All 8 Lord Benyon contributions to the Animal Welfare (Sentience) Act 2022

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Wed 16th Jun 2021
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Animal Welfare (Sentience) Bill [HL]
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Tue 20th Jul 2021
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Animal Welfare (Sentience) Bill [HL]
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Report stage part one & Lords Hansard - part one
Mon 6th Dec 2021
Animal Welfare (Sentience) Bill [HL]
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Report stage part two & Lords Hansard - part two
Mon 6th Dec 2021
Animal Welfare (Sentience) Bill [HL]
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Report stage part three & Lords Hansard - part three
Mon 13th Dec 2021
Thu 7th Apr 2022
Animal Welfare (Sentience) Bill [HL]
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Consideration of Commons amendments & Consideration of Commons amendments

Animal Welfare (Sentience) Bill [HL]

Lord Benyon Excerpts
2nd reading
Wednesday 16th June 2021

(2 years, 9 months ago)

Lords Chamber
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Moved by
Lord Benyon Portrait Lord Benyon
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That the Bill be now read a second time.

Lord Benyon Portrait The Parliamentary Under-Secretary of State, Department for Environment, Food and Rural Affairs (Lord Benyon) (Con)
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My Lords, it is a privilege to open this debate. Today, in this House, we are opening a new chapter in this country’s proud story of protecting and promoting animal welfare. I am proud, as I hope your Lordships are, of the UK’s reputation as a nation of animal lovers. The UK introduced the world’s first animal protection law: the Cruel Treatment of Cattle Act 1822.

We have made a lot of progress in the two centuries that have followed. We improved conditions in slaughterhouses in 1875, and passed the Protection of Animals Act in 1911. We established a world-leading system for regulating scientific experiments on animals in 1986, and in 2006 the Animal Welfare Act introduced powers to protect all kept animals in England and Wales.

There has never been any question that this Government believe animals are sentient beings. We are now recognising this formally in domestic law and introducing a proportionate accountability mechanism to help reassure people that central government policy decisions take this into account. The Government’s manifesto promised that we would bring in new laws on animal sentience. Parties represented on the Benches opposite made similar pledges. This Bill is our opportunity to honour that commitment.

The Bill proposes three things. First, it provides a recognition in law that any animal with a spine—any vertebrate—is sentient. Sentience is about animals having feelings, both positive and negative, such as pain or joy. The scientific community is continually improving our knowledge of the sentience of different species. There is clear evidence that animals with a backbone—vertebrates—are sentient. The Bill gives the Secretary of State a power to extend this recognition to any invertebrate species in future; for example, if evidence of their sentience becomes clear.

Secondly, the Bill establishes a committee—the animal sentience committee—tasked with reporting on whether individual central government policy decisions have paid all due regard to their effect on the welfare of animals as sentient beings. The animal sentience committee will have the right to roam across all central government departmental policy decisions. This includes decisions relating to policy formulation and policy implementation. The committee’s findings will be made public and its reports will make recommendations.

Thirdly and finally, the Bill obliges the relevant Minister to respond to each report from the committee through a Written Statement to Parliament. That Statement should set out the Minister’s response to the committee’s recommendations.

Taken together, the Bill’s provisions create a targeted and proportionate mechanism for holding the Government to account on animal welfare. The animal sentience committee’s reports and the ministerial responses to them will support Parliament’s scrutiny of how central government policy decisions pay all due regard to the welfare of animals as sentient beings.

The introduction of the Bill fulfils a key manifesto commitment, as I have said, and it will further the UK’s position as a global leader on animal welfare. Now that we have left the EU, we have the opportunity to remake laws and go further to promote animal welfare. Importantly, there are no policy exemptions in this Bill. It covers vertebrate animals in all settings and in all central government policy areas. If you accept, as this Government do, that animal sentience is a matter of fact, then you must properly consider animal welfare in relevant decisions that you make. By enshrining sentience in domestic law in this way, there will be further reassurance that government policy decisions have been made, taking into account the fact that animals have feelings.

It is important to understand what the Bill is and what it is not. It is intended to embed consideration of animal welfare into the policy decision-making process. It does not change existing laws, nor does it dictate to Ministers which decisions they should ultimately make. It is for Ministers to make those calls, taking all relevant considerations into account, and for Parliament to hold them to account. The Bill is designed to support Parliament in doing so.

The committee will have the freedom to choose which policies it wants to explore and how it wishes to engage with the Government. The committee will be able to engage with government departments during the formulation of new policies. In doing so, it will be able to share its views on the ways in which animal welfare is relevant to a particular policy. This will help departments ensure that they have duly considered the relevance of animal welfare before key policy decisions are made, and avoid a formal report from the committee in which the committee comes to the view that the Government have given due regard to the welfare of animals as sentient beings. The committee can also consider how well policy decisions have considered positive improvements that could be made to animal welfare, rather than just considering whether adverse effects have been minimised.

We hope and expect that Ministers and their departments will engage constructively with the committee. My department will be able to support the committee in building productive relationships across government, helping Ministers to take welfare issues into account alongside other considerations. None the less, the committee will retain the ability, when needed, to express its opinion on the ways in which the policy might have an adverse effect on the welfare of animals as sentient beings and the extent to which this has been taken into account. Ministers will be under an obligation in all circumstances to respond to Parliament within three months on any report of the animal welfare committee.

If there is one message that I hope the Bill gets across, it is that we have listened. We have heard the calls from this House, from the other place and from across the country, pushing for animal sentience to be enshrined in UK law. We have reflected carefully and brought to this House a robust Bill which aims to deliver clear and proportionate outcomes. The Bill provides recognition in law that animals are sentient and provides a targeted and proportionate accountability mechanism to ensure that this is taken into account in decision-making, alongside other considerations. I commend the Bill to the House.

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Lord Benyon Portrait Lord Benyon (Con)
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I am very grateful to your Lordships for insightful and constructive contributions to today’s debate. I start by agreeing with the noble Baroness, Lady Hayman, on a number of points. First, this is a matter of great public interest, and the passage of the Bill through both Houses will be followed closely not just by organisations but by the wider public. I thank the noble Baroness for her tribute to the noble Lord, Lord Trees, for his work on the preparation of the Bill, rightly pointing out that he has raised important points, some of which I hope to address now.

Many noble Lords raised issues about the scope of the Bill and what it will seek to do. The Government are trying to sail a path between creating something that is meaningful and effective and keeping Parliament as the deciding force on this, not the courts. A number of noble Lords have quite rightly raised the concerns, which I shared when I came to this brief, about the risk of judicial review—I will come on to that in a minute.

Noble Lords have taken me further back than the 200 years of animal rights legislation that I spoke about in my opening remarks. We have heard about Homer’s Odyssey and Copernicus, but it is undoubtedly a fact that we have been living with the concept of sentience written into European legislation, and it was in our manifesto to transpose it. There was, I concur, a rather bumpy attempt to do it, and we have now brought forward something that is much more workable and relevant.

This debate has left me with a strong sense of optimism. There is a great deal of unity in purpose and belief that, as a species, we owe a duty of care to the animal kingdom. We largely agree that animals are capable of thinking and feeling and that this fact should be recognised in law. Even if our views might vary as to the finer details of how this should be achieved, we should keep this fundamental principle at the top of our minds.

I apologise if I do not get to everyone’s points; I will write to those that I miss. I will do this in no particular order. My noble friend Lord Robathan is concerned about whether the animal sentience committee will differ from the current Animal Welfare Committee. The current committee advises Defra and the Governments of Wales and Scotland about particular animal welfare issues that have been remitted to it. Ministers are not required by law to respond to the points made in the expert advisory reports published by the Animal Welfare Committee. Its existence and role have no statutory duty, while the animal sentience committee will be a creature of statute.

The noble Baroness, Lady Young of Old Scone, asked about the resources, as did a number of other noble Lords. The Bill establishes the committee to consider how central government policies take account of animal sentience, and this will require it to be properly resourced. I am very happy to have more of that teased out in Committee, but at this stage we fully accept that this a point on which people are legitimately concerned, and we are determined that this committee shall work. We will produce a committee that has the necessary means to do this. However, if we fix resources, we put a limit, in effect, on what it can do. It is better to work this out as it starts to go about its business and we can gain an accurate understanding of the nature of its ambition, and then our resources will reflect its needs.

My noble friend Lady Fookes is concerned about the recommendations on improvements to animal welfare and why the Bill talks only about “adverse” effects. The committee’s role will encourage policymakers to think about the positive improvements that they can make to animal welfare—not just minimising adverse effects. Its reports may include recommendations to that effect.

The noble Baroness, Lady Young, and my noble friend Lady Hodgson asked about the guidance for the committee. There will be guidance, and we expect to consult on this. We do not want to direct the committee’s priorities and the work that it does because its members are the experts and we want them to decide what issues they should look at.

In addition, there are some very clever Ministers—I do not put myself among them—and officials, but very few of them are experts in this field. To the noble Lords, including my noble friend Lord Ridley, who asked why this is necessary, I say that there is a long history of expert committees advising government, and we should not be afraid of that. What matters is what Ministers do with that advice. The committee will opine on issues, but of course Ministers will take a much broader view.

It is dangerous to use examples, but the noble and learned Lord, Lord Etherton, and others have raised the issue of religious slaughter. The committee may decide a particular point on this, but a Minister will have to take into account the wider considerations of cultural and religious organisations and form a view in accordance with that. The same can be applied to farm animals: as my noble friend Lord Robathan said, taking an animal to slaughter is not a pleasant experience for it, to say the least. However, there is a wider issue with regard to producing meat and the benefit that that brings to our environment and people in this country.

My noble friend Lord Forsyth is concerned about fishing. I have received interesting letters concerning the future and the rights and wrongs of fishing, and I share his enthusiasm for that sport. The way we harvest wild fish to eat is highly regulated, and we want to make sure that the British public have access to good quantities of healthy, sustainably produced fish. If the committee were to make a recommendation on how our trawlers operate and how wild fish are caught, or indeed, how my noble friend fishes on a river, the Minister would have to look at the wider implications.

I say to noble Lords who are concerned about other matters that there are plenty of opportunities in this House and the other place to bring in legislation, whether on dog collars, farm animals or whatever. This Bill has no effect on the democratic ability of Governments and Members of this legislature to bring legislation forward. What it does do is provide expert advice to Ministers in order to take forward a greater understanding of the measures needed to get better legislation. There has been much criticism in this debate of the standard of legislation that has come before us in other forms. This is an attempt to ensure that we are thinking about something that Governments ought to think about.

My noble friend Lord Herbert raised the issue of sentimentality, and a number of noble Lords have talked about anthropomorphising animals. A considerable amount of blame was laid at the door of Disney. We are not trying to sentimentalise here or create something that will take the debate on animals into a place it need not and should not go. We are recognising sentience in domestic law to provide reassurance that central government policy decisions have been made with all due regard to the fact that animals can experience feelings both positive and negative, such as joy and pain.

The noble Lord, Lord Dodds, talked about the jurisdiction of this matter, an issue rightly raised by a number of noble Lords. This committee will look at the reserved matters that all legislation covers, and devolved matters will be left to devolved Governments. For example, an activity undertaken by the Ministry of Defence would be a reserved matter; the decision of the committee would reflect the whole United Kingdom. It cannot talk about legislation in Northern Ireland reflecting devolved matters, and I think that is an understanding devolved Governments have accepted and taken forward.

My noble friend Lord Howard raised an important point about judicial review. I want to come back to this because it is really important. The EFRA Select Committee, in its criticism of the original attempt to legislate on this matter, was right and pointed out that it did expose risks. The purpose of the report will be to set out the committee’s own views on the question of whether, or to what extent, the Government are having, or have had, all due regard to the way the policy under review might have an adverse effect on the welfare of animals as sentient beings. However, responsibility for policy decisions remains with Ministers, who must come to their own conclusions about how different relevant considerations should be weighed up and what weight should be given to them. The Government’s response to a report from the committee will help explain to Parliament why the Government may have legitimately reached a different conclusion to the committee.

Alternatively, if the Government intend to review the policy decision in light of the committee’s views, they can say so. If the Government’s response is found to be wanting, it might be possible for someone to establish sufficient grounds to bring a judicial review, but we believe that in this situation the grounds on which that judicial review might be brought forward would present, irrespective of the committee’s report. This is really important, and I urge all Members of this House who may be thinking about bringing forward amendments to consider that we want to keep the control of these issues in this House and not in the courts.

My noble friend Lady Deech made a point about experiments. The Government have no plans to change the regulatory system for the use of animals in science. The use of animals in scientific research remains a vital tool in improving our understanding of how biological systems work, both in health and disease. She is entirely right to pay tribute to the work done on bringing forward the vaccine, which we are all benefiting from.

A number of noble Lords, including the Opposition spokesman and the noble Lord, Lord Trees, wanted to know more about who the members of the animal sentience committee will be. The standard public appointment rules will apply to appointments to the committee; we intend to run a fair and open recruitment process and achieve a diversity of talent and experience that will be the key asset of the committee. I refer noble Lords to the Governance Code on Public Appointments. I am not going to go into detail now, or at any stage in this process, about what the membership of the committee should precisely contain. However, we do think there should be a broad group of experts, undoubtedly involving academia and veterinary expertise, and a number of others. My noble friend Lady McIntosh talked about farmers and I entirely agree with what she said. I hope all those involved in the raising of animals, be it on farms or in other settings, will feel that they are represented—not necessarily on the committee, but in that their views are represented.

I will finish by addressing the concerns expressed by my noble friends Lord Hannan and Lord Bellingham about the rationale of the Bill. Nowhere in UK law is the concept of animal sentience—their capacity to have feelings and a level of conscious awareness—recognised. This Bill recognises that fundamental principle and provides a statutory basis for the welfare needs of sentient animals to be properly reflected in all government policy-making, in a reasonable and proportionate way—I emphasise “reasonable” and “proportionate”—and it is vital that, throughout the process of this Bill, we recognise that.

I am very grateful to noble Lords for a thoroughly interesting and useful debate, as a curtain-raiser for this legislation. I look forward to seeing it in Committee, with your Lordships’ support, and to debating some of these points in more detail. I commend this Bill to the House and beg to move.

Bill read a second time and committed to a Grand Committee.

Animal Welfare (Sentience) Bill [HL]

Lord Benyon Excerpts
It has been a very interesting debate, and there is a lot on which the Minister can reassure noble Lords. I look forward to his response.
Lord Benyon Portrait The Parliamentary Under-Secretary of State, Department for Environment, Food and Rural Affairs (Lord Benyon) (Con)
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I thank noble Lords for their interest in the Bill. I feel as if I were sailing a path between Scylla and Charybdis, but I shall try to review the points raised—and I hope that, as the noble Baroness, Lady Hayman of Ullock, says, I shall be able to reassure noble Lords in the process.

I start with Amendment 1 in the name of my noble friend Lord Forsyth and moved by my noble friend Lord Hamilton of Epsom. They raise an important point, which is that the establishment of the committee should be a transparent and collaborative process. To that end, I can commit to sharing draft terms of reference for the committee before the Bill returns to the House for Report.

My noble friend raised some points about the cost, and I can say to him that the committee will be funded from within the departmental budget. As we develop a more detailed understanding of the committee’s structure and how it wishes to approach its task, we will be able to develop an estimate of its resourcing. This process is in train, and we will share an estimate with Parliament at the appropriate juncture. We will ensure that the committee has the resources necessary to fulfil its functions, as set out in the Bill, while ensuring value for money for the taxpayer. However, I would be wary of defining the terms of reference and the membership of the committee too rigidly in statute. This committee is an entirely new entity with a new and specific remit, and to some extent its first steps will involve learning and refining how it wishes to operate and what expertise it requires.

I shall take together Amendments 31 and 35. I fully agree with my noble friends Lord Forsyth and Lord Hamilton, as well as the noble Earl, Lord Kinnoull, that policy must be made with culture, religion and both local and national heritage in mind. Ministers are, and will remain, responsible for judging the right balance between these and various other considerations. Nothing in the Bill will affect that. I am grateful for the opportunity to address any remaining uncertainty about the committee’s role and how we envisage its recommendations fitting into the decision-making process.

I can assure my noble friend that there is absolutely no attempt to force Ministers to prioritise one factor over another when taking a complex, multi-faceted policy decision. What the Bill will do is help to inform Ministers about important welfare issues that should, in the interests of good policy-making, be a part of their overall considerations. The committee is there to scrutinise the policy decision-making process and whether it has taken all due account of important animal welfare issues. It is not there to determine the substance of ministerial decisions. I hope that goes a long way to giving the noble Baroness the reassurance that she requires, but I shall come on to some of the specific points in a moment. As it prepares its reports, the committee will be fully aware of its remit, and will recognise the need for Ministers to consider other factors alongside animal welfare.

For the same reason, I do not think that my noble friend Lord Moylan, whom I thank for his Amendment 19, has anything to fear from the committee having the ability to report on policies related to advancing the understanding of medical science. I entirely agree with him and others who spoke on this matter that what is done in our scientific institutions is a “worthy objective”—I think those were his words, echoing the concerns of my noble friend Lord Sheikh, the noble Baroness, Lady Deech, and others. The Bill will make no difference to our ability as a country to continue to improve, as we must, how we deal with diseases through testing on animals. What the committee can do is suggest changes to the regulations. As has been pointed out, this area of animal welfare in this country is one of the most highly regulated in the world. Ministers will receive that information and then be able to make a decision taking into account all the factors concerned. One of those factors may be a pandemic; it may be the need to keep hundreds of thousands of people alive. Such decisions will weigh on a Minister, and he or she will be able to take into account the findings of the committee but not necessarily be bound by them.

I again thank my noble friend Lord Forsyth for his Amendment 37, which would limit the animal sentience committee to producing reports only on Defra policies. I will take this together with Amendment 16 in the name of the noble Earl, Lord Kinnoull, which would limit the remit of the committee to those policy areas covered by Article 13 of the Lisbon treaty. The Bill reflects that animals are sentient beings, so it is only right that appropriate regard to their welfare is given in any policy-making decision where it is relevant. Although Defra has responsibility for animal welfare, and I am sure that some of its policies will be the subject of committee reports, many other departments will also have the ability to impact on animals due to our various interactions with the natural world. It is therefore important that the committee has the freedom to consider any central government policy it believes could have an impact on the welfare needs of animals as sentient beings. The committee will have the discretion to focus its efforts on those policy decisions it deems most important in welfare terms. In our manifesto, this Government as a whole committed to the introduction of new laws on sentience, with no suggestion of carve-outs or exemptions. As noble Lords have said, we have previously operated under Article 13 of the Lisbon treaty, which goes much wider than environment, food and rural affairs, so we have operated under this type of regime before.

I will address Amendment 3 in the name of the noble Lord, Lord Trees, and Amendment 34 in the name of my noble friend Lord Howard of Rising briefly, as we will return to this important question in more detail as we move through the groups. I remind your Lordships that the committee has a very specific role, which is to publish reports giving its assessment on whether Ministers have properly considered animal welfare when making policy decisions. Expert scrutiny of this sort is vital to good policy-making, particularly in areas such as animal sentience where our scientific knowledge is advancing rapidly. Of course it is, and will remain, for Ministers to make and account for individual policy decisions. We simply do not have to worry that, one day, the committee will demand that we tear up a particular piece of legislation. That is not what it is there to do; it has no powers that would allow it to do so. That said, I would not want to prevent the committee identifying potential improvements in the implementation of existing policy, nor would I want to prevent it learning and sharing lessons from the recent past.

On Amendment 54, in the name of my noble friend Lord Forsyth, we decided not to include a fixed definition of sentience in the Bill, because “sentience” is a term heavily influenced by the latest scientific understanding and so risks becoming rapidly out of date. Our scientific understanding of sentience has come a long way in recent years and will continue to evolve. It is not necessary to define sentience in statute for the Bill to work. We all recognise that animals are sentient. Accordingly, their welfare needs should be properly considered in government policy-making. There is no need to make it more complicated than that.

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Lord Benyon Portrait Lord Benyon (Con)
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I am grateful to my noble friend. I will write to him about the committee’s make-up and remit and repeat any points he may have missed in our conversations or in earlier proceedings about how we feel this committee should exist. Of course, we are going into a spending round and these issues will be reflected in that, but I have declared openly how the resources will be found.

I will correct my noble friend on one point. When I said “highly regulated”, I was talking about how we use animals in scientific research. That is something we can all be extremely proud of. In animal research, we have one of the most highly regulated science communities. I share his desire for less bureaucracy and less regulation for the farming community. There are changes afoot that I hope he will be extremely pleased about. We will see a simpler range of policies, which will make life easier for rural businesses. When I referred to high regulation, I did so with pride that we have an active and vibrant scientific community based on research into animals, and that it is properly regulated by probably the best regulation in the world.

Lord Herbert of South Downs Portrait Lord Herbert of South Downs (Con)
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My Lords, I declare my interest with various positions in the Countryside Alliance.

I would be grateful if my noble friend the Minister could elucidate this point: the thrust of almost all the contributions by noble Lords today has been that the Bill’s scope is too broad and that the powers of the committee that is to be set up insufficiently constrained. The architecture being established is far broader than that which exists for the Animal Welfare Committee—an issue we are about to explore—and the effect of the consideration of sentience will be far greater than the declaratory effect that sentience had in the provisions in European law. As has been raised, all this suggests that there is a greater potential for judicial review.

So far as I could see, in responding to all these points the Minister said that the remit would remain broad, sentience would not be defined and the committee’s powers would not be constrained. My simple question is therefore: does he accept the views expressed by most noble Lords this afternoon that the Bill is imperfectly drafted, that the committee’s powers are too broad and that it needs to be constrained? Is that important position accepted or not? Is the Minister dismissing all the views expressed by way of amendments today and essentially saying to us that the balance struck in the Bill is perfect?

Lord Benyon Portrait Lord Benyon (Con)
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My Lords, I would never have the temerity to say that anything was perfect in this world, and legislation is a messy process. I assure my noble friend that I believe that we are sailing the right path between creating something that is unwieldy and a burden on government and something that is—I hope he will agree when it is established—proportionate. It can range around government looking at important things and will inform the way decisions are made.

My noble friend mentioned the risk of judicial review. The Bill places additional legal duties on Ministers only in so far as it requires them to submit written responses on the parliamentary record to the animal sentience committee’s reports within three months of their publication. The Secretary of State for Environment, Food and Rural Affairs is additionally legally required to appoint and maintain an animal sentience committee. This means that the Bill creates only two additional grounds for judicial review: a failure by the relevant Minister to respond to the committee within three months and a failure by the Secretary of State for Environment, Food and Rural Affairs to establish and maintain an animal sentience committee. I hope that gives my noble friend some reassurance.

Earl of Kinnoull Portrait The Earl of Kinnoull (CB)
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My Lords, I add my thanks to the Minister for the very interesting speech he has just made; I can see myself reading Hansard very carefully for a lot of what he said. I have just one question, on which I was hoping for some help from him. Quite early in his speech, he had some very warm words for Amendments 31 and 35, but I did not understand whether they would result in his amending the Bill or were just warm words. Could he clarify that?

Lord Benyon Portrait Lord Benyon (Con)
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I can assure the noble Earl that I am open to discussions on any area of the Bill where I feel we can make it better without creating hostages to fortune. I do not want to create a feeding frenzy for lawyers by putting anything in legislation that will increase opportunities for judicial review or any other legal measure. I will clearly be having many discussions with noble Lords from across the House between now and Report. I hope that what will emerge and what we will send to the other place will be a coherent piece of legislation.

Earl of Caithness Portrait The Earl of Caithness (Con)
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My Lords, I agree with my noble friend Lord Marland that the Government are beginning to alienate quite a large section of the rural community with their attitude towards it at the moment. It would be a retrograde step for my noble friend the Minister to continue in that way. I know that, being a farmer, he will be very sensitive to this. I have three questions for him.

My noble friend the Minister said those dreaded words, “We have nothing to fear”. If we have nothing to fear, let us put it in the Bill. It seems to me utterly logical that if all our concerns are taken care of, we will be much happier if some of our concerns are put in the Bill—which will help satisfy our concerns. I disagree with my noble friend; I still think we have quite a lot to fear from the Bill.

Turning to Amendment 16 in the name of the noble Earl, Lord Kinnoull, my noble friend the Minister said that proposed new paragraphs (a) to (f) were too restrictive. If that remit satisfied European law and the Lisbon treaty, could my noble friend tell us why it needs to be increased now? What are the areas of concern? Where do the Government think that their policies are wrong so that they need a committee to have a look at them?

Thirdly and finally, I am grateful that my noble friend will let us see his thoughts on the composition of the committee and how it might work, but are we to be allowed to debate those thoughts and the papers that he will produce? If we cannot debate them, it is pretty unnecessary that we should bother to see them.

Lord Benyon Portrait Lord Benyon (Con)
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I am grateful to my noble friend and absolutely defer to him as someone with long experience of legislation, good and bad. I am sorry if saying “Nothing to fear” caused him fear. I was seeking to remind the Committee that we are not talking about something that creates policy; rather, it can inform policymakers. There are a whole host of issues in the minds of Ministers when they formulate new legislation. The Bill allows them to take all of them into consideration and, if needs be, put to one side the concerns of the committee because, weighing them against other matters, they can take a different path.

That is really important. It is fundamental to the Bill. We are trying to reflect what the wider public are concerned about, which is an improved climate of animal welfare in decision-making. We think that what we have brought forward is proportionate. I can debate the content of the committee, its size and wider remit with noble Lords at leisure. I am sure my noble friend agrees that we do not want a committee that is too big or full of sectoral interests, or of one particular interest over another. We want a committee that has expertise and is not trying to carry out some political campaign or is weighted too much in one direction or another. It will be balanced, expert, the right size and properly resourced.

Lord Trees Portrait Lord Trees (CB)
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I will just comment on Amendment 19 and, I hope, give some assurance. Many noble Lords have commented on the concerns that medical research will be impacted by this Bill, and the amendment of the noble Lord, Lord Moylan, speaks to that. I share that concern, but would like to assuage some of it as a vet, a veterinary scientist and a former holder of a licence from the Home Office to conduct research involving animals for medical and veterinary purposes.

I can assure the Committee that medical research is not threatened by the Bill. The function of the animal sentience committee is to ensure that due regard has been paid to animal welfare. The unambiguous answer is in the affirmative. Parliament passed the Animal (Scientific Procedures) Act in 1986, which requires all individuals undertaking veterinary research and their premises to be licensed and the projects, most importantly, to be individually scrutinised and licensed. That scrutiny essentially involves an assessment of the benefit-cost ratio of animal welfare harmed in the conduct of that research versus animal welfare benefits as a consequence of it. That due scrutiny is conducted and would satisfy any particular challenge from an animal sentience committee.

Lord Benyon Portrait Lord Benyon (Con)
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I am grateful to the noble Lord for that clarity and entirely endorse what he says.

Lord Hamilton of Epsom Portrait Lord Hamilton of Epsom (Con)
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I am very grateful to my noble friend the Minister for responding to my remarks on Amendment 1, which I am about to withdraw. He has honoured the pledge he made on Second Reading to tell us about the resources being made available for this new committee. I must confess, I think I am getting more naive the older I get; I was rather hoping we would have some serious figures on how much money was involved, but maybe we will have to wait a bit longer for that. In the meantime, I am very grateful to my noble friend and beg leave to withdraw Amendment 1.

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Baroness Hayman of Ullock Portrait Baroness Hayman of Ullock (Lab)
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I shall speak first to Amendments 5 and 14, which are in my name and that of the noble Baroness, Lady Bakewell of Hardington Mandeville. The noble Baroness laid out Amendment 5 quite clearly. It would ensure that the committee benefited from a diversity of expertise, including, for example, veterinary science, agricultural science and ethical review.

It is essential that such a wide range of informed viewpoints informs the work of the animal sentience committee, and this diversity needs to be guaranteed in the Bill. Under the current text, future Secretaries of State will have full discretion to appoint committee members. Our concern is that that could enable a very narrow committee which could be dominated by one industry or sector. I note that other noble Lords have tabled amendments that also consider the expertise of the committee’s membership, so there is clearly much interest in getting it right—noble Lords have talked about it this afternoon. The committee needs to be able to draw on a real diversity of knowledge so that it can give properly balanced consideration to animal sentience issues across the whole scope of government policy.

Our amendment also lays out further detail on the make-up of the committee and stipulates the appointment of a chair. It is very important to have a chair who is both independent and respected within government and further afield. If you have that, the committee will be listened to with real respect in all the different areas that it will look at. As the noble Baroness said, this will help make it much more effective in its work.

Amendment 14 is designed to ensure that the animal sentience committee is adequately resourced; several noble Lords have talked about resourcing. By that, we mean staffing, accommodation and any other necessary resources to fulfil the tasks the Bill places on it. A small secretariat and other facilities are essential to committee functioning, and should not place an undue burden on public funds. The noble Baroness, Lady McIntosh, said that the Bill is very thin in this area, and I agree. Much of her Amendment 13 covers similar ground. We need to look at this very carefully.

I jotted down some examples of previous annual costs for a committee in Defra. There is quite of range of costs that committees can incur to government. The former Farm Animal Welfare Committee operated on a similar basis as is proposed for the animal sentience committee. It required less than £300,000 a year in funding. Clearly, this committee will have a much broader remit, but to put that in context, a 2016 Cabinet Office review found that 141 bodies advising government typically each had an annual budget of between £100,000 and £1 million. That is a hugely broad range. Considering that a number of noble Lords have expressed concern that resourcing needs to be properly done, I should be interested to know what work has been done on the resourcing that may be required and whether the Minister can yet clarify what he believes will be adequate for the committee to carry out its work effectively. It is vital that appropriate resourcing is made available. I also support the noble Earl, Lord Caithness, in hoping that this is without cuts to any other department.

The noble Baronesses, Lady Jones of Moulsecoomb and Lady Fookes, have tabled Amendments 6 and 62, which would also secure a welcome diversity of expertise and an independent chair, as well as ensuring that the committee received early notice of any policy that could have an adverse effect on the welfare of animals as sentient beings. The noble Baroness, Lady Fookes, is right to ask for more detail in this area.

As we have heard, Amendment 2, tabled by the noble Lord, Lord Forsyth of Drumlean, suggests merging the Bill’s animal sentience committee with the existing Animal Welfare Committee. We would support what the noble Baroness, Lady Bakewell of Hardington Mandeville, said about this. We do not believe it is a practical suggestion, as the Animal Welfare Committee and animal sentience committee will have very different roles.

The Animal Welfare Committee provides scientific advice when asked to by Defra and works only with that department, primarily on farm animal and welfare issues. It is fundamentally different from what is proposed for the animal sentience committee, which will proactively review government policy decisions across all departments. It will also have the power to choose which policies to review and a scope that covers companion animals, farm animals and wild animals. Merging these two, very different committees into one would be an error and reduce the effectiveness of both, so we cannot support this amendment. However, we need clarity on how the relationship between the committees will work.

I conclude by thanking the noble Lord, Lord Mancroft, for recognising some merit in my Amendment 5, but I clarify for noble Lords that animal welfare science is a reality. You can study for a degree in animal welfare science at a number of universities—for example, Glasgow and Winchester—and the Royal Veterinary College has an animal welfare science and ethics group which specifically researches in the fields of animal welfare, animal behaviour, veterinary ethics and law. I hope that clarifies that.

Lord Benyon Portrait Lord Benyon (Con)
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I thank noble Lords for their amendments and hope to provide some reassurance and clarity. I start with Amendment 2, in the name of my noble friend Lord Forsyth, who, as my noble friend Lord Randall reminded us, referred to himself as an “extinct volcano”. Volcanologists will probably warn of an eruption if I do not achieve some degree of reassurance.

The first reassurance I will give my noble friend is that, when I arrived as a Minister in Defra in 2010, we had inherited 92 arm’s-length bodies, which we reduced to 33. It was a brutal process, but we got it about right. It shows a desire for simplicity, and direct accountability to Parliament is something I hold dear.

My noble friend Lord Forsyth has concerns about the animal sentience committee’s relationship with the Animal Welfare Committee, which have also been articulated by other noble Lords. I emphasise that the two committees have important roles and different remits. The Animal Welfare Committee provides substantive policy advice on request to Defra, as well as to the Scottish and Welsh Governments. By contrast, the animal sentience committee will review and scrutinise the Government’s policy-making and, in doing so, facilitate Parliament’s scrutiny of the Government. It would be rare for the two committees to address precisely the same questions in the normal course of their work, nor do we want to prevent them delivering their distinct roles.

The noble Baroness, Lady Mallalieu, referred to the committee possibly becoming a runaway horse. In that unlikely event, it would be reined in. There will be performance reviews of the committee and, if it is ineffective, action will be taken to change its membership.

Amendment 11, also in the name of my noble friend, would have the structure and make-up of the animal sentience committee established by regulations or otherwise subject to parliamentary approval. My noble friend raises an important point, which is that the establishment of the committee should be a transparent and collaborative process. I have already committed to sharing draft terms of reference for the committee before this Bill returns to the House on Report. I would, however, be wary of defining the terms of reference and the membership of the committee too rigidly in statute.

This committee is an entirely new entity with a new and specific remit and, to some extent, its first steps will involve learning and refining how it wishes to operate and what expertise it requires. Normal practice with such committees, in line with Cabinet Office guidance, is that they are funded from within a departmental budget. We are clear that the committee should be made up of members who collectively have the appropriate expertise to enable the committee to perform its role. The code on public appointments provides a robust framework for appointments to the committee.

However important the Bill and the committee it establishes, the fact is that parliamentary time is limited and must be used to best effect. Discussing the substance of the reports, where noble Lords and honourable Members in the other place wish to do so, will be far more illuminating than debates on, say, the precise nature of the committee’s composition.

The animal sentience committee will be a committee of experts that publishes reports. It will not make policy decisions, nor will it be a delivery body. It therefore lacks the sorts of responsibilities described in the Public Bodies Handbook that might warrant use of parliamentary time to oversee the committee’s membership and internal processes. Although I would not wish to place the terms of reference in statute, I reiterate my commitment to share them in draft for your Lordships’ consideration, ahead of Report.

Looking around this Room, I see people who have great experience of legislating down the years from within the Government, the Executive, and the legislature and it is entirely right that people in my position are pushed as far as they can be to give details. But to those of us who have been in government, I say that we also want the flexibility to make sure that what we are creating here works. Sometimes, if we are too rigid in our legislation we make that more difficult to the point whereby it could become ineffective and a point of continuing debate. I want to give flexibility to the new committee and future Ministers to create something that is not only effective but can be held to account for what they do.

I turn to my noble friend Lord Forsyth’s last amendment in the group, Amendment 40, concerning the work programme and resourcing of the committee. It will be comprised of experts. It is they who will be best placed to decide what the committee’s priorities should be, although they can of course consult others. I can reassure my noble friend that the annual work plan of the committee will be made publicly available. This will ensure that its priorities and approach are fully transparent. It is right that the committee should have the freedom to set its own agenda. Committee members are the experts on sentience and will be able to offer informed views that Ministers can consider alongside other important social, environmental, cultural or economic issues.

Both my noble friend Lord Forsyth and the noble Baroness, Lady Hayman of Ullock, in her Amendment 14, have rightly highlighted the need to furnish the committee with the appropriate resources to perform its function. I can confirm that we shall do so. There will be a dedicated secretariat.

I turn to the noble Baroness, Lady Jones of Moulsecoomb, and her Amendments 6 and 62, with which I will consider the amendment of the noble Baroness, Lady Hayman of Ullock, Amendment 5, all concerning the membership and operation of the animal sentience committee. The committee has a specific, well-defined function set out in the Bill. It is there to provide assurance that the Government are having all due regard to the effects of policy decisions on animal welfare. The ultimate objective of the committee is to raise the bar on how animal welfare implications are considered as policy across government, and how that is made and implemented. This task demands that the committee’s members have a breadth of expertise and experience.

The committee will, of course, not exist in isolation. I hope it reassures a number of noble Lords that the committee will be able to consult other able external specialists as required. If, for example, the committee felt that it wanted to reach out to a government advisory body such as the Animal Health and Welfare Board, it would be free to do so. We want to ensure that there are high-quality applicants for vacancies on the committee, and we want to find the very best people for the role. We also want to future-proof the committee as far as possible. As our scientific understanding of sentience develops, so too could the appropriate balance of expertise. That is crucial. If we restrict the membership of the committee to just a few types of people, that may not be appropriate in the future.

I turn to some of the other suggestions made by the noble Baroness. I can assure her that the Secretary of State will appoint no MPs to the committee. I clearly take the point of my noble friend Lord Caithness that there are Members of this House who have or might have in future the kind of expertise we are looking for, but I want to keep politics out of it. We politicians are not always known for our strict impartiality. We will have to find other means to contribute to the animal welfare cause. However, as we all know, there are Members of this House who are not affiliated to any political party.

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Lord Hannan of Kingsclere Portrait Lord Hannan of Kingsclere (Con)
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My Lords, this is the first time that I have intervened in the Committee stage of a Bill so I hope noble Lords will forgive the solecisms and infelicities that follow. I am afraid that listening to the response to the first two blocks of amendments has left me convinced that this is a badly drafted and badly conceived Bill, so much so that I think it will be taught eventually at politics A-level as an example of what happens when you have pointless virtue-signalling legislation.

Let us recall why we are here. A tranche of EU law was being moved over. This was not part of it, so it was not included in the read across on to our own statute book. A press release then went out saying, “Ah, this means that the Conservatives have voted against animal sentience. They have said that animals are not sentient.” On the basis of this absurd press release, the Minister in another place was panicked into saying, “Oh no, no, we will legislate.” It found its way into the manifesto and here we are with this—as my noble friend Lady Fookes says—rather skeletal, emaciated, haggard, malnourished Bill that can be expanded almost at random in any direction.

I have to say that almost all the amendments in the first two blocks have been about seeking to define, circumscribe and guard against these opportunities for mission creep and unintended consequences, whether it is to do with the composition of the committee, its powers, its relationship with the Animal Welfare Committee or specific protections for religious freedoms, medical research and all the rest. If my noble friend the Minister—who I really feel for: this is his baptism in this place—means it when he says that this is only an advisory committee and is not going to be policy-making and so on, what can be the harm of accepting or replicating in the form of government amendments some of the ideas that would simply ensure that this statutory body does not exceed its remit?

I finish by echoing the point from my noble friend Lord Forsyth of Drumlean: we would like to see some recognition from my noble friend the Minister that we are not just expected to take all this on trust and that the legislation will be drafted in a way that does not allow for almost unlimited growth and producer capture.

Lord Benyon Portrait Lord Benyon (Con)
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I am very grateful to my noble friend for his sympathy, though I wish my noble friends would stop sympathising with me. If they are confused, this is my I-am-enjoying-myself face.

I have tried to give some reassurances. I may have satisfied some noble Lords but I clearly have not satisfied him and I will have to do more to do so. I have already said that we will publish more detail before the next stage of the Bill and I am sure that he and others will take great interest in that.

I respectfully disagree with him. I think this is important to people. I hope that when it is up and running—and has tackled a few pieces of complicated government policy and nudged the tiller of those involved in the legislative process perhaps to change things in a way that reflects the impact that policy would have on animals—he will see that this is not a paper tiger, a white elephant or whatever words I am putting into his mouth, but something of value.

Lord Russell of Liverpool Portrait The Deputy Chairman of Committees (Lord Russell of Liverpool) (CB)
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Before I call the next person, I gently remind noble Lords that the practice in Committee and on Report when noble Lords speak after the Minister is, first, to be succinct and, secondly, to deliver their comments in the interrogative form. With that, I call the noble Lord, Lord Bellingham.

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Lord Benyon Portrait Lord Benyon (Con)
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I said, with what I thought was clear reasoning, which has been backed up by others, why these two committees are different. The Animal Welfare Committee advises Defra and is not a statutory body. The animal sentience committee will work across government to reflect whether sentience of animals has been considered in legislation. They have two very different functions, so we cannot subsume the two. I am with my noble friend on his desire, and that of the Chancellor, to make sure that we are living within our means. The Defra that I returned to three weeks or so ago is a very different organisation from the one that I was in during the coalition Government, when we transacted large amounts of policy that was created elsewhere. Now policy is created in this country, in this Parliament, by a Government who are elected, so it is a very different place, which I hope will be reflected in the spending review.

Lord Russell of Liverpool Portrait The Deputy Chairman of Committees (Lord Russell of Liverpool) (CB)
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I would call the noble Baroness, Lady Deech, but we have a problem with her—but a person put his name forward late, so I call the noble Earl, Lord Caithness.

Earl of Caithness Portrait The Earl of Caithness (Con)
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My Lords, I listened with care to what my noble friend said, and I apologise to him if I did not pick up the comment he made, but did he make any comment about the LSE report? It is so relevant to the work of this committee. Has he received it and are we going to see it? What is its relevance to the Bill?

Lord Benyon Portrait Lord Benyon (Con)
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The noble Earl refers to the LSE report on decapods and cephalopods, I assume.

Earl of Caithness Portrait The Earl of Caithness (Con)
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I refer to the one that was commissioned from the LSE, to which the noble Lord, Lord Trees, referred at Second Reading.

Lord Benyon Portrait Lord Benyon (Con)
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I think we are coming to that in a later group of amendments. It has been completed but not peer reviewed and I have not seen it, but it will be available to noble Lords before the next stage of the Bill.

Lord Russell of Liverpool Portrait The Deputy Chairman of Committees (Lord Russell of Liverpool) (CB)
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We will make one more attempt to call the noble Baroness, Lady Deech. No, it is not working. I call the mover of the amendment, the noble Lord, Lord Forsyth of Drumlean.

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Baroness Hayman of Ullock Portrait Baroness Hayman of Ullock (Lab)
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The amendments in this small group look particularly at the make-up of the committee’s membership, some of which align with our Amendments 5 and 14, which we have previously debated.

Amendment 4, in the names of the noble Lord, Lord Forsyth of Drumlean, the noble Baroness, Lady Mallalieu, and the noble Lord, Lord Hamilton of Epsom, provides that the composition of the committee and its terms of reference must be set out in regulations and approved by both Houses. It is clear that the committee’s composition and terms of reference are considered extremely important by noble Lords, but, as the noble Lord, Lord Forsyth, said, we have covered this in the previous debate, so I shall move on.

Amendment 9, in the name of the noble Lord, Lord Moylan, would provide that a committee member’s term may not be longer than three years and may not be renewed after the first term. As the noble Lord explained in the explanatory statement to his amendment, this is to ensure that the committee

“benefits from fresh knowledge and new perspectives”.

We have some sympathy with that proposal and agree with the noble Lord that the term should be no longer than three years, but we believe that there may be circumstances where it would be helpful to reappoint a member for a further term of office if that was considered appropriate.

Amendment 10, in the names of the noble Baroness, Lady McIntosh of Pickering, and the noble Lord, Lord Carrington, provides that the committee’s membership must include, among others, a veterinary surgeon, a farmer or person with knowledge of livestock production and land management, and a person with knowledge of slaughterhouses. On this amendment and the other amendments we have looked at about who should be on the committee, I take the point made by the noble Earl, Lord Caithness, that we need practical experience—that is important—but although we have talked about Defra legislation, we need to remember that the committee will be looking right across government. It will also need people who have experience in how to manage that and what needs to be looked at. I am beginning to think that we are going to have the largest committee ever created if we have all these people on it. The Minister needs to take away the debate that we have had on both this group of amendments and the previous one and think about how we can practicably move forward to ensure that the committee has the membership it needs but is also flexible enough to cover all the work that it will need to do.

Amendment 8, tabled by the noble Lord, Lord Moylan, the noble Earl, Lord Caithness, and the noble Lord, Lord Hamilton of Epsom, would require 50% of the committee to have had recent commercial experience of farming or managing game or fish stocks. I appreciate that the noble Lord, Lord Moylan, said that it should not be interpreted as stacking the committee, but we need to make sure that we do not end up with a committee with a bias towards one group—the noble Baroness, Lady Mallalieu, said that it was important that we make sure that we do not have an imbalance one way or another. We need recommendations that come from a diversity of viewpoints and proper knowledge bases. It is absolutely right that we look at all these membership criteria, but we need to think about where we are going, what we want the committee to achieve and what its priorities will be. We need more clarity about its focus; otherwise, we will have membership of the committee from everything under the sun. On that basis, I will hand over to the Minister to take that headache away.

Lord Benyon Portrait Lord Benyon (Con)
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The noble Baroness very eloquently makes the point I was going to make. I have clearly had representations from a lot of parliamentarians and different interest groups, saying that they must be represented or that this or another interest should be represented on the group and I start wondering whether the Albert Hall will be big enough to contain this committee.

Of course, I would have to be a Minister of very little brain if I did not have a view on the sort of people I think should be on the committee. The problem is that if I start listing them to the Committee now, although it would have the virtue of giving some of the clarity that certain noble Lords seek, it could also constrain the creation of a committee that, as the noble Lord, Lord Carrington, and others have said, should contain practical experience and common sense. I entirely agree with him on that.

I take the point made eloquently by the noble Baroness, Lady Mallalieu, that the committee should not contain representatives of pressure groups, particular groups who are obsessed with one narrow field of animal welfare. If I, or the Bill, were to constrain the membership of the committee so that a particular interest had to be represented, if that individual was off sick or had not been reappointed following the end of their term, and the committee made a decision in that particular area of expertise, noble Lords can see that this would create opportunities for legal challenge. I am not going to satisfy the Committee because I cannot give clarity on the type of people that we want to see on the committee. I will try to give the reassurance that I know what noble Lords are thinking and I hope that we can achieve a committee that has balance, practical experience and common sense.

I will try to address in more detail some of the points that have been made and I apologise if I slightly repeat myself; I will try not to. My noble friend Lord Forsyth of Drumlean proposed Amendment 4, suggesting regulations that the animal sentience committee might adhere to. Although I would not wish to place the terms of reference in statute, I reiterate my commitment to share them in draft ahead of Report for your Lordships’ consideration.

This committee is an entirely new entity with a new and specific remit and to some extent, its first steps will, as I have said before, involve learning and refining. We are clear the committee should be made of members who collectively have the appropriate expertise to enable it to perform its role. I refer noble Lords to the Governance Code on Public Appointments, which provides the framework from which we will be operating. As I have said, it will be a committee of experts who publish reports. It will not make policy. It therefore lacks the sort of responsibility described in the Public Bodies Handbook that might warrant parliamentary time to oversee its membership and internal processes.

I will take together Amendments 8 and 9 in the name of my noble friend Lord Moylan with Amendment 10 in the name of the noble Baroness, Lady McIntosh of Pickering. I think we have covered membership. It is not the role of the committee to consider the interests of those who work with animals or to identify an appropriate balance between their interests and animal welfare. That is for Ministers to weigh up and decide. That is why I take this opportunity to dispel any notion that a sector could find itself at a disadvantage if it is not physically represented on the committee. That would be a misunderstanding of the committee’s role and how it will interact with Ministers. It takes a wealth of knowledge and experience to understand the implications of central government policy on particular aspects of animal welfare, more than any one person or any one group of people could ever possess. There is, of course, a practical limit to the size of the committee so, naturally, we expect that that it will seek the views of other specialists who exist outside the committee to assist in its understanding of specific issues.

We are in the process of gathering views on the best range of expertise the committee can have to support it in its specific remit. We will also want to consult its chair. I would most certainly welcome contributions from your Lordships, but again I caution against creating a precise list in the Bill.

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Lord Robathan Portrait Lord Robathan (Con)
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My Lords, I must declare an interest as a farmer, with a livestock farm in Leicestershire. I do not wish to detain the Committee long or to repeat all the arguments already made, nor do I wish to further irritate my noble friend the Minister, who is making a good fist of a fairly difficult job. I have two questions for him.

Ensuring the committee has people with real knowledge—to quote the noble Baroness, Lady Hayman, “proper knowledge”—of animals, perhaps people who rely on those animals for their livelihood, is extraordinarily important. I am not talking about owning cats or dogs; I have several cats on the farm which helpfully keep down the rats—they do a rather good job—and I also own a dog, but that does not make me an expert on animal sentience. However, those who work with animals the whole time do have a lot of knowledge of animal sentience.

Slaughterhouses and abattoirs have been mentioned. Anyone who has been to an abattoir knows how awful they are; they are extremely unpleasant. But while we remain omnivores and eat meat, they will be necessary.

My noble friend said he will not construct a membership on areas of expertise, but I ask him a different question: will he ensure that nobody without knowledge is appointed to the committee? By that I mean somebody who thinks he has a lot of knowledge, such as Chris Packham, but does not actually have any knowledge of living off the work with animals. Secondly, does he consider that animal rights movement members have “appropriate expertise” or would be “dynamic” members of the committee?

Lord Benyon Portrait Lord Benyon (Con)
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My noble friend takes me down a rabbit hole. I do not think I can add to what I already said. The serious point is that we want people with real expertise and knowledge, and the committee must not be too big—so there is a challenge for me, if I am the Minister, or for the Secretary of State. We have to create something that delivers a real understanding of the wide range of issues it will look at, from fishing practices on the high seas through to—as he states—abattoirs and other areas.

I have received inspiration, which I will share with my noble friend. As I have said, appointments will be decided in accordance with the code on public appointments. Applicants would, in line with best practice, be required to declare any potential conflicts of interest to the recruitment panel. It would then be for the panel to determine whether an applicant would proceed. Members of the committee will declare any relevant interests, and the committee will make a list of these interests publicly available.

Lord Forsyth of Drumlean Portrait Lord Forsyth of Drumlean (Con)
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My Lords, I very much agree with what the noble Baroness, Lady Hayman, said about the need for experience across the board. I was hugely impressed by the speech by the noble Lord, Lord Carrington. His emphasis was on agricultural issues, but the noble Baroness, Lady Hayman, made a really important point: this committee can look at any aspect of government policy. On my reading of the Bill, government departments are meant to share with this committee any new policies they are thinking of applying that could have an impact on sentient animal welfare. That is a huge, enormous task. If you are to have a committee capable of looking at all these government departments and what they are up to, you will need people with expertise.

My noble friend suddenly found some inspiration. I do not think it was very good inspiration; he should send it back. I compare, to put it delicately, the Government’s record on public appointments and the security provided—I am thinking here of non-executive directors of government departments, for example—with the sort of strictures that the Treasury and the Bank of England quite rightly put on me as chairman of a bank in deciding on the composition of a board. We were required to show what levels of expertise were met, to recruit accordingly and to have an arm’s-length process, all of which is appropriate. If it is good enough for financial services and regulated businesses, why should it not be good enough for government, government bodies and, in this case, a statutory body?

When my noble friend says he has a good idea in his head of what the Committee is thinking—his head is much better than mine—but is not going to share it with us because it might cause difficulties, he is really saying: “I would really like this legislation on the statute book, so that I can do what I like and it will be too late for all of you to complain.” That is another way of putting it, perhaps rather brutally.

I am just thinking of Michael Gove, who at one stage during the Brexit campaign said he had had enough of experts. I was quite sympathetic to that, but in this case I think we want experts and people who are independent. We need to know who these people are and how on earth this committee, with its very broad remit, will carry out its functions.

Of course I will withdraw my amendment, but I am not persuaded by my noble friend. I hope whoever provided him with his inspiration has listened to this debate, in Committee, and will go back to the drawing back and consider how this committee will meet its enormous role.

Just on that little bit of last-minute inspiration that reached him, it was suggested that the committee would look for conflicts of interest. Actually, you want people on there who have conflicts of interest, because that means experience and expertise. If we exclude people who have conflicts of interest, we might not have somebody who, for example, knows about slaughterhouse, because they may have some interest. It is not clear to me how this committee will be composed or who, in their right mind, would take on its chairmanship of such a committee, with such a broad brief and ill-defined role. I beg leave to withdraw my amendment.

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Lord Benyon Portrait Lord Benyon (Con)
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I thank my noble friend Lady McIntosh for her amendments concerning term-lengths for members of the animal sentience committee. I can confirm that the Government are committed to adhere to the Governance Code for Public Appointments. The code contains a number of rules designed to ensure public confidence in the accountability and integrity of organisations such as the committee. These include mandating open recruitment, public declaration of members’ interests and the strong presumption that no individual should serve more than two terms, or serve in any one post for more than 10 years.

I take this opportunity to address a point made by my noble friend Lord Forsyth on an earlier group. I entirely agree that having a conflict of interest is not a precursor to not being allowed to be on the committee. We want people who are actively involved in the issues we are talking about. That may mean that they have a business or other related issue in their lives that could be seen as a conflict. As long as there is transparency, and those matters are declared, that is a good thing. The more of the right sort of conflict, the better. That may be misinterpreted, but I think noble Lords know what I mean.

We will boost accountability by ensuring that any recruitment to the committee is conducted openly and fairly by advertising campaigns and, as the governance code requires, the Secretary of State will make the appointment based on merit. A register of members’ interests be published alongside the committee’s minutes and reports. Ministers will be accountable to Parliament through the usual channels for how the committee is appointed and run. We decided not to put detailed rules in the Bill on the appointment of the committee’s members, as we believe the governance code already provides that robust framework. Setting these details out in legislation—as I have said before, and I apologise for repeating it—may unduly constrain an approach to recruitment that best fits with the work of the committee and the normal public appointment rules.

As I previously highlighted, setting rigid terms for appointments may have unintended consequences. If, for example, a member’s term ended in the middle of producing a report to which they were critical, it would cause disruption to the committee's work. Additionally, we should allow some room for manoeuvre in exceptional circumstances. The ongoing pandemic, for example, has disrupted recruitment across government. Being able to just nudge people on for a year has been much appreciated in the work they are doing. I hope our commitment to accountability and good governance is clear and that the noble Baroness will be content to withdraw her amendment.

Lord Russell of Liverpool Portrait The Deputy Chairman of Committees (Lord Russell of Liverpool) (CB)
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I have received two requests to speak after the Minister: from the noble Lord, Lord Marland, and the noble Baroness, Lady Mallalieu, so I call the noble Lord, Lord Marland.

Lord Marland Portrait Lord Marland (Con) [V]
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I am very grateful to noble Lords for letting me speak again, as I want to press the Minister further. Having taken on board this very strong opinion from all parties that the committee should come under scrutiny and there should be a much more detailed plan as to its make-up and how it will operate, what is the timetable for the Minister and his department to explain this to us to allay our fears? We would all love to help him, of course; he might not want that, but we would all love to help him structure this properly. Has he thought of taking time out to discuss it with us as a group to make sure that it is done properly?

Lord Benyon Portrait Lord Benyon (Con)
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An overused phrase in corporate-speak and in government is that my door is always open, but in this case it is true. I am always open to suggestions. If we can be more explicit on Report, I hope that will satisfy my noble friend and others. In saying that, I hope that it is not an invitation to be too prescriptive, because I am determined that the committee will evolve over the years to reflect issues that arise and emerging scientific evidence. Therefore, too much constraint will not receive a favourable response from me—but constructive ideas as to the sort of people who could be on the committee are definitely what we want to hear.

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Baroness Hayman of Ullock Portrait Baroness Hayman of Ullock (Lab)
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Amendment 12, which would ban anyone from the committee if they had involvement with animal rights groups, seems to come from the viewpoint that the Bill and the committee that it establishes will be hijacked by a radical animal rights agenda.

A commitment to animal welfare requires us to treat animals humanely, compassionately and properly. To treat animals properly, we must factor in the key facts about them, including the sentience that we know they possess. I am sure the Minister will be able to reassure noble Lords that the membership and remit of the committee will be based on expertise, including from those with animal welfare expertise and experience, but will also use scientific analysis and the right knowledge when required. We have discussed this point in great detail, and I am sure the Minister will be able to reassure us on it.

Amendment 43, also in the name of the noble Lord, Lord Mancroft, would require a Minister responding to a report by the animal sentience committee to include the views of other expert committees, such as the Animal Welfare Committee. We certainly agree that the committee should consider the views of other experts, be they committees or independent experts. I would be interested to hear from the Minister whether he is looking at that as useful in the setting up of the committee. If that is the case, how will that relationship be developed? We have discussed the relationship between the Animal Welfare Committee and the animal sentience committee. How will the joined-up thinking come forward from other expert committees as well?

Lord Benyon Portrait Lord Benyon (Con)
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I am grateful to noble Lords and to my noble friend Lord Mancroft for his Amendments 12 and 43. There is much I could say that would repeat what I said on earlier groups about the make-up of the committee, but I am grateful to him and others for highlighting an important consideration for Ministers as and when the Bill reaches the statute book. As my noble friend said, it is not just about who we put on the committee but about who we do not. I am clear that we want people who will take a collegiate view and who are not there to represent some narrow sectoral or even extreme point of view. The committee will look at issues such as the eating of meat and how we get meat from field to fork. The process of rearing stock and taking it to slaughter is something that we want to make sure we get absolutely right. If somebody’s opinion about that is clouded by an extreme view that the whole process is wrong, it will not be an effectively functioning committee with that individual in place, so I totally hear what has been said.

I could repeat all I said before about not wanting to constrain things by putting details about what sort of people we want to do this in the Bill. We want this to be an expert committee of professionals who really good people will want to work with. If they feel that the committee is being hijacked by extremists or, indeed, one sectoral view, it will not be working by the terms in which, I hope, it will be put on the statute book by Parliament.

I have already spoken about the very important points made about how the committee will work with other organisations, not least the Animal Welfare Committee. The noble Baroness, Lady Hayman, made an important point. There will undoubtedly be scope for a productive and mutually beneficial relationship between the two organisations and the broad principles of this will be outlined in the animal sentience committee’s terms of reference.

Indeed, the animal sentience committee may wish to draw on the expertise of other bodies and experts where it sees fit. The Bill places no limits on this. It will then be for the committees to decide where and how it would be most productive to work together within that framework. This might not always result in outputs so reassuringly concrete as the report on reports envisaged by this amendment. The freedom to co-operate and to inform each other’s thinking, where useful, is there.

I could go into more detail. We may tease out aspects of the points raised by noble Lords in subsequent questions, but I hope my noble friend will be content to withdraw his amendment.

Lord Russell of Liverpool Portrait The Deputy Chairman of Committees (Lord Russell of Liverpool) (CB)
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I have received one request to speak after the Minister, so I call the noble Lord, Lord Hannan of Kingsclere.

Lord Hannan of Kingsclere Portrait Lord Hannan of Kingsclere (Con)
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My Lords, the debate on this amendment shows the fundamental problem of what is involved when an accountable Government pass some of their responsibilities to an appointed committee. The debate on this amendment, as on the previous one, has resembled nothing so much as one of those US courtroom dramas where people argue about who should serve on a jury because they assume that the opinions will be dictated by the position of the selected juror. If we are picking people or excluding them on the basis of their professional or political affiliations, we are effectively substituting what should be a democratic decision and passing it over to people. The only difference between them and parliamentarians is that they are not really accountable to anyone.

My noble friend the Minister said, in his answer to the amendment about Members of this House serving on the committee, that politicians are not known for their strict impartiality. That is perfectly true, of course, but the idea that anyone else is strictly impartial strikes me as rather questionable. We all have our assumptions and our prejudices—indeed, experts more than anyone, if by “expert” we mean anyone who has spent their entire career in one particular field. They are the last people to be relied on to take a view in the round.

It is fine to have advice on a narrow point, but I think the concern of this Committee is that we will stray into policy-making. That is why I want to reiterate the question asked by my noble friend Lord Howard of Rising about a sunset clause. I think that would reassure a lot of Members of this Committee. My noble friend the Minister did not answer it. Perhaps he thought it was offered in a frivolous spirit, but it was a policy of the coalition Government in which my noble friend served very ably as a Minister that there should be sunset clauses when new regulation is proposed. Would that not be a guarantee—a backstop, if you will—that if this committee strayed beyond giving narrow, technical advice into setting policy, there would be a way of doing something about it?

Lord Benyon Portrait Lord Benyon (Con)
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I apologise if I did not answer that point; I am conscious that I did not. My noble friend Lady McIntosh asked: if a committee is created by statute, how do you uncreate it? The answer is by primary legislation. Once this is established in statute, the only way is to unmake it by legislation. I do not think a sunset clause would give much confidence to the people we would want to serve on the committee if they felt that it was in any way a temporary feature.

My noble friend made another, wider point about whether advisory and expert committees have any place in government. I yield to his undoubted abilities as a parliamentarian, but as a layman on most of what I deal with—despite coming from a background which has put me in touch with many areas in my ministerial responsibilities—I rely on experts to inform me about how I take forward the day-to-day warp and weft of government, including legislation. Experts have a distinct place in our legislative process and in how we form policy, and therefore I respectfully disagree with my noble friend.

Lord Mancroft Portrait Lord Mancroft (Con)
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My Lords, I am most grateful to my noble friend the Minister for answering my Amendment 12. I am not sure that there really is an answer to it. We spent an earlier part of Committee talking about who should be on the committee and I just wanted to raise the dangers of those who should not be on it. I am ably supported by the noble Baroness, Lady Mallalieu, who made the point much better than I could have, as she always does. I am grateful that my noble friend the Minister has taken that point on board.

I did not speak to my Amendment 43 because your Lordships may have been slightly amazed by its appearance in this group. It got there in the same way Pontius Pilate got into the Creed—by mistake. It really should have been in an earlier group, I think group 2, where we had those sorts of debates. This does not require an answer now, but there was within it one point about the two committees which I thought needed to be aired—maybe we should do that later in these debates. What happens if the two committees—the Animal Welfare Committee and the sentience committee—give the Government conflicting advice on the same policy? Whose advice do the Minister and the Government take? Will not the Government inevitably be challenged in the courts or elsewhere for taking the wrong piece of advice? The conflict between the two committees worries me, and it has not been touched on yet. Perhaps my noble friend the Minister may think about that overnight and come back with a wonderful answer the next time we have a chance to discuss this in Committee. In the meantime, I beg leave to withdraw my amendment.

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Lord Benyon Portrait Lord Benyon (Con)
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I thank my noble friend Lady McIntosh of Pickering for the opportunity to explain the approach behind Clause 1. Before I do that, perhaps I should clarify once and for all that there is no rural-proofing committee. There never has been. There is something called the rural affairs board, which is chaired by a non-executive director of Defra and brings together senior officials, and I am the Minister responsible for rural affairs. Rural-proofing does not need a Bill; it does not need legislation. It just needs a will across government to do it.

My noble friend asked why this is being prioritised before rural-proofing. It is not. Rural-proofing is something we have yet to perfect. We have yet to get to where we want to be but, with all the vigour I can put behind my voice, I suggest that there is not a competition between rural-proofing and animal welfare. Both are important and both can be taken forward in different ways. This is a piece of legislation; rural-proofing does not need one. She asked about the trade and agriculture committee. I am afraid I do not know the details of that. It is not an area for which I have direct responsibility, but I am sure we can find out.

My noble friend Lord Hamilton asked why there are two committees. We have worked through this one quite thoroughly and I cannot say better than the noble Baroness, Lady Hayman, on that.

My noble friend Lord Moylan looks down the telescope one way and sees all these bodies roaming around Whitehall interfering with the nice tidy world of executive power. There is another direction in which to look. We get better legislation if we employ experts in a modest and proportionate way to look at things in an expert way. I suggest that that is perhaps the perspective from the end I am looking down. We may never have a meeting of minds on this, but I can keep trying.

Clause 1 requires the Government to create and maintain the animal sentience committee. As has been discussed, the committee will hold the Government to account on animal welfare, creating a proportionate accountability mechanism to support the Bill’s legal recognition of animal sentience. I understand that some noble Lords have questioned the need for the committee or have suggested that it may be constituted without legislation as part of the Animal Welfare Committee. I will try to address this.

Our approach creates a dedicated committee whose role is to support Parliament’s scrutiny of the policy decision-making process. While the committee is not there to impose decisions on Ministers, it will perform a valuable role in encouraging us to make sure that we have properly considered the effects of policy on the welfare of animals. Creating the committee and placing it on a statutory footing is the best way of ensuring that the Bill’s recognition of sentience is given meaningful but proportionate effect.

The committee must act within the legal parameters the Bill sets. At the same time, we consider the obligation on Ministers to respond to the committee’s reports fundamental to the transparency and meaningful scrutiny of government policy-making. Ministers do not have to accept the committee’s findings and recommendations, but they have an obligation under the Bill to respond to them promptly and openly. We feel that this approach strikes an appropriate balance. We would struggle to give the committee sufficient traction if it lacked a statutory basis. We want the animal sentience committee and the Animal Welfare Committee to have a constructive relationship, but it is not quite as simple as saying that we could hand over the ASC’s responsibilities to the AWC with no legal powers to back them up.

It is important to remember that the two committees have distinct roles. The Animal Welfare Committee exists to provide advice to Defra and the devolved Administrations, whereas we are establishing the animal sentience committee to scrutinise policy decision-making across the whole of government. Any relationship between the two would need to support these two distinct functions. I therefore ask my noble friend not to oppose the clause standing part.

Lord Russell of Liverpool Portrait The Deputy Chairman of Committees (Lord Russell of Liverpool) (CB)
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I have received two requests to speak after the Minister, from the noble Lord, Lord Forsyth, and the noble Baroness, Lady Jones. I call the noble Lord, Lord Forsyth.

Lord Forsyth of Drumlean Portrait Lord Forsyth of Drumlean (Con)
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My Lords, I was just reflecting as I listened to the Minister. He said how important it was to have expert advice. I thought the whole raison d’être of this House was that it provided expert advice on legislation to government. Therefore, my question to the Minister is, having sat through nearly five hours of people questioning the efficacy of Clause 1 and giving him advice to come back with some further thoughts on the composition of the committee, and having heard all of that, will he undertake to bring government amendments back on Report to deal with the issues of composition which have been raised? I have to say to him: if he does not do that, there is no way—we are not able to vote that Clause 1 stand part—but there is no way that I would support it as it stands because it is an empty shell. Without repeating all the arguments that have been put by the Committee, it will lead the Government into great difficulties.

I listened very carefully to what he said. Does he really believe that it is necessary to have a statutory committee to achieve his declared purpose? I heard what he read out, but, putting it unkindly, what he was saying was: we are using legislation as a sort of poster board on which to say how much we care about animal sentience. It is perfectly within his powers as a Minister to set up a committee and give an undertaking that the committee’s reports will be debated within three months in Parliament. It would be great if Ministers did that for existing Select Committees of this House. I have one outstanding for nearly two years for the Economic Affairs Committee.

It feels as if this is just a bit of window dressing, a bit of virtue-signalling, which is actually going to create great problems for the Government. My question is: will the Minister now give us an undertaking that he will come back with amendments to Clause 1 which give it some substance, given the very strong views which have been expressed by everyone? Without exception everyone has said that this clause is inadequate because it does not define the composition of the committee.

The Minister said, quite rightly, that he needs flexibility, but when I was Secretary of State for Scotland, I had to make a huge number of appointments to committees. The legislation often provided, in more general terms, the composition of the committee. It might say that you must have somebody with technical expertise in this area or that, and that the balance of the committee should be X, Y and Z. The people giving him advice in his department are perfectly capable of coming up with a form of wording that would meet the requirements expressed today by the Committee and allow for flexibility.

As to the point about what would happen if someone left the committee after three years, again, in the commercial world, people are expected to do succession planning and look at the composition of the committees. One would expect Ministers to do the same. So, can we have an undertaking that the Minister will bring forward amendments on Report to save us the trouble of having to do so and having yet another extended period of debate? I do not think the clause as it stands will wash.

Lord Benyon Portrait Lord Benyon (Con)
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It would be the height of arrogance to say that I was just going to walk into this Committee Room, sit here and leave without taking note of what noble Lords have said. We will be studying Hansard very closely on what has been discussed today and we will reflect on trying to make this Bill more workable for all sides of the House.

I recognise that creating legislation is always a complicated process and nothing, not even a small Bill like this, is devoid of differing views and perspectives. My noble friend has expressed one forcefully today. I think he would much prefer to be spending this afternoon doing something else and not having to worry about this piece of legislation. Others absolutely, vehemently want this piece of legislation to get on the statute book, so, sailing my route between Scylla and Charybdis, I can certainly guarantee that I will reflect on what he and other noble Lords have said. I hope that we can bring something forward at the next stage which will satisfy—not everybody—but some.

The noble Lord’s point about succession is absolutely right: in the corporate world, you manage the succession of your boards, think ahead and make sure that gaps are filled. I have done that for 40 years, but it does not always work: you get gaps, and you have to have the flexibility in order to continue with the work of the committee effectively as and when they occur. However, I totally take his point, which he is right to make.

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Lord Benyon Portrait Lord Benyon (Con)
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The noble Baroness has made her point very clearly, and it is on the record.

Lord Russell of Liverpool Portrait The Deputy Chairman of Committees (Lord Russell of Liverpool) (CB)
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Just to be clear, it is not within my powers to strike anything from Hansard. I call the noble Baroness, Lady McIntosh of Pickering.

Animal Welfare (Sentience) Bill [HL]

Lord Benyon Excerpts
Baroness Deech Portrait Baroness Deech (CB) [V]
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One of the worst things in this Bill, with its miasma of uncertainty, is its retrospective effect. Along with others, this amendment is designed to cure this defect. We have to stop the committee considering, let alone making suggestions to change, policies that were established in the past, that are currently being lawfully implemented and on which people base their livelihoods, food and sporting pursuits.

As it stands, the Bill would allow the committee to reopen of its own volition policies that have been in place for perhaps a century, as some of our animal welfare laws have. It could make recommendations designed to undermine the use of animals in medical research, the practice of killing animals according to Jewish law and country sports, already hedged about with qualifications and reached by consensus a long time ago. We might accept that this committee, expert or not, will consider future proposals, but we cannot let it loose on the established law.

I say this not wholly as an advocate of the positions I have mentioned but as a reminder that retrospective legislation and changes of policy are to be assumed to be a bad thing. They may undermine settled patterns of life and livelihood, taking away certainty of freedom from criminal and civil prosecution. We cannot allow this committee to propose legislation to take away the validity of decisions made in the past and in good faith by people relying on the law as it was. In the case of the traditional Jewish way of killing animals for food, it has been permissible ever since the Jewish return to England some 350 years ago and it is established policy under UK regulations to permit it, as it was under EU legislation—although not that it could be relied on, as I explained in my last speech on this when I pointed out that the European Court of Justice allowed the Belgian prohibition of Jewish non-stunning methods.

As a legal situation, at common law, there is a presumption against retrospectivity. Article 7 of the Human Rights Act prohibits arbitrary prosecution, conviction and punishment. At common law, there is also a presumption against interference with vested interests. A leading judgment on this was in the case of Wilson v Secretary of State for Trade and Industry in 2003; one of the judges in that case, my noble and learned friend Lord Hope, is happily still with us. The judgment explained that there is a powerful presumption against statutes changing the substantive law in relation to events in the past; this is precisely what could happen if the powers of this new committee are not curbed.

There is also a presumption against legislation affecting vested rights unless Parliament is expressly making a new start for the future. So, on the one hand, recommendations by this new committee to change existing practices would be a waste of time in that, if they were acted on, they would be contrary to the rule of law; on the other hand, the Bill would accord better with human rights and the rule of law by making it express that its actions must be confined to future policy.

I hope that this amendment will be supported by the Government; otherwise, I can see legal action looming ahead on the horizon. This also applies to Amendments 18, 21, 23 and 29, all of which I support.

Lord Benyon Portrait The Parliamentary Under-Secretary of State, Department for Environment, Food and Rural Affairs (Lord Benyon) (Con)
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My Lords, the conspiracy theorists among you will wonder whether the insufferable heat in this Room is a plot by me to speed up events.

None Portrait Noble Lords
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Oh!

Lord Benyon Portrait Lord Benyon (Con)
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However, I can assure noble Lords that that is not how I operate. I am looking forward to lengthy discussions this afternoon.

I thank my noble friend Lord Trenchard for his Amendment 17, with which I will take Amendments 18, 23 and 29 in the name of my noble friend Lord Howard of Rising. I agree that we would gain little from a committee that devotes its energies to reopening old debates. We want a committee that improves the policy decision-making and implementation process now and in future.

However, policy is not a static thing. This afternoon, we have heard descriptions of policies that go back centuries. Policy is always being reassessed, reinterpreted and, above all, implemented. It would be difficult to pin down a working definition of established policy, particularly in statute, that does not shut the committee out of a number of areas where its scrutiny would be most valuable.

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Lord Bellingham Portrait Lord Bellingham (Con)
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My Lords, I have a quick question to ask the Minister. The cost of the committee will be very substantial indeed, with its wide-ranging remit across all government. If these amendments are passed, can he tell us exactly what would be saved in the costs of running the committee?

Lord Benyon Portrait Lord Benyon (Con)
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I am sorry, but I did not quite hear the last part of the question. I wonder whether my noble friend could repeat it.

Lord Bellingham Portrait Lord Bellingham (Con)
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Yes, indeed. If these amendments are passed, they will obviously greatly restrict the remit of the committee in what I think would be a very wise manner. Can my noble friend give this Committee some indication as to what would be saved in the costs of running the committee?

Lord Benyon Portrait Lord Benyon (Con)
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I understand the question and apologise for missing it first time. No, I cannot give my noble friend that assurance, because the work programme and what the committee would look at will change from year to year as developing evidence about animal welfare takes it down different priority routes. The amendments would obviously quite dramatically restrict the ability of the committee to influence government policy, but I cannot put a monetary value on that. It would be part of the economic impact assessment, which would have to take place at a different stage in this process.

Baroness Healy of Primrose Hill Portrait The Deputy Chairman of Committees (Baroness Healy of Primrose Hill) (Lab)
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I have also received a request to speak after the Minister from the noble Lord, Lord Hamilton of Epsom.

Lord Hamilton of Epsom Portrait Lord Hamilton of Epsom (Con)
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I want to follow up on the comments from the noble Baroness, Lady Deech, about ritual slaughter. We have been reading in the newspapers that, if this Bill becomes an Act of Parliament, it will become illegal to drop lobsters into boiling water to kill them. Is that one aspect of the thinking behind what the Government are doing? If that is the case, where does it leave pigs being slaughtered? They are highly intelligent animals and with a very high sense of smell. One might say that the slaughter of pigs does serious damage to them and to their feelings. I would just like to know where the Minister stands on this.

Lord Benyon Portrait Lord Benyon (Con)
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If my noble friend is referring to the article that I read at the weekend, it was full of inaccuracies and hyperbole, which is not what this Bill is about. At a later stage in this afternoon’s proceedings, we shall move on to talk about decapods and cephalopods. In relation to the amendments concerned, if the government Minister in the future felt obliged to include some of those species within the terms of the Bill, they could be looked at by the committee, which could advise a future Minister what they could or should be doing in terms of how different animals are treated at end of life. However, my noble friend is absolutely right to point out that there are gradations in unpleasantness involved for the animal, whether it is a pig or a lobster. The point is that the Bill does not dictate how a lobster is killed at the time of cooking or how a pig is killed at the time of slaughter. This is about informing policy using experts who can guide a Minister to take the right position. But that Minister, when considering all the factors that my noble friend mentioned, can take into account other matters, such as the value of sustainably produced seafood in a diet or the importance of the rural economy or the Government’s balance of payments in terms of rearing pigs. This Bill does not affect that, and so my noble friend can be quite relaxed about his concerns.

Viscount Trenchard Portrait Viscount Trenchard (Con)
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My Lords, I thank all noble Lords who have contributed to this debate, and I am heartened that both my Amendment 17 and the other amendments in the group, tabled by my noble friend Lord Howard, have received such unqualified support.

I totally understand my noble friend the Minister’s response that legislation does not stand still, and it is of course reasonable that, where the Government propose a new policy that requires changes to existing legislation, the committee or the Animal Welfare Committee might be tasked with looking at how the policy impacted on the welfare of animals, including having regard to their sentience, which any look at animal welfare automatically does anyway. Nevertheless, I find his answer unconvincing because I think that there is a real danger, especially since we know nothing about any requirements for the composition of the committee, that a huge amount of public time and public money would be spent looking at all past legislation that affects animal welfare. I worry that this would be counterproductive.

However, having heard my noble friend’s response, I will at least for now withdraw my amendment.

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Baroness Hayman of Ullock Portrait Baroness Hayman of Ullock (Lab)
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In this group, I support Amendment 46 in the name of my noble friend Lady Young, to which I have added my name. This is a fairly straightforward amendment designed to enable the animal sentience committee to submit annual reports to both Houses of Parliament. I thank the noble Baronesses, Lady Jones of Moulsecoomb and Lady Bakewell of Hardington Mandeville, for their support. The amendment would ensure transparency and oversight of the work of the committee.

Coming to the points raised by the noble Earl, Lord Caithness—I thank him for his introduction to his amendment—he referred to the three points in subsection (2) of the proposed new clause in our Amendment 46. The first is

“a statement of the policies on which the Committee has reported”,

which I cannot imagine anyone would object to, as we need to know what the committee has been looking at. Then there is

“an overview of the implementation of animal sentience requirements”,

which is the part the noble Earl raised.

The reason for this provision is that I have often seen in pieces of animal welfare legislation, covering wildlife crime, for example, that legislation is brought forward in good faith but then not enacted. It does not get enforced and is not implemented properly. Often, that legislation does not work to deliver what it was designed to deliver. We want to have oversight of that and to ensure that other government departments co-operate with the committee in the way that is expected. That is the purpose behind it and I hope I have explained it to the noble Earl. Lastly, there is

“a statement of the other activities”.

I am aware that the noble Viscount, Lord Trenchard, took exception to that, but we think it is important that we get proper oversight of everything that the committee is currently expected to look at.

Just before I finish on these, the noble Earl, Lord Caithness, introduced his Amendment 38. I agree with the noble Baroness, Lady Bakewell of Hardington Mandeville, that it could bring in unnecessary bureaucracy. However, there are clearly important questions that he has asked the Minister to consider.

I support Amendment 20, in the name of the noble Baronesses, Lady Jones of Moulsecoomb and Lady Fookes, which would provide that the committee “must” produce a report when any government policy is formulated or implemented. Again, I agree with the noble Baroness, Lady Jones of Moulsecoomb, that we need a strong, broad-based committee that looks at everything in the round. We have talked about this before: the remit and the focus are of such importance that we all know exactly what is expected from the committee once it starts working.

I also support Amendments 27 and 41, in the names of the noble Baronesses, Lady Jones of Moulsecoomb and Lady Fookes, and the noble Lord, Lord Trees. I thank the noble Lord for introducing that amendment clearly. Again, this is all about proper reporting, which will be critical.

On Amendment 44, in the name of the noble Lord, Lord Mancroft, we agree with the noble Baroness, Lady Bakewell of Hardington Mandeville, that this does not necessarily need to be in the Bill. But in introducing his amendment, the noble Lord asked some important questions that need to be considered as we move forward.

Finally, Amendments 21 and 22, tabled in the names of the noble Lords, Lord Forsyth of Drumlean and Lord Etherton, and the noble Viscount, Lord Trenchard, were introduced today by the noble Viscount. We believe that these amendments are unhelpful. Amendment 21 amounts to a significant weakening of the animal sentience committee because of the way it restricts the committee’s work. By not being able to report on existing government policy, it rows back from the original vision of a body that is free to consider sentience questions right across the range of government policy. I know a number of noble Lords do not think this is necessary, but we think it is very important.

We also think it is important that the initial vision is retained in the Bill so that the animal sentience committee can make a positive contribution to policy-making. It can best do that as a public body that provides expert input to inform complex policy questions that touch on the welfare of animals as sentient beings. As we and the Minister have said, this is not about the committee making policy; it is about the committee informing, answering questions, passing comment and being there as a critical friend, if you like, for policy decision-making in this area.

If we erect arbitrary barriers to that expert advice, it will impoverish the policy process. We should not make laws that prevent Ministers accessing knowledge that could improve their decision-making. The noble Baroness, Lady Bakewell of Hardington Mandeville, mentioned the Scottish Animal Welfare Commission, which we know is carrying out this important work. It is an interesting example of what could be achieved if we move forward with the Bill as proposed. As the Minister said on the first day of Committee:

“In our manifesto, this Government as a whole committed to the introduction of new laws on sentience, with no suggestion of carve-outs or exemptions.”—[Official Report, 6/7/21; col. GC 288.]


We strongly support him in that ambition.

As we heard, Amendment 22 would require permission to be received from the Defra Secretary of State before a report could be prepared. We believe this would also significantly weaken the committee and reduce it from being a body that is free to consider sentience questions across government policy to basically a Defra scrutiny committee, which would then scrutinise only with the Secretary of State’s permission. We therefore cannot support the amendment.

This has been a really interesting discussion on this group. It has been good to hear all the different contributions from noble Lords. I now look forward to hearing the Minister’s contribution.

Lord Benyon Portrait Lord Benyon (Con)
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I entirely agree: this has been a really interesting discussion.

I thank the noble Baroness, Lady Jones of Moulsecoomb, for her Amendment 20, which would place a legal duty to publish reports on the animal sentience committee. This Bill makes provision to empower the committee to scrutinise Ministers’ policy formulation and implementation decisions with a view to publishing reports containing its views on whether Ministers have paid “all due regard” to the welfare needs of animals as sentient beings. When the committee publishes a report, this will trigger the accountability mechanism to ensure Ministers respond formally to Parliament. The committee will be able to issue reports on central government policy decisions, without exception. This includes past policies as well as policies in the process of being formulated.

Naturally, the committee will not be able to scrutinise every single policy-making decision. This would be an impossible undertaking for a single committee, so we will support the committee to identify and prioritise areas where it can have the most important impact. I am sure your Lordships would agree that the committee should focus on policies where it can add the most value.

As the experts, it is ultimately for the committee to decide how best to use its time. We therefore do not want to prescribe what it must do any further in statute, beyond the powers given to the committee in the Bill. We want to give the committee flexibility to work in a way that best suits its priorities. For example, the committee may decide to issue advice and input as a policy is being formulated. We will support the committee in identifying opportunities for this. I assure the noble Baroness that the committee will have a work plan that will be made publicly available. We think it best for the committee, as the experts, to decide what it chooses to look at.

We will, of course, work closely with the committee, which will have a dedicated secretariat to support its work. We want to ensure that the committee is appropriately resourced with sufficient membership and administrative support to make an impact and scrutinise the most important decisions but is not so large as to become unmanageable or overbearing. Your Lordships tried to pin me down on this when the Committee last met. I am happy to give a little more clarification. As has been said, your Lordships can look at the Scottish Animal Welfare Commission, with its 12 members and a proportionate dedicated secretariat, as a rough indication of the scale that we are looking at.

I offer my reassurances to the noble Baroness that it is very much intended that the committee will publish reports on how Ministers have paid “all due regard” to the welfare needs of animals as sentient beings. This will be a key tool in embedding consideration of animal welfare into the policy decision-making process.

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Lord Robathan Portrait Lord Robathan (Con)
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I am moved to intervene briefly because the noble Baroness, Lady Jones, said that the people want it—I think I quote her exactly. I think the people want animals to be well treated; I think that everyone in this Room wants them to be well treated, and we have pretty good legislation that already protects animals, both domestic and wild, from unnecessary cruelty and ill treatment. However, in my 23 years in the House of Commons—I know that the noble Baroness represented people in the London Assembly—I can certainly say that nobody mentioned animal sentience. They mentioned lots of animal welfare issues, but nobody mentioned animal sentience. I think they were about as concerned about animal sentience as about the divine right of kings, which the noble Baroness also mentioned. Although the noble Baroness cannot intervene, perhaps my noble friend the Minister might say how many people came to him when he was an MP and said they wanted an animal sentience Bill.

Lord Benyon Portrait Lord Benyon (Con)
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Quite a lot actually.

None Portrait Noble Lords
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Oh!

Lord Benyon Portrait Lord Benyon (Con)
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I will explain why. My noble friend was—as the previous Speaker used to say—a great denizen of the House of Commons for many years, as he rightly reminds us. But, sadly, he was not there when the Government of the day decided, for reasons that have always been slightly obscure to me, not to include the provisions of Article 13 in the legislation that took us out of the European Union. Those of us who were there found a tsunami of emails and letters from people who may not have understood the most detailed aspects of animal sentience but were very concerned that the Government were not reflecting their views. This resulted in rather a lot of mid-air turbulence in trying to get to this point. Without baring the soul of the discussions over that time, I respectfully correct my noble friend to say that this was something people were very concerned about in the much wider sense of where animal sentience and animal welfare combine.

Lord Robathan Portrait Lord Robathan (Con)
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Perhaps my noble friend might list the constituents who wrote to him.

Earl of Caithness Portrait The Earl of Caithness (Con)
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My Lords, I am grateful to the Minister for his very full reply. He did comment on my amendment; I will have to read what he said in the Official Report, but towards the end, he said quite rightly that the remit of the animal sentience committee was across Whitehall. That includes the devolved Administrations. The Scottish Animal Welfare Commission was set up specifically to look at how the welfare needs of sentient animals are being met by devolved policy. I am now unclear—perhaps my noble friend could help me—about how much of sentience is devolved and what exactly the committee will be able to do in the devolved countries. Will it be able to go to the Scotland Office and thus up to Holyrood, look at its policy and tell Scotland that it has to change its ways? I am not quite certain how this will work in practice. As this is Committee, it is an ideal time for my noble friend to explain the Bill a bit more to us.

Lord Benyon Portrait Lord Benyon (Con)
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I am grateful to my noble friend, and I hope to be able to reassure him. The job of the animal sentience committee will not be to walk into Holyrood and instruct our friends in Scotland how they should deal with animal sentience. It is a committee based around the UK Government that, as he rightly says, covers Scotland, but these matters are devolved issues—animal welfare is a devolved issue. But, on these small islands, it would be absurd if we were not working closely across borders with the devolved Administrations to make sure that our animal welfare laws broadly align. We have livestock bred in one country and slaughtered in another, or bred in one country and fattened in another. We have other activities, such as fishing and all forms of animal welfare, which require a cross-border understanding.

The Animal Welfare Committee’s remit is right across the country. The animal sentience committee will be restricted to the UK Government and will work with the devolved Administrations to make sure that the policies it is commenting on are properly managed in respect of the department to which it is making its report.

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Lord Lexden Portrait The Deputy Chairman of Committees (Lord Lexden) (Con)
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The noble Lord, Lord Howard of Rising, has withdrawn so I call the noble Lord, Lord Benyon.

Lord Benyon Portrait Lord Benyon (Con)
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I thank my noble friend Lord Moylan for his Amendments 28 and 42. Members of the animal sentience committee will be appointed through a rigorous procedure of fair and open competition. As I have said previously, the committee will be comprised of experts who will be best placed to decide what the committee’s priorities should be, although they will of course be able to consult others.

Peer-reviewed evidence from academic journals will have a role in informing the committee’s work. While we do not propose to dictate to the committee how it should set out its reports, it is usual for expert committees such as this to present well-reasoned reports that show their working. The Scottish Animal Welfare Commission, for example, publishes its reports online and includes its reasoning and references. However, I do not believe that it is necessary for the committee’s reports themselves to be published in academic journals. To require the committee’s recommendations to undergo a full academic peer-review process would be impractical and inappropriate, and would risk creating a process that would slow down the publication of the committee’s views and delay the opportunity for Parliament to hold Ministers to account.

It is key that the committee should be able to advise on policies while they are being developed. This amendment would severely compromise its role. The committee will publish reports, so it will naturally have an open way of working. I believe that this will provide transparency about its work. If a Minister felt that a report of the committee identified a need for further evidence or assessment, they would be free to highlight this in their response to the report.

Nothing would please me more than to spend time talking about the philosophy behind what we are talking about. We could even, if we had time, discuss Descartes’ Meditations on First Philosophy, in which he said that animals possess life

“nobler than any merely corporeal grade of being”.

However, in terms of how we approach this Bill, the definition of sentience is important. Our scientific understanding of sentience has come a long way in recent years and will continue to evolve. The Bill does not therefore have a fixed definition of sentience. It is not necessary to define sentience in statute for this Bill to work. We can all recognise that animals are sentient and that their welfare should be considered in decision-making; there is no need to make it more complicated than that.

Our GB-wide Farm Animal Welfare Committee issued a definition of sentience in 2019. The Scottish Animal Welfare Commission recently published a statement on sentience. There are some differences; this shows the importance of adopting a flexible approach that can evolve. It is worth noting that neither definition is set out in statute. The Scottish Animal Welfare Commission’s definition is one that it has adopted for its own purposes; similarly, if the animal sentience committee considers it expedient to adopt a working definition of sentience, it would of course be free to do so, but that is a discussion for its members to have.

I hope that this reassures my noble friend and that he will withdraw his amendment.

Lord Lexden Portrait The Deputy Chairman of Committees (Lord Lexden) (Con)
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My Lords, I have received one request to speak after the Minister. I call the noble Baroness, Lady Bakewell of Hardington Mandeville.

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Lord Lexden Portrait The Deputy Chairman of Committees (Lord Lexden) (Con)
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My Lords, it is time to resume. Perhaps the Minister might like to say a word in reply to the noble Baroness, Lady Bakewell.

Lord Benyon Portrait Lord Benyon (Con)
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I thank the noble Baroness for her question. It would not be our intention to edit the committee’s membership by their eating habits or by any other habits or disciplines. We want a balanced committee that draws together a wide range of expertise across the whole field of animal welfare.

Lord Moylan Portrait Lord Moylan (Con)
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My Lords, I am grateful to noble Lords who have spoken in support of the amendment, and to the noble Baroness, Lady Bakewell, for contributing to the debate. I reiterate the point that the science that underlies animal sentience is of crucial importance to the Bill and deserves further debate, which may come at a future stage in the Bill. To be absolutely clear on my own position in case it was not, I am not saying that there is no such thing as animal sentience science—I believe there is such a branch of science—but I am saying that it is a relatively new, relatively specialist and slightly political branch of science. It needs the buttressing of peer review.

In that regard, I was disappointed by the response of my noble friend the Minister. He said that the Government did not want to dictate to committees such as this because they usually did well-reasoned reports. I thought “usually” was interesting. I quite understand that the Minister does not appear to want to dictate to committees that do badly reasoned reports; he wants to stand aloof from good research, from good reason and from bad reason alike. But that is not a very good basis for carrying the public with you. When this committee comes into existence and produces its reports, I think that much of what it says will be met by the challenge, “Well, that’s not really science anyway.”

It is slightly remarkable that, given the opportunity by these modest amendments to rebut that challenge and say, “No, this is science at the cutting edge. It is the best science we have and we know that because we have ensured that it is properly peer-reviewed”, the Government have turned away in distain and said that they would rather have uncertain science and not have any checks on what the committee is going to do. I am sure that, if they reflect, they will think that that is not really a sustainable or credible position. For the moment, to allow them time to reflect, I am happy to see my amendment withdrawn.

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With those two points, I leave on the table the question for my noble friend the Minister as to what the exact crossover is with the other departments, to which he briefly referred last week, and to what extent this Bill relates to the provisions of the Agriculture Act and the Environment Bill. With those few words, I support my noble friend’s Amendment 35A.
Lord Benyon Portrait Lord Benyon (Con)
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I thank my noble friend Lord Caithness for his Amendment 35A, which seeks to ensure that the animal sentience committee’s recommendations are not detrimental to conservation, biodiversity and other matters. The House has been clear that the committee should not usurp or encroach on the role of Ministers to formulate and implement policies in the public interest. It is, and will remain, for Ministers to decide policy and for Parliament to hold us to account. If the promotion of animal welfare is ever not fully compatible with other important goals, it is for us—not a committee—to determine the best course of action.

I agree entirely with my noble friends Lord Caithness and Lady McIntosh of Pickering. They are right to state their concerns about the anthropomorphisation—I think that is the right word but I am not sure; I look to the noble Lord, Lord Trees—of species. We make gradations of cuteness in our own minds. We look at a deer and compare it to a rat; we often do not mind very much what happens to the rat but mind when it is the deer, when the latter may be more of a pest in terms of conservation and biodiversity. As one person lecturing me on forestry when I was studying land management said, “Remember”—he was referring to grey squirrels—“it is not the squirrel’s fault that it is a pain in the backside”. His point was well made. Even allegedly non-interventionist activities, such as rewilding, actually require enormous amounts of interventionism when it comes to animal welfare. If you go to Knepp, that estate still has cattle, horses and pigs to manage, so there are animal welfare considerations.

However, I reiterate that the animal sentience committee is not there to make recommendations about how Ministers should decide what policy should be. The purpose of its recommendations is to highlight certain effects on which it has the expertise to assess, so that Ministers can understand those effects better. The committee’s members will be well aware that Ministers have myriad other important factors to consider when reaching their decisions—I hope this addresses my noble friend’s point—and that their recommendations are likely to relate to one of a number of important considerations that Ministers will want to take account of.

I fear that directing the committee to prejudge recommendations based on factors other than animal welfare would risk undermining the clear distinction we have drawn and force it to assess matters beyond its expertise. It bears repeating that, rather than being some sort of power-grabbing cabal, this will be a committee of experienced scientists, veterinarians and other experts. These will be level-headed, thoughtful people who are unlikely to wish to advise on matters beyond their remit.

There is also a real opportunity for the committee to add value to the policy-making process. I know that some of your Lordships fear that we will be told we must sacrifice important human needs, such as crop protection, to animals. Instead, the committee will help policymakers to reach intelligent solutions which allow us to advance human interests in ways that are compatible with the welfare needs of animals. I say to my noble friend that we both want to see the committee make suggestions on how well the welfare needs of animals have been taken into account in policy decisions. But I reiterate that it is for Ministers, not the committee, to decide how animal welfare itself should be balanced against other matters of interest, such as conservation and biodiversity.

To be specific on whether the Bill will interfere with pest control, the answer is no. Pest control is highly regulated. Rules ensure that the trapping and killing of vermin is humane, using permitted methods. I say to my noble friend Lady McIntosh that we are talking about vertebrates here. A vertebrate is an animal with a spine: mammals such as dogs, cats and cows; birds; reptiles; and amphibians, such as frogs and toads. Vertebrates do not include decapods and cephalopods —we might come to that later—arachnids, insects and myriapods. With those assurances in mind, I hope that my noble friend Lord Caithness will be content to withdraw his amendment.

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Lord Hamilton of Epsom Portrait Lord Hamilton of Epsom (Con)
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My noble friend Lord Caithness mentioned the predation of badgers, which of course do not come under pest control; they are protected. He did not mention that badgers very much like eating hedgehogs. They are skilled at rolling them over and disembowelling them. When we worry about the decline in hedgehog numbers, very rarely does anybody mention that perhaps badgers are responsible for this.

Another protected species is the sparrowhawk. If you shoot a sparrowhawk you get fined £1,000 because all hawks are protected, but 34 songbirds every week account for their diet. We have to bear in mind that in nature, almost all species are predated on by others. We just want to get all this into perspective.

Lord Benyon Portrait Lord Benyon (Con)
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I would be going down a very dangerous path if I moved on to cats and how many songbirds they account for, and would probably find this getting out of hand, but my noble friend is absolutely right. What we seek to achieve through not just animal welfare provision but other legislation and regulation is a balanced countryside. We do not get it right; we are suffering a cataclysmic decline in species, which means that our children and grandchildren will not see the species that we have perhaps relied on seeing regularly. That is a tragedy that we are seeking to reverse through a variety of other policies. At the same time, when it comes to pest control, we can do it as humanely as possible, and we can have management techniques that protect both species and landscapes. It is not an exact science and it will be got wrong at certain times, but, by and large, I think there is a great unity of purpose in trying to reverse these tragic declines in species.

Lord Moylan Portrait Lord Moylan (Con)
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My Lords, given our discussion at our earlier session two weeks ago about the composition of the committee, I was struck by the Minister’s certainty that he could describe the members of the committee in such paradigmatic terms. I cannot recall his exact words—I will look at them in Hansard—but he said that the members of the committee would be knowledgeable, balanced, cautious, restrained and unwilling to rush into areas where they were not wanted. This must narrow the number of people who would qualify to sit on the committee to the point where I suspect the Minister must have a list of names already. If he has not, or is not willing to disclose it, is he at least willing to assure us that, when the public appointment process is launched and the person description drafted, the words that he has used now will be carried over verbatim into the person description for the applicants so that we get exactly who he appears to be promising us?

Lord Benyon Portrait Lord Benyon (Con)
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I am very worried about my noble friend. He appears to have a very jaundiced view of human nature. There are a great many people with those skills whom we meet every day, whether we are having our dog treated at the vets or talking to farmers or discussing wider policy areas in this field. I hope I can prove to him that his glass should be half full on this; we will find the right people.

Earl of Caithness Portrait The Earl of Caithness (Con)
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My Lords, I am grateful to those who have taken part in this debate, in particular my noble friend Lady McIntosh of Pickering for her helpful contribution. When my noble friend Lord Hamilton intervened, I too immediately thought of cats and the very good debate on cats that we had before my noble friend the Minister joined the House, when the wonderful work and research done by SongBird Survival was referred to, because of the millions of birds that cats take every year.

I listened with care to what my noble friend the Minister said and was heartened by a lot of it. If what he said works in practice, I think that a lot of our concerns will evaporate. My fear is that when he goes and the Ministers change, the committee will undoubtedly change too, and then the trouble will begin. That will be a few years down the road; I do not wish my noble friend to leave his position any time in the next four years or even thereafter, because this committee will be too important.

I am grateful for what my noble friend said. I shall read it. He was absolutely right that this is not an exact science; it is not, but I fear that we have spent too much effort on habitats and not enough on management. Therefore, the problem has been exacerbated. I hope that, with my noble friend’s experience and knowledge, Defra will spend more time on management than it has in the past, because it is only through management combined with habitats, species and the right amounts of food given at the right times of year that we will be able to increase the biodiversity of this country, which has suffered in the recent past. I am happy at this stage to withdraw my amendment.

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Lord Benyon Portrait Lord Benyon (Con)
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I will start with Amendment 48 in the name of my noble friend Lord Moylan. With it, I will take his Amendments 52 and 53, together with Amendment 59 in the name of my noble friend Lord Mancroft and Amendment 60 in the name of the noble Lady, Baroness Jones of Moulsecoomb.

It is evident that there is a rather wide range of views in the Committee about which animals should be recognised in this Bill as sentient. Some noble Lords wish to see the scope of the Bill immediately broadened to include decapods and cephalopods; others additionally wish to see the exclusion of certain classes of vertebrates. As drafted, the Bill defines an animal as a non-human vertebrate—that is, an animal with a backbone. The scientific evidence is clear that vertebrate animals can experience pain and suffering. It is on that basis that the definition of “animal” in the Animal Welfare Act 2006 extends to vertebrates.

Government policy will continue to be guided by scientific evidence. That is why we have future-proofed the Bill with a delegated power for Ministers to add different species of invertebrates to the definition of “animal” by regulation. We will use this power where supported by robust scientific evidence. This corresponds to the similar delegated power contained in the Animal Welfare Act. I am mindful, of course, that this House has mixed feelings about the inclusion of delegated powers such as this in public Bills. It is rightly expected that Ministers offer a good reason for their inclusion. I can assure your Lordships that we would not have taken the trouble to seek this power if we were not prepared to use it when needed. I can confirm that new additions to the remit of the Bill—new species—are subject to an affirmative resolution, so noble Lords can scrutinise them.

On Amendment 56, my noble friend Lord Trenchard would, had he been able to speak to it, have sounded a note of caution regarding the delegated power in the Bill. I can assure him that such a power will be exercised appropriately, as I said. That is why the affirmative resolution process applies; Parliament will have the final say on any extension to the Bill’s scope. If either House is not satisfied that Ministers have good evidence to justify their use of the delegated power, then its use can be vetoed. We know that scientific research is a continuous process and new evidence on sentience will emerge over time as our understanding increases. That is why we have included the delegated power. I am aware there may be different views on the inclusion of a delegated power in the Bill. However, this power is necessary to allow us to recognise other species as sentient if there is sufficient evidence to support it, and I can confirm we intend to use the power if that is the case.

Naturally, when we talk of possible extensions to the Bill’s scope, many noble Lords are thinking primarily about its extension to decapods and cephalopods. This is reflected in Amendment 57 in the name of my noble friend Lord Moylan, as well as Amendment 49 in the name of the noble Baroness, Lady Hayman of Ullock, and Amendment 51 in the name of the noble Baroness, Lady Jones of Moulsecoomb. As noble Lords know, my department has commissioned an independent review of the available scientific evidence on sentience in decapod crustaceans such as crabs and lobsters as well as sentience in the cephalopod class, which includes octopus, cuttlefish and squid. I can confirm that the report will be published before the Bill returns to the House on Report.

We want this Bill to stand the test of time. Our understanding of animal sentience has developed in recent years and will continue to do so. I say to my noble friend Lord Moylan that I would be reluctant to do away with the ability to extend the Bill’s scope to other species, subject to parliamentary approval, if that is what the evidence calls for.

Turning to Amendments 55 and 58, in the name of the noble Baroness, Lady Jones of Moulsecoomb, I am not sure whether there is anything to be gained from explicitly excluding or including foetuses and embryos from the committee’s remit, as the noble Baroness’s amendments would require. In practice, it would be difficult for the committee and government departments to identify the way in which a policy under consideration affects the welfare needs of a foetus or embryo, as opposed to those of the mother animal. It is therefore unlikely that the committee could find itself considering a policy beyond its remit.

To conclude my remarks on what species the Bill covers, I recognise that there are strong views advocating for many different directions. We want to ensure that any extension of the recognition of sentience is informed by engagement with the evidence from experts and stakeholders. Parliament can expect us to weigh the evidence carefully, with the assurance that it will always have the final say on the matter.

I saw and was profoundly affected by the documentary “My Octopus Teacher”, which has been frequently quoted. Other than the beauty of that particular animal, it also showed the healing power of nature for the individual who made that film. It is one of the most remarkable programmes that I have seen for a very long time.

I turn now to Amendment 50, in the name of my noble friend Lord Robathan, which seeks to refine the scope to kept animals. Your Lordships might wonder what is the point of recognising the sentience of animals that are outside human control, such as wild animals—the noble Baroness, Lady Hayman, made this point. It is simple: these animals are sentient and equally capable of feeling pain and suffering. Sentience is not a capacity limited to those animals under the control of man, nor does government policy impact solely on kept animals. There are numerous ways in which a government policy might affect wild animals. Crucially, we share an environment. Hence we should not limit the committee to considering the sentience of kept animals alone.

I will answer various points that have been raised. To my noble friend Lord Moylan, I will quote Rousseau’s Discourse on the Origin and Basis of Inequality Among Men: animals should be part of natural law

“less because they are rational than because they are sentient”.

I do not usually pray him in aid—his writings led to the French Revolution and the Terror—but I think that, in this case, he was right.

Like many others, my noble friend Lord Robathan referred to the words “Trojan horse”. I do not understand why they keep being used in the context of the Bill. The Trojan horse was a special forces operation, as he should be well aware, and it led to the sacking of a civilisation. I do not see that it has any corresponding circumstances here.

Finally, my attention was drawn to something in Hansard on 25 July 1979—so in the first few weeks of the then Conservative Government—where an MP who then went under the name “Miss Fookes” asked the Minister for Agriculture, Fisheries and Food

“what progress has been made with the Government’s review of their animal welfare policy”.

She was clearly on the march on animal welfare matters even then. In his reply, the Minister, Peter Walker—obviously late of this parish—set out the parameters that he thought were important for the Farm Animal Welfare Council, which is obviously a different organisation. However, his reply clearly sets out the level of expertise and—I say this to my Conservative colleagues—an enduring determination to improve the welfare of animals. It finishes:

“The actions the Government intend to take will provide a more efficient and effective means of furthering the interests of animal welfare.”—[Official Report, Commons, 25/07/1979; cols. 295-98W]


I could not have put it better than that in the context of this Bill.

Finally, as this is the last group, I thank every one of your Lordships who has spoken on the Bill today and at the previous session. As a new Member of this House, I can certainly say that its reputation as a place of careful consideration and scrutiny is well deserved. I hope that my noble friend will feel content to withdraw his amendment.

Baroness Garden of Frognal Portrait The Deputy Chairman of Committees (Baroness Garden of Frognal) (LD)
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My Lords, I have received a request to speak after the Minister from the noble Lord, Lord Bellingham.

Lord Bellingham Portrait Lord Bellingham (Con)
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My Lords, does the Minister think that there is a fundamental difference between a lobster and a prawn? If an image of a prawn is magnified many times, we see that it is not dissimilar to a lobster. Of course, when children go shrimping or catching prawns, whelks, cockles or mussels, those creatures are all put into boiling water, pretty well killed immediately and cooked. Does the Minister feel that there is a fundamental difference between those bigger crustaceans such as lobsters and crabs and the smaller ones?

Lord Benyon Portrait Lord Benyon (Con)
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I am not an expert, and that is why I want an animal sentience committee that will advise me and my successors on the rights and wrongs of dispatching species of all kinds. I cannot answer my noble friend. I understand the point that he makes. He is a seasoned political debater. This is an issue which requires people who will make decisions about such matters, and that should not be lay men like me.

Lord Moylan Portrait Lord Moylan (Con)
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My Lords, I am grateful to my noble friend the Minister and to other noble Lords who have spoken on this group of amendments, particularly my noble friends Lord Caithness, Lord Robathan and Lord Mancroft. I was pleased that the noble Lord, Lord Trees, felt able to express support for Amendment 57 in my name.

I also want on this occasion to thank the Minister for handling us so well. These have been two afternoons of extremely informative and at the same time very good-natured debate, and he has taken everything that we have thrown at him and come back with a dazzling display of intellect and sympathy, though it is mildly regrettable that the only philosophers he cites are all French—maybe he should have a closer look at that for the future.

I apologise for expressing myself badly if I conveyed to the noble Baroness, Lady Bakewell of Hardington Mandeville, that I did not think that dogs could feel pleasure. That is not what I intended to say. In fact, one of my amendments specifically preserved mammals as part of the scope of the Bill. I was trying to say that, while we can certainly understand pleasure and indeed pain in a dog or in the higher mammals, it is very difficult to understand what that means in any meaningful sense when one is talking about fish, for example. It was simply that point that I was trying to make; I am sorry if I did not express myself well.

I say to the noble Baroness, Lady Hayman of Ullock, that Amendments 52 and 53 would add fish and birds to a clause that excepts—it is an exception clause—so that it would except homo sapiens “and fish” and so on. It takes them out of the scope of the Bill. Clearly, the noble Baroness does not want them taken out. However, she was never going to express support so, in a way, it does not matter.

As a final point, I want to pick up on what the noble Baroness said about cephalopods and decapod crustaceans, and it is a bit of commentary on much of the Bill. I think that we are all agreed that the Bill has to say something, and we have a Bill here which is so empty of content that it would almost be a scandal if it passed in its current circumstances. Today and on previous occasions, we have discussed how it ought to say something about composition and about term limits—which we discussed last time. Perhaps there is a feeling that it ought to say something too about cephalopods and decapod crustaceans. Where we might differ around the Committee, because we have not sufficiently coalesced, is on what exactly it should say on those issues, but I think that many of us sitting here, from all political parties and groups, can probably agree with me if I say to the Minister that as the Bill stands, it is not good enough, and that when it comes back on Report we expect many things that we have said to be heard and the Bill to be improved in a number of respects.

I wish the Minister well in his endeavours to make the Bill better so that we are all as happy with it as we have been with him. I beg leave to withdraw the amendment.

Animal Welfare (Sentience) Bill [HL]

Lord Benyon Excerpts
Report stage & Lords Hansard - part one
Monday 6th December 2021

(2 years, 3 months ago)

Lords Chamber
Read Full debate Animal Welfare (Sentience) Act 2022 Read Hansard Text Read Debate Ministerial Extracts Amendment Paper: HL Bill 4-R-I(Rev) Revised marshalled list for Report - (3 Dec 2021)
Baroness Hayman of Ullock Portrait Baroness Hayman of Ullock (Lab)
- Hansard - - - Excerpts

My Lords, these amendments broadly consider the remit of the committee regarding policy. Clause 1 sets up the committee. The stated purpose of the Bill is to make sure that animal sentience is taken into account when developing policy across government, but policy is not always set in aspic and I find it concerning that the majority of the amendments that have been put down in this group would prohibit the ASC considering policy formulated and implemented before the committee’s formation.

At the start of his speech, the noble Lord, Lord Trees, talked about unintended consequences, but we should also look at the unintended consequences of this group of amendments if they are accepted. We believe that the prohibitions that are being put forward would prevent the committee considering how the ongoing implementation of recent and historic legislation affects the welfare of animals as sentient beings. The impacts can be significant. To take an example, the primary legislation used to prosecute hare coursing is the Hunting Act 2004 and the Game Act 1831. We believe that the ASC should be free to consider how the implementation of those laws affect the welfare of hares as sentient beings. While the ASC will be likely to focus its work on emerging policy, we believe it needs the freedom to consider existing legislation where it feels it is appropriate to do so.

Amendment 18, tabled by the noble Earl, Lord Caithness, would require scientific evidence to be published. It is very important that scientific evidence is taken into account right across the committee. It is clear from the terms of reference that that will be an important part of its work. But again I have concerns: requiring things to always be published before being presented to Parliament could place an unintended scientific barrier in front of the committee. I worked in publishing for many years, and I know that sometimes it can take a long time. I would not want to see the committee’s work hugely delayed as an unintended consequence of this amendment.

I will keep my comments brief throughout Report. We discussed at length in Committee many of the amendments before us again today. I do not want to waste time going back over issues that we have already spent a lot of time on, but I would be interested to hear the Minister’s response to people’s concerns.

Lord Benyon Portrait The Parliamentary Under-Secretary of State, Department for Environment, Food and Rural Affairs (Lord Benyon) (Con)
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My Lords, I am grateful to the noble Lord, Lord Trees, the noble Baroness, Lady Mallalieu, and my noble friends Lord Howard and Lord Caithness, for their amendments on the subject of the animal sentience committee’s remit with respect to existing policies. My remarks will address all the amendments.

This is the first piece of legislation I have steered through the House. I am conscious that I am in the presence of experienced legislators and people very much more experienced, perhaps, that I was in the other place where, when a piece of legislation was described as “terrible” or “poorly drafted” it was usually code for the fact that the speaker did not agree with it. Here, I am sure that that is not the case and that noble Lords are much more discerning, and I will seek to answer their points, be more conciliatory in my remarks and address their concerns.

I thank noble Lords for their discussion on this issue, and for the opportunity to put on record a clear statement on the remit of the committee. The Bill is already drafted so as to ensure that animal sentience is actively considered in current policy-making and implementation and, in line with its statutory function as set out in the Bill, the committee will be expected to prioritise current or recent policy decisions. Prioritising policies that the Government are currently pursuing fulfils the committee’s statutory function under Clause 3. This clause requires the Secretary of State to respond to the committee’s reports and is the only legal consequence the committee reports have. As I have repeatedly stated, the purpose of the Bill is to provide a proportionate, targeted and timely accountability mechanism. There are limits to how far you can hold a current Government to account for the decisions they did not make, and this would certainly not be timely. I hope this addresses points made by my noble friends Lord Moylan, Lady McIntosh and others.

However, the value of the committee is in looking at policy issues that are live in some way, and the committee would not be acting in the public interest if it did not do that. There would be no benefit for animal welfare, for the public, for Parliament or for the Government in discussing policies that have long been customary, revised or resolved. To put it more simply, the committee would not be doing its job properly if it sought to rake over old coals and to reignite past policy issues that are now closed. If this happened, it is something that would need to be raised with the committee chair as part of the performance management and governance processes that will be in place.

Seeking to impose a rigid form of words in legislation on these matters risks excluding the committee from areas where its scrutiny would be valuable. Attempts to distinguish current policy from established policy in statute would leave the committee wide open to challenge if interpretations of the wording differed. We are also of the view that, for the committee to provide targeted and effective parliamentary accountability, the committee’s report should not be subject to approval or preselection by Ministers. I would caution against the approach proposed my noble friend Lord Caithness, which would require Ministers to agree to the preparation of any report.

The noble Lord, Lord Trees, talked about process. Clause 2(2) envisages that the committee can examine what adverse effects a policy might have on the welfare of animals and whether the Government are aware of all those possible adverse effects and fully understand them so they can properly take them into account in their decision. This is clearly about the process followed in decision-making.

My noble friend Lord Ridley talked about the committee’s ability to consult stakeholders. He is right that the committee may choose to engage with a range of external bodies and individuals, as it sees fit. This stakeholder engagement is important as it will allow the committee to prioritise policies that are more significant in terms of the nature and scale of their effect on animals or the extent of parliamentary, departmental, stakeholder or public interest.

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Lord Hamilton of Epsom Portrait Lord Hamilton of Epsom (Con)
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Before my noble friend sits down, could he answer the remark of the noble Lord, Lord Trees, that this is Article 13 with bells on? Why is so much added into this legislation, which goes way beyond Article 13?

Lord Benyon Portrait Lord Benyon (Con)
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It does not go way beyond Article 13, but it does create a committee that did not exist. There were other measures in the European Union which sought to give substance to the wording in Article 13—we will come on to talk about some of them, perhaps in the next group of amendments—by referring to cultural and other issues that were of concern to member states. We have tried to transpose the legal wording recognising animal sentience into UK law and have sought to make the Government’s decision-making better by giving them an expert committee to advise them.

Lord Cormack Portrait Lord Cormack (Con)
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Is not the noble Lord, Lord Trees, one of the most eminent and respected veterinary surgeons in our country? Could we not take his advice?

Lord Benyon Portrait Lord Benyon (Con)
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My noble friend is absolutely right. I have listened to the noble Lord, Lord Trees, a lot in my few months in this role. I respect his views and his counsel and, wherever possible, I take it.

Baroness McIntosh of Pickering Portrait Baroness McIntosh of Pickering (Con)
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Perhaps I may press my noble friend, because I did not follow what he said about retrospectivity—or perhaps he did not say anything. Will he confirm that there is no retrospective effect? I listened very carefully to what he said about animal sentience; I hesitate to say it, but I think he is confusing animal sentience and animal welfare. I think the mood of the House is to keep Article 13 on animal sentience and let the other committee that is already set up to look after animal welfare do the perfectly good job it is already doing.

Lord Benyon Portrait Lord Benyon (Con)
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I am grateful to my noble friend. I will not detain the House by repeating the paragraphs I have put on record in relation to the prioritising policies that the committee will look at. That will be for the current Government and the policies they are currently pursuing, and it will fulfil the committee’s statutory function under Clause 3. I went on to say—I hope this was clear—that the committee would not be doing its job properly if it sought to rake over old coals and reignite past policy issues that are now closed. My noble friend and noble Lords will know that words said by Ministers at the Dispatch Box hold sway when people try to interpret legislation. I hope I have been as clear as I possibly can be about the remit of this committee and the kinds of priorities it will look at. I hope that has reassured my noble friend.

Lord Trees Portrait Lord Trees (CB)
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My Lords, I thank everybody who has contributed to this short debate, and I thank the Minister for his answers. I note the concerns expressed by the noble Baroness, Lady Mallalieu, which I and many others, I think, share, about the time, expense and bureaucracy that may be entailed in the legislation having retrospective force. I would still, however, say to the noble Baroness, Lady Hayman of Ullock, that I do not see why the animal sentience committee cannot look at current legislation and policy and comment on it. It is a statutory committee. I have huge respect for the noble Baroness, Lady Fookes, and her passion for animal welfare, which I share, but I think that she said it was an advisory committee. The committee is statutory. It is a very powerful committee and is there to hold the Government to account, which is why more detail about its remit could usefully appear in the Bill. I respect the explanation by the noble Lord that the terms of reference are very clear about this, that and the other, but as I recall the committee itself can alter its terms of reference, because they are not made explicit in the Bill.

This issue of process is cardinal, and I hope it does not come back to bite us all. Having said that, I am not one to make futile gestures; I appreciate that the Opposition are not supporting amendments and that there is a strong government Whip. I support the essence of this Bill in toto, but one wishes to make constructive suggestions that might improve it. I very much appreciate the kind remarks of the noble Lord, Lord Cormack. With that, however, I beg leave to withdraw the amendment.

Animal Welfare (Sentience) Bill [HL]

Lord Benyon Excerpts
Report stage & Lords Hansard - part two
Monday 6th December 2021

(2 years, 3 months ago)

Lords Chamber
Read Full debate Animal Welfare (Sentience) Act 2022 Read Hansard Text Read Debate Ministerial Extracts Amendment Paper: HL Bill 4-R-I(Rev) Revised marshalled list for Report - (3 Dec 2021)
Baroness Hayman of Ullock Portrait Baroness Hayman of Ullock (Lab)
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My Lords, I will talk first about the first part of Amendment 2, which looks at committee remit and policy. That has not really been discussed much in this debate so far. I draw attention to the terms of reference, because they include a lot of information about the role of the committee and policy. I put on record that we welcome a number of formal recognitions that the committee will have. It will: consider positive effects on animals as sentient beings in the policy-making process; report on any policy for which UK Government Ministers are responsible; examine policy decision-making by previous Governments where this has a significant bearing on ongoing policy-making. It is also important that the selection of the policy decisions it will choose to scrutinise will lie within the committee. I will make a final point on policy before moving on. I draw attention to the fact that it is not for the committee to reach a value judgment on whether a given policy decision balanced the welfare of animals with other matters of public interest.

On Amendment 48, the noble Baroness, Lady Bakewell of Hardington Mandeville, has pretty well covered all the areas I wish to draw attention to, so I will move on. The second part of Amendment 2 and Amendment 27 refer to having regard to cultural and religious considerations, as we have heard. Clearly, this is extremely important; the noble Baroness, Lady Deech, in particular, demonstrated that passionately in her speech. As we have seen, Amendment 27 seeks to sustain an aspect of the sentience responsibility that applied when we were EU members: the derogation to Article 13 of the Lisbon treaty, which exempts cultural practices from animal welfare considerations.

Again, I draw noble Lords’ attention to the fact that this derogation was negotiated during the Lisbon treaty by a very small number of EU Governments particularly looking to preserve practices such as bullfighting. I believe that we now have the freedom to widen our ambitions for animal welfare while still respecting cultural and religious practices. Indeed, the restrictions in Article 13 have frequently been cited as one of the key flaws in EU sentience policy that post-Brexit UK sentience policy can improve on. In fact, the then Secretary of State at Defra Michael Gove said in 2017:

“The current EU instrument—Article 13—has not delivered the progress we want to see. It does not have direct effect in law—in practice its effect is very unclear and it has failed to prevent practices across the EU which are cruel and painful to animals.”


Article 13 has not stopped any of those practices, but leaving the EU gives us the chance to do much better. This matter was discussed at length in Committee and the noble Baroness, Lady Fookes, made some good points about existing legislation. In Committee, in response to noble Lords’ concerns, many of which were exactly the same as those expressed today, the Minister assured us that any Minister would have to take into account the wider considerations of cultural and religious organisations and form views in accordance with them. I hope that he can similarly reassure noble Lords today.

Finally, I say to the noble Earl, Lord Kinnoull, that I am always happy to meet to discuss policy and legislation with anybody.

Lord Benyon Portrait The Parliamentary Under-Secretary of State, Department for Environment, Food and Rural Affairs (Lord Benyon) (Con)
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I start by wishing my noble friend Lord Mancroft a speedy recovery, and I am sorry he is not here. I am grateful to my noble friend Lord Marland for moving his amendment and the noble Baroness, Lady Deech, and others for speaking to it.

The amendment seeks to clarify the role and detail of the animal sentience committee. I reassure my noble friend Lord Marland and the noble Baroness, Lady Deech, that the Bill already makes it absolutely clear that the only role of the committee is to provide an assessment of the extent to which policy decision-making has considered whether a policy may

“have an adverse effect on the welfare of animals as sentient beings.”

We are sure that the Bill already makes it clear that the committee will not be authorised to stray into making value judgments, as the noble Baroness, Lady Hayman, just said, on how well a given policy decision balanced the welfare of animals with other matters of public interest. There is no need to specify explicitly in the Bill that it is for Ministers to take other public considerations into account when formulating and implementing policy, because this requirement applies as a matter of course.

Amendment 48 concerns the structure of the committee, criteria for appointments to it and how it is to operate. My noble friend’s amendment raises a number of points about the design of the committee, which I will address in turn. I agree with him about the optimal size of the committee. That is why we have already made it clear that there will be eight to 12 members, working part-time. We want the committee to have everything it needs to do its job well, and its members will be its most important asset. We are committed to ensuring that the committee is large enough to have a suitable breadth of expertise among its members, while not making it so large as to be unwieldy. Of course, the committee will always be able to consult outside experts when needed. Defra’s hosting allows it to be affiliated to the animal welfare centre of expertise and, as I have said, this means there will be enhanced liaison and co-operation between experts.

The committee has the statutory power to issue reports giving its opinion on whether, or to what extent, the Government are having, or have had, all due regard to the ways in which a policy might have an adverse effect on the welfare of animals as sentient beings. The Bill already places a legal duty on Ministers to respond to the committee’s reports within three months of their publication. Once established, it will be for the committee to determine how it fulfils its statutory functions. The draft terms of reference set out how we expect it to work.

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Lord Howard of Lympne Portrait Lord Howard of Lympne (Con)
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My noble friend repeatedly emphasised during the course of his reply that the decision on these matters would be made by Ministers, but he will know, as we all do, that the decisions of Ministers are subject to judicial review. We have heard from no less an authority than the noble and learned Lord, Lord Etherton, that, without the language contained in Amendment 27 in particular, the risk of judicial review of those decisions by Ministers is increased, not reduced. What is my noble friend’s answer to that point?

Lord Benyon Portrait Lord Benyon (Con)
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My learned noble friend will know that there will be attempts to judicially review Governments at every stage of a process of policy, particularly in areas that are emotive and that carry great weights of public opinion in one way or the other. The question is not whether judicial review will be attempted but whether it will be successful. Last week Defra won a court case—as we do many times—against an attempt to take things to judicial review because the judge said it was not permissible to take the matter any further. That is why we have strictly limited the duties on Ministers that lie behind the Bill to only two areas. So I am not saying at all that there will not be attempts to judicially review, but I hope I can convince my noble friend that those attempts will not be successful because we have been so careful to limit the scope of the Bill.

Lord Hamilton of Epsom Portrait Lord Hamilton of Epsom (Con)
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Would the attempt at judicial review not be more likely to be successful if there had been a report from the animal sentience committee saying that there was something illegal about ritual slaughter?

Lord Benyon Portrait Lord Benyon (Con)
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With respect to my noble friend, no. As long as the Minister has set out that, “We have received this report and here is our response; we hear what you say but there are wider cultural and religious factors that I have to consider in taking my decision”, that will be absolutely within the terms of this legislation and will not be able to be successfully judicially reviewed.

Lord Marland Portrait Lord Marland (Con)
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My Lords, I thank those who have spoken so eloquently, including those who have supported my amendments.

The Government really are in a mess on this subject. They cannot defend the reason for the committee. They do not know who is actually running these decisions—whether it is Ministers or the Government. Most people, once torpedoed beneath the bows by the very eloquent and eminent noble and learned Lord, Lord Etherton, would have given up and said yes, especially when followed by my noble friend Lord Howard, who underlined the terrible mess that the Government are in. The very fact that Defra has defended itself from legal disputes shows us the onslaught that is going to happen. If that were not enough, the noble Baroness, Lady Mallalieu, made a brilliant intervention showing that committees are already in place to help them.

We on our Benches want to help the Government, not to hinder them—we want to make this better for them. But I fear they have lit a long fuse that is going to explode in our faces in five to 10 years’ time, and there will be nothing that we can do about it. It will traipse through the courts, there will be no defence to it and all the warnings that we have given will have been to no avail.

I am a loyal member of our party, so I am not going to invite the opinion of the House, but I sense that there is a strength of opinion in support of the amendment from the noble Baroness, Lady Deech, so I would certainly not want to interfere on any decision that she might make on her amendments—but I hereby withdraw my amendment.

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Lord Benyon Portrait Lord Benyon (Con)
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I thank noble Lords for their valuable scrutiny of the Bill, and the envisaged structure and operation of the animal sentience committee. I will address the points raised in turn.

I start with Amendments 3 and 5 in the name of my noble friend Lord Mancroft and ably proposed by my noble friend Lord Robathan, concerning the membership of the committee. These amendments would limit the power of the Defra Secretary of State in appointing members to the committee. We believe that the Defra Secretary of State is very well placed to be responsible for those appointments.

Defra has a long track record of recruiting expert advisers to give balanced, reasonable advice on animal welfare issues. Appointments will be decided in accordance with the Governance Code on Public Appointments, and this is important. The aim of the code is to ensure the best applicants are appointed. Anybody suitably qualified and wishing to apply would need to be assessed alongside other candidates according to a rigorous selection procedure. Applicants would, in line with best practice, be required to declare any potential conflicts of interest to the recruitment panel. Your Lordships can be reassured that the process of recruitment of members to the committee will be rigorous and that members will be chosen on the merits of their expertise. This is what is needed for the committee to perform its role.

I thank my noble friend Lady McIntosh of Pickering for her Amendment 4, concerning term limits for members of the committee. Before I get into the meat of her point, I will say that our commitment to supporting farmers is total. I ask her to read, if she has not already, a copy of the speech made by the Secretary of State on Thursday; it sets out our commitment to support farming and farmers, particularly in the upland areas that I know I know are dear to her.

I agree with my noble friend that the committee should benefit from fresh thinking and new perspectives, but this should be balanced against the risk of unnecessary churn and loss of talent. Setting inflexible term limits could prove disruptive to the committee’s work. It would be regrettable if a member’s term ended mid-report, for example.

Additionally, we should allow some room for manoeuvre in exceptional circumstances; for example, the ongoing pandemic. This was a point well made by the noble Baroness, Lady Bakewell, who may not have been referring to the pandemic, but her point was right. The pandemic disrupted recruitment to several organisations, and I would not want to take away the ability of the Secretary of State to apply short extensions to members’ terms if necessary.

We have sought to strike a sensible balance in the approach outlined in the draft terms of reference—I am grateful to the noble Baroness, Lady Hayman, for her points about that. Members would, in general, be appointed for terms of four years, renewable once. This is the standard approach for public appointments of this nature. These are the same terms on which we appoint members of other animal welfare expert bodies such as the Animal Welfare Committee and the Zoos Expert Committee. It is tried and tested.

Of course, there will be safeguards. As set out in the terms of reference, the Secretary of State reserves the right to terminate appointments if he or she considers that a committee member’s performance, attendance or conduct has been unsatisfactory, or if there is a conflict of interest which threatens the integrity of the committee. I hope my noble friend will agree that our proposed approach strikes the right balance.

I turn to Amendment 6, also in the name of my noble friend Lady McIntosh, concerning the membership of the committee. I agree with my noble friend that vets and livestock farmers have a lot to contribute when considering animal welfare. We recognise the importance of having experts with hands-on experience of working with animals on the committee. Anyone who is an expert in the fields of animal behaviour, animal welfare, neurophysiology, veterinary science, law and public administration who wished to apply would be assessed alongside other candidates via a rigorous selection procedure based on fair and open competition. We want to ensure that the committee benefits from a diversity of expertise, and we hope to encourage applications from a wide range of specialists.

That is one reason why we have sought to avoid being too prescriptive about the make-up of the committee, be that in the Bill or in the draft terms of reference. Also, the expertise required by the committee may change from time to time as the scientific understanding of the welfare needs of animals continues to evolve. It is important that the Bill leaves scope to adjust the committee’s membership as required. It is also important to avoid creating requirements in the Bill that are so specific that they lead to appropriate candidates being unable to fulfil the criteria. For these reasons, I would prefer an approach that encourages the recruitment of a diverse range of experts to the committee, rather than setting out too-rigid specifications in statute.

I turn to another amendment in the name of my noble friend Lady McIntosh, Amendment 8, concerning the governance and operation of the committee. When we last discussed this amendment, my noble friend stressed that it is

“intended to be entirely helpful”,—[Official Report, 6/7/21; col. GC 298.]

and I am grateful for the constructive suggestions that she has offered. The draft terms of reference reflect many of the points raised in the amendment. As I have said, they make provision for the Secretary of State to remove underperforming members, and they also propose term lengths and performance management procedures.

My noble friend has said that her amendment is based on the text used in the Trade Act to describe the Trade Remedies Authority. I would argue that the committee’s role and remit is very different from the authority’s, and so provisions appropriate to the latter are not necessarily suitable for this committee. For example, there is no need to create executive and non-executive classes of membership for the committee. It will be the members themselves who prepare reports, with assistance from the committee’s secretariat. There is little need to codify any delegation of functions. In the committee’s case, it is the Secretary of State who should ultimately be responsible for its good governance and effective recruitment. The draft terms of reference make this responsibility clear. I would be reluctant to dilute this accountability by delegating such responsibilities as the amendment proposes.

We have proposed an approach that makes Ministers accountable for ensuring the committee is run well, while avoiding excessive red tape. We want a timely, targeted and proportionate accountability mechanism. This requires the committee to have sufficient confidence and independence to offer meaningful scrutiny, but without conferring legal powers and responsibilities on it which are not appropriate for a body of this size and remit.

Finally, I turn to Amendment 10, also in the name of my noble friend Lady McIntosh. I understand that my noble friend and other Peers have queries regarding the need for such a committee and suggest its functions could be subsumed into the Animal Welfare Committee—a point made by the noble Baroness, Lady Mallalieu, earlier. The two committees have different roles. The animal sentience committee needs to be established in statute to provide for effective parliamentary accountability. The Animal Welfare Committee operates very effectively as a non-statutory body that provides expert advice on specific issues set out in remits issued by the Government. While both committees hold expertise in a similar area, their roles are distinct. For the legislation to require Ministers to publish a written response to a report by the committee, and to lay the response before Parliament, the committee must be referred to in the Bill. It is on this basis that the committee has a legal persona, and this role could not be undertaken by a completely non-statutory body such as the Animal Welfare Committee.

The animal sentience committee and the Animal Welfare Committee will be affiliates sitting within the animal welfare centre of excellence. We expect that, within the centre, the committee will have a particularly close working relationship with the Animal Welfare Committee. The two committees may refer issues to each other as required. However, the function to issue reports on how well central government policy decisions have taken the needs of sentient animals into account can be undertaken only by the animal sentience committee, in accordance with the parameters set out in the Bill.

I hope that I have been able to reassure noble Lords and that they will feel content not to press their amendments.

Baroness McIntosh of Pickering Portrait Baroness McIntosh of Pickering (Con)
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My Lords, before my noble friend sits down, he has not explained why he argued so vigorously in Committee that, if the details that are now in the terms of reference appeared in the Bill, they might be subject to judicial review. His view must be that, because they are in the terms of reference, they are not subject to judicial review. In my view, they constitute an administrative act, so how is he going to get round this and avoid judicial reviews?

Lord Benyon Portrait Lord Benyon (Con)
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If, as my noble friend suggests, we put details in the Bill that incorporated the types of people who had to be on the committee, and then if, for example, someone were off sick or had not been appointed or for whatever reason was not available at the point at which the committee wrote a report, that would leave the Government open to a successful judicial review. These are matters that we think sit absolutely in accordance with other committees that are set up across government, where the terms of reference are amendable without having to go back to legislation. This is a fast-moving area of policy and, in future, we may feel, after thinking about it for a while, that the terms of reference need to be amended. This allows, in an entirely normal way, the Secretary of State to make those amendments in consultation with others. I do not think that it would be wise to put it in the Bill because that would increase the risk of judicial review.

Lord Hamilton of Epsom Portrait Lord Hamilton of Epsom (Con)
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I have two questions for my noble friend before he sits down. Does he accept that the Animal Welfare Committee could have been put on a statutory basis and its remit expanded to take in animal sentience? Secondly, if there were a change in Government after the next election, could a Labour Secretary of State put totally new people on the sentience committee?

Lord Benyon Portrait Lord Benyon (Con)
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Let us deal with the second question first, then I will see if I can remember the first. A future Government can bring in legislation, if they have a big enough majority to get it through, to do anything they like within the law. We are a sovereign nation and they could take those decisions—indeed, they could populate arm’s-length bodies and expert committees with who they like.

On the first question, no we could not, because the Animal Welfare Committee has a different remit. For starters, it is a UK-wide committee and it is not a creature of statute; it gives expert advice as and when required. We wanted to have a body that is a creature of statute, so that there is parliamentary accountability in the process of policy-making.

Lord Robathan Portrait Lord Robathan (Con)
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My Lords, for one glorious moment I thought that the noble Baroness, Lady Hayman, was going to support the amendment that I moved—she disappointed me, but then what do you expect?

I do not wish to detain my noble friend the Minister any longer. I will let him off the agony and let him go and have some dinner. Notwithstanding the fact that I remain convinced that there is very little clarity either in the Bill or the terms of reference, I wish to withdraw my amendment.

Animal Welfare (Sentience) Bill [HL]

Lord Benyon Excerpts
Report stage & Lords Hansard - part three
Monday 6th December 2021

(2 years, 3 months ago)

Lords Chamber
Read Full debate Animal Welfare (Sentience) Act 2022 Read Hansard Text Read Debate Ministerial Extracts Amendment Paper: HL Bill 4-R-I(Rev) Revised marshalled list for Report - (3 Dec 2021)
However, the wording of the Bill itself remains unchanged and continues to require the committee to only consider “adverse effects”. This contradiction could lead to complications. An ASC report focused on positive effects could be challenged, with any defence based on the licence to consider positive effects conferred by the terms of reference being undermined by the prohibition on doing so in the text of the legislation. I hope that the Minister will consider this, as it is a simple amendment. Removing the word “adverse” from the Bill text would allow a sensible approach—which is in the published terms of reference—to be safely and fully implemented by the committee.
Lord Benyon Portrait The Parliamentary Under-Secretary of State, Department for Environment, Food and Rural Affairs (Lord Benyon) (Con)
- Hansard - -

I thank your Lordships for amendments, and I hope that I can provide some reassurance on the points made.

I start with Amendment 9, in the name of my noble friend Lord Ridley, which would establish the animal sentience committee as a committee within the Cabinet Office. I would argue that Defra is well placed to host the animal sentience committee—which I will refer henceforth to as “the committee”. Defra’s hosting allows it to be affiliated as a constituent of Defra’s animal welfare centre of expertise, alongside other expert animal welfare committees, such as the Animal Welfare Committee. This provides for these committees to draw upon one another’s expertise much more easily than if they were hosted separately.

In his explanatory statement, my noble friend suggested that, if the committee were under the Cabinet Office, it would be easier to reach agreement on membership. It is not clear how changing the host department would achieve this. We believe that our approach to recruiting experts means that the committee will have the right experts. The same considerations would apply regardless of which department was responsible for supporting the committee.

Importantly, Amendment 9 would mean that the committee would be non-statutory, with no independent existence from government. This would undermine its purpose—one of proportionate scrutiny and accountability. A statutory committee allows experts the appropriate independence to achieve its function.

Amendments 11, 33 and 37, also in the name of my noble friend Lord Ridley, would require the animal sentience committee to publish an animal welfare strategy and for the committee and the Government to undertake actions associated with this. In this Bill, we have given the committee the power to produce reports about individual policies containing its views on to what extent the UK Government are having, or have had, all due regard to the ways in which those policies might have an adverse effect on the welfare of animals as sentient beings. We believe that it is important for the committee itself to decide which policies to report on, within the remit of the terms of reference. We would expect it to form an overview of all policy decisions with a significant effect on the welfare of animals. This need not cover every single policy decision but could cover those which are of a higher priority to animal welfare.

To ask this committee to produce reports relating to every department annually would be a significant burden and would mean less scrutiny on those policies that really matter. We want the committee to be targeted, timely and proportionate in how it operates. It is better to focus on policy decisions which have the most impact. The co-operation of departments is necessary for the committee to be able to work effectively, and Defra is already working to secure this. I believe a collaborative approach is the most appropriate one.

The committee’s role is not to set out a strategy for animal welfare nor to devise plans for future policy. These are clearly a matter for the Government. In May this year, the Government launched Our Action Plan for Animal Welfare. This sets out the Government’s current and future reform programme on animal welfare, covering both kept animals and wild animals under a series of strategic themes. I do not see the need for the committee to publish its own animal welfare strategy.

I hope that the noble Earl, Lord Kinnoull, feels that we have already covered Amendment 13 and the remit of the animal sentience committee in group 2. But I am happy for him to raise issues in a moment if he feels we have not.

I turn to Amendments 17, 22 and 34, in the name of my noble friend Lord Mancroft, concerning the reports of the animal sentience committee. The committee will be made up of eight to 12 members, and we anticipate it will take forward six to eight reports a year. However, Amendment 17 would require it to issue a report on all policy decisions. This is neither feasible nor desirable. We want proportionate and targeted scrutiny and accountability, and in so doing, the committee is to consider which policy decisions it deems most important. It should not be beholden to consider every policy decision regardless of its importance to animal welfare.

The question in Clause 2(2) is designed to allow the committee to express its views in an informative way to provide a proper understanding of the decision-making process followed. We believe that the committee’s recommendations are likely to be nuanced. The purpose of these reforms is not to impose a simple “pass or fail” test, which Amendments 22 and 34 suggests it should. That is not necessary, and it is likely to be unhelpful, and indeed unworkable, in many cases.

There may well be cases where the committee’s report into a policy decision does not identify major concerns but makes recommendations that would further improve future decision-making. The proposed amendments would not cater for this situation. While I understand, in principle, the rationale for limiting the requirement for Ministers to reply only to reports which identify major concerns, this would generate missed opportunities to consider valuable recommendations for improvements.

I turn to Amendments 20 and 25, in the name of my noble friend Lord Howard of Rising, which query the use of the phrase “all due regard” when describing what the committee is to consider in its scrutiny of policy formulation and implementation. The technical meaning of the phrase “all due regard” in this instance is not considered to be materially different to that of the phrase “due regard”; “all due regard” emphasises that the committee should assess the extent to which all relevant factors affecting animal welfare are being considered.

I turn now to Amendments 21 and 26, again from my noble friend Lord Howard of Rising, which seek to clarify that the committee can consider positive impacts on the welfare of some animals of a policy alongside the negative effects of that policy on the welfare of other animals. This point was raised by the noble Baroness, Lady Hayman. Meeting the welfare needs of animals includes avoiding negative impacts as well as providing for positive experiences. Depriving an animal of its ability to have positive experiences, like exhibiting natural behaviours, counts as an adverse effect. I can assure your Lordships that the reference to “an adverse effect” in the Bill allows the committee to consider whether the positive experiences of an animal have been restricted.

We consider that the committee is already able to express its views on the ways in which a policy decision may not be able to maximise the welfare needs of animals, and that it may set out missed opportunities to make positive improvements to animal welfare. This is outlined in the draft terms of reference. Furthermore, I assure my noble friend that the Bill does not change existing law on pest control or impose any new restrictions on individuals or businesses.

I turn to Amendment 32 in the name of my noble friend Lord Howard of Rising, concerning the Bill’s scope with respect to the devolved Administrations. The committee will select policy decisions made by the UK Government on which it can issue reports. This will cover all matters that do not fall within the legislative competence of the devolved Administrations. As animal welfare policy is a devolved issue, it is a matter for the devolved Administrations as to how they wish to recognise and consider animal sentience when formulating and implementing devolved policies. It would be inappropriate for their Ministers to be held to account to the UK Parliament on matters that fall within their legislative competence.

Scotland has already used secondary legislation to establish an advisory body, the Scottish Animal Welfare Commission, which advises its Government on those policy areas for which they are responsible. The commission has been asked to consider how the welfare needs of sentient animals are being met by policies of the Scottish Government. The Senedd and the Northern Ireland Assembly are free to introduce their own legislation, should they wish. In addition, the Welsh Government have powers to set up a committee through secondary legislation if they wish to.

Amendment 38 in the name of the noble Baroness, Lady Hayman of Ullock, would require the animal sentience committee to publish an annual report. We wish to ensure that the committee is as effective as possible in undertaking its role. Reports issued by the committee will be made available on its public website. Ministers will be required to prepare a written response to these reports for Parliament, which will create opportunity to hold Ministers to account. This process will provide a great deal of transparency about the committee’s work and the policies it has chosen to consider. Further transparency will be provided through the Freedom of Information Act and the Public Records Act.

We will conduct regular performance reviews of the committee to ensure that it is fulfilling its purpose. However, we would not want to commit to an onerous annual reporting process for the committee in statute. This could take resources away from the committee’s primary scrutiny role. Ministers are required to lay timely written responses to every committee report before Parliament. This means that Parliament will be well aware of what the committee has been working on.

Finally, government Amendment 36 is a technical amendment that clarifies the time limit in which Ministers must respond to reports published by the committee. The Bill requires Ministers to lay a written response to a report before Parliament within three months of the report’s publication. This amendment excludes from that time limit certain periods in which Parliament is not sitting. We wish to make it clear that, in these limited circumstances, a Minister may submit a written response at a more appropriate time. We are committed to Ministers providing timely responses. That is why we want the time limit established by the Bill to be clear. I am indebted to my noble friend Lord Forsyth of Drumlean for raising this issue. While we did not have the opportunity to discuss this amendment in Committee, we have considered his contribution and improved the wording of the Bill.

Viscount Ridley Portrait Viscount Ridley (Con)
- Hansard - - - Excerpts

My Lords, I am obviously a little disappointed that my brilliant suggestion about the Cabinet Office committee has not fallen on more fertile ground. To use an analogy, you would keep a sheep dog in a kennel rather than with the sheep, but I will not pursue that one. I thank noble Lords who have spoken in this short debate and beg leave to withdraw the amendment.

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The Council on Animal Affairs—a precedent body in the Netherlands, similar to the ASC being set up here —has produced some useful reports for its Government, considering new questions around policy and digitalisation in farming and biotechnology in the zoo sector. Both are areas where prior research material was very limited. The ASC should have a similar freedom to apply its core welfare question to policies where its considerations could add value, including areas not previously covered in detail by the scientific community. Again, it is important to stress that the role of the ASC is not to make detailed policy proposals but to draw attention to areas where the Government may wish to develop them.
Lord Benyon Portrait Lord Benyon (Con)
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My Lords, it has been a fascinating debate. I do not want to detain the House, but I was very entertained by my noble friend Lord Moylan’s trips down the gradations of sentience that might exist across the animal kingdom. I was trying to work out whether he was a follower of Aristotle—who believed that animals lacked rational souls and therefore were outside the sphere of justice—or whether he was Descartian or Rousseauan in his view. I do not want to go into a philosophical—

Lord Moylan Portrait Lord Moylan (Con)
- Hansard - - - Excerpts

It may help my noble friend—seeing as he was so kind as to ask the question, I am sure he will be interested in the answer—to know that I stand on every occasion with Aristotle on this, as on so many other matters. I just want that to be clear.

Lord Benyon Portrait Lord Benyon (Con)
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That is good to know. I am very grateful. However, I differ from him entirely if he thinks—which I do not think he really does—that the Government, of whom I am proud to be part, would engage with any form of ropey bunch of scientists. In fact we will come on to talk about, as the noble Baroness, Lady Hayman, said, the degree of scientific breadth that went into the 300 different pieces of work studied by the London School of Economics in its reports on decapods and cephalopods. It is an indication of the expertise that exists out there.

I think my noble friend Lord Hannan has the advantage on me in that he believes that legislators do not need experts. I may have misunderstood him, but as I gaze around this Chamber I see precious few scientists, with one notable exception. There may be more—of course, there is the noble Lord, Lord Trees.

Lord Benyon Portrait Lord Benyon (Con)
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No, I do not include the noble Lord, Lord Robathan. Both Houses lack the kind of expert rigour that we need in decision-making. I thank my noble friend Lord Moylan for his Amendments 23 and 35 concerning the academic rigour of the committee. We will ensure that the animal sentience committee is comprised of members with the right expertise. They will be best placed to decide what the committee’s priorities should be and, in doing so, they can consult others. I reassure my noble friend that the annual work plan of the committee will be made publicly available. This will ensure that its priorities and approach are fully transparent. As the draft terms of reference for the committee show, we fully intend to appoint members through a rigorous procedure of fair and open competition.

Of course, peer-reviewed evidence from academic journals has a role in informing the committee’s work. However, I do not believe it is necessary for the committee’s reports themselves to be published in academic journals. It is critical that the committee should be able to advise in a timely way—this is the key point—on policies that are being developed. To require the committee’s recommendations to undergo the full academic peer-review process would cause considerable delays in enabling Parliament to hold government to account. This amendment would severely compromise its role. I hope with those few words I have reassured my noble friend, and he will be content to withdraw his amendment.

Earl of Caithness Portrait The Earl of Caithness (Con)
- Hansard - - - Excerpts

Before my noble friend sits down, although he says he does not want the committee’s work to be peer-reviewed, does he still abide by what he said in Hansard on 25 May when he was talking about pollinators? He said:

“It is right to use science as the absolute arbiter in this.”—[Official Report, 25/5/21; col. 891.]


Is science going to be the absolute arbiter for this committee?

Lord Benyon Portrait Lord Benyon (Con)
- Hansard - -

I hope I can reassure my noble friend that science and good scientific evidence is at the heart of decision-making and that is why we need the right advice for Ministers—so, yes. However, his experience and mine will have been that one can get conflicting scientific advice, so one needs to choose scientific experts with care and make sure that they give clear, unbiased opinions to Ministers and that their information can make better policy. Therefore, scientific evidence will be at the heart of this and we will follow it in the selection of committee members.

Lord Hamilton of Epsom Portrait Lord Hamilton of Epsom (Con)
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Before my noble friend sits down, does he think that Mrs Carrie Johnson has the expertise and rigour to be on the animal sentience committee?

Lord Benyon Portrait Lord Benyon (Con)
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I will make sure that every single person who applies for the committee has the necessary expertise, whatever background they come from. We will be looking for a range of people, from those with agricultural experience, those with experience of animals at the end of life in the slaughter process, and veterinarians. I made a list earlier; I will not repeat it because there were some long words which I cannot remember, but they will undoubtedly be a factor in deciding who will be members of the committee.

Lord Moylan Portrait Lord Moylan (Con)
- Hansard - - - Excerpts

My Lords, it is a great disappointment that my noble friend has not conceded the very sensible proposal I made. It was unsurprising, however. What did surprise me were the remarks from the Opposition Dispatch Box. A more thorough-going endorsement of government policy better presented it is rare to imagine coming across. The idea that the Government never take scientific advice that needs to be checked or disputed and that they would never take dodgy scientific advice, now endorsed by the Labour Front Bench, is one I will cherish and store up for reference, no doubt, on some future occasion. However, for the moment, I beg leave to withdraw my amendment.

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Baroness Hayman of Ullock Portrait Baroness Hayman of Ullock (Lab)
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I thank the noble Lord, Lord Teverson, for making that point, which is incredibly important, particularly to me, as someone who lives in Cumbria, where we have so many problems with tree diseases and are losing so many trees. It is pitiful watching some of the woods being taken down around places such as Ennerdale and Loweswater.

Coming back to Amendment 28 in the name of the noble Earl, Lord Caithness, he is right that we do need to look out for any unintended consequences of legislation. There are concerns that there may be an adverse impact on the environment. It is important that the Minister is able to reassure noble Lords that there will not be these outcomes from the Bill being enacted. This brings me back to the points we made earlier about how critical it is that the animal sentience committee has the right members who are highly qualified to advise the Secretary of State on these matters when any proposals are put forward.

Looking at Amendment 29, in the name of the noble Lord, Lord Pearson of Rannoch, I say that it is not necessarily unfortunate to be stuck in Scotland at the moment; I might like to be joining him there. There was a debate on the Environment Bill about lead shot, and I will be interested to look at government progress on this.

The noble Earl, Lord Caithness, introduced Amendment 31 on electric dog training collars. These are opposed by the RSPCA, the Kennel Club, the Animal Behaviour and Training Council and the British Veterinary Association. I am aware that the Government have previously announced plans to look at banning shock collars on dogs, and on this side of the House we would support the Government if they wanted to go down that route.

The final amendment, Amendment 45, was introduced by my noble friend Lady Mallalieu. I thank her for it and I look forward to hearing the Minister’s responses to her concerns.

Lord Benyon Portrait Lord Benyon (Con)
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I am grateful to noble Lords for the opportunity to discuss and explain the interaction of the Bill, and the animal sentience committee, with important policy matters related to animal welfare.

Turning to Amendment 28, in the name of my noble friend Lord Caithness, I can only apologise to him that I do not have a response at present to his point on New Zealand. I want to make sure I get it right, because I do not want to be criticised on the Floor of the House for replying to him late or giving him the wrong answer to a question—but I will reply to him.

This amendment would require the animal sentience committee to ensure that its recommendations would not have a detrimental impact on certain other matters of public interest and great importance. I agree with my noble friend that these vital matters of public interest should be properly considered in all relevant government decisions. But the animal sentience committee is not a decision-making body, and the committee will not have the kind of expertise to evaluate these kinds of impacts. I do not think it would be fruitful to impose this requirement on the committee itself.

Ministers should consider the full range of relevant factors and arrive at a decision as to the appropriate balance between them, for which they are accountable to Parliament. I fear that this amendment would mean asking a committee, which is not accountable to Parliament in the same manner, to prejudge this balance.

We should also be careful to task the right experts with particular scrutiny and advisory functions. The right people to comment on a policy’s effect on human health, for example, are doctors and medical scientists, rather than animal welfare experts. I would not ask doctors to provide an expert opinion on animal welfare issues. Ultimately, we must allow specialist expert committees to focus on their own particular remit. For these reasons, I believe there are better means to ensure that the important matters my noble friend raises are given fair consideration in policy decision-making.

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Moved by
36: Clause 3, page 2, line 21, at end insert—
“(3) The following do not count towards the three months referred to in subsection (2)—(a) any day in a period during which Parliament is dissolved or prorogued, and(b) any day in a period of four or more days during which both Houses of Parliament are adjourned.”Member’s explanatory statement
This amendment has the effect that periods when Parliament is dissolved, prorogued or adjourned for 4 or more days do not count towards the period in which the Minister is required to respond to a report by the Committee.
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Moved by
39: Clause 5, page 2, line 32, at end insert—
“(b) any cephalopod mollusc, and(c) any decapod crustacean.”Member’s explanatory statement
This amendment adds cephalopod molluscs (for example, octopus and squid) and decapod crustaceans (for example, crab and lobster) to the definition of “animal” for the purposes of the Bill.
Lord Benyon Portrait Lord Benyon (Con)
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I am grateful to your Lordships for your forbearance, and for your views and insights on this important piece of legislation. I will also speak to the consequential Amendment 43.

As I have said during previous debates on the Bill, the Government’s approach to recognising the sentience of animals will be guided by the scientific evidence. My department commissioned an independent review from the London School of Economics and Political Science of the evidence surrounding the sentience of cephalopod molluscs and decapod crustaceans for that very purpose. As promised, I made the findings of that review available to your Lordships for consideration ahead of today’s debate.

Sentience is broadly understood to be the capacity to feel pain. Our Animal Welfare Committee advised in 2018:

“Sentience is the capacity to experience pain, distress and harm.”


The review considered the findings of around 300 scientific studies, using a set of criteria based on brain structure, nervous system complexity and testing for adaptive behaviour to assess whether these classes of invertebrate are sentient. The report itself was subject to peer review.

The Government have given careful consideration to the contents of the final report. We accept that there is strong evidence of the sentience of these invertebrates. It is only right, therefore, that they are included in the provisions of the Bill. That means that the animal sentience committee, once established, may produce reports under Section 2 of the Bill in relation to the welfare of cephalopod molluscs and decapod crustaceans.

However, I want to be clear that this amendment does not alter existing legislation or policy. I have heard, for example, the concerns put to me by representatives of the fishing sector, and I can assure this House that nothing in this amendment, or indeed in the Bill, changes the rules governing the activities of individuals or businesses.

Naturally, in due course, the Government may wish to consider whether it would be appropriate to amend the scope of other animal welfare legislation to include cephalopod molluscs and decapod crustaceans. While that is not the question we are discussing today, I take the opportunity to assure your Lordships that any changes to existing laws would be subject to appropriate parliamentary scrutiny, and we would consider carefully how we would engage industry in their development.

Today, we propose simply to recognise the sentience of these invertebrates in line with the scientific evidence. I am grateful to the noble Baronesses, Lady Hayman of Ullock, Lady Bakewell of Hardington Mandeville, Lady Jones of Moulsecoomb and my noble friends Lady Fookes and Lord Randall of Uxbridge, for their previous amendments on this subject. I hope that they, and the rest of the House, will support this amendment. I beg to move.

Lord Moylan Portrait Lord Moylan (Con)
- Hansard - - - Excerpts

My Lords, it is with some regret that I note that my noble friend at the Dispatch Box did not thank me for my previous amendment on this subject. I accepted as far back as Committee that it was likely that cephalopods and decapod crustaceans would be added to the list of sentient beings covered by the Bill, although I did not expect it to be done in the Bill but through the secondary legislation which it contemplates.

I introduced an amendment in Committee that said, beyond vertebrates, the Government can only add, to the list of sentient beings, cephalopods and decapod crustaceans and no more. This was countered, so to speak, by the noble Baroness, Lady Hayman of Ullock, who put down an amendment that actually added those two classes of creature to the face of the Bill. Neither amendment, of course, proceeded at Committee stage. I find it rather sad and curious that, of those two amendments, my noble friend at the Dispatch Box selected that promoted by the noble Baroness, Lady Hayman of Ullock, and has rather ignored mine.

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Baroness Hayman of Ullock Portrait Baroness Hayman of Ullock (Lab)
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Noble Lords will not be surprised that I am absolutely delighted that the Government have tabled Amendment 39, which, as we have heard, has picked up the amendment I tabled in Committee and expands the definition of animals in the Bill to include decapod crustaceans and cephalopods.

It has also been good to hear support from some noble Lords, although I am sorry that it seems to have made the noble Lord, Lord Moylan, so sad. As the Minister said in his introduction, this amendment follows the London School of Economics and Political Science’s report, which concluded that there is strong scientific evidence that decapod crustaceans are sentient and can experience pain. I will not go into the detail of the report because the Minister has done that admirably, but I draw attention to the overarching central recommendation that all cephalopod molluscs and decapod crustaceans should be regarded as sentient animals for the purposes of UK animal welfare law; they should be counted as animals for the purposes of the Animal Welfare Act 2006 and should be included in the scope of any future legislation relating to animal sentience. To be honest, that could not be clearer. The LSE is a well-respected organisation.

The report also provides some helpful recommend-ations for improving best practice and welfare and for regulating existing commercial practices that are of reasonable and widespread animal welfare concern for decapod crustaceans. In addition, it is consistent with the approach other countries have taken, for example, Austria, Switzerland, Norway, New Zealand, some Australian states and territories and some German and Italian cities. Importantly, the report also includes recommendations about how industry can be supported through any necessary changes. Will the Minister confirm that marine industries and the food sector will have advice and help to manage any impact that a change in legislation would bring?

I want to say once again a big thank you to the Minister and the Government for taking this forward and proposing its inclusion in the Bill. I am sure he is very aware that he has the strong support of these Benches.

Lord Benyon Portrait Lord Benyon (Con)
- Hansard - -

I am grateful to the noble Baroness for those remarks. I think it might be helpful to the House if I say how this came about, as it answers the points about how we got to the stage of including decapods and cephalopods in the Bill. It is a matter of serendipity. For many years people have been pushing for work to be done, and it was done by the LSE. It just so happened that that report came into the Government’s hands over the summer while we were in the process of going through the Committee stage, and it seemed an obvious moment to take this forward when the findings of that report were so clear.

To cheer up my noble friend Lord Hamilton a bit at this late hour, I cannot think of any other species that are likely to go through this process. If there are any, I suggest that it will probably be at least a decade before someone is standing here recommending that we take that forward. It may be less; this is a fast-moving area of science, but it has taken many years—I do not know how many precisely—for decapods and cephalopods to be recognised in this way. I hope that is reassuring.

The noble Baroness asked a question about the food industry and making sure that, if the committee were to make recommendations about how one treats these organisms as part of food processing or cooking and the law is then changed because Ministers accepted that advice, there would have to be a huge amount of work with the food industry to make sure that it was prepared for it. However, this amendment does not change anything. It does not change the law; it just allows it to be within the remit of the committee to give advice to Ministers who will then take other factors into account, regarding, for example, the marine environment, fish, the economic benefits of the fishing industry to coastal communities or the importance that the Government put on fish being part of the nation’s balanced diet. These are the sort of wider factors that Governments will take into consideration.

I am sorry that my noble friend Lord Moylan feels put upon. I thought that I was the victim here, but clearly that is not the case. I will try to be kind to him when I come to his amendment.

I turn to Amendment 41, and here my remarks relate to the point made by the noble Lord, Lord Trees. The Animal Welfare (Sentience) Bill recognises that live animals with a backbone—vertebrates—are sentient. A government amendment has been tabled to also recognise decapod crustaceans and cephalopod molluscs as sentient, as I have said. It is our intention and expectation that the committee will concern itself with consideration of the welfare of live animals. In practice, it would be difficult for the committee and government departments to identify the way in which a policy under consideration affects the welfare needs of a foetus or an embryo, as opposed to those of the mother animal. It is unlikely, therefore, that the committee would find itself considering a policy beyond its remit. The central recommendation in the report is that these cephalopods and decapods will be regarded as sentient animals, but we carefully considered the recommendations in the review. The evidence of sentient decapods and cephalopods is clear: we are committed to being led by science when it comes to sentience, and that is why we amended the Bill.

Turning to Amendment 42 in the name of my noble friend Lord Moylan, as I mentioned, the Government are led by the science when it comes to sentience. We have considered the review’s findings carefully before amending the Bill to recognise these invertebrates as sentient. I can confirm that, at the present time, there is no intention to treat any other invertebrates, beyond decapods and cephalopods, as sentient animals. The scientific evidence that led to the Government commissioning the LSE review has been many years in the making. I can assure the House that this will continue to be the case for future extension, using the delegated powers in Clause 5.

Lord Moylan Portrait Lord Moylan (Con)
- Hansard - - - Excerpts

I note what my noble friend says about there being no plans—and I fully accept that that is so, as he has assured the House—but if there are no plans, why do the Government wish to take the powers to continue to pursue them? Would it not be better if the Minister would just accept that primary legislation will be required as and when the science demands it?

Lord Benyon Portrait Lord Benyon (Con)
- Hansard - -

I hope I can reassure my noble friend by saying that if the Secretary of State were to use his or her powers to recommend another species or group of species to be included, that would be the subject of parliamentary oversight. It would be an affirmative resolution requiring debate in both Houses and would be subject to other areas of parliamentary scrutiny, such as Select Committees and other means by which noble Lords and people in the other place would seek to hold that decision to account. I hope that we would not wish to risk this Bill becoming out of date by removing the ability to update its scope should the scientific evidence develop.

While we are not aware of any instances on the horizon, we cannot discount the possibility that new evidence will emerge in the future that demonstrates the sentience of some additional category of invertebrate. Decapods and cephalopods were the invertebrates most likely to qualify for being regarded as sentient animals. The likelihood that another category of invertebrate might one day be shown to be sentient is small, but it is not zero. That is why we wish to leave an option to update the definition if needed. Such a power must be subject to appropriate checks and balances, of course, and I will address this point shortly.

In the meantime, I take this opportunity to clarify that the Bill is all about government policy decision-making and how well particular decisions take account of the welfare needs of animals. The Bill and our amendments do not change existing law or impose new restrictions on individuals or businesses. I hope that your Lordships will agree that the time has come to include decapod crustaceans and cephalopods in the Bill and will therefore support the government amendment. I also hope that the points I have set out reassure noble Lords and that they will be content not to press their amendments. I beg to move.

Amendment 39 agreed.
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Moved by
43: Clause 5, page 2, line 35, at end insert “, where they are not already within that meaning”
Member’s explanatory statement
This amendment is consequential on Lord Benyon’s first amendment to Clause 5.
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Lord Benyon Portrait Lord Benyon (Con)
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I am very grateful to the noble Baroness, and I congratulate her on hers, too—and I thank her for her help in making this Bill better, although we have more to do. I join in the praise of my noble friend Lord Caithness. In my short time in this House he has proved himself to be a redoubtable holder of the Executive to account, if that is not a tautology.

He calls this the “lifebelt amendment” but I call it the “committee on the committee amendment”. I thank him, but it would require the establishment of a committee to assess the impacts of the Bill after it had received Royal Assent but before its provisions came into force. We believe that it is for Parliament to satisfy itself about the impacts of the proposed legislation before it approves it, and not to pass legislation on the proviso that it goes through further approval before coming into force.

The Bill has been subject to exacting scrutiny in this House. It has been scrutinised by the EFRA Select Committee, and there has been no absence of scrutiny of the Bill and its implications. My officials and I remain ready to answer any questions that noble Lords may have about the Bill. Parliament remains free to seek the views of outside experts on any aspect of the Bill. I have been clear throughout its passage what the implications of the Bill are; it does not change existing law or impose new restrictions on individuals, businesses or any organisation outside the UK Government. It will establish the committee, on the purpose, structure and membership of which I have spoken today at length. I give absolute assurance that Ministers will continue to have full discretion and responsibility as to the appropriate balance between animal welfare and other matters of public interest.

I hope that I have been able to reassure my noble friend and that he will feel able to withdraw his amendment.

Animal Welfare (Sentience) Bill [HL]

Lord Benyon Excerpts
Moved by
Lord Benyon Portrait Lord Benyon
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That the Bill do now pass.

Lord Benyon Portrait The Parliamentary Under-Secretary of State, Department for Environment, Food and Rural Affairs (Lord Benyon) (Con)
- Hansard - -

My Lords, I said at Second Reading that this Bill is our opportunity to build on the UK’s record as a world leader in animal welfare. Animal sentience is a matter of scientific fact and it is only right that it is recognised in UK law and properly considered in policy decision-making. I am therefore pleased to see the Bill progress towards becoming law, an outcome for which there is clear and unambiguous public demand.

It has been an honour to lead the Bill through this House. As your Lordships know, it is the first Bill that I have had the privilege of guiding through this House, and the experience has been an educational one. The House is known to offer particularly robust and careful scrutiny of proposed legislation, and I can certainly confirm that it has lived up to its reputation. While the hours of debate may have been long, they were also constructive and informative.

I thank noble Lords on all Benches for working constructively and coming forward with positive suggestions. I am particularly grateful to my noble friends Lord Moylan, Lord Mancroft, who I am pleased to see has risen like Lazarus from his sickbed to be with us today, Lord Marland, Lord Howard of Rising, Lord Forsyth, Lord Caithness, Lord Ridley, whose imminent departure from this House is a matter of great regret, Lady McIntosh and Lady Meyer. I am also grateful to the noble Lord, Lord Trees, whose understanding of these matters is second to none, the noble and learned Lord, Lord Etherton, the noble Earl, Lord, Kinnoull, and the noble Baronesses, Lady Deech and Lady Mallalieu. Finally, I thank all noble Lords who discussed the Bill with me, inside and outside the Chamber. The Bill, and the animal sentience committee’s draft terms of reference, are in better shape than they would otherwise have been as a result of your Lordships’ engagement.

In addition, I thank officials in my department for their many hours of work on the Bill, including the Bill manager, Katherine Yeşilirmak, and her colleagues Hannah Edwins, Jack Darrant, Phoebe Harris and Cathrine Hughes. I am also grateful to my private secretary, Lucy Skelton, and to Hannah Ellis in the Whips’ Office.

I was delighted to see noble Lords across the House support the amendment to include decapods and cephalopods in the Bill. There has been much interest in this issue, and our decision was fully informed by a robust research report.

I must also thank the noble Baronesses, Lady Hayman of Ullock and Lady Bakewell of Hardington Mandeville, on the Front Benches opposite, for their time and constructive engagement with the Bill. It is a better Bill for their involvement. I am also particularly grateful to my noble friends Lady Bloomfield of Hinton Waldrist and Lord Younger of Leckie, whose support and guidance has been indispensable over the past few months.

I am glad that my noble friend Lord Herbert of South Downs and I are united in, to use the words in his Motion, supporting measures to improve animal welfare. I have known and worked with him on these matters for a great many years, and I understand his commitment to animal welfare. I do not propose to revisit all the arguments made at earlier stages of the Bill, but I would like to take a moment to reassure my noble friend that the accountability furnished by the animal sentience committee will be proportionate, timely and targeted.

My noble friend has expressed concern that the committee would glue up government with its analysis and proposals. I respectfully disagree: if anything, I believe it will oil the wheels of the policy-making process. We have indicated that the committee should look to produce six to eight reports a year. It will have to select policy decisions very carefully, and the administrative burden that is created will be light. Furthermore, the committee is not empowered to make recommendations on the substance of policy decisions; its recommendations will be strictly limited to consideration of the animal welfare impacts of the policy decision. It is therefore difficult to see how the committee would hinder the business of government in the way that my noble friend describes.

I understand why my noble friend has asked about the need for two committees. To be clear, the animal sentience committee is the only new committee to be established. It needs to be referred to in statute to provide for the effective parliamentary accountability that we envisage. By comparison, the existing Animal Welfare Committee advises, rather than scrutinises, Defra and the devolved Governments of Wales and Scotland about particular animal welfare issues that have been remitted to it. Ministers are not required by law to respond to the points made in the reports published by the Animal Welfare Committee, which is not established in legislation. I hope this reassures my noble friend, and that he will be willing not to move his amendment. I beg to move.

Amendment to the Motion

Moved by
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I will not say anything further; it is going to be a very busy day today. I thank the officials for all their time. We support the Bill and believe it is better than when it first arrived in this House. I wish it much luck in the other place.
Lord Benyon Portrait Lord Benyon (Con)
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My Lords, I thank my noble friend Lord Herbert for his contributions to today’s proceedings and earlier debates on the Bill. I have previously addressed at length a number of the points he raised, so I do not intend to detain the House long. He made an incredibly good speech, and some of his points struck home—I felt a bit like that painting of St Sebastian.

The weakest argument he put, echoed by my noble friend Lord Cormack, seemed to suggest that this House cannot hold two thoughts in its head at the same time. Of course, the priority of this House, the Government and all of us is to deal with the pandemic, but the idea that you cannot produce legislation on any other subject, which is the logical conclusion of his argument, is one that I am afraid I do not agree with. But he made other very good points.

I suggest to the noble Baroness, Lady Mallalieu, that this concept of animal sentience was on the statute book; we had it under Article 13 of the Lisbon treaty. The debate, which will continue in another place, is about the degree to which we transpose that. I understand the points she made.

I make an absolute assurance to the noble Baroness, Lady Deech, who is not here. The noble and learned Lord, Lord Etherton, made a very good point, and I respect him and his knowledge. On the point about judicial review, we have done all we can to limit the duties that a Minister has to abide by. That is where judicial review really hurts Ministers—if they fail to follow a duty in the Bill—but I absolutely concede that organisations will continuously try to judicially review the Government, on this legislation and elsewhere. The question is: will it be successful? Will it be permitted to be taken forward? Just the week before last, an organisation wanted to take the Government to judicial review and was refused by the courts.

Finally, on religious rites, I made a promise on Report and continue to make that point. The noble Baroness, Lady Deech, the noble Lord, Lord Sheikh, and others made genuine points about concerns in the communities they come from or sought to represent in their words on this Bill. I and the Government take these concerns really seriously and want to give them every assurance that the Government’s policy remains to support them on these matters of religious importance and on how they wish to have animals slaughtered. We will make officials and Ministers available to give those added reassurances.

I again thank all those involved to date in the Bill’s passage and hope my noble friend will be persuaded not to push his amendment.

Lord Herbert of South Downs Portrait Lord Herbert of South Downs (Con)
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My Lords, this has been a good airing of the issues; we have all said our piece. I have no wish to try the patience of the House, which wishes to get on to other matters, any longer. I hope that Members of Parliament will heed what has been said, and that in due course we will have an opportunity to consider amendments that they make, so that this House performs the job of being a revising Chamber—because the Bill has not so far been revised at all. With that, I beg leave to withdraw my amendment.

Animal Welfare (Sentience) Bill [HL]

Lord Benyon Excerpts
Moved by
Lord Benyon Portrait Lord Benyon
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That this House do agree with the Commons in their Amendments 1 and 2

1: Clause 2, page 1, line 20, at end insert—
“(4A) Recommendations made by the Committee must respect legislative or administrative provisions and customs relating in particular to religious rites, cultural traditions and regional heritage.”
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Lord Benyon Portrait The Parliamentary Under-Secretary of State, Department for Environment, Food and Rural Affairs (Lord Benyon) (Con)
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My Lords, I beg to move that this House do agree with the Commons in their Amendments 1 and 2. Amendment 1 would require any recommendations produced by the animal sentience committee to respect

“religious rites, cultural traditions and regional heritage”.

We have carefully considered representations made by noble Lords in debate on a similar amendment, tabled by my noble friend Lord Forsyth of Drumlean. Honourable Members in the other place raised many of the same concerns. We recognise the strength of feeling in both Houses. We have listened, and we have accepted the amendment.

The Government have always sought to create a targeted, balanced and proportionate accountability mechanism within this Bill. We want the animal sentience committee to be led by science and to comprise members who are experts in sentience and animal welfare. Religious rites, cultural traditions and regional heritage will be neither their area of expertise nor their focus. This is a role for Ministers. We expect the committee to respect provisions and customs relating to these areas when they make recommendations under Clause 2(3) of the Bill.

We have always been clear that it is not the role of the committee to make value judgments about policy or to provide recommendations that do not reflect its expertise or its remit. This amendment will provide additional reassurance on this point. I hope that noble Lords will be content to accept it. I beg to move.

Lord Trees Portrait Lord Trees (CB)
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My Lords, I first declare my interest as in the register. I am co-chair of the All-Party Parliamentary Group for Animal Welfare. I thank the Minister for useful discussions during the passage of this Bill, and I hope that he is a very happy grandfather this afternoon.

I accept these amendments, particularly Amendment 1, but, as a vet and a veterinary scientist, I have to say that I do not condone some of the activities covered under the amendment in terms of,

“religious rites, cultural traditions and historical heritage.”

Some of those activities are not consistent with best practice in animal welfare science or indeed regulation, and I will take this opportunity to make a plea to those directly involved to consider very carefully and to reflect on whether practices which had some historical relevance in ancient times are relevant, necessary or at all acceptable in the 21st century. Having said that, I respect national and international laws pertaining to freedoms—in particular, Article 9 of the Human Rights Act on religious freedoms.

I will make one further point. During prolonged discussions about the Bill in this House, a number of noble Lords raised the potential threat to the use of animals in medical research. That was a fair concern, but one which could be countered—I spoke to that effect, as did others at the time—by the fact that the rigorous application and implementation of our Animal (Scientific Procedures) Act 1986 was a sufficient response to the requirement for government departments to have due regard to animal welfare and the development of policies. We have thorough, world-leading regulations around the controlled use of animals in medical research.

Recently, it has come to my notice that there are changes afoot in the Home Office with regard to the implementation of the Animal (Scientific Procedures) Act. It is not yet clear to me what the effect of those changes might be on the welfare protection of animals used in medical research. I urge Her Majesty’s Government to ensure that any changes with regard to the implementation of the law pertaining to the use of animals in medical research should not weaken—or be perceived to weaken—that regulation, which could lead to increased legal challenge to the use of animals in medical research when the Bill becomes an Act. I support the amendment.

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Baroness Hayman of Ullock Portrait Baroness Hayman of Ullock (Lab)
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My Lords, I will be brief. I thank the Minister for his clear introduction to the amendments that have come forward from the Commons and for his explanation of the Government’s acceptance and the changes to the Bill.

I am sure that the noble Lord, Lord Moylan, will not be at all surprised when I say that I completely disagreed with absolutely everything he said. I think the debates we had in Committee and at Third Reading will have shown him exactly where I stand on the Bill and my support for animal welfare.

On these Benches, we very much welcome the Bill, which we believe will be important. It may not be perfect, but we will be very pleased to see it on the statute book. We are also very pleased that the Government earlier accepted the amendment to include decapod crustaceans and cephalopods; we believe that is an important addition to animal welfare sentience. I thank the Minister in particular for all his hard work on that particular area of the Bill.

I also thank the noble Baroness, Lady Bakewell, for her support on the Bill. We have done important cross-Bench work to get to this stage. I am fully aware that not all noble Lords agreed with us, particularly on the Benches opposite, but we have got the Bill to the place where we think it needs to be and it is good to see that it will move forward and provide more protection for animals in the future.

On the further government promises on animal welfare that we have yet to see, does the Minister have any kind of update on the situation is with the animals abroad Bill, which seems to have hit the buffers? Obviously, we are very pleased that the kept animals Bill has a carry-over Motion but it would be useful if he had any further information on that.

Finally, I give the Minister my very warm congratulations on becoming a grandfather, if that is true—will he confirm it?

Baroness Hayman of Ullock Portrait Baroness Hayman of Ullock (Lab)
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When it is true, it is absolutely delightful to be a grandparent—I highly recommend it to all noble Lords.

Lord Benyon Portrait Lord Benyon (Con)
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I am very grateful to noble Lords for their somewhat premature congratulations. I am waiting for a call on that particular matter—which is not a matter of state.

I thank noble Lords for their contributions to today’s debate, which are very much in keeping with the very interesting and at times enthralling conversations we have had during the progress of the Bill. I had not expected to be standing here talking about it again but the Commons have made the right call, and I am glad that most noble Lords think that we have made the right call in accepting their amendments.

I start by thanking the noble Lord, Lord Trees, whose wisdom and understanding on this and other issues are of enormous value to me and to the department. I hope to continue to have discussions on this and other issues. He raised some important points. As he knows, the Bill is about the government policy-making process. It does not change existing law or impose any new restrictions on individuals or businesses. The Government would prefer all animals to be stunned before slaughter, but we respect the rights of Muslims and Jews to eat meat prepared in accordance with their religious beliefs. Strict rules are already in place which govern these slaughter methods. Official vets from the Food Standards Agency are present in approved slaughterhouses to monitor and enforce animal welfare requirements.

The noble Lord raised an important additional point about medical research. The use of animals in scientific research remains a vital tool in improving our understanding of how biological systems work in both health and disease. Such use is crucial for the development of new medicines and cutting-edge medical technologies. Central to any decision to use animals in research is the need for robust scientific evidence to justify the use of animals. As the noble Lord is well aware, the use of animals in science is regulated by the Animals (Scientific Procedures) Act, which is implemented by the Home Office. His concerns are noted and have been passed on to my colleagues in the Home Office.

I am also extremely grateful to other noble Lords who spoke in this debate. My noble friend Lady McIntosh is right to make sure that what we are talking about is shared with our devolved colleagues. As was apparent during the progress of the Bill, Scotland already has a similar committee and others are either being formed or talked about. We regularly discuss this with our devolved colleagues to make sure that we are learning from the best from them, and they, I hope, are learning from us.

My noble friend is right to raise the issue of farmers. It is important for us to say that the vast majority of farmers are invested in the care of their animals. It makes economic sense for them, but they feel this personally, and the vast majority of farmers, who look after their animals to the highest standards of animal welfare, are wounded by those who do not. They want everyone to know that they are doing their best to care for their animals and for them to have the highest welfare standards of anywhere on this planet.

The noble Baroness, Lady Jones, contributed at many stages of the Bill and I thank her for it. I too share her wish that this will be an effective piece of legislation. Ministers will have at their call the best evidence they need to make the right decisions across government, not just in Defra. I hope that she will continue to take an interest in thism and I am sure that she will inform me if she thinks that we are in any way not being effective.

I very much enjoyed the discussions I had with my noble friend Lord Moylan. We delved into realms of philosophy at times, which is always fun, if testing on the Hansard scribes. My noble friend had a different opinion to me about the importance of the Bill, and I understand his concerns and those of my noble friends Lord Herbert, Lord Bellingham and others on our Benches. However, after the processes we went through, the Bill is better for their challenge. As a relative newcomer to the House, I recognise the value of being challenged and trying to make sure that we are doing the best we can.

My great thanks go to the two Front-Bench spokesmen from the Liberal Democrats and the Labour Party, the noble Baronesses, Lady Bakewell of Hardington Mandeville and Lady Hayman of Ullock. The noble Baroness, Lady Bakewell, raised a point about the other amendment, and she is absolutely right. Amendment 2 and the text it removes are both procedural formalities, but we must recognise that money-raising powers should remain in the other place.

The noble Baroness, Lady Hayman, asked me about the animals abroad Bill. She would seem to have the better of me with knowledge that there is some possibility that it should not happen. That quite possibly means she is better informed than me because, as far as I am concerned, we can expect to see it—in the words that irritate most people on all Benches of this House—in the relatively near future.

I also thank my noble friend Lady Bloomfield, who has been an enormous support to me in taking this Bill through, and the Bill team, Katherine Yeşilirmak, Kalyani Franklin, Jack Darrant, Tess Hanneman, Hannah Edwins, Phoebe Harris and, from my private office, Lucy Skelton and Adam Diep.

This Bill provides recognition of animal sentience in UK law and will see Ministers held to account on considering the animal welfare implications of their decisions. These are both outcomes for which there is overwhelming public support. I look forward to seeing this Bill become law. I beg to move.

Motion on Amendments 1 and 2 agreed.