HC Deb 21 October 1998 vol 317 cc1369-76

Motion made, and Question proposed, That this House do now adjourn.—[Mr. Betts.]

9.12 pm
Mr. Bob Russell (Colchester)

The people—

Mr. Deputy Speaker (Mr. Michael J. Martin)

Order. An hon. Member is addressing the House. Other hon. Members should leave the Chamber quietly.

Mr. Russell

The people of the island of St. Helena are not asking for anything new; they simply want restored to them the status which they enjoyed until it was shamefully removed by the previous Government under the British Nationality Act 1981. With citizens of other British dependent territories, they had the door slammed in their faces. They had their full British citizenship taken away, and found that they were no longer welcome as full members of the British family. Loyalty to the Crown and to Britain counted for nothing. There were rejected in a cynical move which embraced them and others from a handful of small British communities in various parts of the world in order to justify the introduction of legislation to stop people from Hong Kong coming to Britain.

St. Helenians have always and only been British. They have British nationality but not full citizenship, which makes them second-class citizens. The islanders seek full British citizenship status, a restoration of their ancient rights granted by the British Crown. I look to the present Government to put right the wrong of a previous Government and end the years of rejection and dejection experienced by the Saints, as residents of St. Helena are generally known.

The British dependent territories have a combined population of around 160,000, but tonight I shall confine my comments to the plight of those who reside on St. Helena. The island's entire population of some 5,500 could be accommodated in Colchester United's football stadium, with room to spare.

Not all the 13 populated territories seek what St. Helena is asking. I understand that some are content with their current status. I hope that tonight the Minister will give a commitment that, sooner rather than later, and certainly in time for the new millennium, the Saints will be able to rejoice in the restoration of their previous status of full British citizenship.

The door is currently locked. Recent speculation that perhaps the present Government are to open it is welcome, but is it true? It is not enough simply to say that the key has been found. The door needs to be unlocked and swung wide for the Saints to be invited back to where they rightly belong, to the status they had until 17 years ago—not so much marching in, but rather as members being welcomed back into the British family home whenever they are this way.

Is it seriously suggested, regardless of the previous Government's motives, that the restoration of full British citizenship to 5,500 residents of the island of St. Helena will somehow create difficulties for Britain? It is an insult and nonsense even to contemplate a single practical difficulty or justification to maintain the outrage that has existed since 1981.

I hope that the Minister will find her previous duty as Prisons Minister to be of help in considering releasing the Saints from the sentence of exile imposed on them by the Thatcher Government. She will, of course, be aware that Napoleon's exile is St. Helena's most historic claim to fame: while Napoleon would dearly have loved to leave the island for good, the vast majority of today's island residents do not wish permanently to leave their home in the south Atlantic, but seek simply the right to regain their status as full British citizens so that they can freely travel to Britain and return.

The St. Helena Government representative in London, Mrs. Catherine Hopkins, told the Foreign Affairs Committee on 18 November last year: From St. Helena's point of view, I doubt very much whether very many Saints would want to come to take up permanent residence in the United Kingdom. We regard St. Helena as home and the young people of the island have made it quite clear that they wish to see the island develop rather than coming to England. They would like access, they would like the ability to move freely. She added: The idea that 5,500 St. Helenians are going to uproot themselves and come to Britain, where they would be very easily absorbed into the community is just ludicrous. There is no way it would happen. The vessel RMS St. Helena is currently moored at Cardiff, and tomorrow evening it makes its somewhat infrequent sailing from the UK to the island. It would be nice if the captain could take a message of hope with him from tonight's debate.

To continue with the maritime theme, by one of those happy coincidences, today is Trafalgar day. Admiral Nelson was renowned for turning his blind eye. For 17 years, the British Government have been guilty of a double Nelson—closing their eyes and ears to the people of St. Helena. The time has come for Britain to stop wrestling with its conscience, and I look to the present Government to give St. Helena a fair break.

Napoleon would no doubt be amused that today a citizen of France has easier access to Britain than do residents of the British dependent territory of St. Helena. St. Helena is not the only island in the south Atlantic with British roots. Indeed, had it been invaded by Argentina as the Falkland Islands were in 1982, presumably it too would have had the British Nationality Act 1981 amended to release its residents from their current second-class status. They would also have benefited from massive sums of British Government aid, as the Falkland islanders have for almost two decades. St. Helena's only ship, the RMS St. Helena, was called in to support Britain in the Falklands conflict, with Saints volunteering to be part of the crew.

Britain has a moral duty to the island of St. Helena. In fairness, aid is given, but the amount is nothing like that given to the Falklands, which has a population less than half that of St. Helena—but then, St. Helena does not have oil.

I first took a deep interest in St. Helena—a small island with an area of just 47 square miles, 4,400 miles from Britain and situated midway between Africa and South America—when a constituent wrote to me. His grandfather was born on the island. Perhaps a more fitting reason for the strong links being established between Colchester and the island is that the patron saint of Colchester is St. Helena—same spelling, but different pronunciation. One of the town's secondary schools, which I and my family attended, is called St. Helena, as is the town's hospice. There is a statue of St. Helena on top of the town hall tower—the highest building on the skyline. St. Helena is a saint from Roman times, and Britain's first Roman capital was Colchester.

In June this year, a delegation of legislative councillors from St. Helena was welcomed to Colchester by the mayor. The official visit included a tour of St. Helena school and local craft workshops, which the Saints see as the type of business activity they need to help the island's economy. From January last year until July this year, a Colchester-based company, International Management Consultants Ltd., assisted the Government of St. Helena with its accounting systems and related matters. The current bishop of St. Helena has a sister who lives in a north Essex village not far from Colchester. I am aware of contacts between individual residents of Colchester and islanders. There are high hopes of establishing links between the island and St. Helena school.

The island of St. Helena was discovered by the Portuguese on 21 May 1502—St. Helena day. The English followed in 1588, but not until 1658 was it colonised, becoming a Crown colony in 1834. Britain settled St. Helena with British people, and brought in other ethnic groups who were integrated into the British community. The local population has no nationality other than British. Rights to full British citizenship were confirmed by royal charter in 1673. Islanders enjoyed those rights for more than three centuries, but the British Nationality Act 1981 removed them, making the islanders second-class citizens, and virtual prisoners on their own island.

I call on the Minister to give a pledge that steps to restore full British citizenship will begin without further delay, putting right a wrong that has caused so much unhappiness to the islanders for the best part of two decades. In the past year or so, the Foreign Affairs Committee has considered the plight of St. Helena as part of its dependent territories review interim report. A private Member's Bill to restore citizenship rights was presented by the Earl of Iveagh in the House of Lords. In this House, the hon. Member for Wrexham (Dr. Marek) proposed a British Nationality (St. Helena) Bill, but it was dropped in April for reasons that perhaps the Minister can explain.

We have been promised a White Paper for months on the policy towards British overseas territories. That will cover more than just St. Helena, whose unique case demands an urgent and unique response. For England's lost county, the status quo is not an option. Something must be done. St. Helenians have always been British. They are still British, and they only want the British Government to acknowledge that fact by restoring their birthright of full British citizenship.

9.24 pm
The Minister of State, Foreign and Commonwealth Office (Ms Joyce Quin)

I congratulate the hon. Member for Colchester (Mr. Russell) on securing this Adjournment debate, and on his choice of subject. He referred to my previous ministerial portfolio. Somewhat to my surprise, I find that, for my first debate as a Minister in the Foreign Office with responsibility for Europe, I am responding to a debate on St. Helena. I should convey to the House the apologies of the Minister of State, Foreign and Commonwealth Office, my hon. Friend the Member for Manchester, Central (Mr. Lloyd), who is abroad at the moment but to whom I shall report and with whom I shall discuss this debate.

Probably all of us who are present will have appreciated the comments of the hon. Member for Colchester about the connections that he, his family, his constituency and his town have with St. Helena. I wish him success in establishing further links between his area and the island.

In some ways, this debate is timely, because the comments of the hon. Member for Colchester can be very much taken into account in the overseas territories review. In another sense, however, it is perhaps not as timely. As he will realise, I am not in a position to give absolute answers to his questions, simply because the decision was taken to conduct a review of overseas territories, produce a White Paper, and come up with proposals, which we seek to do as soon as possible.

The hon. Member will be aware, too, that we are discussing the constitution of St. Helena with its legislative council. We must await the outcome of those discussions and other studies, such as the transport access study concerning St. Helena. Taken together, we hope that they will put us in a position to give the people of St. Helena a future to look forward to.

As the hon. Member for Colchester pointed out, St. Helena is a tiny island of 47 square miles lying in the south Atlantic, about 1,200 miles from Africa. It is one of the oldest and most remote of our overseas territories. It has certainly been described as a beautiful island. I am sorry not to have had the opportunity to visit it, but in the past, and in preparation for the debate, I have spoken to people who have been there and who follow events there very closely. From what I have been told, there can be no doubt about St. Helena's special place in the family of our overseas territories, each of which has a unique character.

One hardship that St. Helena has had to face is the fact that it has few natural resources. Agriculture, fishing and a growing tourism-related industry are the main activities in the private sector. The role of the public sector—largely Government—is still considerable. The economy of St. Helena continues to rely on British aid for the bulk of new investment and to help balance the Government's revenue budget. That background will be well known not only to the hon. Member for Colchester but to other hon. Members who I know follow the affairs of St. Helena. It certainly affects all decisions about the island and, indeed, the status of its people.

Towards the end of last year, my right hon. Friend the Foreign Secretary announced that he would set up a review of British dependent territories in order to take a fresh look at our relations with them. In his speech to the Dependent Territories Association on 4 February, he announced some broad interim findings. Above all, he offered the dependent territories a new, modern, secure and lasting partnership with Britain. He emphasised the importance of the territories to us, and the fact that we take pride in the strong historic links—to which the hon. Member for Colchester referred—that have led to a unique family bond which matters to both sides.

Britain remains committed to those sovereign territories that wish to retain their link with us, but the relationship needs to be brought up to date to reflect the idea of partnership in the modern world. One measure that my right hon. Friend took to reflect that change was to alter the way in which the territories were to be referred to. They are now to be known by the more appropriate title of UK overseas territories.

My right hon. Friend also announced that, as part of the new framework for partnership, my noble Friend Baroness Symons would become the first Foreign and Commonwealth Office Minister with responsibility for the UK overseas territories. Furthermore, to improve dialogue and understanding between Britain and the overseas territories, an annual UK overseas territories council will be established to provide a forum for Chief Ministers and councillors to raise their concerns directly with the Minister. I know that they feel strongly about such access.

Those and other aspects of the review will be reflected in the White Paper that we shall lay before Parliament. It will cover a range of issues relevant to the overseas territories, and will give details of the partnership that we wish to promote. It will set out ideas for promoting the good governance of the territories, and address constitutional and human rights issues. It will also consider ways of accelerating sustainable development in economic terms and ensuring a sustainable environment, and how to promote the economic prosperity of the UK overseas territories within internationally accepted standards of financial regulation.

The House may wish to know that the elected members of the St. Helena legislative council wrote to the Secretary of State in February congratulating him on his speech to the Dependent Territories Association conference. They welcomed the new partnership and the appointment of Baroness Symons as the Minister with special responsibility. I hope that they will find the White Paper, describing in full the modernised partnership that we want to create and the action needed to take to create it, acceptable, and that they will be content with the blueprint for the future that it sets out.

Mr. Peter Bradley (The Wrekin)

I do not seek to anticipate the proposals that the White Paper will make, but does the Minister at least accept that the deprivation of the right to citizenship by the previous Government in 1981 was a callous and insensitive act, which not only slighted the people of St. Helena but critically disadvantaged them?

Ms Quin

I understand that the citizens of St. Helena expressed their great disappointment, but it is important to find a way forward that both recognises their unique position and considers the position of overseas territories in general, to find something that works for the future, with which they will feel happy.

Mr. David Heath (Somerton and Frome)

I welcome the hon. Lady to the Dispatch Box in her new role. Does she accept that there is a difference between the position of St. Helena and its dependencies in terms of citizenship, and that of the other overseas territories, which involves issues of reciprocity that do not apply to St. Helena? Secondly, will she tell us when the White Paper will be produced, as it is already overdue?

Ms Quin

There are other territories to which, as in the case of St. Helena, issues of reciprocity do not apply. I do not think that the island is unique in that respect. As for the timing of the White Paper, we hope to be able to publish it by the end of the year, but I cannot give the hon. Gentleman a guarantee from the Dispatch Box tonight. Given that we are talking about a number of overseas territories, I hope that he will appreciate that we want to ensure that we produce a White Paper that addresses all the issues concerning all the territories, and provides a basis on which we can build for the future.

I know that hon. Members have raised such issues in past debates, and some of those debates were rightly mentioned by the hon. Member for Colchester. I certainly accept that the reception of the White Paper in St. Helena will depend largely on how it tackles the issue of the St. Helenians' claim to British citizenship. However, the issue of British citizenship is a complex one for the UK overseas territories. We are reviewing the appropriateness of the status to see whether changes are needed.

A number of Government Departments are involved—it is not simply a Foreign and Commonwealth Office matter. Alteration of the status has implications which Departments need to consider. The Government are sympathetic to the concerns of St. Helena on the issue, and we have told the House so several times in the past. We have not changed our attitude in that respect.

I would like to take this occasion to say a few words about how we are trying to address the economic status of St. Helena—an issue every bit as important to the inhabitants. In 1996, the St. Helena Government conducted widespread consultations, which led to the compilation and publication of a strategic review. This set out a range of policies and goals to deliver the St. Helena vision of a prosperous, peaceful and democratic society for all, achieved through sustainable economic, environmental and social development, leading to a healthy, and eventually financially independent, island.

Incidentally, I accept the point that the hon. Member for Colchester made—that, in general, people are not seeking to leave their home territories. People want to feel secure and at ease in their home land, and I accept that the citizenship argument is not motivated by those concerns. I also accept that, in terms of their ability to travel, the inhabitants of St. Helena welcome the argument.

The strategic review formed the basis of the St. Helena Government aid submission, on which negotiations took place between the St. Helena and UK Governments in 1996. These negotiations led to agreement on a country policy plan. This was a major step forward in the relationship between the British and St. Helena Governments, and underlined the importance of a partnership in which the members of the legislative council have a major role and responsibility.

The UK Government agreed to make available more than £26 million for the three years from April 1997 to March 2000. The country policy plan is monitored regularly to see that it is on track, and to make any adjustments needed. A review of the country policy plan took place in January this year, and concluded that considerable progress had been made. Aid funds for the second year were therefore authorised.

Another review is expected to take place in December. It will look at the extent to which the structural adjustment programme agreed between the two Governments is being followed. Decisions on aid support for the public sector investment programme, which assists the St. Helena Government with infrastructure development and renewal, will be taken in the light of the evaluation. The country policy plan has met the essential need to have a viable development strategy for the island's future.

The plan recognised that there was an immediate need to improve the efficiency of the public sector. It acknowledged that private sector development was necessary to stimulate St Helena's economy and to help resolve the unemployment problem. Much progress has been made. Attempts are being made to find overseas markets for products such as honey and beauty products, and to develop coffee production on the island. However, more needs to be done.

One area in which I hope we shall see progress is in complying with the aid agreement, whereby consumers of the enhanced infrastructure facilities—for example, water—contribute to the full cost recovery of that capital expenditure. The money thus generated can then be used under social services provision to target the most needy in the community and enable them to pay their bills.

In July 1998, the St. Helena Government signed an agreement with Argos Ltd., a British-Falkland Islands fisheries company. From the beginning of next year, the company will invest in a range of shore-based facilities, including a freezing and processing plant which will offer employment opportunities for a number of St. Helenians. It will process the catch of St. Helena fishermen as well as that of the company's vessels.

Other projects that will help the people of St. Helena include a management scheme to enable farmers to grow fruit commercially once again, road improvements, and the improvement of water quality.

Technical co-operation funds from the Department for International Development are paying for 24 key technical and administrative staff on the island. Those funds also pay for a number of St. Helenians per year to come to the United Kingdom to study at colleges and universities.

The St. Helena Development Agency was established to promote the private sector. It provides financial services, business advice and training. More than 100 jobs have been created or sustained by the agency in the past year.

As I said, St. Helena has few resources except its people. We and the St. Helena Government have taken steps to ensure that as many as possible of them can develop their talents and lead productive lives. Some 60 St. Helenians are in the UK under the training and work experience scheme. Others have been recruited into the British armed forces. Not only do those schemes teach valuable skills: they also give schoolchildren on the island aims to work for, which is important.

The Cheltenham and Gloucester college of higher education has a contract with the Department for International Development to provide educational services to St. Helena and to arrange training in the UK for its teachers and students. With the help of the college, schools on the island are preparing to implement the UK national curriculum in English, maths and science. A scheme was also agreed to improve vocational training on St. Helena. All those measures are valuable ways in which the status of St. Helena's work force can be improved.

We have also taken some direct measures to minimise unemployment and increase incomes. New work permit arrangements announced by the Minister of State in December 1997 allow 30 people per year to come to the United Kingdom to work for up to three years accompanied by their dependants. A further 700 St. Helenians work on Ascension island, and about 300 have found work in the Falkland islands.

Offshore employment has helped to achieve a reduction in unemployment, as have measures taken by the St. Helena Government, for which I pay them credit. Offshore employment has also produced a significant flow of remittance income, which in turn has helped to improve and expand the private sector housing sector. However, offshore employment is not always a one-way benefit, and it can create problems by exacerbating serious shortages of skilled labour in St. Helena, particularly in teaching, nursing and the police force. A task force has been formed by the St. Helena Government to find solutions to that problem.

A major problem affecting St. Helena is the difficulty of communications with the rest of the world. I remember reading the debate in another place about St. Helena, in which a former Secretary of State for Foreign Affairs talked of having dispatched one of his Ministers there, and of not seeing him for several weeks thereafter. He was surprised, but when he looked into the distances involved and how one gets there, he could well understand why that was the case.

There is no airport on St. Helena. Regular access is provided by RMS St. Helena—a cargo and passenger vessel, owned by the St. Helena Government and operated by Curnow Shipping Ltd., based in Falmouth. That ship offers a scheduled service between St. Helena, Ascension, the United Kingdom and Cape Town, and it is subsidised by the Department for International Development by about £1.3 million each year.

As I said in my initial response to the hon. Gentleman, an access study to review ways of tackling the problem was announced by my hon. Friend the Under-Secretary of State for International Development in December 1997. That study started on St. Helena, and will be followed up in the United Kingdom. Its terms of reference will include all forms of transport and the feasibility of an airport.

The tourist infrastructure on St. Helena is still underdeveloped. A director of tourism was appointed last year, and she has developed good contacts, particularly in South Africa. Yachts travelling across the Atlantic have been encouraged to stop in St. Helena, and a yacht race—the Governor's cup—is organised every other year with the Cape Town sailing club. The next race is in December, when I understand that a yacht will, for the first time, be crewed by St. Helenians. We wish them and the other participants well.

I conclude with the words used by my right hon. Friend the Foreign Secretary to the Dependent Territories Association in February. We will enter into a partnership with the overseas territories based on mutual trust and respect. We already have a firm basis from the past, founded on centuries of shared history. Together we face a new millennium, and together we will carry forward the relationship on a more modern basis.

Question put and agreed to.

Adjourned accordingly at fifteen minutes to Ten o'clock.