Abortion (Northern Ireland) Regulations 2021

Richard Graham Excerpts

Monday 26th April 2021 General Committees

[Carla Lockhart (Upper Bann) (DUP)]

The regulations are not just based on the false premise that they are a requirement of international law; they represent a grievous breach of the devolved settlement. For those reasons, and because I believe that the regulations do not reflect the will of the people of Northern Ireland, I cannot support them. We are told that the regulations are being introduced to satisfy the requirements of section 9 of the Northern Ireland (Executive Formation etc) Act 2019, but to understand the constitutional problem that is section 9 it is necessary to appreciate that the case for the vote on 9 July 2019 was greatly strengthened by a claim that it is now clear was not true.

In urging the House to vote for the amendment that became section 9, its proponents suggested that it was required because we in Northern Ireland were in violation of our international human rights obligations. That was completely inaccurate. The CEDAW convention, which is international law and is supposed to define the terms of reference of the CEDAW committee, does not even mention abortion, let alone define a right to it. Moreover, the CEDAW committee is not a judicial body, and it does not have standing to read in a right to abortion, as demonstrated by Professor Mark Hill, QC.

While the Government were deafeningly silent on that point when it mattered during the debate on 9 July 2019, the explanatory memorandum to the regulations belatedly recognises that paragraphs 85 and 86 do not constitute international obligations—the very term that was used to describe them in July 2019. The document states:

“The section 26 power cannot be relied on by the Secretary of State to ensure that the recommendations in paragraphs 85 and 86 of the CEDAW Report are implemented. In particular, those recommendations are not binding and do not constitute international obligations.”

It could not be any plainer, so despite what has been claimed, it is clear that the regulations are not a requirement of international law.

The suggestion that the Government are compelled to act as a matter of domestic law is equally dubious. What exactly is required by virtue of section 9 is a matter of debate; that the Government have an overwhelming majority in the House of Commons is not. The Minister suggests that Parliament gives him no choice in the matter, as though Parliament cannot change an Act of Parliament that it introduced when there was no Assembly, now that the Northern Ireland Assembly has returned. I strongly disagree.

To consider the proper responsibility of the Government, as custodians of the Union, in relation to Northern Ireland, one must first remember that the legitimacy of section 9 and the regulation-making powers rests on a vote on 9 July 2019 on what was not just Northern-Ireland-only legislation, but legislation on a devolved matter, in relation to which 100% of the Northern Ireland MPs who take their seats voted no. Notwithstanding that, the radical and deeply controversial legislative change proposed in what became section 9 was imposed on Northern Ireland by the votes of MPs from the rest of the United Kingdom, none of whom had a mandate to represent Northern Ireland on the issue.

I do not question the fact that Parliament is legally entitled to legislate for Northern Ireland, notwithstanding the fact that certain powers are devolved to the Assembly, but I do question the wisdom of it, and the enduring damage that it will do to the devolved settlement. It opened the door to a regulation-making power, and in principle there is no limit on the number of times the Secretary of State could try to make section 9 regulations. We had one set last year; we have another set this year. All that, even though the Minister of Health in Northern Ireland has stated that there is no legal duty under the current regulations for his Department to commission abortion services.

Each time new section 9 regulations are introduced, they reopen the constitutional sore upon which they rest. Each time, with devolution restored, the powers are used, the Government send out a message that the Northern Ireland Assembly and our current constitutional arrangements are not fit for purpose. Do the Government have no idea how dangerous and how damaging such a message is in the current circumstances? It is also more serious in the sense that it jeopardises an important, distinctive of the part of the Union, which is Northern Ireland, and because we have developed, over more than 50 years, our own approach to valuing the unborn, choosing life and having distinctive life-affirming laws.

The Both Lives Matter “One Hundred Thousand” report, using robust statistical methods, has established that over 100,000 people were alive in Northern Ireland in 2017 who would not have been had the 1967 Act been embraced by the Province. Some people took exception to that and complained to the Advertising Standards Authority, but after a five-month investigation, involving leading statisticians, the Advertising Standards Authority rejected the complaint, concluding that 100,000 was a reasonable claim.

That is in stark contrast to the 9 million aborted here in GB—one baby every two minutes. By the time I finish my speech, another three lives will have been lost or ended. That might not matter very much to some in England, Scotland or Wales, but it matters very deeply to many people in Northern Ireland, touching on a core Northern Ireland distinctive—choosing life.

Reflecting on that, it is vital to remember that the United Kingdom is a Union—a relationship of component parts that are not all the same in every respect. In coming together, we are more than the sum of our parts. Our Union is no more uniform than it is unitary. That means that there is one reason, and one reason only, that Northern Ireland has been overruled. It is not because of any international human rights imperative; it is because a majority of Members of Parliament from Great Britain chose to impose this on Northern Ireland against the wishes of its people and their representatives.

[Richard Graham (Gloucester) (Con)]

I understand the conundrum the hon. Lady is in. She says that the regulations do not reflect the resolved position of Northern Ireland. Surely we are here today precisely because there is not a resolved political position among the representatives of the people in the Northern Ireland Assembly, although the vast majority of people in Northern Ireland want to have the same regulations and rules on abortion that we have in the rest of the United Kingdom and in the rest of the island of Ireland?

[Carla Lockhart]

The hon. Gentleman will know that I disagree with his assessment. As someone who has her roots firmly in Northern Ireland—

[Richard Graham]

As I do, too.

[Carla Lockhart]

Well, living in Northern Ireland and representing a large constituency there, I know that the vast majority of people in Northern Ireland want laws that choose life. They want life-affirming laws and they want laws that help life to continue. That is why, in common with the hon. Member for Penistone and Stocksbridge, I call on the Government to repeal section 9.