting obligation set out in the amendment would require the Home Secretary each year to report any historical legislative unfairness that had been identified in registering a person under clause 7 and say how she intends to correct it. Perhaps it would help to clarify that the thinking behind clause 7 is that it can be used to rectify individual situations that may have been created by historical unfairness, rather than having to create specific provisions to cover each scenario.

[Neil Coyle]

I thought the Minister was one of those who believed in Parliament taking back control, not the Executive having more control, but let me have one more attempt at the legal aid question. This is not just about the circumstances of the individuals involved—we have heard some distressing cases today—but about the costs imposed in particular on councils, which are using emergency services to support people who might otherwise qualify for support. If legal aid were immediately available for everyone affected, those cases could be resolved much more quickly. Given the complexity the Bill is imposing, it seems as if it should be an actual requirement that that support be available. Let me try again: will legal aid be extended to everyone facing these circumstances as a result of this legislation?

[Tom Pursglove]

I am grateful to the hon. Gentleman for his question and I will visit that in my later remarks, if I may. He is right to say that I think it is right that Parliament took back control. That is a debate we have had on many occasions and no doubt will continue to have in the years ahead. I am a member of the Government, but I still believe very strongly in parliamentary sovereignty and the role of Parliament in decision making.

To clarify, the thinking behind clause 7 is that it can be used to rectify individual situations that may have been created by historical unfairness, rather than having to create specific provisions to cover each scenario, some of which may affect only a very small number of individuals. This is in fact the way we intend to address those situations, and it may not necessarily be appropriate to introduce additional measures to do so. As such, I do not see that specifying such a report in legislation would be helpful. In terms of addressing unfairness, this provision does not give a far-reaching power—it is much narrower than the discretion the Home Secretary has to register a child under section 3(1) of the British Nationality Act 1981. It does, however, reflect our desire to address historical injustices, as is reflected in all of the first eight clauses. I therefore ask hon. Members not to press amendment 30.

I am grateful to hon. Members for tabling amendment 14, which replicates amendment 13 for British overseas territories citizenship. I set out in response to the earlier amendment why we wanted this to be a discretionary provision, rather than creating an obligation to register. The same arguments apply here. Turning to amendment 31, I have set out why we could not accept an earlier amendment, and the same arguments apply here. I hope that hon. Members will not press amendment 31 either. On amendment 34, new clause 12 seeks to create a discretionary adult registration route for a person to become a British overseas citizen.

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[Neil Coyle]

If I heard the Minister correctly, he is suggesting that someone should pursue their rights through the Equality and Human Rights Commission, but that process would take years and could cost millions if the Government were opposing what that individual was seeking. Is it not incumbent on the Government, under the Equality Act 2010, to get things right up front? Would that not save a lot of time and money, and prevent a lot of desperate situations from emerging?

[Tom Pursglove]

The point that I would make is that we keep evolving circumstances and individual cases under review. It is right that we consider cases individually and properly take account of their individual circumstances. That is why we are arguing strongly that the discretionary means of tackling this is the correct way to do so. I am confident that through the provisions, we will right many historical injustices and wrongs, and that is something we should all welcome.

In the light of the debate that we had about fees, whether or not applications will be free under the clause is an important point. That will be an issue for the appropriate fees regulations in due course. As I set out when dealing with earlier clauses, those regulations will be subject to parliamentary scrutiny. I note the views that have been strongly expressed today. Members will have heard what I have said about this previously, and I would be very happy to engage with them in the development of those regulations that we would then bring forward. With that, I would ask hon. Members not to press their amendments.

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[Tom Pursglove]

I am grateful to the hon. Member for prompting me on this. I have a fairly lengthy speech on this clause. I will come to those points, and will illustrate them with some specific case studies, which I hope will be of interest to him.

As I was saying, this results in the child remaining stateless from birth and enables them to be registered as a British citizen once they reach the age of five if they meet the other criteria. We have seen a significant increase in applications, from tens per year to thousands. In 2016-17, there were 32 applications to register stateless children on this basis. That increased in 2017-18 to 1,815 applications. This allows individuals, including those who have overstayed or entered illegally, to acquire British citizenship for their child, which can in turn benefit their own immigration status.

We do not think it fair that parents can effectively secure a quicker route to British citizenship by choosing not to register their child’s birth. In doing so, they are depriving their child of a nationality, which is about not only identity and belonging, but being able to acquire a passport or identity document, and the ability to travel overseas, such as to see family. They are also taking advantage of a provision that is intended to protect those who are genuinely stateless.

I will say, for the avoidance of doubt, that the process of birth registration is not impossibly difficult. It is simply a matter of completing a form and supplying supporting information about the parent’s identity, status and residence, and the child’s birth. The fee to register a child’s birth at the Indian high commission in the UK is £19; it is £53 at the Sri Lankan high commission.

In changing this provision, we want to maintain the ability for genuinely stateless children to benefit, but we want to change the registration provisions so that parents cannot effectively choose statelessness for their child and then benefit from these provisions. That is right and proper, and in line with our international obligations.

We think it is right that children who genuinely cannot acquire a nationality should be able to benefit under the stateless provisions of the 1981 Act. This change reflects our expectation that families should take reasonable steps to acquire a nationality for their child. We will set out in guidance the sort of steps that we think are reasonable, and applications will be considered on an individual basis.

The provisions are not intended to negatively impact children of recognised refugees who are unable to approach the authorities of their former country. Hon. Members may argue that it is important for a child to have a nationality. We agree. That is why we are a signatory to, and are committed to, the 1961 convention.

Why are parents choosing not to acquire a nationality for their child when they can, leaving the child without the ability to travel urgently if needed for five years? Let us look at a typical example that addresses the point raised by the hon. Member for Cumbernauld, Kilsyth and Kirkintilloch East.

[Neil Coyle]

The Minister refers to a typical example, but I believe that the question put was about the overall number of cases. Will the Minister provide the House with the overall number of cases involved, and specifically the number of cases in which the Government suggest nationality is being deliberately withheld?

[Tom Pursglove]

Let me talk through the case studies in the first instance, because I think it is useful to set this in context. Child X was born in the UK, which their Indian parents had entered as students. The student route is not one that leads to settlement, so they could not have assumed they would be granted indefinite permission to stay. The college they were studying at had its sponsorship licence revoked, and the parents remained here illegally.

At the time of X’s birth, both parents were in the UK without lawful leave. Steps were taken to remove X’s parents, who absconded at one point. However, an application was made to register X as a British citizen, under the stateless minor provision, a few days after their fifth birthday. While they had not approached the Indian high commission to register X’s birth, the parents provided letters they had obtained from the Indian authorities stating that there was no record of the birth having been registered, so they clearly had no fear of approaching the Indian authorities.

X was registered as a British citizen, as the current wording of the British Nationality Act 1981 left us no other option. The parents then made an application to remain in the UK on the basis of family life, which was granted because it would have been harsh for the British child to leave the UK. I hope that Members across the House will agree that, while it is not X’s fault that their parents manipulated the system, it is not right that as a result they can acquire citizenship earlier than other children born here, whose parents have remained in the UK lawfully and been fully compliant.

We have heard the comment that parents should be able to choose which nationality their child has, but this is not about French parents living in the UK with settled status, for example, choosing whether to apply for a French or British passport, as the child holds dual nationality. Nor is it about parents who are dual nationals, such as a parent who is a British citizen by birth and citizen of Bangladesh by descent choosing not to register their child’s birth, which would have allowed them to acquire citizenship of Bangladesh in addition to British citizenship. No: this is about parents who are choosing not to acquire their own nationality for their child and leaving them with no nationality for a significant period until they can eventually qualify for British citizenship.

The United Nations High Commissioner for Refugees has published a document entitled “Guidelines on Statelessness nr 4: Ensuring Every Child’s Right to Acquire a Nationality through Articles 1-4 of the 1961 Convention on the Reduction of Statelessness”. Those guidelines cover situations where it is possible to acquire the nationality of a parent by registration. They provide that the responsibility to grant nationality to children who would otherwise be stateless is not engaged where a child is born in a state’s territory and is stateless but could acquire a nationality by registration with the state of nationality of a parent, or a similar procedure.

The guidelines go on to say that it is acceptable for contracting states not to grant nationality to children in these circumstances if the child concerned can acquire the nationality of a parent immediately after birth and the state of nationality of the parent does not have any discretion to refuse the grant of nationality. However, that does not apply if a child’s parents are unable to register, or have good reasons for not registering, their child with the state of their own nationality. That must be determined depending on whether an individual could reasonably be expected to take action to acquire the nationality in the circumstances of their particular case. The effect of this clause therefore reflects the approach recommended by the UNHCR.

We understand that parents want the best for their children, and that a future in the UK represents that to them, but it is not right that they choose not to acquire a nationality for their child in order to facilitate that. We want genuinely stateless children to be able to benefit from our stateless child provisions, but we expect those who can easily acquire a nationality for their child to do so.

I will pick up on the point the hon. Member for Bermondsey and Old Southwark made, because I am sure he wants to prompt me on that, but I first wanted to get through those case studies and set out the Government’s rationale. Clearly, in some cases there is a perverse incentive, and it undoubtedly disadvantages those who are acting in accordance with both the letter and the spirit of the law. It is right to address that, and that is why we are taking the measures proposed in clause 9 to close that loophole.

[Neil Coyle]

Will the Minister provide the overall number of cases that the Government believe fit this category? Will the Government also publish the number of children involved in similar cases where the parents have been trying to regularise their status within the UK? We had examples this morning such as that of my constituent Ade Ronke, who was wrongfully accused by the Home Office of having a prosecution that she did not have—it was a case of mistaken identity. There are cases like that, and hers took seven years to regularise. I mentioned this morning that at least two cases in my constituency took 10 years. There may be many children across the country whose parents have been waiting very many years to sort their status, who could fit into this category, but are being mislabelled by the Government.

[Tom Pursglove]

The direct answer to the hon. Gentleman’s question is that we can provide details of the number of applications, but we cannot confirm the specific number of cases in the way he is requesting. We know this is happening, and we believe that there is a perverse incentive for people to choose not to acquire a nationality, so that the family as a whole can jump the queue.