Sitting of 10 December 1998

Preamble
The House met at half-past Two o'clock
PRAYERS
[MADAM SPEAKER in the Chair]
Oral Answers to Questions
  TREASURY
  The Chancellor of the Exchequer was asked—
  TREASURY

    Hypothecated Taxation
    Mr. Norman Baker: If he will make a statement on his policy in respect of hypothecated taxation. [61745]
    The Economic Secretary to the Treasury (Ms Patricia Hewitt): In general, the Government determine their expenditure according to need rather than the source of the revenue, but we will continue to look at each case on its merits.
    Mr. Baker: Does the Minister agree that the recent Marshall report on energy taxation represents a good example of what an hypothecated tax might provide? Will she then explain why the Chancellor's advisers have been briefing that that has been kicked into the long grass—into the very long grass? Will she give an undertaking that the Marshall proposals will be implemented in this Parliament, or is the Treasury still stuck in the 1950s?
    Ms Hewitt: The Marshall report is extremely welcome. It has moved forward significantly the debate on a possible tax on business use of energy. We are now looking in detail at the complex technical issues that the Marshall report raises. He recommended further work on the subject. We are continuing to carry that out and to consult on the matter.
    Mr. Harry Barnes: Has the Minister heard of the Tobin tax, an internationally co-ordinated tax directed against currency speculators? That money could then be used for third-world debt and for international development. As Labour is good at reviews, might it not be a good idea to have a look at that idea and to feed it into the international community
    Ms Hewitt: I am sure that my hon. Friend will be aware of and welcome the work that my right hon. Friend the Chancellor of the Exchequer has done in pursuing proposals for reform of the global financial architecture. No doubt the Tobin tax proposals will be debated within that context.
    Mr. Shaun Woodward: Given the statement by the Chancellor in the pre-Budget statement that there
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    would be a cut in vehicle excise duty for small cars, and the thinking of the Chancellor and the Treasury about hypothecated taxes, is it the Minister's view that any surplus revenue brought about by changes to vehicle excise duty should form an hypothecated tax to be used for the environment?
    Ms Hewitt: As I have already said, it remains our view that, in general, expenditure should be determined according to need rather than the source of the revenue. I am sure that the hon. Gentleman will be aware of the problems that can arise when revenue is inappropriately hypothecated to particular expenditure goals. As I said, we will continue to look at each case on its merits.
    Mr. Ian Davidson: Does the Minister accept that, although there is a general reluctance among the public to pay increased taxes when they believe that the money may go simply into a bottomless pit of Government expenditure, there would be a willingness to pay hypothecated taxation because people would then be clear that the money was being spent on education and health. Perhaps it would give some political parties, not least my own, the courage to go to people and say that, if they want improved services, they have to pay for them.
    Ms Hewitt: I am sure that my hon. Friend and, indeed, all hon. Members will welcome the additional £40 billion that the Government have committed to schools and to hospitals. [Interruption.] I am sorry that the official Opposition have apparently decided to oppose that additional expenditure. As I said, we will continue to look at each case on its merits, but I draw my hon. Friend's attention to the announcement by the Deputy Prime Minister earlier this week that, where a local authority decides to carry out a pilot programme of congestion charging on the roads, it will be allowed to put up to 100 per cent. of that revenue into worthwhile transport-related projects.
    Mr. William Ross: Is it not the case that, originally, the road fund taxation was supposed to be an hypothecated tax to build roads? If my memory serves me well, income tax in the 1890s was set up to build battleships. Does the fate of those two taxes not show the folly of any hypothecated tax? Will the Minister stick firmly to principles that she has enunciated to the House?
    Ms Hewitt: I am grateful to the hon. Gentleman for that interesting excursion into the history of taxes. The Inland Revenue has recently opened an exhibition on the history of income tax. I think that income tax was originally introduced to pay for the Napoleonic wars, but the point that the hon. Gentleman makes is extremely valid. In general, expenditure should be decided according to need rather than the source of the revenue. Any proposals for exceptions to that should be considered as we consider them: on their merits.

    Economic Growth
    Mr. Ben Chapman: What plans he has to review the methodology for calculating national economic growth rates. [61746]
    The Chief Secretary to the Treasury (Mr. Stephen Byers): The Office for National Statistics has recently reviewed its methods for estimating national economic growth. Its work is important, as it informs the discussions of the Monetary Policy Committee of the Bank of England. The Government welcome today's decision by the Bank to cut interest rates. As the Bank said, it follows a weakening in global economic activity. The cut was made possible only because the Government are steering a course of economic stability in an uncertain and unstable world.
    Mr. Chapman: I thank my right hon. Friend for that answer. Does he agree that our economic growth forecasts are based on sound methodology, but are also cautious and prudent? Does he also agree that Labour Members are in the business of realism and not pessimism? Does he further agree that that contrasts sharply with Conservative Members, who are constantly taking the pessimistic view and talking down the economy and the United Kingdom?
    Mr. Byers: It is a matter of great regret that Conservative Members fail to recognise the underlying strengths of our economy. The fact is that 400,000 more people are in work now than when we took office, on 1 May 1997. In the shadow Chancellor's own constituency, there has been a 29 per cent. reduction in the number of those who are out of work. I should hope that he would be able to knowledge that, and to recognise the United Kingdom's underlying economic strengths. The Government are not prepared to go back to the days when he was a Treasury Minister—the days of boom and bust, interest rates at 15 per cent., inflation at 10 per cent., and over 1 million jobs lost. That was the reality. We shall not go back to those days. We are steering a course of stability in an uncertain world.
    Mr. John Wilkinson: May I suggest a methodology that may be more readily understood by the general public—counting the tally of P45s issued? Yesterday, 200 were issued at Alsthom; today, 1,200 were issued at Doulton; and probably a lot more will be issued tomorrow and the day after. Is not the economy heading for great stability against the rocks?
    Mr. Byers: That was a very good example of the way in which Conservative Members have a very partial approach to events in the economy. The reality is—as always—that, at particular times, some areas face particular difficulties, whereas other areas create employment opportunities. However, to consider the economy in the round, the figures and the facts show—I know that the hon. Gentleman does not like facts to get in the way of his own prejudice—that 400,000 more people are in work now than when the previous Government were ejected from office. That is the reality, and those are the facts. It is about time that Conservative Members recognised them.
    Mr. Edward Davey: Will the Minister tell the House how much weight the Government put on surveys of business confidence when they forecast economic growth? Will the Minister confirm that, after 18 months of Labour in power, business confidence is
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    now at an 18-year low? Will he tell us whether he thinks that the 0.5 per cent. cut in interest rates will be enough to lift the business gloom?
    Mr. Byers: The Government welcome the interest rate cut announced today by the Bank of England, which will be good news for businesses, consumers and home owners. We believe that the Bank has been able to take that decision only because of the tough measures that we have introduced to ensure that inflation is at the 2.5 per cent. target, and to cut last year's national deficit by £20 billion. Interestingly, a majority of people express confidence when asked specifically about their own business, whereas they express pessimism about the economy as a whole. It is an example of people listening to scaremongers, such as Conservative Members, who talk down our economy.
    Mr. Francis Maude: Talking of realism, as opposed to the Government's astonishing complacency, has the right hon. Gentleman seen today's MORI poll of senior executives, showing not only that only 1 per cent. expect the economy to improve in the next year—whereas a staggering 89 per cent. expect it to worsen—but that a majority of them take a more pessimistic view of their own business prospects? Are all those people talking down the economy? When will Ministers stop talking down British business by attacking it? When will they abandon their complacency and reverse the burdens that they are piling on which threaten to make Britain's downturn the first and the worst in the western world, with 2,000 more job losses announced just this morning?
    Mr. Byers: The right hon. Gentleman talks about talking business down and placing burdens on business, but we are a Government who have cut corporation tax, from April 1999, to 30 per cent. From next April, we are cutting corporation tax for small businesses to 20 per cent. Those burdens were imposed on business by the Conservative Government. They are being lifted by this Government. That is why we have underlying strength in the economy, and can steer a course of stability. We shall continue to do that, not adopting the right hon. Gentleman's short-term approach, but planning in the long term for continued economic prosperity and stability.

    Windfall Tax
    Mr. Mike Gapes: If he will make a statement on the mechanisms for the allocation of the proceeds of the windfall tax. [61747]
    Ms Rosie Winterton: If he will make a statement on the use made of the proceeds of the windfall tax. [61754]
    Dr. Stephen Ladyman: What further plans he has for the proceeds of the windfall tax on the privatised utilities. [61763]
    The Paymaster General (Mr. Geoffrey Robinson): The House will be pleased to know that the second instalment of the windfall tax has been paid in full, raising £5.2 billion. Some £2.6 billion of that has been allocated

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    to the welfare-to-work programme for 18 to 24-year-olds and £1.3 billion has been allocated to the new deal for schools.
    Mr. Gapes: I am grateful for that reply. Will my hon. Friend confirm that, if the whingeing Liberals and the neanderthal Conservatives had had their way, there would have been no windfall tax, and therefore no new deal? Will he further confirm that, by April next year, 300,000 people will have benefited from the new deal, including 30,000 18 to 24-year-olds, who will be in work as a result? May I draw to his attention the regional discrepancies in take-up of the new deal? Will he try to remedy the problem of some people in London staying for a considerable period in the gateway?
    Mr. Robinson: I can give my hon. Friend that assurance. The length of time in the gateway is one aspect that needs particular attention. The Employment Service is well aware of that. He is right to point out that the Conservatives oppose the windfall tax, the new deal for schools and the welfare-to-work programme. Of course, that is not true of all Conservatives. They might look at the wise words of the hon. Member for South-West Bedfordshire (Sir D. Madel), who made it clear on 4 December that he welcomed the new deal in his constituency, and referred to the great amount of good that it was doing for young people there.
    Ms Winterton: Is my hon. Friend aware that, in areas such as South Yorkshire, the public utilities used to have a good track record on training, exceeding their requirements? Are the privatised utilities participating in the new deal by providing training opportunities? If not, what action will the Treasury take to encourage them to participate?
    Mr. Robinson: In fairness, the utilities have played a full part in making the new deal possible. Beyond that, many of them have signed up and are participating in it, and providing training. Yorkshire Water has signed up and Yorkshire Electricity is already in meaningful discussions with the Employment Service. Instead of sniping from the sidelines, the Conservatives should make it clear why they are against our measures to provide jobs and training for youngsters and to make employment work.
    Dr. Ladyman: Does my hon. Friend agree with a constituent who wrote to me this week, who certainly regards the windfall tax spending on the new deal as money well spent? It is entirely thanks to the new deal that the man, who is in his 40s, is back in full-time paid employment for the first time since 1994. Will my right hon. Friend assure me that we shall continue to extend the new deal, and that the remaining proceeds from the windfall tax will be used to improve its quality further, in particular to extend the gateway, which is key to the success of the new deal
    Mr. Robinson: My hon. Friend is correct. We have 28 pilot projects under way for the long-term unemployed. He referred to one constituent. He will welcome the news that the pilots are showing good signs of success throughout the country. We intend to build on them.
    Mr. Tim Boswell: As the hon. Gentleman has apparently remained a Treasury Minister in the
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    12 months since I ceased to shadow him, despite appearances to the contrary, will he explain, as he was unable to do 12 months ago, how it has been possible to raise £5.6 billion from British industry without any apparent impact on employment in the industries concerned or on their investment programmes—or has he merely joined the Magic Circle?
    Mr. Robinson: To start with, the hon. Gentleman has got the figure wrong—it is £5.2 billion. All the regulators for the industries signed up to it. Instead of carping around irrelevant points, why do not Opposition Members concentrate on what is happening in their constituencies, and work with the Employment Service agencies to make the deal a success? As they have opposed the scheme so vehemently throughout, the country will expose their hypocrisy on it.
    Mr. Nick St. Aubyn: One of the objections to the new deal is that it does not provide enough money to help the older unemployed—those in their 30s, 40s, 50s and perhaps even early 60s. Will more money be made available for them, including unexpectedly retired former Ministers?
    Mr. Robinson: The Opposition really have to make up their mind. Either they are in favour of the new deal and the £500 million that we have made available for the long-term unemployed, to whom I think the hon. Gentleman was referring, or they are not. If they are not, they should make it clear, but if they are, I should tell him that we are looking at the 28 pilots. If we can build on them, and if they prove successful—and the signs are that they are—we shall extend the scheme.
    Mr. Malcolm Bruce: Does the Paymaster General acknowledge that the hon. Member for Daventry (Mr. Boswell) has a significant point? The consumers who paid for the excess profits that have been taxed would have benefited had those profits been returned to them in lower prices or further investment. As he is answering this question, can he confirm that he is still in charge of the windfall tax programme and sorting out the problem faced by the poor pensioners who have suffered from the dividend changes that he introduced? He pledged to do something about it. Does he plan to do so, or has he been stripped of that responsibility?
    Mr. Robinson: It is interesting that, typically, the Liberals voted against the windfall tax, yet continue to pretend that they are in favour of it, willing the end but not the means. That inconsistency is a hallmark of the Liberal party. For our part, we have raised £5.2 billion. We are putting it to good use, and it is recognised throughout the country that the programmes on which we have embarked are proving successful.
    Mr. Dale Campbell-Savours: My hon. Friend will recall that the windfall tax is actually a Tory tax. It was imposed on the banks in the 1980s. Following the news that the NatWest bank made £1 billion profit in its first six months—through ripping off some of its customers, such as The Tanning Shop franchisees—I wonder whether the banks should now be subject to a windfall tax.
    Mr. Robinson: My hon. Friend will understand if I do not follow him own that route of speculation. However,

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    he is quite right to say that the Tories introduced the windfall tax when they taxed the profits made by the banks due to high interest rates. Of course they are embarrassed by our success in these matters, as they presided over much higher rates of unemployment, for example. When the right hon. Member for Wells (Mr. Heathcoat-Amory) was a Treasury Minister, we had interest rates above 10 per cent. for four years. That was his record. We are determined not to repeat those mistakes. Improving the basis of our training skills throughout the economy is a fundamental part of that.
    Mr. Ian Bruce: I am sure that the hon. Gentleman now knows that he is in charge of looking after taxpayers' money rather than taking it away from them. In the first year of the Labour Government, long-term unemployment was decreasing rapidly and when the new deal was first introduced long-term unemployment actually went up. The latest figures show that the long-term unemployed who disappeared from the register are not actually in jobs under the new deal, but are participating in the make-work schemes being provided under the new deal. In six months' time those people will be back on the register, and the Paymaster General will have wasted taxpayers' money again.
    Mr. Robinson: In the months since we started the new deal for the young unemployed—the 18 to 24-year-olds—unemployment in that category has fallen by 27 per cent. We have only just got the 28 pilots for the long-term unemployed under way, but if they prove successful we shall see similar improvements in that group. Instead of carping and criticising, why do not the Opposition welcome the measures, and work with us to make them succeed?

    Euro
    Mr. Hugh Bayley: What initiatives the Treasury is taking to help United Kingdom businesses prepare for the possibility that the United Kingdom joins the euro. [61748]
    The Economic Secretary to the Treasury (Ms Patricia Hewitt): The Government will be publishing an outline national changeover plan early next year as a first step in setting out the practical steps that would need to be followed if the United Kingdom decided to join the single currency.
    Mr. Bayley: Does my hon. Friend recall that Conservative European policy more than doubled VAT from 8 to 17.5 per cent., extended the scope of VAT to include gas and electricity, and agreed to the abolition of duty-free, all in the name of European Union tax harmonisation? Does she agree that it is important that UK businesses prepare to use the euro, regardless of whether we join, and that the introduction of the euro has no bearing whatever on our resisting further EU tax harmonization?
    Ms Hewitt: I entirely agree with all my hon. Friend's points. I am sure that he will agree with me when I say how extraordinary it is that the Conservative party is no longer waiting and seeing, but has decided to be the anti-European party—it has turned its back on Europe and on the British national interest.
    Sir Michael Spicer: As part of the process of preparing business for the possibility of our
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    entering European monetary union, will someone explain that our entry would mean massive new taxation, partly to compensate poor countries for the misery that they will suffer as a result of joining the euro?
    Ms Hewitt: We hear again the authentic voice of the Conservative party—it is opposed to Europe and to Britain's continuing membership of the European Union. As more than half our trade is with the rest of the European Union, it is essential for British business that we assist it to prepare for the introduction of the euro next year.
    Mr. Denis MacShane: Does my hon. Friend share my excitement about the coverage of European economic affairs in The Sunday Times, The Times and The Sun? Has she seen the marvellous articles that they have published showing how clothes, cars, computers and food are much cheaper in Europe than in Britain after 20 years of Tory rule? As the rate of VAT in Germany is 16 per cent., does she agree that British consumers would welcome the harmonisation of our VAT down to red Oskar levels?
    Ms Hewitt: I am not sure that I share my hon. Friend's excitement, but he makes an extremely important point about the extent to which British consumers in many product markets are paying higher prices than consumers do in other parts of the European Union and, indeed, in the United States of America. In striking contrast to the previous Government, this Government are determined to strengthen our competition laws in the interests of the British consumer. As my right hon. Friend the Chief Secretary and my hon. Friend the Financial Secretary set out last night, we have a clear position on taxation in the European Union, unlike the Conservative party, which has ceased defending the British national interest in the EU.
    Mr. David Heathcoat-Amory: Will the hon. Lady assure the House that no public money, either from the European Union budget or from the Treasury, will be used to fund propaganda for the euro? In particular, will she confirm that the new parliamentary Liaison Committee, which is chaired by a Labour Back Bencher, will be used only to help businesses to prepare for a new foreign currency on 1 January and not to soften them up and persuade them that the United Kingdom should join the euro?
    Ms Hewitt: If the right hon. Gentleman is referring to our recent campaign to raise the awareness of small and medium businesses about the introduction of the euro, I hope that that is something that he will support. As for the cross-party Committee to which he refers, he will be aware that my right hon. Friend the Chancellor, in his letters of 10 November, said that the group will be designed
    "to act as a channel for the exchange of information and to develop cross-party awareness of the continuing preparations for the Euro."
    I hope that, despite the anti-European stance of his party, he will agree that it is in the interests of British business and British citizens to be aware of the continuing preparations for the euro.
    Ms Debra Shipley: Will my hon. Friend join me in welcoming the initiatives taken by my colleagues

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    in the Dudley metropolitan borough—which includes my constituency—regarding the introduction of European measures. Will she also welcome the good work being done by the Dudley training and enterprise council and Dudley business link in helping businesses on all European issues? Will she allay the fears that any small businesses in my constituency may have, and state that we will support them?
    Ms Hewitt: I am happy to welcome the work of Dudley council in helping local businesses to prepare for the introduction of the euro. It is extremely important that small and medium businesses which are trading with suppliers and buyers within the euro-zone are aware of the implications for them of the introduction of the euro on 1 January. I congratulate the council on the work that it is doing in assisting local businesses, and small businesses in her constituency and across the country can rely upon the Treasury to assist them in practical terms in taking advantage of the opportunities that the introduction of the euro will provide.

    Stenbell Ltd.
    Mr. Andrew Robathan: How much tax has been paid by Stenbell Ltd. in the last five years. [61749]
    The Chief Secretary to the Treasury (Mr. Stephen Byers): As has been the case under successive Governments, the law on taxpayer confidentiality prevents the Inland Revenue from disclosing any information relating to the tax affairs of any particular taxpayer.
    Mr. Robathan: This is a matter of real public interest and, I suggest, of grave concern to hon. Members on both sides of the House. Is it not the case that the tax paid by Stenbell, together with the £500,000 of tax not paid by AGB, the connection with Hollis Industries, the implication of Robert Maxwell in both those companies and the claims of the Maxwell pensioners are part of a tangled web that must interest the Treasury—yet at the centre of the web is a Treasury Minister? Notwithstanding the Paymaster General's friends in high places and his holiday guests in Tuscany, does not the Minister consider that a Minister in the Paymaster General's position should have resigned long ago?
    Mr. Byers: The hon. Gentleman makes allegations. The Paymaster General is a highly effective Minister, and I look forward to working with him for many months to come. The question that Conservative Members need to answer is why, in the Tory party's recently published accounts, there is a secret donation of £1 million which, we are told, was donated by a party connected to Michael Ashcroft, the Tory party treasurer. We know that Mr. Ashcroft has been a tax exile for a number of years, preferring to pay his tax in Belize rather than Britain. That is the question that the Conservatives must answer.
    The Leader of the Opposition has said that he wants to lead a party with no secret donations. Why the secrecy in this case? Why has there been no disclosure? The time has come for the Conservative party to answer those questions.
    Madam Speaker: Order. That does not relate to the question. I will take only questions which relate directly to the main question.
    Mr. Francis Maude: The Paymaster General—who is, I understand, the owner of Stenbell
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    Ltd.—has been stripped of responsibility for taxation because of his own affection for placing his tax affairs offshore; he cannot deal with corporate matters because he is being investigated by the DTI under the Companies Acts; and he almost never appears in the House of Commons—except today, for his swansong.
    He has been shown to have systematically concealed his business links with Robert Maxwell. Why do not the Government abandon—
    Madam Speaker: Order. The right hon. Gentleman is fully aware that he should have a substantive motion on the Order Paper before he criticises a Member of this House. If he will restrict his supplementary question to what is on the Order Paper, I will hear it. Otherwise, I must ask him to resume his seat until he has a proper motion on the Order Paper.
    Mr. Maude: The Paymaster General is the subject of this question. Why do not the Government abandon the search for a face-saving exit for the Paymaster General, and simply sack him?
    Mr. Byers: The shadow Chancellor can put two questions to the Treasury today, and it is interesting that he has chosen to use one of them for a deliberate personal attack on a Treasury Minister. I am sure that there are many other issues that members of the public would have thought he might raise. His misguided priorities all too often reveal the nature of the Conservative party. I think that he will come to regret the way in which he put his question. I am pleased to be working with my hon. Friend the Paymaster General, who is an effective Minister, and I am sure that I will continue to work with him for many months to come.

    EU Withholding Tax
    Mr. John Greenway: What assessment he has made of the potential impact of the proposed EU withholding tax. [61750]
    The Financial Secretary to the Treasury (Dawn Primarolo): We have carefully examined the draft directive on taxation of savings, and consulted the City about its possible impact on the markets. My right hon. Friend the Chancellor has made it clear that, in its present form, the directive is unacceptable.
    Mr. Greenway: I am grateful to the Financial Secretary for confirming what she said last night—that the EU withholding tax is unacceptable in its present form. In what form would a withholding tax be acceptable? Does she agree that any international action to protect UK interests, unless it is mounted on a global scale, will automatically mean the transfer of business and jobs not only from London but from all member states to America, Japan and Switzerland?
    Dawn Primarolo: The Government have always made it clear that we are determined to protect the competitiveness of the European financial sector, and in particular the City of London. We favour—as, I hope, did the previous Government—effective international action against tax evasion. The solution that we prefer is the exchange of information, and the previous Government

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    were so keen on that that in 1988 they voted for a directive enshrining it. It was called the directive on capital movements.
    Ms Diane Abbott: My hon. Friend will agree that the xenophobic tone of much media comment on European taxation matters is to be deplored. Does she also agree that, if a country is to proceed with economic and monetary union and complete monetary integration, a degree of fiscal integration follows, as night follows day? It is misleading the public to pretend that one can have monetary convergence with no effect on fiscal policy.
    Dawn Primarolo: I am sorry that my hon. Friend missed the debate last night. I reiterate what I said then: monetary union does not equal harmonisation. It does not in the United States, and it will not in Europe. The Government have made it clear that harmonisation is not on the agenda for the foreseeable future.
    Mr. David Heathcoat-Amory: Is the Financial Secretary aware that it is strongly believed in the financial services industry that the Government are preparing a sell-out on the withholding tax? Does she understand that, even if we get rid of the compulsory 20 per cent. savings tax, the alternative is just as bad? The compulsory provision of information to overseas tax authorities would have the same effect, driving business right out of the European Union.
    Instead of giving vague assurances about protecting the national interest, as defined by the Government, will the Financial Secretary for a change announce that she will simply veto this damaging directive, which will not only destroy an important and successful British industry but put at risk the thousands of jobs that depend on it?
    Dawn Primarolo: The right hon. Gentleman may be having some difficulty with his hearing. I repeat that the exchange of information, which is the Government's preferred way to deal with that issue, is the way that we are proceeding in our negotiations. I repeat also that his Government agreed to a directive in 1988 that enshrined exchange of information. It was called the directive on capital movements. I know that the Tories like to forget quickly what they did in government, but the right hon. Gentleman's forecast did not happen then and will not happen in the future. This Government will defend the national interest and take decisions on the directive based on the national interest.

    Stockbrokers (Regulation)
    Mr. David Chaytor: What plans he has to improve the system of regulation of stockbrokers. [61751]
    The Chief Secretary to the Treasury (Mr. Stephen Byers): Soon after coming to office last May, the Government announced their plans to modernise the system of regulation for the financial services industry generally. A single body, the Financial Services Authority, has been established, which will be given statutory powers in the financial services and markets Bill which we will bring forward later in this Session.
    Mr. Chaytor: I thank my right hon. Friend for that reply. One of my constituents, a characteristic small
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    investor, is in dispute with a reputable firm of stockbrokers—I shall resist the temptation to name the firm—to the tune of some £200,000. That sum is in dispute because of incompetence, following an insider deal that went wrong, and the firm is now under investigation for insider dealing. Does my right hon. Friend agree that the exploitation of small investors by stockbrokers, following the mis-selling of personal pensions and the mis-selling of additional voluntary contributions, is the third great financial services scandal of the Tory years? Will he assure the House that the Financial Services Authority will pay particular attention to the protection of small investors?
    Mr. Byers: I sympathise with the difficulties that my hon. Friend's constituent has experienced. For the reasons that he has outlined, we felt that it was necessary to bring together the nine existing regulators into one body to regulate the financial services market. That body will have a single compensation scheme, which will help individuals who may have been subject to harmful treatment by stockbrokers or others involved in the financial services market. The aim of the new regime is to ensure that no individual, such as my hon. Friend's constituent, ever again has to suffer as a result of inappropriate conduct by people in the financial services market.

    Skills Base
    Mrs. Anne Campbell: What fiscal measures he has taken to encourage the development of skills in the work force. [61752]
    The Paymaster General (Mr. Geoffrey Robinson): The £19 billion extra that the Government have found for education will lay the basis for the skills improvement that we need. Specifically, this year we are providing a further £100 million for information technology skills. Some £40 million of that will fund some 60 IT centres; £20 million will fund the provision of essential equipment for IT training; and a further £10 million will help to fund the university for industry.
    Mrs. Campbell: I welcome the start-up funding that the Government have allocated to the university for industry, an exciting institution that will help to raise the skills of the unemployed and people who work in small businesses. If my hon. Friend has time, will he take a look at some of the software being developed by Cambridge Training and Development in my constituency? It has some innovative software to help adults to raise their levels of literacy and numeracy.
    Mr. Robinson: I was in Cambridge this week with my hon. Friend, and was made aware of that interesting software package. That is an area that the university for industry will be anxious to develop further. Apart from what has already been made available, my hon. Friend will be pleased to learn that we will provide an extra £40 million next year to ensure that that exciting idea gets off the ground. All we are waiting for now is to hear that the Conservative Opposition oppose that, too.
    Mr. Nigel Evans: What has the Minister to say about those who have manufacturing skills

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    but who have lost their jobs during the past 18 months as a result of the recession made in Downing street? Would he guide those people towards gaining different skills, or would he prefer them simply to advertise their availability for hire in the yellow pages?
    Mr. Robinson: We need no lectures from the Opposition about manufacturing industry. During the previous Government's self-made recession, a million jobs were lost in manufacturing, and output dropped by 7 per cent. We do not face such a prospect now. The news of an interest rate reduction, which the Opposition have failed to welcome, is very good news for manufacturing.
    Mr. Derek Foster: What response would my hon. Friend give to an economist who shares his name but who is no relation, and who works for the Institute for Public Policy Research, an organisation known to both my hon. Friend and my hon. Friend the Economic Secretary to the Treasury? At the Select Committee on Education and Employment this week, Peter Robinson dismayed me by saying that there was no evidence of any return to companies for training. There was plenty of evidence that there is a return to individuals, but none of any return to companies. How does my hon. Friend respond to that?
    Mr. Robinson: Peter Robinson is eponymous with my younger brother, but is no relation of my family. He is obviously out of touch with the manufacturing sector. Perhaps he was not invited to one of our seminars, but if he had attended one, he would have heard time after time from industrialists of the close link between training and both the skills and competitiveness of their companies.

    Fiscal and Monetary Stability
    Jacqui Smith: What plans he has to ensure fiscal and monetary stability. [61755]
    The Chief Secretary to the Treasury (Mr. Stephen Byers): We have put in place a new framework for monetary and fiscal policy and have taken tough action to deliver low inflation and sound public finances, both of which are essential for economic stability and sustainable growth.
    Jacqui Smith: Can my right hon. Friend assure me that those policies will be sustained despite both lower world economic growth and the weasel words of the Opposition? In particular, can he confirm that the extra £40 billion of spending on schools and hospitals will be delivered despite moderated growth forecasts? Despite the fact that the Opposition want to reintroduce politics into the setting of interest rates, can my right hon. Friend reassure me that we shall maintain the independence of the Bank of England, which has brought such welcome news on interest rates today?
    Mr. Byers: As I have already said, the Government welcome today's Bank of England decision to cut interest rates by 0.5 per cent. As the Bank said, the reason for the cut was a weakening in global economic activity. The tough decisions that the Government took to reduce the deficit by £20 billion, to give independence to the Bank
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    of England and to ensure that we hit the inflation target of 2.5 per cent. have enabled us to steer a course of economic stability. That is why we can guarantee £40 billion for our schools and hospitals over the next three years. It is a matter of regret that the official Opposition call that a spending spree; most people regard it as an investment in the future of our schools and hospitals.
    Dr. Vincent Cable: Is the Minister aware of warnings given in the Palace of Westminster yesterday by Mr. George Soros about the potential for British economic instability resulting from shocks of sterling instability? Can he confirm that the inter-party committee that he is currently establishing will specifically consider British preparations for entry to economic and monetary union, should entry prove to be in our national interest?
    Mr. Byers: The committee announced a few weeks ago by my right hon. Friend the Chancellor is still subject to discussion among hon. Members, and we must await the outcome of those discussions before we know the details of its terms of reference. As for the evidence given yesterday by George Soros, on his own admission he has made some fundamental mistakes recently—he may have made one in his evidence to the Treasury Committee.
    Yvette Cooper: Given that the framework for stability that the Government have put in place has led to interest rates falling from a peak of just over 7 per cent., compared to a previous peak of 15 per cent., will my right hon. Friend promise that he will not follow the advice of the deputy Leader of the Opposition to give away the Bank of England's independence and have the Chancellor, rather than the Governor of the Bank of England, taking decisions on interest rates?
    Mr. Byers: The time has come for the Conservative Opposition to reveal their position on independence for the Bank of England. It is because we have given the Bank of England independence that long-term interest rates are now at their lowest level for some 35 years and that we have today received the welcome news from the Bank that interest rates are to be cut by a 0.5 per cent. It is because we will not play party politics with interest rates that we gave independence to the Bank of England. It is a matter of regret that the Conservatives apparently still want to have that control, which will operate only for narrow party advantage, not in the national interest.
    Mr. Nick Gibb: Will the Chief Secretary explain why the National Audit Office was not asked to audit the economic assumptions used in the pre-Budget report? Will he also explain the discrepancy between the written answer that the Economic Secretary gave me, to the effect that there were no changes to the economic assumptions used, and the written answer that the Secretary of State for Social Security gave to my right hon. Friend the Member for Wells (Mr. Heathcoat-Amory), to the effect that the forecasts for social security spending had been changed because of changes to the economic assumptions used? Which answer is the truth, and why was there no audit?
    Mr. Byers: The truth is the answer that I gave yesterday evening in the debate on this issue: that the conventions have not been changed. The pre-Budget report used unemployment figures for September, which was the latest month for which they were available. Because there was no change, as the code for fiscal stability clearly states, there was no need for the NAO to be involved.
    Mr. Dennis Skinner: My right hon. Friend will be aware that, whenever there is a recession, as sure as night follows day the worst-affected areas are those where unemployment is already very bad. Does he agree that that problem demands some intervention, as evidenced by the Deputy Prime Minister's idea for a coalfield task force, and that such intervention will need to be repeated in many ways if there is a downturn in the economy, so that in those areas where unemployment rears its ugly head we manage to get rid of at least most of it?
    Is my right hon. Friend also aware that there is one sector of the economy where employment is not affected? I refer to the Tories' moonlighting jobs—more than 200 of them. Under the new Labour Government, the Tories have been gathering in jobs left, right and centre. The shadow Chancellor already has four, and the next Register of Members' Interests will show an increase. If all the firms involved start paying in euros, you can bet your bottom dollar the Tories will not resign their non-executive directorships.
    Mr. Byers: As always, I am grateful to my hon. Friend. I forgot to point out in my earlier contribution that, since the general election, not only has unemployment in the shadow Chancellor's seat fallen by 29 per cent., but he has gained four jobs himself. On the more serious point, my hon. Friend is right to highlight the important work of groups such as the coalfield task force, as well as the new deal for communities launched by the Deputy Prime Minister. We were elected as a Government who would work for all of our people, not the few. We intend to do just that, thus ensuring that we give new hope to the communities represented by my hon. Friend and me.

    Manufacturing Employment
    Mr. Robert Syms: What estimate he has made of the level of manufacturing employment in Britain in the current year and in the next two years. [61756]
    The Economic Secretary to the Treasury (Ms Patricia Hewitt): In line with the convention adopted by previous Administrations, the Government do not publish employment forecasts.
    Mr. Syms: That is very sad. Given the—[Interruption.]
    Madam Speaker: Order. Mr. McNulty, you are not in a public meeting now. You have been making comments continually from a sedentary position throughout Question Time. They are unwanted and unnecessary.
    Mr. Syms: Given the sad announcements of further redundancies today following a number of such announcements over the past several months, and with many workers facing unemployment and a hard Christmas, does the Minister not consider that, for workers, the Prime Minister's recent comments that economic stability is sexy was both insensitive and in very poor taste?
    Ms Hewitt: As I am sure the hon. Gentleman is aware, the Government—this applies to all Ministers—are extremely concerned about every job lost. That is why we are investing so much—£5 billion—in the new deal to counter unemployment, and why we have put in place a rapid response task force to deal with large-scale redundancies when they arise.
    I remind the hon. Gentleman that since the general election employment has risen by 400,000—that is one more person in a job every two minutes. Business fears most of all a return to the boom and bust of the Conservative years, to which we are putting an end.
    Mr. Peter L. Pike: May I assure my hon. Friend that the view of manufacturing employers in a manufacturing constituency such as Burnley is that the most serious threat to the future of manufacturing stability and jobs in manufacturing is the present attitude of the Opposition to Europe and to the euro? Will the Government continue to recognise the need for, and give support to, research and development, which is crucial if Britain is to remain at the sharp end of manufacturing and be able to retain jobs in manufacturing, not only for the next two years but for the years beyond?
    Ms Hewitt: My hon. Friend is absolutely right. It is high time that Conservative Members stopped talking the economy down. However, given the competitive challenges that every sector of the economy faces in the modern world, and especially given the global conditions that we face at present, it is essential that we take every step possible to improve productivity. That is why my right hon. Friend the Chancellor of the Exchequer devoted the pre-Budget report particularly to a discussion of the measures that we can take to improve productivity through, for example, R and D, to which my hon. Friend referred.

    Counterfeit Currency
    Mr. Gordon Prentice: What estimate he has made of the amount of counterfeit currency in circulation. [61758]
    The Economic Secretary to the Treasury (Ms Patricia Hewitt): There are no such estimates, but the number of counterfeit coins and notes is believed to be a very small proportion of the total number of notes and coins in circulation.
    Mr. Prentice: It is disappointing that there are no estimates. When the new euro notes and coins start circulating in continental Europe in January 2002, there is a danger that counterfeiters could have a field day. Is it not the case that notes and coins could be circulating in

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    the United Kingdom even though they are not legal tender? For example, Marks and Spencer and other retail outlets could be accepting notes and coins. What are the Government doing to familiarise people in the United Kingdom with the euro—what it looks and feels like—so that they can distinguish between counterfeit notes and coins and the genuine thing?
    Ms Hewitt: As my hon. Friend is aware, the Royal Mint and the Bank of England keep the security and the design features of United Kingdom notes and coins under continuous review to keep them secure against counterfeiting. The European central bank, which is responsible for the notes and coins issued within the euro, is similarly taking measures and drawing upon the expertise of central banks to ensure that the wave of counterfeiting that my hon. Friend fears does not materialise.
    Miss Anne McIntosh: 1 have in my possession a euro note from a Belgian bank. It looks remarkably similar to a gift token issued by Marks and Spencer. What satisfaction can the Minister give my constituents who hope to bring their euros back in perhaps the year 2003 after holidaying in Spain, for example, and spend them in their nearest Marks and Spencer store? What checks will there be to ensure that there is no confusion between the two different notes?
    Ms Hewitt: As I have said, the European central bank and the central banks of the euro zone are taking steps to ensure that euro notes and coins are proof against counterfeiting. I am sure that Marks and Spencer, if it is not aware of the resemblance to which the hon. Lady has drawn the attention of the House, will be taking its own steps to ensure that no such confusion arises.

    Education and Training
    Fiona Mactaggart: What discussions he has had with representatives of business and industry about incentives to encourage them to contribute to education and training. [61759]
    The Paymaster General (Mr. Geoffrey Robinson): In recent months we have been engaged in discussions with a wide range of representatives of business and industry during our seminars, one of which in particular focused on skills. A clear consensus has emerged between the Government and industry leaders on the importance of skills to the economy, and we are working out a joint programme.
    Fiona Mactaggart: Several companies in my constituency were excited by the Chancellor's statement in his pre-Budget report that, as an incentive to businesses to offer expertise and management help to schools and colleges, businesses will be allowed to claim tax relief when they second staff to schools and colleges. All those companies are involved in formal and informal ways in supporting education in Slough. They are anxious to ensure that they are consulted about ways to make the proposal work before it is implemented. If it is based on real experience, the results could be excellent; if not, they could be rather poor.
    Mr. Robinson: I am pleased that my hon. Friend welcomes the initiative. We are keen to bring industry and schools closer together. Tax relief for companies that second high-level staff to schools is a good idea in itself. I can assure my hon. Friend that there will be the fullest consultation on that, as there has been on all other matters that involve industry.

Smoking
3.32 pm
The Secretary of State for Health (Mr. Frank Dobson): Today I present to the House our White Paper on tobacco which is entitled "Smoking Kills". That is a fact, and it has been known for years. That is why a lot of adults gave up smoking, but the number of adults who smoke has stopped falling. Worse still, the number of children who smoke is going up, with more girls than boys taking up the deadly habit.
It is a deadly habit. Out of 1,000 20-year-olds who smoke regularly, one will be murdered, six will die in road accidents, 250 will die in middle age from smoking and a further 250 will be killed by smoking later in life. Smoking causes 84 per cent. of deaths from lung cancer and 83 per cent. of deaths from other lung diseases such as bronchitis. It causes not just lung cancer, but cancer of the mouth, the larynx, the oesophagus, the bladder, the kidneys, the stomach and the pancreas. It causes one in seven deaths from heart disease. Smoking is very high among people who are severely mentally ill.
Smoking is now the principal avoidable cause of premature deaths in Britain. It hits the worst-off people hardest of all, and it is one of the principal causes of the health gap that leads to poorer people being ill more often and dying sooner. It harms people who do not smoke; smoking harms babies in the womb.
All those are good reasons why the Government are so determined to turn things round. Unless we tackle smoking, we cannot possibly achieve the reductions that everyone wants to see in deaths and illness from cancer and heart disease.
Unless we reduce smoking, we cannot reduce the inequalities in health that bear down most on the worst-off. We want to help existing smokers to quit the habit and help children and young people not to get addicted in the first place.
We face an uphill struggle because the tobacco companies are committed to doing everything they can to promote the sale of cigarettes. They have to keep recruiting new smokers to make up for the 120,000 of their loyal customers whom they kill off every year.
Most smokers take up the habit when they are children or young people. Few people start smoking once they are grown up. For years, the tobacco industry has poured millions into highly sophisticated advertising campaigns. People of all ages, including children, have been exposed to clever and eye-catching advertising material. All that will now change. Tobacco advertising is going to end, and it is going to end soon.
The White Paper spells out the measures that we will take, which will be targeted on children to protect them from being exposed to tobacco promotions. It will require sustained effort over a long period. Some benefits will not show up for decades, but unless we act now they will never show up. We will also be trying to help the seven out of 10 smokers who want to quit the habit. All that calls for a concerted plan of action, and that is what the White Paper outlines.
From 1989 until the last general election, the previous Government helped to block all European efforts to ban tobacco advertising and sponsorship. We changed that. We put Britain's full weight into getting a European
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directive through, and we succeeded. I pay tribute to the negotiating skills and powers of persuasion of my right hon. Friend the Minister for Public Health in achieving that.
As a result, a Europe-wide anti-smoking framework is in place. In this parliamentary Session, we propose to end tobacco advertising on billboards and in the printed media. Most tobacco sponsorship will end by 2003. Formula One motor racing, as a global event, may qualify for exemption until 2006 if—and only if—tobacco sponsorship funding and advertising are already being reduced.
The European directive is intended to keep to a minimum tobacco advertising in shops, and that will be fully applied in Britain through the law. The tobacco advertising ban will be backed up by an anti-smoking campaign. Over the next three years, we will put £50 million into an anti-smoking campaign. We want to make sure that children and young people no longer fall into the trap of seeing smoking as cool and a passport to adulthood.
We have negotiated with representatives of the hospitality industry a code of conduct for reducing smoking in public places. For a long time it has been illegal to sell cigarettes to children under 16. That law is frequently broken, so we are taking action to increase compliance by shopkeepers, and to promote more effective action by trading standards officers. Some individual shopkeepers and others knowingly and repeatedly flout that law. To deal with repeated offenders, we propose to introduce a new criminal offence, and we are looking at the practicalities of such a measure.
Following discussions with my officials, the National Association of Cigarette Machine Operators is issuing new rules on the siting and operation of cigarette vending machines, to make them inaccessible to children. We have also encouraged the companies that sell age-restricted goods such as alcohol, cigarettes and fireworks to develop an industry-wide proof of age card.
The package of measures is a tobacco advertising ban; a £50 million anti-smoking campaign; a crackdown on sales to children; a new criminal offence for repeated sales to children; new restrictions on vending machines; and the proof of age card. That package should make a real impact on the illegal sales of tobacco to children.
We must also consider those who are smoking already. Every 10 years, more than 1 million British people are killed by smoking. Most of the millions who will be killed by tobacco over the next few decades are already adult smokers. Most smokers say they want to stop, and they are the people we particularly want to help. If they keep on smoking, there is a 50:50 risk that they will eventually be killed by their habit, but if they stop smoking before they become ill, they will avoid most of the extra risk of death. It is really worth while for people to quit smoking.
As part of our effort to help those seven out of 10 adult smokers who want to quit, we are investing up to £60 million in the first ever comprehensive national health service scheme to help them to give up their addiction. That will involve all health professionals—midwives, health visitors, doctors, nurses, pharmacists and dentists—taking every appropriate opportunity to counsel patients to give up smoking.
That effort will be particularly targeted on smokers living in those deprived areas that have been chosen as health action zones. We shall encourage the use of

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nicotine replacement therapy, especially targeted on health action zones where free NRT products will be available for the worst off. Health improvement programmes in every part of the country will be expected to address the need to reduce smoking, particularly in the worst-off areas.
As part of the drive to reduce tobacco consumption, the Government raised tobacco duties by just over 5 per cent. in December last year, and again this year. Those and other measures set out in the White Paper amount to a formidable plan of action to stop children taking up smoking and to help existing smokers to quit. To achieve that, we shall need to counter the efforts of the tobacco companies. Evidence shows that, for most of the past 20 years, they have been planning to counter the loss of sales that might follow an advertising ban. That time has now arrived, so we can be assured that they will be well prepared. I am certain that, as I speak, executives in the tobacco industry are planning their strategy to keep up tobacco sales.
We must get ahead of the game, which is all the more reason why everyone who cares about the health of the nation should work together to support this strategy. I am confident that everyone who cares about the nation's health will do that.
Mr. Alan Duncan: I have never been a smoker and, personally, I dislike it. The Opposition welcome any sensible measures that reduce smoking, especially among the young. However, I have concerns and suspicions about some of the methods that the Secretary of State has outlined in today's much delayed White Paper.
The heavy emphasis on advertising is questionable. We have always known that the White Paper would not be a matter of principle, because the Labour party was prepared to sell its principles for £1 million. The Government believe that advertising is all right so long as it appears at speeds in excess of 150 mph.
The White Paper is largely about implementing a European Union directive. However, if Germany's challenge to the directive's validity is successful, the Government will be in a frightful mess.
Mr. Dobson: It is a German Government now.
Mr. Duncan: The Secretary of State may say that, but the way things are going with his party, it probably will be.
What is the latest position on that legal challenge, and when is a final decision likely to be made? Does the Secretary of State agree that, if brands are prevented from competing through advertising, they will instead compete more actively through price? The measures will also prevent advertising that encourages smokers to switch to less harmful brands, one hopes as a step towards giving up completely. Can the Secretary of State reassure the House that that sort of detrimental effect has been considered, and explain how those fears will not prove justified? Will he reconfirm that the advertising measures will allow genuine brand diversification companies to continue to advertise their non-tobacco products?
The Opposition fully support a voluntary proof-of-age scheme. Such voluntary measures will have the greatest impact on reducing smoking with the minimum of bossiness. We note what the Secretary of Stage said about
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the practicalities of introducing a new criminal offence and we shall look at that very closely, to ensure that it does not accidentally give rise to injustice.
It is revealing that nicotine patches are to be made available to those on low incomes. We understand that the incidence of smoking-related diseases is particularly pernicious among those on low incomes, so we can see what the Government are trying to do. However, it goes against everything that the Labour party has ever said about the health service. The Government are introducing a two-tier system of health service provision. They are introducing more of the rationing which they say does not exist. Is it not the case that making a nicotine patch available only to those on low incomes amounts to introducing a means test for health care? What is the relationship between nicotine patch manufacturers that have given money to the Labour party and those who will supply patches under this scheme?
If the European Court finds the directive illegal, will the Government seek to reintroduce it in United Kingdom legislation? Will the Secretary of State define the targets by which we can judge this policy's success or failure? What do the Government estimate the level of consumption among adults will be following the implementation of the measures? By how much will the White Paper reduce smoking? What will be the cost of nicotine patches to our health service under the means-tested proposals? How will that be offset by the reduced cost of treating smoking-related diseases set against the loss of tax revenues should smokers give up smoking?
We have waited a long time for this White Paper. We know that the Government's principles on this issue were for sale. We welcome any sensible moves to reduce smoking, especially among the young. The Secretary of State has watered down his original commitments. We look forward to reducing smoking in this country by persuasion rather than by bossiness, and by concentrating our attention on the young.
Mr. Dobson: It takes the biscuit when members of the Tory party who supported the previous Government talk about delays in the introduction of measures to tackle smoking. For 18 years they did virtually nothing, and for eight years they did everything they could to get help in cash or kind from the tobacco companies, and to block the European directive. They tried to prevent it at every turn, and it was only when we got into power and withdrew from the blocking minority, and persuaded other members of that minority to join us, that we got the European directive.
The Tories should make up their minds. Are they in favour of the directive or against it? We are confident that the directive is valid. It is strange that the hon. Member for Rutland and Melton (Mr. Duncan), who is one of the fanatical anti-marketeers, is now praying in aid—and no doubt in hope—the possibility that the German Government's challenge to the legality of the directive will be successful. We are satisfied about its legality. Most of the hon. Gentleman's comments bore a marked resemblance to the briefing drawn up over a long period by the Tobacco Manufacturers Association.
The hon. Gentleman was concerned about brand diversification. That practice was invented by the tobacco industry when it first contemplated the prospect of an

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advertising ban. It is all right if they diversify their brands, but we will not allow advertising that, in effect, uses a shirt or a pair of shoes to promote cigarette sales. The hon. Gentleman talked about injustice and about the sleazy people who, for profit, sell cigarettes time and again to children who are too young to smoke. The biggest injustice is the injustice done to children. Those people sell cigarettes to children knowing that half of them will die from smoking those cigarettes.
The hon. Gentleman is apparently as ignorant about nicotine patches as he is about everything else. Nicotine patches are available over the counter, not on prescription. We intend to provide patches in limited circumstances to the most deprived people in the most deprived areas as part of a course of treatment to help them cure their addiction.
The hon. Gentleman has been spreading slurs about the Novartis company, which is a reputable, international drug company. He has suggested that, because it sponsored an event at a Labour party conference, it has bought the Labour party. We also received money from Tate and Lyle, so presumably he thinks that that is why patients in hospitals get sugar in their tea. Perhaps he thinks that we should withdraw the use of the Novartis drug, cyclosporin, which is given to people who have had organ transplants, or Voltarol, which is used extensively for people suffering from arthritis. The hon. Gentleman's charge is absurd—as absurd as everything else that he has done.
Our hope and intention is that, by 2010—for it will take a long time—1.5 million fewer people will be smoking. I hope that our proposed measures will be even more successful, but that is an ambitious target, given that the number of adults who smoke has begun to rise, and has been seriously augmented by the large number of children who took up smoking while an idle, feckless Government did nothing about it.
Mr. Kevin Barron: Many organisations that are concerned about public health will welcome both the statement and the White Paper, as will the many thousands of people who work in the health service and must deal every day with the victims of tobacco addiction. I especially welcome the plan of action to cure nicotine addiction, which has been known about for 40 years but whose existence has been consistently denied. At long last, we have a Government who will act in this regard.
In view of what was said by the hon. Member for Rutland and Melton (Mr. Duncan), may I ask whether the White Paper contains any measures that could cure the Tory party of its addiction to the tobacco companies?
Mr. Dennis Skinner: I doubt it.
Mr. Dobson: I agree with my hon. Friend.
I congratulate my hon. Friend the Member for Rother Valley (Mr. Barron) on all that he has done over the years to promote efforts to reduce the number of smokers in this country. It should be remembered—this needs to be repeated whenever we hear propaganda from the tobacco companies, either directly or through their hired hands—that, until very recently, those companies denied that
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tobacco smoking caused lung cancer, and that even more recently they have denied that it is addictive. Both assertions were plain, downright lies. The tobacco companies knew that they were lies when they uttered and publicised them.
Mr. Simon Hughes: The Liberal Democrats approve of the direction of Government policy. It makes a welcome change from the 18 years of hypocrisy during which the Tory party was persistently on the side of the tobacco industry, as a result of which hundreds of thousands of people paid the ultimate price.
We agree with the Government that smoking must be deglamourised. Given that his Department said this morning that those who sell cigarettes are effectively child killers, does the Secretary of State not think it inconsistent, if we are to have secondary legislation this year to ban billboard and other advertising, not to ensure that it comes into effect this year? According to the White Paper, it will come into effect as soon as is practicable, but five years is far too long. If we are to have legislation this year—given the formula one fiasco last year, and the lesson that the Government have learnt from it—can we not have legislation at the same time to ban tobacco sponsorship?
If we are really keen to stop young people smoking, will the Secretary of State revise the targets for reducing smoking among young people? A reduction from 13 per cent. to 9 per cent. over 12 years is hardly a tough target; the right hon. Gentleman really ought to go further and faster.
If the Government share the view that every citizen should have the right to be free from smoke in every public place, will the right hon. Gentleman ensure that, if the leisure industry does not agree to such arrangements, it too will be told that legislation may be introduced to require it to provide non-smoking alternative venues?
At home, the Government are committed to stopping 120,000 deaths a year from smoking. Will there be the same commitment abroad to combating the activities of the international tobacco companies, which are determined to recruit many people to lifelong addiction by using what is, in fact, the ultimate weapon of personal self-destruction?
Mr. Dobson: I suppose that I should thank the hon. Gentleman for his somewhat limited welcome for our proposal. All I can say is that it has been almost unreservedly welcomed by the Cancer Research Campaign, the British Heart Foundation and Action on Smoking and Health. We have met virtually every one of their requirements.
As for the timing of the intended measures, the hon. Gentleman should wait to see the regulations that we will introduce. As for similar efforts overseas, we support whole-heartedly the initiative that Dr. Brundtland has launched at the World Health Organisation to put together an international effort to restrain the international efforts of tobacco companies.
Mr. Joe Ashton: I congratulate my right hon. Friend on his excellent report, but there was one word that he did not mention: pubs. Is he aware that public houses are the only place where members of the public gather where there are no no-smoking areas?

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Despite ten-minute Bills being passed by the House and constant requests to the breweries, they adamantly refuse to introduce no-smoking areas.
Will my right hon. Friend ensure in the legislation that breweries do not get a licence to sell alcohol from a local authority without providing no-smoking areas in their public houses? Will he make a start on this House, because the conditions in the Stranger's Bar are absolutely dreadful? On December nights, the door must be held wide open because the staff can hardly breathe and the extractor fans do not work. Despite many others making requests, a no-smoking area in the Tea Room is still not available. In many parts of this House, people are entitled to have a segregated no-smoking area, but despite the complaints we make, it never happens.
Mr. Dobson: I thank my hon. Friend for his welcome for our proposals. We have been having serious negotiations with the hospitality industry and those who are responsible for licensed premises. They are introducing a new code of conduct, which—
Mr. Ashton: We have heard that 10 times before.
Mr. Dobson: I know, but let me finish. We have made it clear that, if the code of conduct does not deliver what those companies are promising, we will have to resort to legislation. We would, however, rather have the enthusiastic support of people in the licensed trade, restaurants and hotels. Many of them are gradually realising, as did the airlines, bus companies and train companies, that most people would rather be in a smoke-free area.
It is rather odd that, as far as I know, smoking has always been banned in the Chamber, but it was not banned by us. No one other than hon. Members is responsible for the rules in other parts of the House. I would be happy to see it setting an example.
Mr. Peter Bottomley: People will welcome the Secretary of State's analysis that it is vital to get young people who take up smoking to understand that they are doing what children do, not what adults take up. Will he give more prominence to the work of Dr. Malcolm Green and his colleagues at the British Lung Foundation, because, as well as hearts, lungs matter? Sometimes that is overlooked.
While considering where bans on smoking could be made, can we look forward to powers for taxi drivers to ban smoking in their cabs, which they have not, up to now, been able to do?
Will the Secretary of State continue to be aware that the ban on promotion might make a difference of between 1 and 7 per cent? The target should be to achieve the same level of reduction as was achieved 10 years ago on drink driving. The number of occasions when young men would drink and drive was cut by two thirds in two years, with no change of law or in sentencing. It was done effectively through the youth media, so, instead of Ministers saying that things are cool or uncool, it is far more useful for disc jockeys and others to talk about the dangers of smoking on their news and current affairs programmes. That would be more effective than a public service or health message.
Mr. Dobson: I accept the hon. Gentleman's point about trying to get a change of view, a change of culture,
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among the people concerned. As I always say, he deserves some congratulation on his contribution to changing public attitudes towards drink driving. That change in attitude was backed by the law—perhaps set on by the law—but, above all, habits were altered by a change in attitude. That is what we are trying to bring about. Therefore, I am prepared to consider all forms of advertising to try to catch the attention of young people.
It is sometimes suggested that young people understand the dangers that smoking poses to health, but there may be some evidence that many of them do not. As the dangers of smoking have been advertised in the adult world for the past 10 years, we tend to think that young people are aware of them, and that efforts have not been targeted on them. However, evidence from the United States, for example, shows that the best way of turning young people off smoking is by portraying accurately those who run the companies as a set of grasping people who, for the sake of profit, are willing to murder people.
Dr. Ian Gibson: It has indeed been an exciting week for cancer research, starting with work by British researchers on cervical tests that was funded by the Cancer Research Campaign and that will, over the next few years, save women's lives. My right hon. Friend fully supported that work. The week is nearing its end with today's announcement on cancer prevention. Does my right hon. Friend agree that it ill befits an Opposition to take seats on tobacco company boards and to take day trips to regattas and other United Kingdom events sponsored by the tobacco industry when that industry makes millions of pounds in profit and, as he said, kills our people? Does he agree that we should be as ruthless with tobacco companies' profits as those companies have been with their customers?
Mr. Dobson: I have always been rather reluctant to get into upbraiding anyone for their personal habits, and I shall not start now. However, I object to the habits of the tobacco companies' highly paid executives, who spend their time promoting something that they know will kill half of those who use it.
Mr. Eric Forth: Has the Secretary of State made any estimate of the tax revenue loss that would occur should he achieve anything like his stated target of 1.5 million fewer smokers by 2010? If so, will he tell us how he or his Treasury colleagues propose replacing that lost tax revenue, or what Government expenditure cuts would be necessitated by such a loss?
Mr. Dobson: The present Government, including the present Chancellor, support the policies that I have outlined today. In each successive Budget we intend to increase the price of cigarettes above the rate of inflation. If that action eventually has an impact on tax income, we shall address that problem when it arises. The sooner the problem arises and the greater it is, the better off the country will be.
Dr. Phyllis Starkey: I welcome the statement as a great step forward in trying to reduce the number of young people taking up smoking. However, will my right hon. Friend tell the House what he will do to monitor the diversionary activities in which the tobacco companies are involved? I am concerned

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about their promotional activities at night clubs and other venues frequented by young people. I had direct experience of those activities when my daughter came home with promotional material designed not only to persuade her to smoke but to recruit her friends to do so. Will he take action to stop such activity?
Mr. Dobson: I am glad to say that all those matters are covered by the directive. The dishing out of promotional literature in night clubs—or youth clubs—will be banned, as will the issuing of free cigarettes, free sunglasses and all the other things that the tobacco companies have been using to promote the sale of cigarettes among young people. All those activities are covered by the directive which Conservative Members obstructed for the best part of 10 years, and which my right hon. Friend the Minister for Public Health negotiated through the maze of European structures.
Mr. Peter Brooke: I am a non-smoker, although I have to confess that I have taken pleasure in watching Benson and Hedges cricket—a game to which I am addicted. Historically, when does the Secretary of State believe that tobacco companies embarked on brand advertising? More importantly for the future, given that law enforcement officers believe that the drugs trade is now a significant and measurable element in world gross domestic product—although, obviously, without advertising—what does the White Paper forecast the fall in tobacco consumption will be over the next decade?
Mr. Dobson: We have targets rather than forecasts. The Government are putting an extra £35 million into stepping up the effort to reduce alcohol and tobacco smuggling. It is clear that the market that has been created is being supplied on the cheap by all sorts of dubious traders. Interestingly, the tobacco companies, which claim to be disturbed by the problem, do not seem able to cut off the supply.
Mr. Ken Maginnis: Although my party welcomes any measure to reduce smoking, particularly among young children, I fear that the proposals will place a great responsibility on organisations such as the Tobacco Alliance—a group of responsible small shopkeepers who sell cigarettes within the law, but are being taxed at 5 per cent. per year, to the advantage of the bootleggers whom the Secretary of State deprecates. What can the Secretary of State do about the £3 billion of trade involved? Has he been to the coast of France and Belgium to see the extent of the trade? There is no control over it. I am told that 80 per cent. of the trade is carried out north of the Watford Gap, so it is not peculiar to coastal regions. Unless the Secretary of State tackles that, he might as well forget about his proposals, which, I repeat, we welcome.
Mr. Dobson: I thank the hon. Gentleman for his welcome for our proposals. We take smuggling seriously. I understand that the loss of revenue is about £1 billion—which may interest those who are bothered about revenue lost to the Government. The Conservatives did nothing about that when they were in office. We are putting more
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effort into attempting to counter smuggling, although I have not been to the coast of France and Belgium to check the situation. The tobacco companies must bear some of the responsibility, because their products are being smuggled. If they wanted to trace them to where they came from with markings on the packets, they could do so.
Mr. Derek Foster: I should declare an interest, although it is not a registerable one. There is a Rothmans factory in Spennymoor in my constituency employing 550 people. It is a good company that plays a full part in the life of the community. It is highly regarded by its employees and has a good relationship with the Manufacturing, Science and Finance Union. My other interest in the issue is that my father died at the age of 51 from emphysema, probably caused by smoking Woodbines, which were popular among the working class of his generation.
My right hon. Friend is not making a pitch for the votes of the 15 million smokers, who give £11 billion to the tax man—considerably more than they cost the health service. Nevertheless, I wholly welcome the report. Will he work with me and the Tobacco Workers Alliance to ensure that, if the jobs of my 550 constituents in an area of high unemployment disappear through the activities of my party, we shall ensure that there are other jobs for them to go to?
Mr. Dobson: I know about the death of my right hon. Friend's father. I can confirm that representatives of the tobacco workers have been consulted throughout the process, and will continue to be consulted.
It is worth noting that, in the previous 18 years, the number of people employed in the tobacco industry fell from 37,000 to 9,000, largely as a result of increased automation of the processes. That has been the principal cause of job losses, which have proceeded apace. As the tobacco company bosses are concentrating so hard on brand diversification, perhaps they might pay a little attention to diversifying the job opportunities of their employees. I do not think that we will upset most smokers by trying to help them give up smoking, as all the surveys show that seven out of 10 smokers would like to give up, but unfortunately they are addicted.
Dr. Peter Brand: First, I welcome the emphasis placed on stopping children and young people starting to smoke in the first place.
Secondly, I am disappointed by the help that is being offered to the seven out of 10 who want to stop smoking, and who probably express that wish 10 or 20 times a day. People such as myself—I am addicted to my pipe—require consistent help to give up the pernicious habit. There is a great deal of evidence that people need support for at least six to 12 weeks. The Government are missing an opportunity by not offering people a supply of Nicorette as a condition of attendance at a clinic, as that would encourage people to turn up and to be successful in their attempts to stop smoking. A week's supply is neither here nor there and will not help anyone to make a real effort. Will the Secretary of State look at the results of the pilot project, and extend it when it is seen to be cost-effective?
Mr. Dobson: I thank the hon. Gentleman for his welcome. Although he is not a lawyer, he is probably

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more learned on this subject, given his medical background. I hope that he will not be too disappointed by our proposals. As I said, we want a concerted effort by the national health service, so that the medical, nursing, midwifery and pharmacy professions work in the same direction and take every opportunity to help. We intend to start by targeting effort on the worst-off people in the poorest areas, who almost automatically have a high incidence of smoking compared with well-off people in prosperous areas.
As part of their treatment, some people will be offered free patches for a week or perhaps longer. I understand that the patches cost £15 a week over the counter. Most smokers spend more than that on smoking, so if they are given some support, get to know how it feels to use the patches and benefit from them, and provided that clinical support continues, we hope that they will think it a bargain to spend a bit less on patches than they were spending on the cigarettes that were harming them.
Dr. Howard Stoate: May I add my congratulations and those of the vast majority of my general practitioner colleagues to my right hon. Friend? I have been watching the clock, and my calculations are that between 10 and 12 people have died in Britain from smoking since the beginning of his statement. Therefore, about 400 people a day need to be recruited to start smoking just to make up those numbers. How can we change the culture among young people from the idea that smoking is somehow glamorous, so that they consider it dangerous? Rather than cracking down on smoking, we need to show people the damage that it causes and that it is in their best interests if they never take it up in the first place.
Mr. Dobson: I thank my hon. and medical Friend for his welcome. We are trying to learn from campaigns in other parts of the world in an effort to reduce the number of children who are taking up smoking. However, it is a cultural matter, so we cannot simply take something off the peg in Massachusetts or California and assume that it will work in Scunthorpe or Surrey. We need to address what motivates and influences young people in our country. We have a substantial sum of money to do that, and we are prepared to contemplate almost any form of advertising and advocacy provided that we are convinced that it will work.
Mr. Barron: On a point of order, Madam Speaker.
Madam Speaker: I take points of order after statements.

Business of the House
4.15 pm
The President of the Council and Leader of the House of Commons (Mrs. Margaret Beckett): With permission, I should like to make a statement about the business for next week.
MONDAY 14 DECEMBER—Second Reading of the Greater London Authority Bill.
TUESDAY 15 DECEMBER—Until 7 o'clock, conclusion of Second Reading of the Greater London Authority Bill.
Debate on the common fisheries policy on a Government motion.
Proceedings on the Consolidated Fund Bill.
WEDNESDAY 16 DECEMBER—Until 2 o'clock, there will be debates on the motion for the Adjournment of the House, which will include the usual three-hour pre-recess debate.
Motion to approve the Modernisation Committee's report on the parliamentary calendar and sessional orders.
THURSDAY 17 DECEMBER—Second Reading of the Scottish Enterprise Bill.
The provisional business for the first week back after the Christmas recess will be as follows:
MONDAY 11 JANUARY—Second reading of the Rating (Valuation) Bill.
TUESDAY 12 JANUARY—Second Reading of the Local Government Bill.
WEDNESDAY 13 JANUARY—Until 2 o'clock, there will be debates on the motion for the Adjournment of the House.
Opposition day [2nd Allotted Day].
There will be a debate on a motion in the name of the Liberal Democrats, the subject to be announced.
THURSDAY 14 JANUARY—Motion to take note of the outstanding reports of the Public Accounts Committee to which the Government have replied. Details will be given in the Official Report.
FRIDAY 15 JANUARY—The House will not be sitting.
[Thursday 14 January:
Motion to take note of the outstanding reports of the Public Accounts Committee to which the Government have replied. Details will be given in the Official Report. Relevant Reports:
NHS Supplies in England HC349 11 December 1997 Cm 3880
Health and Safety in NHS Acute Hospital Trusts in England HC350 13 December 1997 Cm 3880
South and West Regional Health Authority: the disposal of SWIFT HC358 18 December 1997 Cm 3880
MOD: Management of Utilities HC359 19 December 1997 Cm 3880
Coronary Heart Disease in Northern Ireland HC381 14 January 1998 Cm 3893
Department of the Environment (NI) Control of Belfast Action Teams' Expenditure HC382 15 January 1998 Cm 3893
Resignation of the Chief Executive of English Heritage HC392 18th January 1998 Cm 3894
Governance and Management of Overseas Courses at the Swansea Institute of Higher Education HC393 18 January 1998 Cm 3894

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Property Services in English Occupied Royal Palaces: Responsibilities for Royal Household Remuneration and the Provision of Accommodation HC94 17 December 1997 Cm 3936
Her Majesty's Stationery Office: Trade with Uzbekistan and 1995 Trading Fund Accounts HC405 21 January 1998 Cm 3894
MAFF: Tackling Common Agricultural Policy Irregularities HC406 22 January 1998 Cm 3894
ODA: Irregularities in the Encashment of Pension Payments in Amman, Jordan HC407 23 January 1998 Cm 3894.
Criminal Legal Aid Means Testing in the Magistrates' Courts HC416 6 February 1998 Cm 3936
HM Customs and Excise: The Seizure of Drug Traffickers' Assets HC417 29 January 1998 Cm 3936
United Kingdom Atomic Energy Authority: Sale of Facilities Services Division HC418 30 January 1998 Cm 3936
HM Customs & Excise: Appropriation Account Matters 1995–96 HC424 4 February 1998 Cm 3936
Waltham Forest Housing Action Trust: Progress in Regenerating Housing Estates HC425 18 February 1998 Cm 3936
The Department of Trade and Industry Redundancy Payment Service: The Management of Recovery of Debt HC426 11 February 1998 Cm 3936
Aid to Indonesia HC436 12 February 1998 Cm 3936
Motability HC444 15 February 1998 Cm 3936
Child Support Agency: Client Funds Account 1996–97 HC313 11 March 1998 Cm 3955
Excess Vote 1996–97: (Northern Ireland) Department of Education (Vote 2) Teachers' Superannuation HC592 12 March 1998
Excess Votes 1996–97: Ministry of Defence (Class 1: Votes 1, 2 and 3) HC593 12 March 1998
Department for Education and Employment: Remploy Limited HC339 18 March 1998 Cm 3955
Highlands & Islands Enterprise: Value for Money Review of Performance Measurement HC325 25 March 1998 Cm 3955
Vacant Office Property 395 1 April 1998 Cm 3973
Measures to Combat Housing Benefit Fraud HC366 26 March 1998 Cm 3955
Charity Commission: Regulation and Support of Charities HC408 2 April 1998 Cm 3973
HM Customs and Excise: Checking Large-Traders' VAT Liability HC445 5 April 1998 Cm 3973
The Prison Service: Prison Catering HC419 8 April 1998 Cm 3973
Inland Revenue: Employer Compliance Reviews HC357 3 May 1998 Cm 4004
NHS Scotland: Cataract Surgery in Scotland HC546 7 May 1998 Cm 4004
Crown Prosecution Service HC526 10 May 1998 Cm 4004
FCO: Fraud at Amman Embassy HC553 13 May 1998 Cm 4004
The Annual Report of the European Court of Auditors HC729 17 May 1998 Cm 4004
OFWAT: Regulation of Water Industry HC483 20 May 1998 Cm 4004
FCO: Contingent Liabilities in the Dependent Territories HC435 21 May 1998 Cm 4004
Northern Ireland: The Industrial Research and Technology Unit HC429 24 May 1998 Cm 4015
Protecting Environmentally Sensitive Areas HC513 3 June 1998 Cm 4021
The Management of Building Projects at English Higher Education Institutions HC558 4 June 1998 Cm 4021
The Construction of the Southampton Oceanography Centre HC608 17 June 1998 Cm 4055
The Skye Bridge HC348 21 June 1998 Cm 4041
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The Privatisation of Belfast International Airport HC427 24 June 1998 Cm 4060
Northern Ireland Social Security Agency: The Administration of Disability Living Allowance HC527 25 June 1998 Cm 4060
Department of the Environment, Transport and the Regions: The Home Energy Efficiency Scheme HC6 13 27 June 1998 Cm 4055
The Contract to Develop and Update the Replacement National Insurance Recording System HC472 1 July 1998 Cm 4041
The Private Finance Initiative: The First Four Design, Build, Finance and Operate Roads Contracts HC580 2 July 1998 Cm 4041
MOD: Sale of the Married Quarters Estate HC518 8 July 1998 Cm 4055
The Sale of the Stationery Office HC599 9 July 1998 Cm 4055
The Management of Sickness Absence in the Metropolitan Police Service HC594 15 July 1998 Cm 4055
Ministry of Defence Appropriation Accounts 1996–97 HC671 16 July 1998 Cm 1055
Intervention Board Executive Agency: Qualification of Appropriation Account 1996–97 18 July 1998 Cm 4055
Appropriation Account 1996–97 Class V, Vote 7: Passenger Rail Services HC625 22 July 1998 Cm 4055
HM Customs and Excise: Matters on the 1996–97 Accounts HC7I7 23 July 1998 Cm 4055
Inland Revenue: The Monitoring and Control of Tax Exemptions for Charities HC728 24 July 1998 Cm 4055
Appropriation Accounts 1996–97 Class IX: Department for Education and Employment (Overpayments to Training and Enterprise Councils) HC704 25 July 1998 Cm 4055
The PFI Contracts for Bridgend and Fazakerley Prisons HC499 29 July 1998 Cm 4041
Appropriation Accounts 1996–97 Class XII, Vote 1: (Administered Social Security Benefits and Other Payments) HC570 30 July 1998 Cm 4069
HM Coastguard: HM Coastguard: Civil Maritime Search and Rescue HC741 31 July 1998 Cm 4069
The Sale of AEA Technology HC749 5 August 1998 Cm 4069
Getting Value for Money in Privatisations HC992 3 September 1998 Cm 4075
The Purchase of the Read Codes and the Management of the NHS Centre for Coding and Classification HC657 6 August 1998 Cm 4069
The Management of Growth in the English Further Education Sector HC 665 7 August 1998 Cm 4069
Countering Anti-Competitive Behaviour in the Telecommunications Industry HC842 12 August 1998 Cm 4069
Privatisation of the Rolling Stock Leasing Companies HC782 9 August 1998 Cm 4069
Managing the Millennium Threat HC816 19 August 1998 Cm 4069
HM Treasury: Resource Accounting and Resource-Based Supply HC731 13 August 1998 Cm 4069]
Sir Patrick Cormack: I thank the right hon. Lady for giving us the business for next week and the provisional business for the week after we return from the recess. I wish her a very happy Christmas between those two weeks.
Will the right hon. Lady confirm that the Prime Minister will give a full statement to the House on Monday following the Vienna summit? Will she also confirm that, in accordance with the traditions of the House, there will be a free vote when we consider the Modernisation Committee's report on Wednesday, and that that free vote will include all Labour Members and members of Her Majesty's Government? In her speech in

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that debate, will she be able to meet one of the Committee's simpler recommendations, and give the dates of the Easter and Whitsun Adjournments?
In giving the provisional business for the week after the Christmas recess, the right hon. Lady did not mention the House of Lords reform Bill. Do the Government intend to introduce that Bill in January? Will she give the assurance for which we have asked that all stages of the Bill will be taken on the Floor of the House?
Will the right hon. Lady arrange a special debate, in the week or fortnight after we return, on the millennium dome and on the responsibilities of the Secretary of State for Trade and Industry for that major project, bearing in mind the fact that there will then be less than a year before its opening?
On a very important matter, will the right hon. Lady arrange for a statement next week by the Prime Minister or, if that is not possible, by the Foreign Secretary on the criteria governing relations with friendly democratic states? May we be told what has happened to the doctrine of non-interference in the internal affairs of such nations? Will the Prime Minister or Foreign Secretary explain in that statement what the reaction of Her Majesty's Government would be if a Member of either House of Parliament or of the Northern Ireland Assembly were arrested abroad on political charges related to the Province?
Mrs. Beckett: I thank the hon. Gentleman for his Christmas good wishes, and return them to hon. Members on both sides of the House. He asks whether my right hon. Friend the Prime Minister is likely to make a statement on the outcome of the Vienna Council; I anticipate that he will. I take this opportunity to apologise to the right hon. Member for North-West Hampshire (Sir G. Young), who last week asked me what I thought was the same question, although it turns out that it was not, which meant that I told him that the Prime Minister would make a statement about a matter on which he was not intending to make one. I apologise for that misunderstanding.
The hon. Gentleman asked about the Modernisation Committee, and about whether there will be a free vote in the debate. He will be well aware that some of the proposals have been made by the Government, and there will be a free vote—at least on this side of the House. I hope that that will apply to the Opposition also. I fear that I cannot undertake at this moment to give the dates of the Easter and Whitsun recesses, but I shall bear in mind the hon. Gentleman's request.
The hon. Gentleman asked whether we anticipate introducing the Lords reform Bill during January. I hope that the Bill will be introduced quickly. I am aware of the Opposition's view that all stages should be taken on the Floor of the House, and that is the kind of issue that I am happy to discuss through the usual channels.
I fear that I cannot undertake to offer an early, special debate on the millennium dome, or on the responsibilities in that matter of my right hon. Friend the Secretary of State for Trade and Industry. The matter is raised continually in this House by Conservative Members, and it seems to me that they have ample opportunities to air it.
Finally, I fear that I cannot undertake to provide a statement—either by the Prime Minister or by the Foreign Secretary—on the broad issue of relations with friendly democratic states if, as I take it to be the case, the hon.
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Gentleman is referring, not very elliptically, to the case of Senator Pinochet. The hon. Gentleman will be as aware as I am of the operation and delicacy of the sub judice rule. I take the point that that is not quite what he is asking, but it would be quite hard to have a debate of the kind for which he has asked—
Sir Patrick Cormack: Or a statement.
Mrs. Beckett: Indeed. For the reasons which have led the hon. Gentleman to raise the matter, it would be hard to have a debate or a statement that touched on the issues without trespassing on the territory of the sub judice rule.
The hon. Gentleman asked what my view would be should a Member of this House be arrested overseas. I hope that it will not be thought unduly frivolous if I say that it would probably depend on who it was, frankly.
Mr. Dennis Skinner: If, as I suspect, in Wednesday's debate on the modernisation of the House, there is a proposal for an extra week off for Members of Parliament to coincide with half term, would it not make more sense, and be more acceptable to the public, if there was a week or two in September when the House returned? There is a problem in terms of the number of holidays that Members of Parliament can have. To add another week without some compensatory sitting week at another time would not be acceptable to a lot of people out there.
Mrs. Beckett: My hon. Friend knows the great respect that I have for him, his concerns and his record in this House and outside. For once, however, I must take issue with him. The Modernisation Committee has proposed the option of a non-sitting week. If time can be found—and I am not necessarily saying that it will be in the coming Session, although the Government will do our best—it will be for the House to reach a view on a free vote. As I am sure my hon. Friend is aware, that is not by any means the same thing as a holiday.
All hon. Members have a vast range of pressing duties, and the Committee chose quite deliberately not to call the proposed week a constituency week, because there are many other issues to which hon. Members must give their time. My hon. Friend will know—although he may not sympathise—that many hon. Members feel that we ought to devote a little more time to liaising with parliamentarians in other EU member states. [Laughter.] That might not appeal to my hon. Friend. There is concern in the EU about the level of scrutiny that Parliaments in member states are able to give to EU business, and about whether we have sufficiently good liaison with Parliaments that may share some of our concerns.
On his suggestion about September, my hon. Friend may not yet have had a chance to study the Committee report, but he should be aware that it also identified the fact that we believe that it should be open to both Select and Standing Committees to designate a Committee week in September when they might be able to devote their attention to their work and bridge the gap that is sometimes thought to open up.
I am especially sensitive to the suggestion that we are asking the House to vote itself extra holidays. As someone with a marginal seat, I have had only one holiday a year for about 15 years, and that in the summer recess.
Mr. Paul Tyler: Some of us were privileged to attend this morning a moving, non-

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denominational, ecumenical service to commemorate the 50th anniversary of the universal declaration of human rights. The anniversary is precisely today. Does the Leader of the House realise that there is an irony, because there was reference in the service to General Pinochet, so obviously the matter is not sub judice in Westminster abbey, even though it is in the House?
With that anniversary in mind, is it not high time we had a full debate, in Government time, on progress towards an ethical foreign policy? I understand that the Foreign Affairs Select Committee is about to produce a report. Can we have a debate early in the new year? I hope that the Leader of the House will be able to give us an assurance that all the recommendations of the Scott inquiry into the iniquities of the previous regime will be fully assessed in that debate.
On the matter of ethics in political life at home, has the Leader of the House noted the fact that the Conservative party has refused to implement its own promises on secret and foreign donations?
Mrs. Beckett: I am indeed aware that it is the 50th anniversary of the declaration of human rights. My right hon. Friend the Foreign Secretary attended the service in Westminster abbey, in the presence of the Princess Royal. The Minister of State, Foreign and Commonwealth Office, my hon. Friend the Member for Manchester, Central (Mr. Lloyd) is hosting a reception this afternoon; my right hon. Friend the Secretary of State for International Development is addressing a special session of the United Nations General Assembly; and the Minister of State, Foreign and Commonwealth Office, my right hon. Friend the Member for Gateshead, East and Washington, West (Ms Quin) will be attending a commemorative event in Vienna, where it is intended to issue a joint United Kingdom-German proposal to publish an annual European Union human rights report. A great deal is being done, quite rightly, to commemorate what is a very important anniversary.
The hon. Gentleman highlighted an issue of concern to hon. Members, and a matter on which I am confident that you, Madam Speaker, are very sensitive: the operation of the sub judice rule here. He will know that Parliament acts in a special and separate capacity: we are the law-making body, and it is right that we are especially sensitive and careful.
The hon. Gentleman asked for a full debate on foreign policy in Government time. There was a full debate on foreign affairs only recently, in the debates on the Gracious Speech, but I will certainly bear in mind his further request, and indeed his concomitant request for a full assessment of the recommendations in the Scott report. I am mindful of the range of those recommendations, and the Government want to implement them and follow the spirit of the proposed safeguards.
The hon. Gentleman asked whether I had observed—I cannot remember whether he asked whether I was surprised by it—the fact that the Conservative party is yet again not adhering to what it claimed to be its own rules
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and views on announcements of the source of funding. I had observed it, and I am sorry to say that I was not surprised.
Mr. Gordon Prentice: My right hon. Friend will know that the European Commission has proposed a ban, from 1 January 1999, on four antibiotic compounds that are used as growth promoters in animal feed. I understand that the issue will be discussed at the Agriculture Council on Monday and Tuesday next week. I know that we have a crowded schedule next week, but the issue is important to many of us. Will it be possible for my right hon. Friend the Minister of Agriculture to make a statement to the House on the Government's position?
Mrs. Beckett: I hear what my hon. Friend says and I understand his view that the issue is important, although I must admit that I had not appreciated that it was to be discussed. I cannot promise him to find time for a statement, but I feel confident that my right hon. Friend the Minister of Agriculture will be happy to acquaint him with the Government's view on the matter.
Mr. Peter Brooke: Will the Leader of the House consider publishing next week a list of the all-party parliamentary groups that have satisfied the House authorities of their viability? The number of such groups has exploded in this Parliament to the congestion of the Whip and to some conflict, to the extent that outside bodies can be disappointed by the number of Members of Parliament who turn up.
Mrs. Beckett: I was not aware that it was within my sphere of responsibility to publish such a list, but I am happy to consider the right hon. Gentleman's proposal. I take his point, because it is difficult to strike a balance, and it must often be struck afresh in a new Parliament. So many entirely well-meaning and worthy people have a passionate interest in this or that subject and urge Members of Parliament to set up or join various groups. I will not conceal from the right hon. Gentleman that I have long since replied to such people that there is a limit to the number of causes that I can support, and I have declined to join many of the groups that I could have joined. I take his point that it leads to disappointment when not as many Members attend events as was hoped, but that is also a feature of the enormous pressure on the diaries of hon. Members. No one could possibly undertake everything that people would like us to do.
Mr. Paul Flynn: When may we debate the horrific abuse of medicinal drugs in care homes? A debate could examine the successful exercise conducted by the school of old age psychiatry in Manchester. The researchers went into care homes and examined the use of neuroleptic drugs on the elderly. They found that in more than half the cases in which signs of dementia were shown by patients, the cause was not senility, but the over-use of neuroleptic drugs. Other trials in Glasgow have found that many people end their days in misery and confusion because care homes wish to minimise trouble. Many elderly people are defenceless victims of such over-use of drugs and it causes them

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immense damage. The exercise carried out in Manchester should be replicated throughout the country. When may we have a debate to ensure that that is done?
Mrs. Beckett: The whole House will share my hon. Friend's concern. I cannot promise him time in the near future for a special debate, but I can remind him, first, that it is health questions next week and, secondly and perhaps more helpfully, that we will have the recess Adjournment debate in which any issue can be raised. My hon. Friend may be successful in catching your eye, Madam Speaker.
Mr. John Bercow: In the light of the unsatisfactory replies given by the Secretary of State for Health to the House on Tuesday, will the Leader of the House arrange for an early debate on the subject of the mentally ill? Does she recognise that an early debate would afford an opportunity for the Government to give the categorical commitment, which the Secretary of State failed to give on Tuesday, that all new psychiatric units will exclusively comprise single-sex wards?
Mrs. Beckett: I am a little surprised by the hon. Gentleman's tone. Having heard a large part of my right hon. Friend the Secretary of State's statement and its aftermath, I understood that it had been widely welcomed everywhere, except on the Conservative Benches. I certainly heard my right hon. Friend robustly affirm his views about the undesirability of single-sex wards.
Mr. David Winnick: Could my right hon. Friend the Foreign Secretary be asked whether copies of the United Nations charter on human rights, which celebrates its 50th anniversary today, could be distributed by the British embassy in Chile to anti-British and unruly elements who are demonstrating? Perhaps that would explain to them the decision made yesterday by my right hon. Friend the Home Secretary.
Mrs. Beckett: That is a most interesting suggestion, and I shall bring it to the attention of my right hon. Friend the Foreign Secretary, who will, I am sure, be most grateful for it.
Mr. Philip Hammond: The right hon. Lady's statement on the provisional business for the first week of next year contained no reference to the Bill on the national health service. Would she confirm that the Government's pledge to wind up fundholding by 31 March would require that Bill to pass into law before that date? Does the absence of the Bill from the provisional business for the first week of next year imply that the Government have finally abandoned the attempt to keep the pledge of abolishing fundholding by 31 March?
Mrs. Beckett: The Gracious Speech referred to a Bill to reform the health service, and a Bill will be brought forward. I cannot immediately recall the issues relating to a specific deadline, but I can assure the hon. Gentleman that the Government clearly believe that we must dispense with the bureaucracy and waste that fundholding brought. We intend to ensure that doctors have the freedom to prescribe high-quality health care for their patients.
Mr. Peter Bradley: My right hon. Friend will be aware that the local government ombudsman
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yesterday published a damning finding against Westminster city council. He found that the council had subjected vulnerable homeless families to unspeakable living conditions in the Clarendon Court hotel in Maida Vale, while paying £750,000 of taxpayers' money in housing benefits to the proprietors of that dubious establishment. Will my right hon. Friend join me in commending my hon. Friend the Member for Regent's Park and Kensington, North (Ms Buck) for exposing that scandal and putting an end to it?
Does my right hon. Friend recall the instruction given by Conservative leaders of Westminster city council to officers to be mean and nasty to the homeless, shortly before families were forced into asbestos-riddled tower blocks not five miles from here? Does she also recall that not one right hon. or hon. Member from the Conservative Benches has so far uttered a syllable of regret or remorse for, or condemnation of, the doings of their colleagues at Westminster city hall?
Does my right hon. Friend share my sense of outrage at the fact that every local authority in the country is subject to a levy that the Audit Commission has been forced to impose to help it to meet the legal costs of contesting the appeal of Dame Shirley Porter and David Weeks against surcharge? Would it be appropriate to find time in our schedule for a debate on the appalling affairs of the flagship Tory authority, which would at least offer Conservative Members one last chance to express some remorse or regret?
Mrs. Beckett: I share my hon. Friend's views. Labour has every right to be proud of those colleagues who, as councillors at Westminster, did so much to expose what was happening to people and to bring to a close the appalling situation whereby people were made to live in such dreadful properties. I well recall that my hon. Friend drew his concerns about the matter to my attention during the general election campaign.
I share my hon. Friend's sadness at the knock-on effects of the problems raised by the cases brought against Dame Shirley Porter and others. We believed the behaviour of Westminster city council, quite aside from its dreadful human consequences, to be illegal—as has since been proved. Whenever it was raised in the House—time and time again—during the previous Parliament, we heard repeated assertions from members of the party then in government that, if any wrongdoing were proven, they would certainly condemn it. To this day, those Members have not done so. Some of my hon. Friends wrote on the matter almost a year ago to the Leader of the Opposition and to the former Secretary of State for the Environment, the right hon. Member for Suffolk, Coastal (Mr. Gummer), but they have not elicited any reply.
Mr. Nicholas Soames: Is the right hon. Lady aware that the United Nations weapons inspectors were yesterday obstructed in the course of their business? Is she further aware that not only Christmas but Ramadan is approaching, and that the opportunity exists for Saddam Hussein to make a good deal of trouble with which it would be extremely difficult to deal? Will the right hon. Lady give some consideration to asking the Prime Minister or the Foreign Secretary to make a statement about the situation in Iraq before the House rises? If that is not possible, will she let me know what possible

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contingency plans could be in place, because, if the obstruction continues, it will clearly be necessary for the allies to take appropriate action?
Mrs. Beckett: I am indeed aware of the approach of Ramadan, as my constituency celebrates everything from Diwali to Ramadan and, indeed, Vaisakhi. I understand the hon. Gentleman's concerns. I am not in a position to say whether it would be right or necessary for the Prime Minister or the Foreign Secretary to make a statement before the House rises. We all hope that the pressure on the Iraqi Government will cause them to rethink. I can say, however, that the Government have, as I am sure the hon. Gentleman accepts, taken pains to try to keep the House informed throughout, and will continue to do so.
Mr. Denis MacShane: May we have an early debate on press freedom and the availability of media in our regions? The Lord President may be aware that the Rotherham Star, the local evening paper that serves some quarter of a million people in and around my constituency, faces closure because of a decision by Regional Independent Media, a Leeds-based company that publishes the Yorkshire Evening Post and a number of evening papers in Yorkshire and the north-west of England.
The managing director of that organisation, or chief executive as such people are now called, has issued dismissal notices to up to 350 employees, despite the fact that the paper is bringing in record profits and advertising revenue for the group, and plans to invest £6.5 million next year. If the Rotherham Star, my local evening paper, is closed, there will be no local evening daily for a quarter of a million people. That is bad for democracy and for local politics.
Is my right hon. Friend further aware that such action comes close to contempt for the House of Commons—
Madam Speaker: Order.
Mr. MacShane: I am coming to a close, I promise.
In a memorandum dated 19 August 1998, the chief executive warned that these mass redundancies were designed to avoid legislation that was in the pipeline. That should concern us all. Three hundred and fifty people will lose their jobs, and their families will have a miserable Christmas because of legislation passed by representatives of the people of this country, but this is also an important issue in terms of media democracy in our regions and the contempt shown for the democratic process of the House of Commons.
Mrs. Beckett: I am certainly sorry to learn that my hon. Friend's constituents are in danger of losing access to a local paper and, like the whole House, I am also sorry to learn that many people are about to lose their employment. This is a particularly sensitive time of year for people to find themselves in such circumstances.
I have slightly mixed feelings about the second part of the concerns aired by my hon. Friend. I certainly share his view that it is right and proper for the House to consider and, if it wishes to do so, to pass legislation that we believe will improve the governance and condition of
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our country, and that it is wrong for people to attempt to evade such democratically arrived at decisions. Equally, however, I feel a certain cynicism when I hear people claim that solely as a result of something that any Government—but especially this one—have done, they have been obliged to lay off considerable numbers of people.
I have never forgotten that, shortly before the 1992 general election, an announcement was made by a fairly major employer that, should a Labour Government be elected and introduce a national minimum wage, it would be forced to make several hundred of its employees redundant. We were not elected and there was no minimum wage, but that employer made 2,000 people redundant about three weeks after the election.
Mr. Andrew Stunell: May I draw the attention of the Leader of the House to early-day motion 59?
[That an humble Address be presented to Her Majesty, praying that the Income Support (General) (Standard Interest Rate Amendment) (No. 2) Regulations 1998 (S.I., 1998 No. 2878), dated 23rd November 1998, a copy of which was laid before this House on 27th November, be annulled.]
Will the right hon. Lady find time for a debate in the appropriate Committee on this very important statutory instrument, to allow investigation of the anomalies and difficulties that are raised by social security regulations in the support and help of those who are on low incomes and live in owner-occupied residences? The problems for those with mortgages and mortgage interest rate payments, which they have to face, are baffling and bewildering even to the experts, never mind those who are subject to them. Will the right hon. Lady find time for the statutory instrument to be debated, in accordance with the wishes of many hon. Members?
Mrs. Beckett: I sympathise with those who find social security issues, and regulations especially, arcane and difficult. I was fortunate enough, if I can put it like that, to spend five years shadowing Social Security Ministers, so I am under no illusions about the complexity and opaqueness of such matters. I am conscious that very often what happens is the net knock-on effect of a range of different decisions, which people find difficult to assess and understand.
I sympathise with the concern expressed by the hon. Gentleman and by those who have signed his early-day motion. However, I fear that I cannot undertake to provide time for a specialist debate. I remind the hon. Gentleman that there will be a debate on the Christmas Adjournment. For those who are fortunate enough to catch your eye, Madam Speaker, any such issue can be raised.
Mr. Tony McNulty: My right hon. Friend will know that there remain real concerns about progress on the third-country trial of those responsible for the Lockerbie air disaster. Is there to be any statement or further information on the progress that is being made this side of the Christmas recess? Are there any plans for senior Ministers to meet families of the Lockerbie victims to discuss that progress?
Mrs. Beckett: As far as I am aware, there are no particular plans, although the Government continue to

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discuss and express concern about these matters, for a statement in the House. However, I can say to my hon. Friend—I hope that this will be welcome to him and other hon. Members who have taken a great interest in these matters—that my right hon. Friend the Prime Minister is meeting this afternoon, or has met, the families of some of the Lockerbie victims. I think that I am correct in saying that he is the first Prime Minister to do so. It is a deliberate signal, and an indication of the Government's concern and of our determination to do everything that we can to bring those who may be thought to be responsible to trial so that these matters can be assessed.
Mr. David Heath: In welcoming the promise of a statement on the outcome of the Vienna Council, may I bring the Leader of the House back to the assurance that she thought she had given last week, but had not because it was given on the wrong premise? Will she consider a debate in Government time on common foreign and security policy? Will she urge the Prime Minister to contribute to that debate? We did not have statements following Portschach and St. Malo. The Prime Minister has been saying some interesting things about the development of common foreign and security policy and the only people who have not had a chance to debate it are Members of this place. Will the right hon. Lady find time for us to do so?
Mrs. Beckett: With respect to the hon. Gentleman, that is not entirely accurate. It is only quite recently that we had a full day's debate on foreign and defence affairs, in the debate on the Gracious Speech.
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Everything that my right hon. Friend the Prime Minister has been saying and the point of view that he has been expressing in the discussions to which the hon. Gentleman has referred are very much in line with the views that he has expressed and made plain in the House. I therefore cannot promise to find time for another debate on the Floor of the House in the near future, although the hon. Gentleman may seek to raise the matter, should he catch your eye, Madam Speaker, during the debate on the Christmas Adjournment.
May I add that the Government have recently accepted the report of the Select Committee on Modernisation with regard to scrutiny of European Union legislation, so that all the issues that come under those pillars of policy making can be much more fully scrutinised in the House than used to be the case.

BILL PRESENTED
  TAX CREDITS
  Mr. Chancellor of the Exchequer, supported by Mr. Secretary Darling, Mr. Stephen Byers, Mr. Geoffrey Robinson, Dawn Primarolo and Ms Patricia Hewitt, presented a Bill to provide for family credit and disability working allowance to be known, respectively, as working families tax credit and disabled person's tax credit; and to make further provision with respect to those credits, including provision for the transfer of functions relating to them: And the same was read the First time; and ordered to be read a Second time tomorrow, and to be printed [Bill 9].
ESTIMATES DAY
[1ST ALLOTTED DAY]
ESTIMATES DAY
  VOTE ON ACCOUNT 1999-2000
    Class IV, Vote 1

      Prison Sentences
      [Relevant documents: Third Report from the Home Affairs Committee of Session 1997–98, on Alternatives to Prison Sentences, HC486, and the Government's response thereto, Cm 4174; and the Home Office Departmental Annual Report 1998, Cm 3908.]
      Motion made, and Question proposed,
      That a sum, not exceeding £2,299,414,000 be granted to Her Majesty out of the Consolidated Fund, on account, for or towards defraying the charge for the year ending on 31st March 2000 for expenditure by the Home Office on police; the Forensic Science Service; registration of forensic practitioners; emergency planning; fire services; the Fire Service College; criminal policy and programmes including offender programmes; the prevention of drug abuse; crime reduction and prevention; provision of services relating to the Crime and Disorder Act; criminal justice service research; criminal injuries compensation; organised and international crime; control of immigration and nationality; issue of passports; community and constitutional services; firearms compensation and related matters; and on administration (excluding the provision for prisons administration carried on Class IV, Vote 2).—[Mr. Boateng.]
      4.51 pm
      Mr. Chris Mullin: The interest of the Select Committee on Home Affairs in alternatives to prison arose from the single stark fact that, when we commenced our inquiry, the prison population appeared to be escalating out of control. It had risen from 43,000 in March 1993 to 65,000 in March this year, and was at that time predicted to rise to more than 80,000 in the next seven years.
      A point had been reached when much of the undoubted progress of the past 20 years—in terms of providing constructive regimes, ending three to a cell and detaining convicted prisoners in police stations—was in jeopardy. We were moving back towards regimes that simply warehoused prisoners, rather than making any serious attempt to rehabilitate them or persuade them to confront their offending behaviour. Those in charge of the Prison Service were telling anyone who cared to listen that, if the prison population continued to rise at that rate, serious problems lay ahead.
      So great was the concern among serious people that there came a moment during a debate in the House of Lords when three former Conservative Home Secretaries—the noble Lords Carr, Baker and Hurd, none of whom can be dismissed as a namby-pamby do-gooder—combined to challenge the then accepted wisdom that prison works. We took our cue from them.
      For the avoidance of doubt, I must make it clear from the outset that none of us on the Select Committee is under any illusion about the need for prisons. All of us have constituents whose lives have been made miserable by crime. Some of us, particularly those who represent the less leafy areas of the country, have entire neighbourhoods devastated by criminal activity. We recognise that there are people—persistent criminals and
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      those who engage in serious violence—for whom prison is the only appropriate solution. Nothing in our report is intended to suggest otherwise. I cannot stress that too strongly.
      It would be foolish, however, not to recognise that the "prison works" philosophy has serious limitations. First, it is expensive. It costs an average of £24,000 a year to detain an adult prisoner, and double that to imprison a juvenile. It is arguable that the same amount of money invested differently could, in some cases, be spent a great deal more effectively to reduce reoffending among at least some of those now imprisoned.
      Secondly, although prison self-evidently works as a form of containment, there is the difficulty that the overwhelming majority of prisoners will eventually be released back into the community, where a disappointingly high number of them simply pick up where they left off.
      The point was eloquently made by the noble Lord Baker in the debate in the House of Lords to which I referred:
      "It was a mistake of the previous government to believe that just one phrase—prison works—was necessary. The phrase has a spurious and superficial logic. It is superficial because if a criminal is in prison, clearly he cannot be committing crime outside. It is spurious because it does not take into account … the fact that 99.9 per cent. of all criminals will one day be released. Society will then find that prisons do not work."—[Official Report, House of Lords, 25 March 1998; Vol. 587, c. 1244.]
      If we are to stand any chance of reforming those whom it is necessary to imprison, it is essential that we construct regimes where prisoners are obliged to confront their offending behaviour, and that we do not simply use our prisons as warehouses. That cannot be done if the efforts of the Prison Service to provide constructive regimes are simply overwhelmed by the need to cope with ever-increasing numbers.
      That was the background to our inquiry. Our purpose was to discover whether credible alternatives to imprisonment existed that were both sufficiently rigorous and at least as successful—and preferably more—in rehabilitating offenders.
      Those from whom we took evidence included representatives of the Prison Service, the police and the probation service. We saw the Lord Chief Justice, the Magistrates Association, Her Majesty's chief inspector of prisons and the inspectorate of probation as well as representatives of voluntary agencies that work with offenders, in and out of prison.
      I was anxious that those who take the view that prison works should be given an opportunity to state their case. We therefore took written and oral evidence from Mr. Peter Coad and Mr. David Fraser, retired senior probation officers, and Professor Ken Pease, a criminologist. In addition, we visited a variety of probation and other projects around the country in search of examples of best practice that we could commend. We visited projects in Manchester, Greenock, Dumbarton, Bolton, Burnley, Tyneside, Teesside, Blackburn, London and the Thames valley.
      With two exceptions, all those witnesses who expressed a view argued that the present prison population was too large and that ways should be found of reducing it. The exceptions were the Police Superintendents Association and Mr. Peter Coad and his colleagues. They argued that the fall in crime in recent years could be ascribed wholly or mainly to increased use of imprisonment.

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      Mr. Coad and his colleagues went further, and argued that the reoffending rates for most, if not all, of those on probation or serving a community service order were as bad as or worse than the rates for those who had served a prison sentence. They alleged that the probation service had for many years misled Parliament and the public about the effectiveness of their work, and advocated an increase in the prison population to whatever level was necessary to protect the public from criminality. Mr. Coad and Mr. Fraser told us that that would entail a prison population of 200,000, "to begin with".
      Professor Pease, sensing perhaps that Mr. Coad had been a little too frank, hastily suggested a further increase of no more than 10,000—a figure which on present trends will soon be exceeded. At that point, I felt—I believe that I speak for the entire Committee—that their evidence fell apart. We unanimously rejected the suggestion that a prison population of 200,000—three times the existing record level—was either feasible or desirable.
      Although prison has some impact, I do not accept that the recent fall in crime can be solely, or even mainly, attributed to the rise in the prison population. There are a variety of factors. One is a general improvement in the quality of policing, which is certainly the case in Sunderland. Another, and surely the most significant, is the fact that unemployment has fallen by 40 per cent. over the past five years.
      With the possible exception of the previous Home Secretary, I do not know anyone who believes that there is no connection between unemployment and crime, although that is obviously not the only connection. Hon. Members who represent areas such as mine and those represented by many of my right hon. and hon. Friends would have had to drop off a Christmas tree from a great height not to notice a connection between unemployment and crime.
      Having said that, there is a significant respect in which the Committee found itself in agreement with the analysis of Mr. Coad and his colleagues. There is no doubt—Her Majesty's inspector of probation acknowledged this—that the probation service went through a period some years ago when many probation officers came to regard the offender, not the taxpayer, as their client. I am glad that those days are behind us, but I cannot stress too strongly that, if a sceptical public are to be convinced that there are credible alternatives to imprisonment, they will also need to be persuaded that those who supervise offenders in the community have their interests—not those of the offender—in the forefront of their minds.
      Mr. Gerald Howarth: I am grateful to the Chairman of the Home Affairs Committee for giving way on that matter. Mr. Peter Coad indeed made the case that, given the number of offences that had been committed, 200,000 people should be locked up. I had some sympathy with some of the points that he was making. However, in the Government's response to our report, which was published this week, the Home Secretary said:
      "It is for the courts to decide the appropriate sentence in any individual case … The Prison Service then has a duty to keep in custody those sentenced to prison."
      If the courts decide that a custodial sentence is required, and that 200,000 people fit that bill, will the Prison Service not have to provide those places?
      Mr. Mullin: Yes. The burden of our report, to which the hon. Gentleman subscribes—it was approved
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      unanimously—is that there are, if we look for them, credible and effective alternatives to imprisonment, and that, if sentencers look for them, they too might find such alternatives. I entirely accept, however, that, if someone has committed a crime that merits a prison sentence and for which there is no effective and credible alternative, to prison he must go.
      The hon. Gentleman will have heard me say a moment ago that there was one significant respect in which the Committee found itself in agreement with Mr. Coad's analysis: it is the point that I made a moment ago about the past role of the probation service.
      Mr. Robin Corbett: When we were going around the country and talking to sentencers, it soon became obvious that very few of them had sufficient knowledge of the alternatives to prison—even of schemes in their areas that have turned people away from reoffending and shown them how their lives could be worth while. That shows that, where there is knowledge and belief, the schemes are extremely valuable. We are not talking about allowing people to walk away from the court because they are not sent to prison.
      Mr. Mullin: My hon. Friend is right. One of the problems is that none of us is sufficiently aware of the alternatives. In the past, some of the alternatives were not sufficiently rigorous to justify their being called alternatives. Happily, that is now beginning to change. I accept that a precondition of reducing the prison population is that there must be credible alternatives. It is not sufficient for those who favour a reduction in the use of imprisonment simply to assert that community service and other alternatives are at least as, or more, effective. That must be shown by reference to empirical evidence.
      The Committee was surprised to discover that, of the 267 projects examined by the probation inspectorate as part of its "what works" project—an important piece of work—only 33 could provide serious evidence of the outcomes. That is not necessarily a criticism of the type of programme, but if one wants to sell that programme, however good it may be, and the outcome cannot be demonstrated, the programme deserves criticism. Of the 33 projects that could provide evidence of the outcome, in only four cases did the research demonstrate credible examples of good practice.
      We welcome the fact that the probation service now recognises that problem, and is taking steps to deal with it. However, if community service is to be promoted as a credible alternative to imprisonment—I believe that in many cases it is—it must be supported by hard evidence, not by assertion.
      Mr. Peter Bottomley: There is one point on which I have seen no research. Obviously, it is possible to look at whether a disposal other than imprisonment has a better outcome for a certain group, but in respect of people on the margin of being sent to prison, is there much evidence to show whether being sent to prison has such an outcome? The alternative does not necessarily have to be probation or community service; simply sending such people to prison may be worse than not sending them to prison.
      Mr. Mullin: I am not entirely sure that I understand the hon. Gentleman's point—I am sure that it is my fault rather than his. It may help him if I deal with some of the specific areas that the Committee examined.

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      We looked at a pilot project on electronic tagging, which has been operating in Manchester since 1995. Similar experiments are under way in other parts of the country. Although there were some initial teething troubles, we were glad to note that those appeared to have been overcome and that tagging was likely to come into general use next year.
      Curfew orders enforced by electronic monitoring could have two applications. First, they could be used as a sentence available to the courts for someone who would otherwise be sent to prison, and could be combined with a probation or a community service order. Secondly, a home detention curfew order could be used as a condition of parole for shorter-term prisoners. It has been estimated—indeed, I believe that it is the Government's intention—that that could free 3,000 prison places a year in the medium term.
      The key to the success of electronic tagging is enforcement. The technology enables the slightest breach to be registered. When a serious breach occurs, it is important that the offender understands that consequences will follow swiftly. In most cases, the logical consequence of a serious failure to comply with a curfew order is imprisonment. We shall watch with interest the rigour with which curfew orders are enforced.
      We examined programmes of intensive probation. Of particular interest was the model based on the so-called Dordrecht initiative, which we visited in Burnley. That programme concentrated on the 100 or so most persistent offenders in the town. Many of them had served repeated terms of imprisonment, which had had no impact on their offending behaviour. To qualify for a place on the programme, each offender had to show a serious intent to reform. The programme offered them help to reconstruct often chaotic life styles by providing access to drug or alcohol rehabilitation, education, training and, one hopes, in due course, work.
      We were impressed by the dedication of those running the programme, one of whom was a police officer. He told me that it was a pleasure to be involved in the project, because, instead of locking up the same old people time after time, it held out the prospect of addressing the roots of the problem. He found the work very satisfying, and we were impressed with him and his colleagues. At the time of our visit, it was too early to evaluate the programme, but we believe that it has every chance of success.
      Mr. David Winnick: I am a member of the Select Committee. Does my hon. Friend agree that the visits we made and the documentary evidence we received made us aware of the persistent anti-social behaviour of many people on probation? In the past, some aspects of the probation service have been criticised. I have not done so, because I worked with the service for two weeks in 1973 and I recognise the tremendous difficulties that probation staff face when dealing with people with a history of anti-social behaviour, who have often been in and out of prison. It is not an easy job, and I imagine that no one in the House would want to undertake probation work.
      Mr. Mullin: My hon. Friend makes a fair point. I take it as read that those who work with offenders often have
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      to deal with extremely difficult customers, so we should not be surprised if there are some failures. We must acknowledge the dedication of people who work with offenders. We saw some impressive work in the many projects that we visited around the country.
      We examined the extent to which probation and community service orders are enforced. The first thing to be said is that the available statistics in this area are inadequate. According to Home Office research, about 70 per cent. of such orders are successfully completed. It is far from clear what happens to those who fail to turn up. We were told that it can take between three weeks and two months to return to court an offender in breach of an order, and that the police do not attach high priority to tracking down those who fail to respond to court orders.
      It goes without saying that the credibility of community service and probation orders is fatally undermined if those who decline to co-operate go unpunished. The Committee recommended that an experiment should be conducted to see whether civil enforcement agencies could be used more effectively. I welcome the Government's response that, as soon as an opportunity arises, legislation will be introduced to give effect to that recommendation.
      Several members of the judiciary remarked to us that they regretted the recent restrictions on the use of the suspended sentence, which they regarded as one of the more effective tools in their armoury. I am glad to note from the Government's response to our report that Ministers are considering the use of suspended sentences, in conjunction with community service orders.
      Our report should not be seen in isolation; it should be seen merely as a further step along the road to a criminal justice system that is more effective in protecting the public and reducing criminality. In particular, it should be seen alongside the Crime and Disorder Act 1998, which has greatly increased the number of options available to the police and the courts when they deal with youth crime. Until the Act, our criminal justice system had become virtually ineffective against young criminals, and that, more than any other factor, has undermined public confidence in non-custodial sentences. I welcome all that the Government have done so far to speed up youth justice and render it more effective: I know that my right hon. Friend the Home Secretary takes the issue seriously.
      There is another issue, however, which we have hardly begun to tackle. It requires co-ordinated action by several Departments, not just the Home Office. I refer to diversion: diverting vulnerable young people away from criminal activity. When the former permanent secretary at the Home Office appeared before the Select Committee a few years ago—he has now gone on to more exalted things, if it is possible to become more exalted than permanent secretary at the Home Office—I asked him how much of the Home Office budget was spent on diversion. It became clear through our exchanges that he did not know what I was talking about; but the following year, when he returned, there was a paragraph in the Home Office annual report headed "Diversion". We make progress, but slowly.
      At present, we spend far too much on locking people up after they have become criminals, and not nearly enough on diverting vulnerable young people from criminal life styles. The expenditure of relatively small sums could prevent us from having to spend much larger sums further down the line. During our inquiry, we visited

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      a project called "Youth Works" in Blackburn, the constituency of my right hon. Friend the Home Secretary. We were told that the project cost about £180,000 a year to run, and that it provided a large number of vulnerable young people—who would otherwise be hanging around the streets in a high-crime area with nothing to do—with constructive activities outside school hours.
      On the Pennywell estate in my constituency, there is a scheme called "Break-out", which helps to occupy nearly 700 vulnerable youngsters. It costs about £60,000 a year, the cost of locking up one juvenile for 18 months. The moral of the story is obvious, yet most of the money has to be begged, and those who run such excellent schemes rarely know where their funds will come from more than a few months in advance.
      Miss Melanie Johnson: Does my hon. Friend agree that the work of the social exclusion unit may become particularly relevant to the problems that he is raising? I am thinking especially of children who are even younger than those of whom he is speaking. The all-party parenting group was recently given a presentation by the head of a unit for teenage mothers, which has a nursery unit for the women's young children attached to it. She said that she already felt certain that some of those children were tomorrow's criminals. In trying to divert people from a criminal life style, we need to consider the whole age span.
      Mr. Mullin: I subscribe to all that my hon. Friend has said. The earlier we start, the better are our chances of diverting young people from a life that could lead to crime. In that context, I am worried by the trend towards excluding more children from school. Unless we get to grips with the problem, we shall build up great difficulties for the future.
      As I have said, our report should not be seen in isolation. It should be seen alongside the Crime and Disorder Act, and the Government's literacy and numeracy programme. All that is relevant to our attempts to build a cohesive society, and to reverse the awful trends that have set in over the past 20 or 30 years.
      I return to diversion, although I shall not dwell on the subject; strictly speaking, it is a matter for another inquiry on another day. I just say that, if we are serious about tackling the causes of crime as well as the symptoms, much more attention must be paid to helping to divert vulnerable young people before they become criminals, rather than picking up the pieces after it is too late.
      As I have said, the report is unanimous. I hope that it marks the formal end of the "prison works" philosophy; indeed, it probably died on the day in March this year when those three former Conservative Home Secretaries repudiated it in the House of Lords. However, I accept that the burden of proving that our prison population is too high lies with those who want to reduce it.
      The public are entitled to expect that non-custodial sentences are sufficiently robust to leave offenders in no doubt about the seriousness of their offending, and to reduce the possibility of repetition. Everyone from the Home Secretary and Lord Chief Justice downwards has a part to play in that.
      The probation service must never lose sight of the fact that it represents the public, not the offender. Judges and magistrates must, for their part, show a greater
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      willingness, where appropriate, to pass non-custodial sentences and to acquaint themselves with the range of possibilities that are on offer. The media, too, have an important role to play.
      Every week in my local newspaper, one reads stories that so-and-so "walked free" from court with "only" 200 hours of community service. Two hundred hours of community service could, if it were sufficiently rigorous, be much more beneficial than a six-month prison sentence.
      Finally, all responsible politicians should help to prepare public opinion for a reduction in the prison population by calmly drawing attention to the consequences of continuing to fill our prisons to bursting point and to the existence of credible and effective alternatives. I commend the report to the House.
      5.17 pm
      Mr. Humfrey Malins: As always, I begin by declaring an interest as a recorder of the Crown court and as an acting metropolitan stipendiary magistrate.
      It was a privilege to be on the Select Committee and to take part in the publication of the report. One of the pleasures of being on a Select Committee is that one operates in what is effectively a non-party political way, discussing, in this case, a difficult, serious and important subject without anyone having to score political points but with members doing their best to put in their few pennyworth. The subject of the report is, indeed, a difficult subject: we have been a civilised country for hundreds of years, yet the crime rate keeps going up, and the debate about whether custody stops people committing crime will go on and on.
      Not one of us on the Select Committee or in the House has all the answers, and it is difficult to find anyone who really knows exactly what to do when it comes to the twin duties of protecting society and promoting the welfare of the offender—if one can do that, because it is an almost possible task.
      I pause to say, in passing, that we all acknowledge that, in the last five years of the last Conservative Government, crime fell dramatically. The then Home Secretary, my right hon. and learned Friend the Member for Folkestone and Hythe (Mr. Howard), rightly received much congratulation on that. However, the prison population went up. Who in their right mind believes that a very high prison population is, of itself, a good thing? I do not, but who would say that courts must sentence people to community service and other penalties if they believe that prisons are getting too full? The right punishment must be imposed in every case, so there are competing factors. As I say, it is extremely difficult to reach any solid conclusions.
      The Committee took evidence from people who said that probation works, because the reoffending rate of those on probation is lower than that of those coming out of prison. I am not sure that any statistic can ever establish that fact to one's certain satisfaction, because statistics do not tell the full truth. The short answer—it must be right—is that a prison sentence will work much better with some offenders than with others. Equally, a community penalty or a probation order will be highly effective with some offenders. It depends on the individual case.
      1 should like to dwell on four different nuts-and-bolts issues, and to bring them to the Minister's attention. The Minister has had a distinguished career at the Bar

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      and—I know for a fact—takes a great interest in the subject. I am sure that he will be concerned about and interested in today's debate.
      The first issue is community sentences, especially community service orders. Although the public have the misconception that community service orders are not tough, they can be very tough indeed. The missing element in such sentences is enforceability and proceedings on breach. From my experience I can tell the Minister that, quite often, people come before the court for breach of a community service order simply because they have not turned up—they have overslept, not felt like it or not bothered. What can the court do? Magistrates courts have a problem.
      Technically, magistrates courts can imprison if the offence for which the community service order was passed was imprisonable; but that does not often happen. Quite often, the original offence was deemed not so serious that only a custodial sentence could be justified, but serious enough to warrant a community penalty. Magistrates generally are quite reluctant to exercise even their limited power to imprison. The court is then left to tackle someone who has breached a community service order with a fine or another community service order. The subsequent impression is that the offender has walked out of court without having faced the music, and that is a problem. The situation is even worse if the original offence was not imprisonable, because then breach of a community service order cannot result in the passing of a custodial sentence.
      What is to be done? The Committee's report urges the Government to toughen up the provisions: to get those who are breaching community service orders into court more quickly—that is terribly important—and, once they are there, to have truly effective sanctions. In that regard, there is a very strong argument for the Government's considering introducing a new offence—breach of a community service order—for which one goes to prison.
      I should tell the Minister that, when a United Kingdom court disqualifies someone from driving, that person is told: "You are disqualified from driving. If you breach that disqualification, you will be charged with it, and you will almost certainly go to prison." How good it would be to be able to say that when passing a community service order. I hope that we will get to that stage.
      The second issue that I wish to raise is that of suspended sentences. Those who have the responsibility of passing suspended sentences have felt that such sentences are an extremely useful tool. In 1991, 28,000 suspended prison sentences were passed. However, subsequent legislation made it very difficult to pass such sentences, which could be used only in exceptional circumstances. The Court of Appeal has said that the "exceptional circumstances" are very narrow indeed. For my part, I cannot remember passing one suspended sentence in the past two years, because I could not think of any circumstances that were exceptional. However, I should have liked to do so on a number of occasions.
      Among those giving evidence to the Committee were Mr. Allan Berg, a stipendiary magistrate from Manchester; Mr. Tim Workman, a stipendiary from London; and others, including court clerks and members of the lay bench. They all felt that suspended sentences were a really useful tool in a sentencer's armoury.
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      When should a suspended sentence be imposed? The Minister may say that it would not be easy to specify criteria in statute or to alter the current criteria, and I appreciate that. Equally, he may say that it would be allowing sentencers too wide a discretion to suspend a sentence when they felt it appropriate to do so. If there is confidence in our sentences, there is a good argument for bringing back the suspended sentence. It keeps out of prison some people who do not have to go there; it enables the court to take into account certain important factors; and it can be a tough threat hanging over someone's head.
      Miss Melanie Johnson: Does the hon. Gentleman agree that suspended sentences may be an effective tool to prevent the problem of fine defaulters serving prison sentences, which is covered in the report?
      Mr. Malins: I was coming to that. The hon. Lady makes an interesting point. Leaving a threat hanging over someone's head can be good, and could be more widely used for fine defaulters. The hon. Lady was not on the Select Committee at the time of our report, but she has made some good contributions since becoming a member. She is a welcome addition and is welcome in the Chamber today.
      I shall be slightly controversial on the important subject of fines. The report talks about the problem of collecting fines, which is clearly not well done. Huge amounts are outstanding. For those who sit in the magistrates court, the pain of the week—it happens at least once a week—is sitting in the means court going through the outstanding fines to see what can be done. Sometimes it is easiest to remit the lot and go home early.
      We have got ourselves into a mess on the procedure for collecting fines in our courts. Only three or four years ago, the person on the bench in such a case could say within seconds, "I believe this is culpable neglect or wilful refusal. Go to prison." It was common to say to a fine defaulter, "You owe £50. How much money do you have on you?" "Not a thing," would come the reply. "Very well," the sentencer would say, "How are you going to pay the £50?" "I'll pay a pound a week," the defaulter would reply. "That's not very good," the sentencer would say. "I'm thinking of sending you to prison for quite a long time. I'll tell you what. I've got a very busy morning. You can go down to the cells and I'll consider the case this afternoon and consider the nature of the sentence. Take him down to the cells, gaoler; do allow him two phone calls." The money would arrive by lunch time.
      The courts have made a rod for their own back, because as the Minister knows, the sentencers can no longer approach the issue in that fashion. They have to go through the various possibilities. Issuing a distress warrant is ineffective. A deduction from income support is cumbersome and expensive, and the paperwork is complicated. As for a monetary payment supervision order, one can barely spell it, let alone decide how to work it. An attachment of earnings order? Well, who is earning anything in the court? Certainly not the stipendiaries sitting. Other possibilities include making an attendance centre order if the defaulter is under 25 or taking enforcement action in the High court.

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      Before prison can be considered, the whole checklist has to be gone through and reasons given why none of the measures is effective. No wonder those who handle the means courts scratch their heads and think, "Mmm. This isn't working very well."
      It is important that fines should be at a sensible level. A young man in London needs his wheels to get around the city. A lot of young men have cars. The value may be £150 at most, but they need their wheels. I understand that. It is important and fair. By all means they should get the car insured, because if they do not they are in big trouble. However, the magistrates' guidelines tend to suggest that the fine for non-insurance of a motor car should be £400 to £700. I am afraid that too many benches—I exempt the stipendiaries—impose fines of £500, £600 or £700 for non-insurance on people who are on benefit and have not got a bean. That is hopeless.
      Mr. Edward Garnier: I hesitate to interrupt my hon. Friend's extremely effective and interesting speech, but is not driving a car without insurance one of the most anti-social criminal offences? Crashing into someone in a car that is not insured has terrible consequences, and the courts are right to visit heavy penalties on those who misbehave in that way.
      Mr. Malins: My hon. and learned Friend is absolutely right and he has great experience of these matters—[Interruption]—not of driving uninsured—far from it—but in the courts. Driving uninsured is a serious offence.
      Many young people need their cars. They own bangers worth £200 or £300 and it is vital that they have insurance. However, it is ludicrous to fine them £600 that they do not have. In my view they should be fined £100 and disqualified from driving for a good long time. They should be banned for six to nine months and sentenced to community service. We should take driving uninsured seriously, but we must not overload the fine system. That would avoid the terrible problems involved in collection. I hope that the courts will bear that in mind.
      I have covered suspended sentences, fines and enforcement of community service. As everyone who spoke to the Committee said, drugs are the biggest problem in the criminal justice system. I have heard such cases day after day, involving, for example, a young man of 25 who burgles and steals to raise money to fund his heroin habit and for no other reason. These young people—they are generally men—have had it by the age of 25. Their lives are ruined. There seems to be nothing that one can do—or is there? I give the Government credit for being well-intentioned in respect of drug treatment and testing orders, but I am not sure that they go far enough. We shall have to keep a careful eye on the matter.
      An awful lot of young people who are on drugs may say, "I would like to get off them, but I just can't do it." They may have tried two or three times, but they cannot stop themselves. What is to be done? Someone in that position may have a drug treatment and testing order made against them. That is a community order under the Criminal Justice Act 1991 requiring someone to submit to treatment in such institution as may be specified.
      Mr. Gerald Howarth: Is that mandatory even if the offender is not in agreement with the treatment order?
      Mr. Malins: I do not think so. I think that there has to be an element of consent. No doubt I shall be corrected by the Minister. Under a drug treatment and testing order, the court says that the defendant must go and be treated.
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      Let us pause a moment here. I am not quite so worried about the person before the magistrates court, or possibly the Crown court, who is dabbling in drugs and sometimes causes problems. A drug treatment and testing order may be very good for such a person. I am more worried by the hard man of 25 who is a burglar. He burgles people's houses at midnight. He has committed a serious offence that requires custody. He is part of a gang of four and has carried out a heavy domestic burglary at midnight. It may be his fifth such burglary in the past six years, six months or even five days.
      It is difficult to impose a drug testing order on a hardened criminal. Where should he be sent? I would not be happy to send him to a probation hostel, as it is not secure enough. What about hospital? Can anyone tell me where he should go? There is nowhere. The problem is where to put a heavy criminal to ensure that he is absolutely secure.
      In our deliberations on the Crime and Disorder Bill, as it then was, I floated a new clause in an attempt to solve that problem. The measure would have put heavy drug takers in a drug-free secure prison—almost like a hospital—in which they could be treated. It would have been like saying: "Defendant, you have an option. You can do five years in Wormwood Scrubs for this domestic burglary or you can do 18 months' hard in the drug rehabilitation centre, which is like a prison and from which you can't get out." The idea did not get far, but I was flagging up the problem of people who are into drugs and are so dangerous that they cannot easily be given a non-custodial sentence. The Home Affairs Committee was united in the view that drugs were the big issue affecting us all in the criminal justice world.
      It was a privilege to sit on the Committee. Many people are doing their best, but there are no straightforward answers. All members were impressed by some of the projects we saw. We came to the conclusion that diversion was good, and that some of the projects might be effective. We emerged knowing that prison would always be essential for many criminals, but we were given some hope by the fact that innovation and energy were being well directed to young people, who face much greater problems than we ever did. If such innovation, energy, interest and diversion are promoted hard, we will move—albeit slowly—down the right road.
      5.37 pm
      Mr. Paul Flynn: The most haunting statement in the Home Affairs Committee's marvellous report—I ask members of the Committee to forgive me for not concentrating on the main thrust of their valuable recommendations, which I hope will be implemented—comes from the evidence of the chief inspector of prisons, who said that 70 per cent. of women prisoners should not be in prison. He gave the example of a woman who was sent to prison for three years for misbehaving in Trafalgar square—a minor offence.
      There is evidence of an enormous drugs problem in women's prisons. Although we do not have a system of capital punishment, two women died this year as a direct result, I believe, of their experiences in prison. Their relatives are happy for me to give their names: one was Josie O'Dwyer and the other was Emma Humphreys.
      The enormous drugs problem in prisons has entirely unexpected effects. In a letter dated 22 October, Lord Williams of Mostyn, the Minister with responsibility for

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      prisons, told me that the National Addiction Centre had found, in the only serious attempt to discover the effects of the mandatory drug testing system, that
      "Four per cent. of their sample of drug misusers had experimented with heroin for the first time because of MDT".
      That is a rather surprising conclusion. We know from anecdotal evidence—not from prison governors but from prisoners themselves—that, because of the mandatory drug test, there is a move from soft, relatively harmless, non-addictive illegal drugs to deadly, addictive drugs.
      Mr. Corbett: In prison.
      Mr. Flynn: Yes, in prison.
      The two unfortunate women, Josie O'Dwyer and Emma Humphreys, died as a result not of illegal drugs, however, but of medicinal drugs. To improve key performance indicators, prison governors can wean prisoners from relatively harmless drugs such as cannabis—which has never been known to kill anyone—and put them on killer drugs.
      Emma Humphreys, who was abused throughout her life, became addicted to chloral hydrate in prison. She was released from prison when her sentence was judged to be unfair because of the foul abuse that she had suffered at the hands of a partner. She died in August this year, before she reached her 31st birthday, and her relatives are convinced that her death was due to her addiction to a medicinal drug that she acquired in prison.
      On the final day of her life, Josie O'Dwyer took a list of drugs—I believe there were 13 in all—which I recorded in an early-day motion towards the end of the previous Session; it was an incredible cocktail of medicinal drugs that would have been enough to kill her many times over. Again, that woman was taking those drugs in prison.
      Such is the regime of sedation in women's prisons that, on 13 August this year, there was a riot in Holloway—not because the women did not have their drugs, but because the drugs were delivered late. Three members of staff had flu that they had given to one another, and someone had to be brought in from outside to give the drugs. For a short period—a matter of a few hours—prisoners were without their sedation, which caused them to set fire to the bedding and the clothing within the hospital. We have a regime in prison which depends on women prisoners being sedated for most of the time.
      By the time they get to prison, many young women have been abused in some way—by their partners, by society, by the care system or by their parents. A common reaction to abuse is self-mutilation. The almost universal medicine—it is a traditional, knee-jerk prescription—for such young women is largactol, a neuroleptic drug given to those who are deeply psychotic. The drug is used in other situations with which my hon. Friend the Minister will be familiar from his previous job.
      Those young women form a special group in prison and, in the cruel jargon of prison, they are known as "muppets" because they walk in a funny way. These young women are not just damaged in prison, but probably their health has been damaged for life. The Committee recognised the importance of providing alternatives to prison and the probation programme which
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      tackle the problems presented by women's programmes specifically. The Government have agreed with the Committee that the needs of women offenders should be effectively and systematically addressed.
      I would commend to all hon. Members a book written by Angela Devlin called "Invisible Women", published in June of this year, about women in prisons. I challenge anyone not to feel moved and horrified by the evidence it provides of what has been created within women's prisons—not just by medicinal drugs, but particularly by illegal drugs. There are regimes of bullying and gangsterism in prison, and examples of horrific inhumanity of man and woman to women. Drugs are the currency of prisons, and the flow of the drugs coming into prisons is out of control. The searches carried out on women in prison are bestial and foul, and disgrace the name of this country. Many women's prisons can be described rightly as gulags, rather than the areas of solace, asylum and care that we would rather think them to be.
      I look forward to the next report on the subject, and I am sure that the Committee will look in more detail at the subject. I am sure that we shall see an improvement—despite the rather complacent Government reaction. Governments always say, "Yes, there is a problem, but it is not as bad as it used to be and we are tackling it." They are not tackling it with sufficient speed.
      Another of the Committee's recommendations is that handing out community sentences is an effective way in which to reduce prisoners' drug habits in the long term and to protect the public. Of course that can be done—it is being done elsewhere—but extraordinary situations can arise, such as the two separate cases in Gwent in which two offenders were found guilty of very serious offences for the second or third time, and told the court that they had become addicted to heroin in prison and that if they went back they would become addicted again, because more heroin is available in prison than on the streets of Gwent.
      On those two separate occasions, the two different courts decided that the offenders should not go to prison. That is a sensible and civilised outcome, but hon. Members can imagine the howl from the tabloid press, saying that drug addicts can get out of going to prison. Certainly, the cost to society and to the individuals involved would have been far greater had they gone to prison.
      I appeal to my hon. Friend the Minister, who has deep knowledge of these matters, not to follow the traditional course of Governments, who are addicted to their daily fix of tabloid admiration by promoting policies that appear to be tough. I get tired of reading press releases on law and order from the Government and from the previous Government in which one can hardly get to the third or fourth sentence without finding the word "tough".
      I ask the Government to study the report and come up with intelligent policies, instead of retreating to the comfort blanket of daily adoration from the tabloid press.
      5.47 pm
      Mr. Bob Russell: Clearly, the best alternative to prison sentences is for people not to be put in the position of facing a prison sentence in the first place. The soundbite of being tough on the causes of crime deserves better than to be abandoned now that it has served its pre-election purpose.

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      I welcome the report. As one of the Committee's members, I stress the fact that every recommendation had unanimous, all-party support. I fear that Parliament is failing to address the need to formulate linked policies that will help to create a society in which there is less crime, and consequently less need even to consider sending so many people to prison.
      As the Chairman of the Select Committee said, the need to gaol some people for serious and repeat offences is not at issue, but the record number of prisoners that was reached earlier this year is unacceptable. The statement in the Government's response that
      "Prison should be used only where necessary"
      is to be welcomed. How will that message be conveyed to the courts?
      I am in favour of joined-up government: matters affecting our daily lives should not be put into self-contained compartments, and there should be more understanding and consideration of how decisions in one area will affect activities elsewhere. Government and society generally need to adopt an holistic approach.
      What will be the Government's definition of success regarding the statement that Labour will be tough on crime and tough on the causes of crime? Being tough on crime presumably means that more people will end up in prison, while being tough on the causes of crime suggests that fewer people will drift into a life of crime. The prison population has increased by more than 5,000 in the past year; does the Minister agree that that suggests that the Government are failing to deliver on their promise to be tough on the causes of crime?
      Apart from some of the former communist countries, Britain has a higher proportion of its population in prison than anywhere else in Europe: nearly 120 in every 100,000. I know that the Government want the United Kingdom to play a leading role in the European Union, but is the Minister proud of the fact that we are the current champions of the European prison league and are set to retain the title for the foreseeable future?
      It is not an exaggeration to say that our prison system is in crisis. Paradoxically, it is a growth industry, and career prospects seem good—for prison staff, at any rate. The Home Secretary's millennium project appears to be to build several more prisons at £60 million a time to accommodate the unacceptably large numbers being sent to prison. No doubt those involved in the private prison sector, and promoters of the private finance initiative, are enthusiastically urging the Government to follow the example of the American privatised prisons. I suggest that we would do better to adopt what Finland has done in recent years to reduce its prison population while keeping crime levels in check.
      In the past five years, the UK prison population has increased by more than 50 per cent., from 43,200 to 66,273 as at 4 December. It is good news that the previous estimate of a prison population of more than 82,000 by 2005 has recently been revised downwards, but even if next year's predicted figure of 63,200 proves correct, it will still leave Britain with a prison population out of step with most other developed countries. That is an appalling situation, and we must all endeavour to rectify it.
      On financial grounds alone, the House should be united in wanting to see fewer people being sent to prison. In 1997–98, the annual average cost of keeping someone in
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      prison was £23,000, which is a terrible waste of public money when one considers the cheaper and better alternatives to prison for people who receive relatively short sentences. That figure is not the true cost, but only the amount that comes from the Prison Service budget. To be added to that figure are any housing and social security benefits to which prisoners' families may be entitled, miscellaneous other costs and the loss of taxes and other contributions to the Exchequer that someone not in prison would pay if he or she had a job. For those in young offenders institutions, the cost soars to more than £30,000 a year for each person in custody.
      The huge increase in the number of young people ending up in prison is especially worrying. From 1996 to 1997, the number increased by 12 per cent. to an average 10,800 over the year. In the same period, the number of women prisoners rose by 19 per cent., to 2,680. Currently, 53 babies are in prison with their mothers.
      The evidence shows that prison is not working. The Home Affairs Committee's report addresses the need to tackle the prison time-bomb, and I had hoped that the Government would accept all the unanimous recommendations in the Committee's report. I am keen to see suspended sentences, curfew orders and electronic tagging for those who are convicted of less serious crimes and who are not a danger to society. I also feel that the introduction of criminal work orders—a title that more accurately reflects the reason why someone is doing the task that he or she has been directed by the courts to undertake, instead of the somewhat cosy-sounding community sentence, which implies some involvement with a voluntary organisation—would be another alternative to prison that should be developed, but to be credible they must be enforced stringently.
      I am disappointed by the Government's negative response to the concept of weekend prisons, as unanimously recommended by the Committee. I urge the Minister to take an enlightened and positive step forward and introduce, as soon as possible, a pilot scheme to see how that innovative idea would work, as suggested by Sir David Ramsbotham, the chief inspector of prisons.
      Mr. Mullin: The Committee recommended only that the Government consider weekend prisons, because the idea has serious logistical problems.
      Mr. Russell: The Chairman of the Committee is correct, and that is borne out in the report and the Government's response. No one is saying that weekend prisons are an easy solution, but the Government should undertake a pilot scheme based on the suggestions from the chief inspector of prisons. Some of those who receive short prison sentences lose their jobs as a result. Their families then require housing and other benefits and, on release, the former prisoners often have difficulty finding work, with the consequence that they and their dependants continue to draw benefits. The public purse loses all round, and society has an ex-prisoner who may be tempted back into criminal ways.
      As an alternative to full-time prison, someone who it is felt should still receive a short custodial sentence could be ordered to serve it at weekends, when his or her loss of liberty would arguably be most keenly felt. In that way, the individual could keep working and paying his or her way in the community. A criminal who might otherwise be gaoled

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      for 28 days, could be sentenced to serve 14 weekends from Friday evening to Sunday teatime, undertaking rehabilitation, retraining, environmental projects or other constructive activities under the auspices of the Prison Service. Most people would regard the loss of 14 weekends as more of a punishment than serving 28 days consecutively.
      Our overcrowded prisons are universities of crime. Prisoners are locked up for hours on end with opportunities for education, work, rehabilitation and recreation periods reduced because of past spending cuts. The consequence is that many prisoners return to society better trained as criminals than when they went to gaol. More leave prison addicted to drugs, and more leave with AIDS than arrived with it. Prison suicides have increased. There have been 74 self-inflicted deaths this year—more than in each of the past three years. Does the Minister think that prison is the right place for the estimated 28,000 prisoners who suffer from mental health or drugs problems?
      The amount of what is called purposeful activity provided for prisoners has fallen to less than 24 hours a week on average. What plans does the Minister have to reverse the cuts? Does he agree that one of the best ways to reduce reoffending is to develop constructive regimes in prisons, with the focus on rehabilitation, retraining, education and work? Will he give an assurance that, after years of cuts by the previous Government, the probation service will be given the necessary resources for the critical role that it has to play?
      Up to 90,000 offenders are released from custody into the community every year. Some 53 per cent. are reconvicted within two years, but the figure for young offenders is 75 per cent. and for juveniles, 89 per cent. The alternatives to prison sentences advanced by the Home Affairs Committee would result in fewer people going to gaol in the first place, and I am confident that they would lead to less reoffending.
      The most effective long-term alternative to prison sentences is for the Government to adopt an holistic approach, especially to young people. Some 50 per cent. of known offenders are under 21, and 70 per cent. of adult offenders were convicted of a criminal offence before they were 21. The knowledge that most of those in prison committed their first offence before their 21st birthday makes it imperative that measures are taken to prevent youngsters from taking those first steps on the criminal ladder.
      To target youth crime, however, we need to do more than deal with the situation when it arises, which is a classic example of looking at a situation in isolation. Slicing up life into compartments is a recipe for creating conditions in which criminal activity will result. An obvious example is housing. Bad housing is not an excuse for criminal activity—some of the worst criminals come from wealthy backgrounds—but poor housing can provide a breeding environment for criminal activity. More needs to be done to improve the nation's housing provision.
      Does the Minister feel that his crusade to reduce the number of prisoners is helped when the Department for Education and Employment, and others, concentrate on demanding ever higher academic standards, without appreciating that many youngsters need greater
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      encouragement in non-academic areas? We need to give equal importance to the different contributions that all young people can make to their communities. For many young people, there is more to life than the classroom and swotting. The Government should tell all young people that they have a contribution to make to society, regardless of their academic abilities.
      Mr. Corbett: I hope that the hon. Gentleman is not saying that, because young people grow up in deprived areas with high and persistent levels of unemployment, their schools, teachers, school governors and parents should say that it is not worth bothering to encourage those children to do better than they think they can.
      Mr. Russell: I appreciate the hon. Gentleman's intervention. I was trying to make the exactly opposite point. I want us all to tell all young people that they are of value to society and have a contribution to make. I am criticising the idea that the only people of value are those who gain high academic achievement. I do not believe that that is true, and I do not believe that the hon. Member for Birmingham, Erdington (Mr. Corbett) thinks so, either.
      A major way in which to reduce criminal activity by young people, and therefore to reduce the prison population, would be for relevant Departments to take measures to encourage youngsters to become more involved in their communities. That would give them pride in their neighbourhoods and a belief that they were valued.
      For example, instead of underfunding local government, the Department of the Environment, Transport and the Regions could make specific grants to enable uniformed and other youth organisations to have free use of school buildings, rather than being driven out of them by high charges. The Ministry of Defence could offer better funding for cadet forces, so that they could expand and recruit more youngsters. The Department for Education and Employment could provide financial support for youth bands or arts projects. Encouragement for conservation and similar projects could involve more young people.
      Financial investment in our young people will pay dividends. Better citizens will result if we abandon the previous Government's view that there is no such thing as society. There would be less cost later to the public purse if fewer people drifted into crime and had to be sent to prison. The more we can do to stop people committing crime, the lower the prison population will be. The best alternative to prison sentences is to fund youth activities, which would be a much better use of public money than spending £23,000 a year for everyone in prison. Keeping just 44 people out of prison would save £1 million, and we can all think of how that money could be more productively invested in young people and local communities.
      There is an opinion that young people involved in uniformed and other activities are far less likely to be involved in criminal activity than those who do not experience such productive and organised activities. Perhaps the Minister can confirm that that is true. If he does not have the evidence, may I suggest that we survey young people currently serving custodial sentences? I am confident that investing substantially in recognised youth movements and encouraging youngsters to participate

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      would result in fewer young people drifting into criminal or anti-social behaviour. Such expenditure would be cost-effective.
      The best way in which to achieve joined-up government for young people would be the appointment of a Minister for youth. That person would need to be popular and charismatic in the eyes of young people. An obvious candidate would be the Minister of State himself.
      As a first step towards reducing the UK prison population, the Home Affairs Committee's recommendations should be implemented. However, I urge the Minister to take a wider view of what should be done if we are seriously and realistically to tackle crime. Being tough on the causes of crime is a positive way in which to provide an alternative to prison sentences.
      6.2 pm
      Mr. Robin Corbett: Following my experiences during the inquiry, I thank the probation service, the social services, the police, the fire service and a raft of voluntary organisations, and I congratulate them on working with such commitment and dedication on our behalf. They try to give more hope and meaning to the lives of vulnerable and disjointed young people. Their jobs are not easy, because many of the people with whom they deal come from the most horrendous backgrounds. About a third of those sent to young offenders' institutions have no contact with home. About 40 per cent. have bad or intermittent contact with home. Many have no regular place to lay their heads at night. We should not underestimate the problems that we ask the various agencies to cope with for us.
      My approach to the report and to the Government's response is that the argument is not over whether prison is better than non-custodial community sentences. There is widespread recognition that only custodial sentences will suffice for some people before the courts, especially for those who use violence against vulnerable people such as women, children and the elderly. It is not well understood, however, that the main victims of violence are, surprisingly, young people themselves. They are seen to be the perpetrators of most violence, but it is not so. They are in fact the victims.
      That said, I have reached the conclusion that too many of those responsible for handing out sentences in our various courts are unaware of the menu of options available for community and non-custodial sentences. No doubt they are influenced by silly headlines in newspapers that ought to be more responsible. As my hon. Friend the Member for Sunderland, South (Mr. Mullin) has said, it is wrong for newspapers to say that "so-and-so walks free". A community sentence is not walking free.
      Mr. Vinnie Jones, the footballer, perhaps best demonstrates that fact. Having been sentenced for a cruel and grievous assault on a neighbour, Mr. Jones found that some publicity attached to the first hours of his community service. Perhaps Mr. Jones is unused to having his photograph taken, but he failed to turn up on three occasions, and instructed his solicitor to return to court to try to have his community service order reduced. I am glad that the court took the opposite view: it lengthened his sentence, and fined him for not doing what he was bound to do.
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      Mr. Jones, and anyone else in such a situation, should not accept a community service order if they prefer the alternative of prison. It is their choice, and they are free to make it, even if the courts may regret that fact.
      My hon. Friend the Member for Sunderland, South has mentioned that Mr. Peter Coad, a senior probation officer who had a low opinion of the probation service's achievements, said that the best alternative to prison was not to commit a crime. I took his meaning to be that the best alternative was not to be found committing the crime as well as not committing it. That is, of course, true: it is a blinding glimpse of the obvious, but solutions are not as easy as that.
      During the general election—I suspect many of my colleagues found the same thing—in every part of my constituency, groups of residents raised the issue of anti-social behaviour and crime. They did not see those problems in party political terms, and they expected whatever Government were elected—it happened to be my party's Government—to help them to reclaim the right to live in peace and security in and around their homes. That is a simple enough demand. However, more police officers, more people in prison and longer sentences will not deliver it. They may make a contribution, but they will not deliver it.
      Two stories from my constituency will illustrate the point. On a main road, a dreadful three-storey block of flats containing 20 or so families, with walkways on the outside, was an absolute shambles. The council decided to spend money on doing up the block, and letters went out to say that this, that and the other would be done in six months' time, and that the council would try not to wake the baby or anyone working nights.
      All went well. There was landscaping, and the whole thing looked great. Towards the end of the work, I wrote to each resident to say how nice the work looked and that if they were having a party, I would bring some beer. I was not looking for votes; the matter was too important for that. I wanted to encourage those people to be proud of what had happened in and around their homes. The whole area had been transformed. Eighteen months later, it was almost as bad as it was before the work started. The lesson that I drew from that—I agreed with Birmingham city council housing officers on this—is that unless residents feel that they own the process, there is no point in proceeding.
      I invite hon. Members to come with me about four miles further south in my constituency, to the former Castle Bromwich airfield, where 12,000 Spitfires, made over the road in what is now the Jaguar car factory, were personally flown by the chief test pilot. The site became the Castle Vale housing estate, which comprises 34 tower blocks and dozens of blocks of maisonettes. Anyone wanting to see a hell-hole should have seen Castle Vale 12 or 15 years ago. It embodied what I felt merited the description "civic pigsty".
      Anyone coming across Castle Vale for the first time found it hard to believe what he was seeing—at least, I did. One wondered who cared for such places. Certainly, no one on the city council cared. I know all about cuts in housing budgets and so on, but I am not interested in that—there is some money. The whole place shouted total and absolute neglect. There was then an offer to set up one of only six housing action trusts in the country.

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      HATs were set up by the previous Government, who, by the way, had the wit and wisdom to change the rules to enable tenants, at the end of the exercise, to hold a ballot on whether they wanted to have the city council back as their landlord or, as I hope will happen in the Castle Vale area, to set up their own tenant management organisation.
      When it came to the ballot, 93 per cent. of the tenants who participated voted for the HAT, which meant that about £300 million of public and private money would be put into the area. That was four years ago. I picked up a point made by the hon. Member for Colchester (Mr. Russell) in this connection. We are now four years into the process. The eight great centre tower blocks, which is where the main Spitfire runway was, have gone. Not quite 12 months ago, the first buildings of the new Castle Vale became visible because they were on the central site. In a matter of weeks, the whole atmosphere of the estate changed, and I shall illustrate that with two examples.
      First, I am very proud of the four primary schools on the estate, which is why I said what I did to the hon. Member for Colchester. Those schools achieve miracles. They regularly turn out children to go to the secondary school on the estate at the age of 11 with average reading ages of 14 and 15. It is difficult to get through the front door of one school because of all the national awards that it has won, not in soft subjects, but for mathematics marathons and achievements in science. The remarkable head teacher and her staff say that of course such things can be done, but that one has to work two or three times harder in such areas than in areas with less deprivation.
      Secondly, the HAT was never wholly, solely or mainly about bricks and mortar, important though they are. It was about giving people back hope, training and jobs; it was about one-to-one counselling for single parents—mainly mothers—and the work of outstanding organisations such as Home Start, which will quietly hold out a hand to parents in despair. Parents might be in despair because of deprivation or unemployment, but also because they feel that they cannot cope and cannot bring up their children in the way they want. Home Start literally holds out a hand. When another hand is put in it, it gently grasps that hand. The success of that organisation can be measured by the fact that many of its regular volunteers once came through the door, holding out a hand.
      What has happened on the estate in the past 12 or 18 months that makes me so proud? I am told—I am sure that it is true—that, if an autopsy were carried out on me, the words "Castle Vale" would be found engraved on my heart. Crime has been reduced by about a third, but I do not say that with surprise. I would expect that to be the case. It is almost as if people have grown a foot in height after getting jobs.
      A magnificent range of about two dozen to 30 firms, large and small—including the Jaguar plant, Cincinnati, the machine tool manufacturer, and GKN Hardy Spicer, which makes front-wheel drives—on the rim of this isolated island estate are offering young people opportunities through the new deal. I am not criticising the Opposition when I say that—it might also be their experience—but, in this part of Birmingham, the new deal has not only held out a lifeline to young people who were detached and who were denied hope, but it has delivered.
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      I commend the Government on agreeing with the Committee about the importance of alternatives to custodial sentences. It might seem that I am going to say the opposite, but I ask to House to bear with me. The Kingstanding part of my constituency is virtually one large housing estate. There is nothing new in what I am about to say. On that estate, there is someone who is a one-man, anti-social crime wave. Let us call him John, although the warders now know him by his real name. Between the ages of 14 and 18, he was charged 34 times and was given the equivalent of three and three quarter years in young offenders' institutions. He was also handed heaven knows how many community service orders of one sort or another. As I understand it, he is in prison—and so he should be, given the opportunities that were offered to him but not taken.
      I suppose that the easy thing to say is that John had his chance and did not take it, but I have to tell Mr. Coad and others who share his views that life is not like that. When I feel close to despair about such things, it is because of what the great city of Birmingham has achieved this year alone. It has been host to the G8 summit, the Eurovision song contest and 34,000 members of Lions International. It is a city where things are happening. I am getting parochial, but I get cross and frustrated when people like John cannot see that this involves them and that there is something in it for them.
      We cannot walk away from the Johns of this world, because they cost everyone of my constituents something. They cost them in fear, because my constituents will not answer the door after dark and will not walk down the street after 3 pm at this time of year. Solutions have to be found. The probation service is now on the case—one might have hoped that it could have got on board earlier—and is involved in, for example, the "what works" programme. We need to design and carry out these programmes in such a way that they have better prospects of offering young people the opportunity to lead more successful and fulfilling lives. The new deal can help.
      The hon. Member for Colchester has mentioned pupils being pushed at school to make them believe that they can attain more than they have. That is doubly important at schools where 60 or 70 per cent. of the pupils come from families poor enough to receive free school meals—their future is at stake, as well as that of those who come from a more comfortable background. We owe those pupils something, but there is more to it than that. This country, our society, and certainly the city of Birmingham need to engage them. We need their skills, and they need them to help them to settle into a happier, more fulfilling way of life.
      6.20 pm
      Mr. Gerald Howarth: I am sure that the whole House enjoyed the speech of the hon. Member for Birmingham, Erdington (Mr. Corbett). It was a remarkable personal contribution to the debate, and one full of emotion. I went misty-eyed when I heard mention of 12,000 Spitfires, quite apart from what he told us about the transformation of the Castle Vale estate as a result of the housing action trust.
      I say gently to the hon. Gentleman that I was Parliamentary Private Secretary to the then Minister for Housing and Planning, my right hon. Friend the Member for North-West Hampshire (Sir G. Young), when HATs

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      were put in place. I hope that this will not be my only opportunity to remind the House that the Conservative party made important contributions to the improvement of our country. I think that all hon. Members who have HATs in their constituencies will recognise the important changes that HATs have brought about for the better.
      The trouble with the debate is that it is largely well informed. It is calm and sometimes moving, as exemplified by the speech of the hon. Member for Erdington. It is therefore guaranteed to have no media coverage. We are among friends talking to ourselves. The outside world will not be listening, because we are not at one mother's throats.
      I reject completely the idea that the Select Committee's report is soft and that it represents an attempt by an all-party Committee to come up with a soft option for criminals. It is an extremely hard-hitting report, and it deserves to be seen as such. I shall detain the House for a moment by quoting some examples and putting them on the record. There are too many people outside the House who have tried to read into the report that the Committee has been anxious to empty prisons—I speak rather crudely—to put prisoners on community service orders. Nothing could be further from the truth.
      The Committee's second conclusion and recommendation reads:
      "Prison will always be necessary for the most dangerous and/or persistent criminals, but it must be closely targeted on them, with other offenders being given non-custodial sentences which are effective and in which sentencers and the public have confidence."
      Those are extremely important riders to our suggestion about the role of non-custodial sentences.
      Recommendation 15 reads:
      "Strict enforcement of community sentences is vital if they are to represent a credible alternative to prison and retain the confidence of sentencers and the public. If community sentences are to be credible they must be enforced stringently."
      Recommendation 16 states:
      "It is essential that offenders who breach community sentences are returned to court quickly."
      Recommendation 18 says:
      "We … recommend that the Home Office rectify this situation"—
      of breaches not being enforced—
      "and ensure that offenders who flagrantly breach the terms of community sentences may be sent to prison".
      This is a tough report, not a soft one. I hope that, by citing these examples, I can provide the House and those outside with evidence that it is tough. This may be a small point, but it is one worth noting: we were much impressed with the Lord Chief Justice's suggestion that community service orders should be renamed. He suggested that they should be called criminal work orders, and we supported him. I note that the Government have said that they are prepared to consider that suggestion. We hope that the Minister will make the debate a little more newsworthy by saying that he accepts that suggestion at least. That would send out the clearest possible message that community service orders are intended to be nothing other than criminal work orders.
      For so long as society believes in the concept of repentance and forgiveness, offenders will have to return to the community at some point. We shall have to deal with their return and with what we do with them in the
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      meantime. I said to the hon. Member for Sunderland, South (Mr. Mullin) that I had some sympathy with Mr. Coad. One of Mr. Coad's points was that, if offenders are in gaol, they cannot go out burgling people's property and causing them enormous distress. That is an irrefutable fact. However, if the prison population is to increase to 200,000, certain consequences have to be considered.
      There is the small matter of planning consent for new prisons. We all know that, as soon as anyone proposes having a prison anywhere near us, our constituents are on our backs, saying, "Not on your life, guv'nor. You jolly well fight it." Tripling the prison population space would require considerable dexterity in the manipulation of planning regulations. The previous Conservative Government found a disused ship somewhere, which they parked off the south coast of England. That was one way of getting around the problem of people and their backyards. Presumably, in that instance, they were not too worried.
      We must consider whether prison is the only answer to crime. Manifestly it is not, so what are the options? We, the Committee, were struck by the many schemes that were being tried out throughout the country. I think that the hon. Member for Sunderland, South said that there were 274.
      Mr. Mullin: No, 267.
      Mr. Howarth: There is a huge number of schemes, many of which are not well known to the public.
      One of our important conclusions is set out in recommendation 9. We found that there was no real assessment—the hon. Member for Sunderland, South mentioned this—of the true effectiveness of these schemes. I think that the Home Office has taken note of that. I should like to say, in answer to the hon. Member for Newport, West (Mr. Flynn), that I think that he had a fair point. The Government say, "We quite understand. The Committee is right on this and action needs to be taken, and we will be taking it. Things are a bit better."
      I urge the Minister to take serious note of recommendation 9. If non-custodial sentences are to command public confidence, it is essential that they are evaluated on the basis that some are good, some are not so good and others are a waste of space. There will be inevitably an element of trialling. It will be necessary to suck it and see before deciding whether certain schemes will work.
      Recommendation 9 reads:
      "The absence of rigorous assessment of the effectiveness of community sentences is astonishing. Without it confidence in them must be limited and sentencing policy a matter of guess-work and optimism."
      That is strong language for a Select Committee. We state in print that we find it astonishing that there is that lack of effectiveness in the validation and assessment of community sentence schemes. I hope that the Minister will devote some attention to our recommendation.
      The members of the Committee will know that I had already had wind of the interesting airborne initiative Scotland scheme. I probably had something of a reputation for being fairly tough on crime before the Government came up with "tough on crime, tough on criminals and tough on the causes of crime". However, I

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      see cases for not banging up people in gaol as a knee-jerk reaction. There is a case for other schemes, and I was most impressed by the airborne initiative scheme in Scotland, as I was by other schemes that I came across throughout the country. It was noticeable that, where a scheme provided young offenders, in particular, with an element of self-respect and self-confidence—two key factors which had been entirely missing in their lives by virtue of their upbringing and background—they were capable of being rescued. I suggest that a key criterion in assessing the effectiveness of these schemes is whether they are able to instil in persistent young offenders a sense of self-respect and a sense of purpose in life.
      We were able to see the operation of the tagging scheme. I am bound to say that at this stage I want to be a bit mischievous. We were all impressed by tagging, which we saw Securicor operating in Manchester. I thought that it was superb, but I shall not bore the House with the details.
      I said that I intended to be mischievous. I remind the House that, when the matter was proposed by my noble Friend Lord Patten, who was then Minister of State, Home Department, his opposite number, the then shadow Home Secretary, Lord Hattersley, who is now clad in Irvine, or rather, ermine, in another place—a Freudian slip there, I fear—responded by saying:
      "Electric tagging would be a farce if it were ever implemented in this country."—[Official Report, 20 November 1990; Vol. 181, c. 160.]
      In Committee, during detailed consideration of electronic monitoring, the hon. Member for Huddersfield (Mr. Sheerman), who was then a Front-Bench spokesman, said:
      "Opposition Members oppose the provisions on electronic monitoring with no equivocation whatever. We are totally opposed to electronic monitoring of offenders and on this issue, we have the overwhelming support of organisations working within the criminal justice system."—[Official Report, Standing Committee A, 18 December 1990; c. 273.]
      I should like to hear from the Minister an acknowledgement that the Labour party, when in opposition, got it wrong, and that it now congratulates the Conservative Government on having introduced a non-custodial sentence that has been of huge benefit. As that system is to go nationwide from the end of next year, I am sure that the Government will not be able to deny that.
      I shall not detain the House too long, but I shall deal with a couple of other topics. The first is drugs, a subject that the Select Committee will address in more detail in our next examination. I support the comments of my hon. Friend the Member for Woking (Mr. Malins) on the matter. Drugs are a scourge in our country. Parents throughout the land have a paranoid fear that their child will fall foul of drugs and, even worse, that they will not recognise the signs. I have three children and I understand that fear, which is widespread.
      Drugs kill people. They imprison young people for the rest of their lives. I hope that the Government will consider the matter carefully and accept that, if we are to deal with the problem, there must be an element of compulsion about it. When we travelled around the country during our inquiry, one of the saddest experiences was our visit to Dumbarton, where we sat with a group
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      of youngsters who were hard drug addicts. They required £80 a day to fund their heroin habit, and to obtain the money they stole and burgled. One of the girls told us that, when she left our company, she was going to steal from a shop in order to fund the habit.
      I do not believe that simply banging up such people in prison is the answer. I agree with my hon. Friend the Member for Woking. We need specialised residential institutions where those young people can be detoxified. That is the only way in which we will resolve the problem. It is draconian, but the crisis we face is of such magnitude that a draconian measure is justified. We would be ducking our responsibilities as Members of Parliament were we not to tackle the issue head on.
      Other factors have not been discussed in detail in the debate. The minor crimes described by the hon. Members for Sunderland, South and for Erdington irritate our constituents and cause them grief. Minor vandalism and such offences are, in my view, the result of a growing lack of respect for parents, authority and our institutions. It is incumbent on us all to teach children not their rights, but their duties. The time has come to swing the pendulum back and to make them understand their duties and responsibilities.
      As members of the Committee know, the other day I saw two young boys aged 14 breaking into my neighbour's car with a metal implement. Those were two kids out of school at lunchtime, walking down the street on the off-chance, but armed, with intent. What do we do about people like that? I understand that they came from respectable households. They have been let off with a caution. It was only because I got there, chased them down the road and caught up with one of them that we cleared up that bit of crime.
      I should tell the Minister that I was appalled by the attitude of some other adults, who would not help me for fear that they would be charged with abusing children. I hope that he will say that the Government do not approve of that, and that they approve of members of the public going to assist the police.
      I hope that those outside will recognise that this is a tough report. Alternatives to custody are designed not simply to empty the prisons, but to provide tough and hard sentences. They are perhaps the only way in which we shall get young offenders weaned off drugs and reduce the crimes that are spawned as a result of drug taking. In that way, we shall make our society better.
      6.36 pm
      Mr. Edward Garnier: One of the advantages of attending debates such as this is that one leaves the Chamber at the end of the debate having learned something. I am grateful to the hon. Member for Birmingham, Erdington (Mr. Corbett) for giving us a little tour of his constituency and telling us something about the conditions of the people whom he represents.
      I remember speaking after the hon. Member for Salford (Ms Blears) in the Second Reading debate on the Crime and Disorder Bill and being struck, and even appalled, by what she told us about the rate of crime in her constituency. If I remember correctly, the figures that she gave for crime in her constituency during the week preceding the debate were the equivalent of the crime figures in my constituency for the previous decade.

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      Our constituencies are entirely different. I represent a largely rural and well-to-do area. We have our criminal statistics. We have people who buy, sell and use drugs, but I am grateful to the hon. Member for Erdington for bringing me out of my rather comfortable existence and making me realise that England is a diverse country. Although we pass Acts of Parliament that are supposed to deal uniformly with the entire country, there are places that need special attention and particular measures to assist.
      I am fortunate to participate in the debate because it gives me the opportunity to congratulate the Minister on his promotion. As many hon. Members know, he had my job not long ago—the shadow spokesman on the Lord Chancellor's Department—so it seems that my political life is not entirely without hope.
      I congratulate the Chairman of the Home Affairs Committee, the other hon. Members who serve on it and their Clerks on their industry in producing the report on alternatives to prison sentences. As a member of the Committee under the chairmanship of Sir Ivan Lawrence from 1992 until the end of 1994, when I left on my appointment as a Parliamentary Private Secretary to my right hon. Friends the Members for Eddisbury (Sir A. Goodlad) and for Haltemprice and Howden (Mr. Davis) in the Foreign Office, I always take a particular interest in the Committee's reports and activities.
      I am a quiet admirer of the hon. Member for Sunderland, South, although it may not do him any good for me to say so, for his work in bringing to wider public attention a number of criminal cases of miscarriages of justice. Some of that work that he did in collaboration with my late predecessor, Sir John Farr. They were, as the House will agree, unlikely collaborators, one being a traditional Conservative landowner of the old school and the other a Labour journalist and writer. It was a common interest in justice and fairness that brought them together. I hope that the same interest breaches the political divide this evening. Certainly, from all that I know of John Farr and what he did to see justice in the case of the Birmingham Six, I believe that he would have taken a close interest in the work that the Chairman and members of the Select Committee on Home Affairs are doing.
      It behoves us all to keep a close eye on those matters that we sometimes take for granted: free and uninhibited access to the courts for every citizen; an impartial and incorruptible judiciary; a jury system that commands public confidence; lawyers who cannot be bought and sold and who can speak up for their clients without fear for their lives or careers; and—germane to our discussions—a criminal justice system that is capable of acquitting the innocent while dealing with the guilty humanely and firmly, but sensibly, and in such a way that the public are satisfied that they can sleep easy in their beds knowing that right has been done, and offenders know that they have got their just desserts and punishment that fits the crime.
      I have been an assistant recorder in the Crown court for only a short time. My practice at the Bar could not be further removed from the criminal courts, but in the short time that I have been doing my judicial training—in court, sitting beside Crown court judges; on residential courses, run by the Judicial Studies Board; and sitting as a judge—I have been struck by the attitude of those on the Bench.
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      They will do all in their power to avoid sending a defendant to prison, if a suitable alternative can be found and is available.
      Judges do not send the guilty to prison because they enjoy depriving people of their liberty. Certainly by the time that they come to sentence, and often beforehand, judges know the backgrounds and family circumstances of the accused, and they see real people before them in the dock: the incompetent, the drug-addicted, the inadequate and the feckless, in human form. They also see the evil, the dangerous and the dishonest.
      Whatever the characteristics, judges deal most often with a man, usually in his late teens or early 20s—in London or other big cities, he will probably be a drug user—who is in any event unemployed and in receipt of state benefits. He will probably be the father of at least one small child by a mother who is not his wife, and with whom he does not live in anything resembling a traditional family. He may have grown up in circumstances that mirror his children's.
      That is the picture of human life facing the judge. It is a daily experience. In the House of Commons we see only the statistics about projected prison populations, reoffending rates and the expense of dealing with the never-ending parade of crimes and criminals. We see the story that is unfolding outside at a safe remove. We know what we are told and what we believe. We come here with our prejudices and our experiences, but we are unlikely to have shared the experiences of either the criminal or the sentencer.
      Perhaps one of my prejudices—this relates to an intervention by the hon. Member for Erdington on the Chairman of the Home Affairs Committee, the hon. Member for Sunderland, South—is the belief that people who have a job tend not to commit crimes, but that unemployment of itself is not an excuse for committing crimes. There is a link—a correlation—between unemployment and criminality, but there is not a causal link. There should not be.
      My first point beyond those happy introductory remarks is that it would do no harm—and, I believe, a lot of good—if Home Office and other Ministers charged with management of our criminal justice system, and with devising policies to improve it, spent time in the criminal courts to see for themselves what is involved in trying and sentencing a case. Ministerial visits to prisons, court buildings, probation offices and police stations are worth while, but they provide only a partial picture.
      Ministers should go to see what happens to the defendant, the witness, the jury, the court staff and the judge or the magistrate in the stage between arrest and punishment, and then consider whether the criminal justice Bills that we pass almost annually are always the answer to the real or perceived problems that we face.
      I was struck, as was the hon. Member for Erdington, with the evidence that is recounted at paragraph 134 of the Select Committee report. It deals with Lord Bingham's wish that sentencers should visit community sentence venues to see what is happening. The report states:
      "He undertook to encourage judges to make such visits but reminded the Committee"—
      I urge the House to bear this in mind as well—
      "that 'judges are under great pressure to try cases. The courts have a backlog, they are open to criticism if the delays build up, so this kind of activity has to get fitted in. It should be fitted in and I totally agree with the point that you'"—

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      the hon. Member for Sunderland, South—
      are making that this is a valuable way of educating oneself into the realities of what one is imposing on others'."
      One has to be realistic about that. As the learned Lord Chief Justice said, our courts are enduring a backlog of cases. Judges simply do not have time to make these visits, although they would do much good were they able to do so. I urge the Government, hon. Members and members of the Select Committee not to push too much on our judges, who are already overburdened. It is easy to make tabloid remarks about judges, but they are not as they are caricatured. They work hard, and requiring them to spend more time out of court looking at probation centres and so forth—although well intended—cannot easily be achieved.
      On the subject of the Lord Chief Justice, I agree with my hon. Friend the Member for Aldershot (Mr. Howarth), and others who have referred to it, that it would be better and more publicly acceptable to describe community sentences as criminal work orders. I hope that the Government will give that rapid consideration.
      My second point is that another thing that might be learned is that the system by which those who breach probation orders or other community sentences are returned to court is cumbersome and slow. A defendant who breaks the terms of the sentence has to be summonsed to appear at a magistrates court, irrespective of whether the sentence was handed down in the Crown court.
      I have read that part of the report which deals with the return of offenders to court—indeed, I have read the whole report—and I accept and agree with conclusion and recommendation 16, save that I have reservations about the civilianisation of that aspect of the criminal justice system. I also agree with conclusion 18, about the steps that should be taken to reinvigorate that part of the community sentence regime, but I have a small practical solution to offer. Those who breach community sentences from the Crown court should be arrested and brought back directly to the Crown court, rather than being summonsed to appear before a magistrates court to be dealt with.
      By the time that the summons is served—we know about the difficulties in effecting service—and the defendant appears before the magistrates, the original defence is part of distant history, the trial was some time ago and the breach is remote. If magistrates then decided to remand the defendant to the Crown court to be dealt with, we would face yet further delay.
      Far better to cut out that circuitous route by sending the malefactor straight back to the sentencing Crown court. I wrote to the Home Secretary about that two or three weeks ago. I dare say that General Pinochet has been rather more on his mind than my letter, but I hope that either the Minister of State or the Home Secretary will in due course provide me with an answer that makes sense.
      I am rapidly running out of time, but I want briefly to flag up one or two other points. Conclusion 20 of the Select Committee report deals with pre-sentence reports. My experience, for what it is worth, is that probation officers make it clear in drafting such reports that, if there is no available remedy other than custody, custody will be the one that they recommend. They are no longer shy
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      about making that recommendation. I hope that the House and the Home Affairs Committee will take that point from me.
      I urge the Government not to be persuaded by any argument that the probation service should have its name changed to some modern, "relevant" or "cool" title. We all understand the term "probation service". It would be sensible to have a national service, and I trust that that can be looked at carefully, but there is absolutely no need whatever to change the name of the service.
      I support conclusion 36, about better use of suspended prison sentences. They are a weapon in our criminal justice system that has been allowed to fall away. I hope that the Government will bring them back.
      At the risk of sounding fatalistic, I draw attention to paragraph 46 of the Select Committee report. Simply because of time constraints, I shall not refer to it in detail, save to draw the House's attention to the headline "Reoffending, deterrence and rehabilitation". The two-year reconviction rate for all types of sentence is horribly high. It is more than 50 per cent. and for some sentences as high as 74 per cent. That applies to probation orders with the requirement to attend a probation centre.
      Thus, nothing that we are suggesting or considering provides the perfect answer. I simply ask that the Government look calmly and sensibly at this excellent report, and I urge all hon. Members not to bully judges into producing speedy answers to impossible questions.
      6.50 pm
      Mr. Martin Linton: I listened carefully to what the hon. and learned Member for Harborough (Mr. Garnier) said about magistrates and judges. I also listened with great interest to the speeches of the hon. Member for Woking (Mr. Malins), who is a judge, and my hon. Friend the Member for Welwyn Hatfield (Miss Johnson), who is a magistrate. I am a member of the Home Affairs Committee but have no experience whatever in the criminal justice system. Although that is often a disadvantage, it is sometimes an advantage, because it means that I see the issues with fresh eyes.
      I wish to concentrate for a few minutes on a rather buried aspect of the report. The report seeks to answer two questions: first, are community sentences effective; and, secondly, do sentencers make enough use of community sentences? The Committee drew attention to the Home Office research on that subject. When dealing with such an issue, the probation service is usually under examination and must answer questions on the effectiveness of community sentences. However, the magistracy and the judiciary should also be under the spotlight.
      One of the tables produced by the Home Office research study shows that magistrates were asked whether they were satisfied with the work of the probation service, and 89 per cent. said that they were very or quite satisfied. The same figure applied to stipendiaries, and 85 per cent. of judges were satisfied. It is therefore wrong to say that people within the criminal justice system are greatly dissatisfied with the probation service. However, if we put the question the other way round, and ask whether we should have complete confidence in, and satisfaction with, the magistracy and the judiciary, we may reach a different conclusion.

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      The Home Office also asked magistrates, stipendiaries and judges whether, in the previous two years, they had visited probation centres or community service placements. The hon. and learned Member for Harborough referred to that research. The survey showed that fewer than half the magistrates had visited a probation centre, and that 82 per cent. of stipendiaries had not visited a probation centre. More probation offices had been visited, but that is not surprising, as they are often in the court building.
      Community sentences are the most common sentence. In the past two years, three quarters of the magistrates and judges, and 93 per cent. of stipendiaries, had not visited a community sentence placement or even seen one in operation.
      Whatever the wisdom or otherwise of their sentences, it is asking for trouble to hand out a sentence when one has no recent experience of what it involves. We would find it extraordinary if the director of a food company had never tasted his products or if the director of a car company had never driven the car that the company produced, but very few of those who are essentially the directors of the criminal justice system bother to see for themselves the effect of the sentences that they hand out. I do not have the figures for the frequency of prison visits by magistrates, judges and stipendiaries, but one can have little confidence in them, given the frequency of their visits to probation centres.
      The hon. and learned Member for Harborough quoted with approval Lord Bingham's comment to the Committee that it was desirable that people should look at what was happening, and that he was slightly surprised that more had not done so. When he gave evidence to the Committee, he went no further than to encourage judges to make more frequent visits. The hon. and learned Gentleman said that, although he agreed with that, we should not push judges because they were busy people.
      If sentences are to be effective, sentencers must know what they are sentencing people to. The magistrates themselves say that. The Home Office research study asked magistrates and stipendiaries whether they ever learned about the outcome of the community sentences that they handed out, and 87 per cent. of magistrates said that they either never heard, or only occasionally heard, the outcome. The figure for stipendiaries was slightly lower because they are, after all, full-time. Even so, two thirds of them had either never heard of the outcome, or heard only occasionally.
      Magistrates were then asked whether they needed to know more about the outcome of their cases—the very point made by the hon. and learned Member for Harborough. Two thirds of the magistrates accepted that they needed to know more, despite the fact that most of them had just admitted that they rarely knew anything about them. Thus, they see the fault in the system: they pass sentences without knowing what they are doing.
      The Home Office has started community sentence demonstration projects in Shrewsbury and Teesside, one of which we visited, to try to make magistrates and judges more aware of the sentences that they hand out. The National Association for the Care and Resettlement of Offenders pointed out that, unlike doctors, sentencers always see their failures return to court but never see their successes. If we are to have confidence in community sentences, it is absolutely vital that magistrates and judges take the trouble to visit placements so that they know what they are sentencing people to.
      6.57 pm
      Mr. David Ruffley: This interesting debate and the report that gives rise to it are uppermost in our minds for one reason: the increase in the prison population and the estimates for that increase. Five years ago, some 43,000 people were in prison; in September this year, that figure rose to 66,000, and the projection for the next seven years is more than 82,000. That represents a serious problem for the Government by any standard, not least because of the resource implications for the Exchequer in funding such a potential expansion in prison capacity.
      I shall focus my remarks on two questions. First, how have we reached this position, and what policies have this Government and the previous Government pursued to get us to this position? Secondly, what radical solutions, which would amount to alternatives to custodial sentences, have been outlined in the report?
      I shall begin by summarising the main thrust of criminal justice policy in the past 10 years. On the one hand was the view that prison is an expensive way of making bad people worse—a view largely held by the former right hon. Member for Witney, now the noble Lord Hurd; on the other is the view that prison works—a view expounded by my right hon. and learned Friend the Member for Folkestone and Hythe (Mr. Howard). I think that prison does work.
      I take issue with the hon. Member for Sunderland, South (Mr. Mullin) and other Labour Members because, in the three years until the general election, recorded crime fell by 10 per cent. The Government have been the happy beneficiary of that fall in recorded crime. They have not sought to reverse the policy that the previous Administration established to achieve that fall. The Minister is happy to endorse the sentencing regime that we put in place. If Labour Members are not happy with this tough sentencing regime and go for more soft disposals, the crime figures may not be pegged at present levels. That issue has not been addressed in the debate.
      Ms Diane Abbott: Is not the point about criminal policy not whether solutions are hard or soft, but whether they are effective?
      Mr. Ruffley: The hon. Lady is right. No one doubts that, in the three years to 1997, recorded crime fell. That fall in crime coincided with the implementation of a tougher sentencing regime by Home Office Ministers in the Conservative Administration. That was manifestly a policy of containment. It may sound crude, but we all know intuitively that, if hardened criminals are locked up, they are not on the streets committing crime. As a rough rule of thumb, it is estimated that two thirds of recorded crime is committed by one fifth of hard-core serial offenders, so a policy of containment goes some way towards cutting the crime rate. The evidence shows that that has happened—certainly up until 1997. I believe that the trend is a decline in the rate of increase of recorded crime.
      Mr. Mullin: If the hon. Gentleman refers to my speech, he will find that I dealt with that point. I said that prison was effective as a form of containment, although it did not prevent people from offending when they were

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      released. A couple of other factors also account for the fall in crime. One is the 40 per cent. reduction in unemployment in the relevant period, and the other is the fact that policing in the past few years has been much more effective.
      Mr. Ruffley: The hon. Gentleman is right. There have also been improvements in education and training. The hon. Member for Birmingham, Erdington (Mr. Corbett), in his eloquent speech, spoke for everyone in the Chamber. Innovative youth projects—which in the jargon are referred to as diversionary disposals—better education and training, more economic activity and more job creation all contribute to a falling crime rate. It is not fair to characterise the view of Conservative Members as being that prison works, because there is much more to it than that. The argument has not been made that prison does not work. I do not want to labour the point, but tougher sentencing has resulted in a demonstrable fall in crime. That fall has coincided with a palpable change in sentencing policy.
      There has been a change in culture, which is evident when politicians on both sides of the House talk about crime, responsibility and the causes of crime. I had a ringside seat in 1992–93 when I was a special adviser to the then Home Secretary, my right hon. and learned Friend the Member for Rushcliffe (Mr. Clarke). When we moved into the Home Office in 1992, we were warned by people whom I would broadly describe as on the right of the political spectrum that we would face a liberal conspiracy. It was said that a large part of the criminal justice establishment, some senior Home Office officials, the National Association for the Care and Resettlement of Offenders and the Howard League for Penal Reform were Guardian-reading, nut-cutlet-eating, open-toed sandalwearing—[Interruption.] This is a caricature. It was a widely held view that there was a liberal conspiracy to frustrate Conservative law and order policies. [Interruption.] The Minister of State may laugh, but I am describing the caricature: this is not necessarily my own view. It was a caricature, but it was not far off.
      Many of the initiatives that the then Home Secretary wanted to take were frustrated. They were met with ill-concealed opposition from many civil servants and voluntary bodies. I could give hon. Members a long list of examples. For instance, little progress was made on the proposal for secure training centres, much to the annoyance of my right hon. and learned Friend the Member for Rushcliffe. The proposal in the Criminal Justice Act 1993 that gave courts the power to take into account previous convictions when setting sentences was fiercely contested, as were provisions to introduce mandatory sentences for bail banditry and to make it an aggravating factor in any offence.
      Ms Abbott: I cannot let those remarks about Home Office professionals pass. There is not, and never has been, a liberal conspiracy in the Home Office—merely people who have to deal with the facts and with the nitty-gritty of containing vast numbers of people. They have to look further than the next conference speech.
      Mr. Ruffley: If a liberal conspiracy truly existed, it has now come to an end. The new Home Secretary has taken
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      on board lock, stock and barrel the tough law and order rhetoric—[Interruption.] The Minister shakes his head, but he knows as well as I do that the Home Secretary, in a well-publicised visit to New York, looked at radical and—dare I say it—right-wing law and order initiatives.
      The Minister of State, Home Department (Mr. Paul Boateng)indicated dissent.
      Mr. Ruffley: The Minister dissents, but I am sure that he will not dispute the fact that the Home Secretary talked about getting squeegee merchants off the streets and about zero tolerance. That is a measure of the progress that the Conservative Administration made. We turned the tide, and made it acceptable to talk tough on law and order. The best evidence for that proposition is the language that the Home Secretary now uses, even if the Minister of State does not. Those are the facts.
      7.8 pm
      Mr. James Clappison: This has been a good debate. I congratulate the Committee and its Chairman on their choice of this important subject for an inquiry, which has led to the debate. I recognise that much hard work has been put into the report. We have heard some interesting contributions, not least from my hon. Friends the Members for Woking (Mr. Malins) for Aldershot (Mr. Howarth) and for Bury St. Edmunds (Mr. Ruffley) and my hon. and learned Friend the Member for Harborough (Mr. Garnier). There have been interesting speeches from hon. Members on both sides of the House. The Chairman of the Committee, the hon. Member for Sunderland, South (Mr. Mullin), did the House a service by opening the debate in a balanced way.
      This is an important subject, because we need community sentences and alternatives to prison sentences that are effective and credible, and command the respect of sentencers and the public. To command respect, those sentences must be used in appropriate cases. They need to be tough, and must not be seen as a soft option. I apologise to the hon. Member for Newport, West (Mr. Flynn) for using the word "tough", but, in this context, I do not think that it will grab the tabloid headlines. Those sentences should, as far as possible, be rehabilitative.
      Contrary to what may be believed in some quarters, the previous Government were, in my view, responsible for some creditable achievements in regard to community sentences. As the Select Committee noted, the Criminal Justice Act 1991 supplies the general framework for sentencing. The Act was not the perfect article when it was introduced; it needed some refinement, which it received. We heard some interesting observations from my hon. Friend the Member for Bury St. Edmunds about the background to that refinement. Today, however, the Act is generally accepted, and was accepted by the Committee, as an appropriate framework.
      It must be right for the public to be protected from people who commit serious offences, and those who put the public at risk of grave harm as a result of violent or sexual offences must be given long prison sentences. I was interested by much of the speech of the hon. Member for Colchester (Mr. Russell), but I must gently demur from what he said about what determines prison numbers. I believe that they should be determined by what is needed

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      to protect the public, rather than by any sort of international comparison or international league table. The protection of the public should be paramount.
      When offences do not fall into the categories that I have described, the public, and sentencers, should feel confident about community sentences. It should be recognised, however, that even less serious offences—offences that do not fall into the categories outlined in the Criminal Justice Act—which sentencers do not consider call for immediate custodial sentences, are nevertheless serious in themselves. They are serious for members of the public in general and, in particular, for the victims. Members of the public, and specifically victims, need to be reassured that community sentences are effective and tough.
      In recent years, we have seen a good deal of what I consider to be toughening of established community sentences. For instance, national standards for probation have been introduced. We have also seen the introduction—which I welcome—of new community sentences: new options for sentencers, and greater flexibility for them. Let me give two examples. Combination orders, to which the Committee referred, combine probation and community service. In paragraph 28, the Committee said of the orders:
      "First used in 1992, their use has increased each year since then.
      That is because they have been seen to be effective in practice.
      The other example, which has been mentioned in the debate, is that of curfew orders with electronic monitoring. Those orders, which have been pioneered in recent years, amount to a real deprivation of liberty for offenders, falling short of imprisonment. They require offenders to be in a certain place—usually their homes—for a certain length of time, and to be subject to electronic monitoring to ensure that happens. The orders have been given trials in three areas, and are now being extended to more. There is evidence—which the Committee identified—that they are seen as tough and effective. Perhaps the best evidence came from the deputy justices' clerk who said—he is quoted in paragraph 161 of the Committee's report—that the toughness of the disposal was shown by
      "the reluctance of solicitors to propose it as a sentencing option for their clients."
      That is indeed good evidence.
      My hon. Friend the Member for Aldershot reminded us gently of the background to the introduction of electronic monitoring, and the advice that we received from certain quarters when it was introduced. I do not want to go too far down that road, but I recall that we received certain advice based on considerations of not just practicability but principle—as my hon. Friend rightly said.
      We must enter one reservation about the proposed use of electronic monitoring today. We welcome the use of home curfew as a sentence in its own right, but not as a way of securing the release of those who have been sentenced to imprisonment. We feel—we made our view known during the passage of the Crime and Disorder Bill—that it cuts across the principle of honesty in sentencing: the principle that sentences should mean what they say. We fear that the use of home curfew in this way will affect public confidence in sentencing.
      Let me now deal briefly with alternative community sentences for three particularly important groups of offenders. First, let me discuss female offenders,
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      who have already been mentioned today. The Committee noted that the female proportion of the prison population has been growing, and that growth has accelerated recently. In paragraph 225, it noted
      "the importance of providing alternatives to prison, and probation programmes in particular, which tackle the problems presented by women offenders specifically."
      We welcome the Committee's attitude. The increase in the number of women in prison must be a matter of public concern. We note what the Government have said in their response, and we encourage their pathfinder programmes, but we hope that they will take the problem of women offenders seriously, and will consider what more can be done about it.
      Another important category of offenders is drug misusers, whom my hon. Friend the Member for Woking rightly described as the biggest problem in the criminal justice system. Anyone who comes into much contact with the system will be driven to the same conclusion. Drug misuse is a serious matter. The Committee referred to the alarming extent of crime related to drug abuse. Its members visited Dumbarton, where they saw the despair that is caused by drug misuse and drug-related crime. Unhappily, they could have observed similar scenes in many other places throughout the United Kingdom.
      In their response, the Government referred to a drug treatment and testing order, but that will not be fully available until 2000–01, and then only in the case of relatively serious offences. We think that there is good sense in the Committee's recommendation
      "that the Government make it an objective that all drug misusing offenders given community sentences have access to appropriate treatment."
      It must be sensible to make treatment as widely available as possible where it is needed.
      Another important subject is that of young offenders. We feel that there should be appropriate alternatives to custody, some of them tailor made for young offenders. My hon. Friend the Member for Aldershot made some good points about that. We all want good schemes that give youngsters self-confidence. I note that the Committee reached similar conclusions on a subject that is something of an interest of mine. In paragraph 191, it says that it
      "must note the continuing concerns raised by sentencers that there is inadequate provision of secure places for young offenders … Although a programme to expand the number of places was put in hand by the previous Government, the Home Office has estimated that the new places will not be sufficient to meet the demand."
      I do not wish to introduce too discordant a note at this late stage, but I know that the Minister of State had some responsibility in this regard in his last ministerial job. I believe it was the Minister of State who told me, in a written answer, that the Government had provided six additional places for young offenders so far. Let me alert him to the fact that we shall be taking an interest in the subject. The Committee was right to note that sentencers are concerned about it.
      The general issue of community sentences is important. We want constructive and effective alternatives to custodial sentences, which are substantive and sound in practice. The Committee did a great deal of work, and we recognise that. We note that the background is the "what works" debate. At this late stage, I shall not embark on a detailed evaluation of reconviction rates and what has been done in that regard, but I think I am entitled to make

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      one observation: the background is a falling crime rate. We want the rate to continue to fall, and we think that community sentences can make a contribution. We want sentences that command the confidence of sentencers and the public, and do not represent a soft option.
      This is a worthwhile process of building on what has been achieved in the past, and we look forward to the toughening of community sentences in the future.
      7.19 pm
      The Minister of State, Home Office (Mr. Paul Boateng): This has been an excellent debate. It has been good-humoured and utterly lacking in party political rancour, except for a little deviation at the end from the hon. Member for Bury St. Edmunds (Mr. Ruffley), who started yapping a bit. Apart from that, it has been good-humoured and well-informed, as well it might because we have been considering important work from a Select Committee that has done the House a great service through the careful and considered way in which it has approached the subject.
      The Select Committee has endorsed much of what the Government have already done and taken forward with the Crime and Disorder Act 1998 but—this is important—it has also highlighted some areas to which we and, indeed, the nation need to give greater attention. That is particularly welcome. Those issues are not a matter simply for Government. They need to engage the whole community as we move in partnership to contain and to reduce crime and criminality.
      We should be under no illusions about the subject. My hon. Friend the Member for Sunderland, South (Mr. Mullin), who chairs the Select Committee with such distinction, made it clear that the Committee as a whole—each member of the Committee who has spoken has given weight to the proposition—recognises that what is needed is rigour: intellectual rigour and a rigorous approach to disposals, whether prison or alternatives to prison. What we cannot have is a situation in which we do not recognise that intervention needs to be targeted, tough—we make no apology for using that word—and effective.
      Mr. Ruffley: Will the hon. Gentleman give way?
      Mr. Boateng: No, I will not give way.
      We are about reflecting society's determination that we should have a criminal justice system that recognises a place for punishment and retribution, and that punishment and retribution go alongside rehabilitation and reform. Unless we have a balance between the two, we are unlikely to succeed.
      I make two important points in response to the debate. First, in talking about alternatives to imprisonment, we need to recognise that sentencing is, properly, dealt with by the courts. Many offenders can be dealt with in the community, which should be encouraged where appropriate, but there will always be some for whom prison is the most appropriate punishment. They must find that punishment at the hands of our courts.
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      The point has been made, not least by the hon. Member for Woking (Mr. Malins) and the hon. and learned Member for Harborough (Mr. Garnier), who have first-hand experience of the sentencing process, that the courts do not take that duty lightly. They wish to consider a range of alternatives in sentencing. It is important that we should assist them by ensuring that they have that range. The Government have with alacrity set about the task of giving them scope for making the most appropriate disposal.
      We recognise that there is a job to be done, as the Select Committee has said, to ensure that the people who are responsible for sentencing are properly informed about the range of sentences open to them. It does not necessarily require—although, as the Lord Chief Justice suggested, it can be of assistance to the sentencer, whether a stipendiary, a lay magistrate or a judge in the Crown court—a visit to the centre of alternative disposal. It is possible for sentencers to be informed in other ways. We plan to issue guidance in the new year about the role of probation staff who work in courts to enable them to include advice to sentencers, providing them with the necessary information and statistics about the probation programmes that are available locally. We look to them to use that information.
      Secondly, we have to ensure that we give courts the powers that they need. That is why we have introduced new measures in the Crime and Disorder Act to enable courts to deal more effectively with young offenders. We have also introduced measures such as the drug treatment and testing order.
      We believe that it is important to ensure that, in prisons, there is a regime that does all that it possibly can not only to keep drugs out—that is why we emphasise creating in some prisons completely drug-free wings, where it is possible to provide the necessary alternative treatments to counteract offending—but to educate prisoners to enable them to come to terms with the drug misuse that led to their being there in the first place.
      That must not be a soft option. It is a testing option for those who submit themselves to those programmes. It is important that entry into the programmes is voluntary, because otherwise people do not have the motivation to come to grips with their drug problem.
      The Government are determined to ensure that those who offend against society, whether they are in prison or have been given an alternative sentence, face up to their offending behaviour in the first place, and recognise that they need to equip themselves with the means to play a full, constructive and honest part in society.
      It is great pity that the debate is constrained by time, because I should like to comment more on the important points that have been raised, but let me briefly go through some of them. The Select Committee rightly emphasised the importance of effective, evidence-based practice. That is why, when, for example, we look at the role of restorative justice as an alternative to custody, we build on the research evidence that is being gathered, for example, in the Thames Valley police area. Real progress is being made in developing restorative justice to make it clear that it is not a soft option.

      541
      Anyone who talks to the chief constable of Thames Valley police gets the clearest impression that he is absolutely committed, as are the justices in his area, to ensuring that young people, in particular, face up to the offending behaviour that got them there and do not, as they all too often do in youth courts, shelter behind lawyers, with those young people and their parents not confronting the offending behaviour.
      It is important to develop a joint system within the Prison Service. That is part of an action programme that includes several other aspects. It is about the accreditation of programmes that are available in prison to combat offending. It is also important to ensure that we work with the probation service to guarantee that those who are sentenced to community service recognise that, where they breach that service, they will certainly return to court, so that they can be disposed of in a more appropriate way. A community service order must not be seen as getting away with it. I accept that a strong case has been made for renaming the order, and we are actively considering that.
      I hope that, from my brief response, members of the Select Committee, who have worked so hard on the report, will have a sense of our determination to take the issues forward.
      I had the pleasure of going with my hon. Friend the Member for Birmingham, Erdington (Mr. Corbett) to a young offenders secure installation that is run by the Department of Health in his constituency. That installation is addressing the very issue of ensuring that courts have available to them places in which intensive intervention in the lives of those young people is possible. Very many of the young people in such installations are damaged, and come from homes in which they simply have not had a chance. Moreover, they have been failed repeatedly not only by the criminal justice system but by social services and an array of agencies that should have been working to ensure that they did not offend initially.
      Across Departments, the Government's commitment is to ensure that we learn the lesson of early intervention that is taught by the Home Affairs Committee's report. We shall learn that and other lessons. Together, in the spirit that the Committee has demonstrated, we can and shall make a difference.
      Question deferred, pursuant to paragraph (4) of Standing Order No. 54 (Consideration of estimates).

    Class 1, Vote 1

      New Deal
      [Relevant Documents: Seventh Report from the Education and Employment Committee of Session 1997–98, on Pathways into Work for Lone Parents, HC646, and the Government's response thereto, HCI 122; Eighth report from the Education and Employment Committee of Session 1997–98, on New Deal Pathfinders, HC1059, and the Government's response thereto, HC1123; Department for Education and Employment and Office for Standards in Education Departmental Report: The Government's Expenditure Plans 1998-99, Cm3910.]
      Motion made, and Question proposed,
      That a sum, not exceeding £6,826,077,000 be granted to Her Majesty out of the Consolidated Fund, on account, for or towards defraying the charge for the year ending on 31st March 2000 for expenditure by the Department for Education and Employment on voluntary and special schools; the Assisted Places Scheme; the provision of education for under-fives; City Colleges and other specialist schools; grant-maintained schools and schools conducted by Education Associations; music and ballet schools; the school curriculum and its assessment; the youth service and other educational services and initiatives; careers guidance and services; payments for or in connection with teacher training; higher and further education provision and initiatives; loans to students, student awards and other student grants and their administration; the payment of access funds; reimbursement of fees for qualifying European Community students; compensation payments to teachers and staff of certain institutions; expenditure on other central government grants to local authorities; the provision of training and assessment programmes for young people and adults; initiatives to improve training and qualifications arrangements and access to these; the promotion of enterprise and the encouragement of self employment; payments for education, training and employment projects assisted by the European Community and refunds to the European Community; events associated with the UK presidency of the EU; the UK subscription to the ILO; help for unemployed people; the promotion of equal opportunities, disability rights, childcare provision and co-ordination of certain issues of particular importance to women; the payment of certain fees to the Home Office; the Department's own administration and research and that of Capita; information and publicity services; expenditure via Training and Enterprise Councils and amounts retained by them as surpluses and spent by them on training; other initiatives within their articles and memoranda of association; expenditure in connection with the sale of the student loans debt; and on expenditure in connection with the Welfare to Work Programme and Millennium Volunteers.—[Mr. Andrew Smith.]
      7.31 pm
      Mr. Derek Foster: I am delighted to be able to speak in this debate, and should like to thank the Liaison Committee for choosing to refer to the Education and Employment Committee's two reports.
      My next task is to praise the members of my Committee. As a veteran talent spotter within the parliamentary Labour party, I have never seen such an array of current and future stars—and that includes the Liberal Democrat Members and our Conservative colleague, the hon. Member for Altrincham and Sale, West (Mr. Brady), who unfortunately cannot attend this debate as he is attending his child's carol service. All Committee members have an enormous amount to contribute, and I am very proud to chair the Committee.
      We should like also to thank the Chancellor for giving us £5 billion in this Parliament with which to advance the flagship new deals. It is at least £5 billion more than was provided by the previous Government

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      I should like to thank the Secretary of State for Education and Employment and the Minister for Employment, Welfare to Work and Equal Opportunities for creating a listening and learning Department.
      Mr. Paul Keetch: Before the right hon. Gentleman concludes his thanks, should he not also thank the utilities that provided the money so that the new deal could start initially?
      Mr. Foster: I cannot thank them, because they did not want to part with the money. We made them do so—and there is the difference between Labour and Liberal Democrat.
      As I said, I should like to thank the Secretary of State and the Minister for creating such a listening Department. All our experience—I think that it is shared by hon. Members from every party—is that reasonable suggestions made to either the Secretary of State or the Minister are listened to and examined. Moreover, if they are practicable and sensible, they are likely to be implemented. That is not true in all Departments.
      Mr. Willetts: Which ones?
      Mr. Foster: I shall not name them today, but may go into a different mode on a different occasion.
      I praise the liberation of the Employment Service. I was one of those who felt initially that the Employment Service—the agent of the harsh benefits system—was the wrong agency to be implementing the new deal. I doubted that that agency knew anything about being a sharing and caring organisation that could help younger and older people to negotiate all the difficulties of education and learning. However, I was wrong. The Employment Service—with its very able chief executive, Leigh Lewis—has through its 35,000 staff implemented a culture change. Those staff have been liberated from implementing a harsh benefit regime to doing what they enjoy doing: assisting people in finding work.
      The welfare-to-work programme is absolutely central to reforming the welfare state. Moreover, getting people into jobs or training and developing them—whether they are in or out of work—is central to the Government's excellent supply-side measures. Reform of the welfare state and supply-side measures together should yield far more employable people—who are far more able to get a job, to keep a job and to find another job if they lose the first one.
      I should like to mention Robert Reich, who hon. Members will know was Bill Clinton's previous Secretary of Labour. He said that running a successful economy and generating jobs was a bit like a three-legged stool. The first leg was to have a sufficient number of employable people; the second was to have an abundance of adaptable organisations; and the third was to have adequate demand. The three goals are mutually reinforcing and interdependent, and they must be pursued simultaneously. The Government are trying to do that. They are not always succeeding, but they are certainly trying.
      If the new deal for 18 to 24-year-olds, the new deal for those over 25, the new deal for lone parents and the new deal for disabled people all succeed—I believe that they
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      will; they have certainly made a very good start—we will end up with many more employable people, thereby enabling the economy to run at a higher growth rate than otherwise would have been possible.
      Similarly, we will be able to respond to rapidly changing market opportunities if we succeed in making all our companies—global companies, small and medium-sized enterprises, and micro-employment and selfemployment—more adaptable by investing in research and development; by energising a culture of innovation; by training, developing and properly managing staff; and by being entrepreneurial, which is a very rare skill about which most us know nothing. If we succeed in creating such adaptable organisations, we will also enable our economy to grow much faster than would otherwise be possible.
      In the past few years, the United States of America—to which we tend to look—has created millions of jobs by making people employable and creating adaptable organisations. Nevertheless, Robert Reich eloquently said that, although they created millions of jobs, many of those were "crap" jobs. Although that is not the type of language that I usually use—he said it, not me—he was right.
      I do not want to deal with the demand side of the equation, as that would tempt me to deal with the issues at far greater length.
      I shall deal now with the two reports on which this debate is centred. Hon. Members who have read "New Deal Pathfinders" will see that our recommendations are on pages 24 to 27. I should like to mention just two of them. The first is recommendation 2, about personal advisers, and the second is recommendation 10 on the take-up by employers.
      The personal adviser is rapidly becoming the agent of transformation of the Employment Service. The Committee wants that pursued vigorously and rigorously throughout the new deal, particularly if the responsibility of that personal adviser begins before a person's entry into the new deal and continues throughout its course and for some time after. If a continuity of support and advice is available, people will have more success in entering the labour market and staying in it.
      In Australia, we discovered that the father of the new deal—the working nation—failed to a certain extent because the commitment of the private sector was not engaged. The Government have been extraordinarily wise in getting private employers signed up so readily. They went for the global players first—the people with the big reputations whom everyone looks up to. That enabled the small and medium enterprises to follow through.
      The Government have been more successful than I expected. Some 30,000 employers have already signed up. The Employment Service has increased its market share to upwards of 32 per cent. In Australia, the figure was only 20 per cent. It is remarkable that a publicly led employment service has managed to secure 32 per cent. of the market and rising, whereas the private-led employment service in Australia has only 20 per cent. at the moment, although that could, and probably will, change.
      Mr. David Willetts: The right hon. Gentleman is talking about the important issue of

      545
      employer involvement in the new deal. I am sure that he is aware of the letter from Chris Humphries, the director general of the British chambers of commerce, who says:
      "Many companies report little or no contact from the Employment Service and so a severe lack of information … is magnifying their confusion and leading to significant disillusionment."
      I should be interested in the right hon. Gentleman's comments on those concerns expressed by employers.
      Mr. Foster: I have a high regard for Chris Humphries and I shall take that comment seriously. More important, my right hon. Friend the Minister has heard the comment. I am sure that he will take it seriously, and will do what he can to rectify the problem.
      Mr. John Healey: Will my right hon. Friend give way?
      Mr. Foster: I have no time. I am sorry, but I have to finish in two minutes if I am going to keep faith with my colleagues. I should love to be able to give way, but I must finish shortly.
      The recommendations on the lone parents scheme are on pages xlii to xlvi. There is a helpful summary of them on page xlii in paragraphs 1 and 2. I want to mention two elements briefly. The first is education and training, which we considered immensely important. We found the Government's response dismissive—if I may say so kindly to my right hon. Friend the Minister—and we think that they are mistaken. We want to get lone parents out of the poverty pay market. There is no virtue in them being locked into poverty pay, because they would be only marginally better off than if they had not joined the labour market. We want to create ladders of opportunity that they can climb up, allowing them to progress and have more income, better opportunities and better jobs. Education and training is the secret to that.
      My final point—well, I shall make another if I have time—is transport. In all the new deals that we have examined, it quickly became clear that the ability of people to get to where the job opportunities were was crucial to the success of the schemes and of the labour market.
      One of the acid tests of the new deals is whether they have street cred. It does not matter what we think. What matters is what the people concerned think, particularly the young people. If they write the schemes off, they will not succeed. At the moment, that is not happening.
      The other acid tests are how the schemes cope with the disadvantaged and how they cope with ethnic minorities. What I have seen so far does not impress me greatly. The Government are trying to deal with the problems. Young people from the ethnic minorities have a far greater share of unemployment than the rest of society. Dealing with that is a big challenge for the Government.
      I thank the House for listening to my rather poor speech. I look forward to hearing the other contributions.
      7.46 pm
      Mr. Paul Keetch: I am delighted to follow what was not a poor speech but an excellent one by the right hon. Member for Bishop Auckland (Mr. Foster). As the only Opposition member of the Select Committee present, I thank him for the courtesy that he gives to me
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      and the other members. He may be surrounded by rising stars—I see one or two next to him and behind him—but I am sure that his star is not yet in decline.
      The problems and hardships of lone parents are considerable. The Liberal Democrats recognise how the new deal affects them. I shall be brief in my contribution to this short debate, because I want as many people as possible to have the chance to speak. I shall concentrate on the new deal for young people and specifically the results from the pathfinder areas.
      There are direct and indirect lessons from the experience of the pathfinder areas. Some of those lessons have not yet been addressed by the Government. The report is old and time has moved on, but I hope that the Minister will respond to three specific points.
      The first was mentioned by the right hon. Gentleman in his closing remarks. People from ethnic minority backgrounds have made relatively poor progress under the new deal. During the Select Committee's visits to the west midlands in March, I asked about the participation rates among the ethnic minorities. At a meeting at Bilston college, people from 20 or so social groups from a wide range of areas came to talk to us. I asked them, in their judgment, what percentage of people from the black and Afro-Caribbean communities bothered to sign up to the jobseeker's allowance. Was it 70 per cent.? Was it 60 per cent.? They told me that in their experience less than 50 per cent. of young people from the ethnic minorities bothered to sign up for the jobseeker's allowance. That means that 50 per cent. are excluded from any help under the new deal.
      Such schemes are of value only if they help those most at risk of exclusion from the labour market. It is easy to design employment schemes to get middle-class, well-to-do white people back to work. We have to judge schemes by how they affect those most at risk. If the new deal fails such groups, it will be no better than its predecessors.
      I welcome the Government's decision to provide fuller statistical information on the progress of ethnic minorities in the new deal and beyond, as long as that involves producing initial survey material on those who are not claiming the jobseeker's allowance as well as those who are. We need to know what is happening to them.
      The Lambeth pathfinder has a large percentage of people from ethnic minorities. I drew the area to the Minister's attention in an oral question on 19 November. I pointed out the poor progress of young people from Lambeth in the subsidised employment option. Discrimination is an easy accusation to make, but difficult to prove. However, there is worrying evidence that employers are more reluctant to offer subsidised jobs to young people from the ethnic minorities than to people from the white community. In his reply, the Minister tried to reassure me that the glass was "half full". That is no comfort to those who find themselves in the empty part of the glass.
      Ms Abbott: Is the hon. Gentleman aware that the same problem affected the old Manpower Services Commission programmes? Employers were unwilling to take on black young people even when they were well qualified, so they tended to be shoved into the voluntary sector. We have to be particularly watchful and prevent that from happening under the new deal.
      Mr. Keetch: The hon. Lady is right. I have one or two proposals that might solve that problem.

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      It is no comfort to those in the empty half of the glass, especially if the Employment Service monitors only half the number of young, black unemployed people who register for the jobseeker's allowance. If the Department is still only considering setting up an employer database that could tell us where the subsidised vacancies were and the number of starts on the employment option by employer, how can we identify best practice and improve the scheme? How can we ensure that the glass will ever be full? As long as members of the ethnic minorities have only a 50 per cent. chance of obtaining subsidised employment in Lambeth or in any inner city, the new deal will be no deal for them.
      The first essential step is to collect the right information which must then be used to combat bias in the system. We want a scheme that works for the long-term unemployed. We do not want to pretend that half a glass is enough.
      My second concern is the cost of the scheme. I am talking not about the so-called costings produced by the Conservative party, which is not known for its book-keeping, but about the discrepancy between the replies that my hon. Friends and I have received from the Minister.
      In May, I was given costed options—other than the subsidised employment option—of about £4,000 per person. Last month, my hon. Friend the Member for Bath (Mr. Foster) received a reply costing them at £2,600 per person. Only yesterday my noble Friend Lord Tope was informed by the Minister of State in the other place that the cost was only £1,000 per person. Last week the Minister of State told the Select Committee that that was a result of the contracting process. Yesterday in another place we heard a slightly different tale. Does any Minister in the Department know the answer?
      The Select Committee would have had a better idea and a better view of the progress of the pathfinder areas, had more information about costing in general and the contracting process in particular been made available. For example, the Government have finally released the specification document in respect of the new deal pilots for the over—25s on which all those tendering for the work based their bids. I have it here. In that document, the Government make it clear to potential bidders that £1,300 per person is being made available. I do not recall the Committee being shown a similar document for the new deal for young people. If such a specification was produced, I suggest that the Minister places a copy in the Library. Perhaps he could also refer to it and let us know the figure. Was it £4,000, £2,600 or £1,000?
      Thirdly, I want to refer to the planning assumptions on which the scheme was based. The specification for the over—25 pilots shows just how limited the Government's ambitions really are. It states quite clearly that the pilots should do "at least" as well as the labour market would do by itself. That is hardly the "new beginning for Britain" that the Secretary of State for Education and Employment promised when he launched the new deal in 1997.
      After seeing the result of the pathfinder areas, the Liberal Democrats have yet to be convinced that the new deal programme will meet the claims made by Ministers or, more importantly, the needs of those whom it was designed to help.
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      In his response to the Centre for Policy Studies, the Minister of State said that the Government should not claim the new deal a success too soon. I could not agree more.
      7.54 pm
      Ms Diane Abbott: I am grateful for the opportunity to speak in tonight's important debate, because the new deal is a flagship programme for the Government. I take a keen interest partly because my constituency in Hackney has the highest unemployment rate in the south-east. It has particular problems with structural unemployment. The new deal must work in inner-city constituencies such as Hackney and Brixton and in Manchester and Birmingham or it will not have delivered.
      I have been in correspondence with the Minister about the new deal programme since last autumn and before that with his predecessor. This evening I want to touch briefly on three issues: the wider economic context in which the Government are attempting to roll out the new deal, the role of Reed as a private-sector partner in Hackney, and the particular issues relating to black young people. I congratulate the Select Committee on its important and interesting recommendations. I hope that Ministers will read the report again, and provide a more positive response on those issues.
      Let me start by addressing the wider economic context. The new deal can deliver on the hopes and aspirations that are riding on it only in the context of economic growth. It seems a long time since the Labour party spoke in terms of full employment. Ministers may sneer, but only full employment will combat the structural unemployment in Hackney and elsewhere in inner London and get people back to work. Unless the Government set full employment as their goal, many of the hopes resting on the new deal programme will remain just that.
      Certain aspects of the Government's economic policy—their monetary policy and the limits on public expenditure that account for poor public sector participation in the new deal—cause me concern. Anyone who mentions economic slowdown is accused of talking down the economy, but the manufacturing sectors are in recession and in time they will carry the rest of the economy in that direction.
      I make those points to stress that on its own the new deal is not enough. It must operate in the context of economic growth, and certain aspects of the Government's economic policy give rise to concern about the prospects for growth.
      I was particularly keen to speak tonight because Hackney is one of the two initial pathfinder areas with a private sector partner, Reed, for the new deal. I have no principled objections to a private sector partner. I share the reservations of some of my colleagues about whether the Employment Service is the best vehicle to deliver the new deal and there is no doubt that fresh thinking and fresh ideas are needed.
      I have worked closely with Reed in Hackney on the new deal. The team led by Chris Melvin comprises pleasant, approachable young men who seem eager to do their best, but the role of Reed in relation to the new deal in Hackney is problematic. Reed was a major donor to the party and Alex Reed is an adviser to the Department. In February, when I asked the Reed team about the process

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      of tendering, those nice young men said, "We did not tender on costs, but on the originality of our ideas." As someone who has worked in local authorities and knows how the tendering process works, I have never heard of a tender being awarded on that basis. When I asked those young men what was the value of the contract, they said, "We are still in negotiation on that."
      I have asked Ministers for more details about the tendering process. Although I do not expect a response tonight, I should like to know the value of the contract. I would prefer not to be fobbed off by arguments about commercial confidentiality. In awarding a contract to a group that makes big donations to the party, we must be like Caesar's wife—above reproach. We need greater transparency on Reed's involvement, the value of the contract and how the tender worked.
      Having received the contract in Hackney, Reed has won a series of new deal contracts. Although the people from Reed are pleasant and enthusiastic, they have yet to meet their own targets for putting people into work in Hackney, so it is strange that they should have been offered contracts in other areas.
      I am glad to have this opportunity to speak about issues relating to ethnic minorities, which, as other hon. Members have said, will be important in judging the success of the new deal. I remind those hon. Members who represent suburban or rural constituencies that do not have the ethnic minority populations of inner-city areas that, in London, the level of unemployment for young black males between the ages of 18 and 24 is approaching two thirds. I live in my constituency and with the consequences of those high levels of unemployment—the hopelessness and anger, and the social and, yes, criminal problems.
      If I have been persistent on the new deal and a nuisance to the Minister—and to the former Member for Enfield, North—it is because I feel so strongly about the ramifications of the high levels of unemployment, particularly among young black males. I accept that suggestions are now being made on how the new deal could tackle ethnic minority issues and that the Select Committee has made some interesting recommendations, but I regret that a concern for those issues was not, from the outset, built into the way in which the new deal programme was structured.
      When the contract was put out for tender in Hackney, for example, there was no specific requirement for expertise in and understanding of ethnic minority issues, and no one from the ethnic minorities was put on the selection panel. It would have been better if an understanding of those issues and of the structural problems had been required from the beginning; instead, we have belatedly to employ working parties and consultants.
      There is a danger that we are re-inventing the wheel. Those of us who worked in the community sector and in local authorities in the inner cities in the 1970s and 1980s know the difficulties of attracting young black people to such projects, of engaging them in those projects and of putting them in work. In their enthusiasm to be new and modern and to reach out to the private sector, the Government have ignored the wealth of knowledge and expertise among long-standing party members, albeit old Labour party members.
      Mr. Derek Foster: My hon. Friend makes some valid points, which were put to us when we went to—if I may use
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      the expression—the black country. Those hon. Members, including me, who do not have many members of the ethnic minorities in their constituencies, misunderstand the vigour and richness of the community life of black and Asian people, just as people often misunderstood the vigour and richness of the mining communities. One has to live in an area to experience such qualities. Does she agree that part of the problem is a failure of communication?
      Ms Abbott: Yes. I have had to draw Reed's attention to the existence of groups and networks. Indeed, I was surprised that Reed won the contract, as it does not have an office in Hackney; its knowledge of labour market conditions there is limited. As I said, the Reed people are pleasant and enthusiastic young men who are willing to learn. However, Reed put into Hackney a team that was all white and that had no experience of the area. Instead of bringing in experienced Reed staff, who at least would have had some knowledge of and contacts in the private sector, it recruited fresh people to deliver the new deal programme. Hackney had the down side of private sector involvement but not the up side—specialist recruiters and job placement people. Unless one lives in these places, it is easy not to understand the community's richness.
      Some of the people to whom the Committee spoke were dismissive of local organisations, but those organisations know their communities. They know why young black people may be unwilling to sign on and why they may be cynical; they know of the small ethnic minority businesses that may be able to deliver for the new deal. I regret that some of those issues were not built in to the new deal in the beginning. I regret that, in putting out tenders to organisations such as Reed, the Government did not include more specific stipulations to work in partnership with ethnic minority and other voluntary organisations with real knowledge of the communities. I am glad that statistics are now being collected, but a new deal programme that fails young black people in Hackney will fail all people in Hackney; it will fail to engage with some of the most pernicious problems of social exclusion in society.
      I refer to two recommendations in the Select Committee report to which I do not believe the Government have given an adequate response. Recommendation 21 suggests that capacity-building funds could be provided for some ethnic minority organisations. I ask the Government to reconsider that, as organisations—even black and Asian small businesses—exist that would take on new deal trainees. The Government must be more creative in engaging directly—not through consultants and experts—with the black and Asian community and with black and Asian businesses, which have a big role to play in the new deal. In the Hackneys, the Brixtons, the Moss Sides, the Handsworths, the only businesses—with the exception of the Sainsbury's and the big retailers—are small ethnic minority businesses. Again, if the new deal is not proactive in the inner city in involving ethnic minority businesses, it will not put our young people, black and white, back to work.
      I am also sorry that the Government dismissed recommendation 22, in which the Select Committee suggested a survey of unregistered unemployment. It is precisely because black young people are not on the electoral register that no one knows how many there are. I am sure that my hon. and long-standing Friend the

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      Member for Tottenham (Mr. Grant) would say this even more vehemently—our perception, as people who have lived, who have been brought up and who have worked in these communities, is that the proportion of black youngsters who do not register even for the jobseeker's allowance is vast. Until the Government survey, unregistered unemployment—I shall say this in the House on every opportunity that I have—they will not deal with social exclusion, the issue that the new deal is supposed to tackle. What is the point of a new deal that gets X per cent. of black youngsters to work if the majority of black youngsters are not even in contact with the Employment Service?
      Mr. Keetch: The hon. Lady will have heard me cite the figure—around 50 per cent.—that was given to us at Bilston. Given her vast experience in this matter, will she give her estimate of what the figure really is?
      Ms Abbott: The Government dismissed that estimate. I do not want to get into estimates, but my guess—and my hon. Friend the Member for Tottenham says the same—is that, for a variety of reasons, more black youngsters, particularly young males—I could talk at length about the issues relating to young black males—do not register than register. That is why it is so important to conduct a survey. If the survey proves me wrong, all well and good—I shall stop harping on the issue—but I am frightened that Ministers will say that the new deal programme is a success, even though, as those of us who live in Hackney, Tottenham and Brixton will know, thousands of young men continue to live on estates, idle and hopeless.
      The new deal is a flagship programme. In an area such as Hackney with terrible unemployment—and the terrible social problems that go with that—a lot is riding on the new deal. It is relatively easy to have a new deal programme that works on paper. It is harder to have a new deal programme that really works—and, in particular, a new deal programme that works in the type of community that I represent.
      The Select Committee has done good work, and I support all the recommendations. I have spoken mainly about two because of the problems of time. I know that the Minister has taken steps on the question of ethnic minority communities with high unemployment—I know because I have been to see him more than once—but there is more to be done.
      It gives me no pleasure to raise the issue of Reed, but it is time for transparency about the way in which it obtained the contract, and about how much it is obtaining from that and other contracts. We can carry no credibility unless our relationships with such corporate donors is wholly transparent and completely above reproach.
      In closing, I congratulate Ministers, who have pursued the new deal programme with much enthusiasm and commitment—although they have not engaged some of the issues that I would like addressed. I congratulate the Select Committee, which has produced a useful and important report. However, many eyes are watching the new deal—some of those eyes do not even know that that is what they are watching. For a community such as mine, much rides on the programme. I am anxious to work
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      constructively with Ministers, with Reed in Hackney and with any colleagues who share my interests to make sure that this programme delivers for all our people.
      8.12 pm
      Judy Mallaber: I agree whole-heartedly with many of the important points made by my hon. Friend the Member for Hackney, North and Stoke Newington (Ms Abbott), who brought to life the Committee's recommendations on ethnic minority communities. I hope that the Minister will respond to those points, and that we have a continuing dialogue.
      I wish to illustrate some of the positive aspects of the new deal by talking about individual examples. The Committee Chairman, the right hon. Member for Bishop Auckland (Mr. Foster), gave an excellent introduction—in spite of his protests—in which he spoke of the broad context of the new deal, and of our recommendations. However, talking about individuals brings the subject to life.
      Half of my constituency is in the southern Derbyshire pathfinder area, and I shall refer to examples from my area. I also wish to refer to examples given to me last night over coffee, when I was talking to hon. Members who are unable to be here tonight. I shall start in Plymouth, as my hon. Friend the Member for Plymouth, Devonport (Mr. Jamieson) was at a conference a couple of weeks ago. I have read some extremely positive quotes from the conference of the new deal providers and the personal advisers, who said:
      "Everyone deserves a pat on the back … Achievement even within short time-scale … New Dealers feel they 'own' New Deal … New Deal clients feel they are getting more opportunities … New Deal is 'a foot in the door' … the ambassadors are the New Dealers themselves."
      I have spoken to some of the new dealers in my area in the past couple of days about the positive examples. There are many issues to be addressed—including some which have been raised tonight—but I wish to address some other issues also. The gateway is a positive part of the programme, which takes the person who is having difficulty in finding employment and looks at their needs. It does not say, "We will try to get you somewhere to go. You will go into that position and it will either work or not." The gateway looks at the needs of the individual—something that the Select Committee found to be positive.
      The key issue—which was addressed by our Chairman—is the role of the personal adviser. My hon. Friend the Member for Stockton, South (Ms Taylor) gave me an example yesterday of a lone parent in her constituency whose take-home pay went up by £70 a week as soon as she got a tele-advertising job through the new deal. She said:
      "I feel confident. I didn't feel anyone would take me seriously. I thought it would be one interview and then I would be left to find my own way. I have a personal adviser who is there for me all the time. They are the make or break of New Deal."
      She said that she could now plan her life, and had been able to get subsidised child care, provided by the local authority. She also said:
      "It's the first time I have ever been taken seriously."
      That is a real condemnation of previous programmes, and it highlights a recommendation that we have been pressing on Ministers. We must ensure that there are

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      sufficient resources and training for the new deal personal advisers to be able to take on the role of personal mentor. That is a key part of the programme.
      Another positive aspect is the role of training. I spoke yesterday—it gave me great pleasure to do so—to someone working in the Red Admiral pub in Codnor in my constituency. The pub happens to be right opposite the Conservative office in my constituency, and it is the place from which I could see that my predecessor's name, as Member of Parliament for Amber Valley, had been taken down from over the office. I spoke to Dwain Palfreyman—who was happy to have his name used—who has been unemployed, off and on, since 1994, when he got a medical discharge from the Army.
      Dwain was unable to get more than odd jobs—nothing that he really liked. He was doing casual bar work at the Red Admiral—a very fine pub—and the publican said that he would like to take him on and train him up. However, he did not have the money to do so. The publican said that, because of the new deal, he was able to put the money into sending Dwain on courses. Dwain is now a licensed door supervisor, and has a national licensee's certificate. He has been on a number of courses, run by the British Institute of Innkeeping and by Bass.
      Dwain said that he would not have been able to go on those courses if it were not for the money that was available through the new deal. To my delight, he is now going to be running a new bar in my town. The only thing that, worries me slightly is that, according to Dwain, it is a pub for the more mature customers—which he defined as the over-25s.
      My third example concerns the experience of people being able to pursue their goals. I talked earlier today to Steven Wheatley, who is working at Prometheus Developments, down the road from where I live in Ripley. The company provides hi-tech research and development and advice in fire protection and flame-retardant materials. Steven left school at 16 with GCSEs at E grade. He has been unemployed for two years. He did a GNVQ science course, and has been taken on as a lab technician.
      Steven's employer said that if he was prepared, through the training that the company was giving him—both in house and at college—to show that he was able to develop his theoretical understanding of the science and his research understanding, the company would be prepared to consider keeping him on. The company is on the point of offering him a permanent job, and he has started on a higher national certificate course at Nottingham Trent university.
      The Committee recommended emphasising capacity-building for small enterprises. I have been talking to small businesses in my area, and saying that the new deal is a way in which they can take on people, see whether they can expand their business and get money for training and development. Steven had had a work trial somewhere else that did not work out. However, the company and Steven were able to try each other out and see how they did.
      There are many extremely positive elements in the new deal. For the first time, people have been going out from my local employment service to the nearby industrial estate and knocking on doors. There are some difficulties, because the programme is as much client-centred as it is designed to meet employers' needs. There is some dislocation, because those who signed up expected people to come through their doors immediately, but it takes some time to process people through the gateway.
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      Everyone involved will have to keep a close eye on that, to ensure that, as the programme comes more on stream, employers, the voluntary and environmental providers and the task force providers get the people coming through.
      Mr. Willetts: Does the hon. Lady agree that it would be helpful if the Department could provide statistics showing the number of employers who have signed up for the new deal, but have not yet taken on a single new deal participant?
      Judy Mallaber: The Select Committee has been in favour of keeping statistics on every subject under the sun. We have been overwhelming people with requests for statistics. From the beginning, I have been going on and on at my local employment service to get as many and as varied opportunities as possible. In the past, I have been told of young people going to a jobcentre and being offered only work such as bricklaying—it was almost a matter of digging ditches—and being told that they will lose their benefit if they do not take it.
      The whole point of the programme is to have a wide choice of opportunities so that we can meet the individual's aspirations. Steven, to whom I referred earlier, said that he was able to get other jobs but he really did not want to do them—for little money—because he knew that he wanted to be a lab technician.
      There will be some dislocations, but the more statistics and information that are kept on all aspects of the programme the better, as long as we are not totally overwhelmed with figures.
      Ms Abbott: Clearly there is a plethora of statistics. Does my hon. Friend agree that among the key statistics are the drop-out rate and the number of people who go through the scheme and end up with a job? In Hackney, 20 per cent. of people drop out right at the beginning, and no one knows what has happened to them; and only one in 10 of those who have gone through the new deal have actually got a job. Either the new deal gets more people into jobs than would otherwise have been the case, or it is not a success.
      Judy Mallaber: I agree that it is important to keep an eye on what happens to people. We are now getting better information than in previous employment programmes. The criticism was made in South Derbyshire that about a quarter of people disappeared. Attempts are now being made to track those people down. A substantial proportion of the people who disappear have gained employment, but there is no particular reason for them to come back to the service and say so. I agree that monitoring is very important, and that is certainly happening in my area, although setting up monitoring systems is not always easy.
      I know that my hon. Friend the Member for Pontefract and Castleford (Yvette Cooper) will pursue this point, and the Committee Chairman has already referred to it: the education and training option for lone parents is very important. We were concerned that sufficient attention was not given to it in the Government's reply.
      When we started to consider the new deal for lone parents, we assumed that child care would be top of the list, but the more we looked at the statistics, the more

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      we realised that education and training were key, because graduate lone parents could get jobs much more easily. Those without qualifications had a bigger gap to bridge to pay for child care, travel and the other expenses of being in employment.
      We realised that it was perfectly possible for lone parents to study and to remain on benefit, as the Government said in their response, but we wanted education and training, as a way of getting lone parents off benefits, to be given a higher profile and to be treated as a critical issue. All the evidence suggests that the way to get a decent standard of living is to get into work, that most lone parents would like to be able to work—certainly when their children are of school age—and that those who are in work would often like to be able to work a few more hours.
      There are some difficulties with people not turning up to the gateway provision that has been made for them. At a gateway providers meeting in my area last Friday, I was told that some people came along to begin with and then stopped turning up. If one has not been in employment for some time, it is often difficult to take the first step. That is another reason why the personal adviser's role is crucial.
      In my area, a gateway to the gateway has been introduced. There is a pre-induction course for each group of people who are about to come on to the gateway, to tell them what will be available, so they can start to think about their needs and what they want. I was told, however, that a number of people who were meant to be on one of the first courses were not at home when they were telephoned, which suggests that some of them may have some form of employment elsewhere. We do not know the figures, but we formed that impression.
      As the report says, we need to keep a close eye on what is happening with people going through the gateway. We must keep statistics and have strategies for dealing with problems. That is now happening in my area.
      A couple of days ago, I chaired a meeting at which the Minister dealt with questions from young environmentalists and those involved in the environmental task force. There are interesting examples of what can be done, and we have perhaps not yet focused sufficiently on them. In my area, forestry work—woodland management—is being done by six or seven trainees at Catton hall, in the South Derbyshire constituency. At the Midland railway centre in my constituency, which is a haven for train buffs, people are not only working on the railways, but doing animal husbandry at the neighbouring, and lovely, Britton Pit farm.
      Many other jobs in management and IT, for example, have an environmental element, and the potential for job creation in that area is huge. The programmes must also be monitored to ensure that they are environmentally sensitive and that they can be used, with the millennium environmental volunteers, to promote environmental awareness. The Committee will probably return to that issue in future, but I raise it now because it was discussed at a meeting we attended recently.
      The value of the five-year programme is that we can review it, and discover which areas are working well and which areas need tweaking or changing. I have found that Ministers have been responsive to our comments, and
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      communication across the spectrum of those involved has been good. Many Back Benchers have become very involved in the work in their areas, and found it very rewarding.
      Last night, I was talking to my hon. Friend the Member for Chatham and Aylesford (Mr. Shaw), and he told me of a 24-year-old father of two in his constituency who has been unemployed for six out of the past eight years and who told my hon. Friend that he had reached rock bottom. He is now working, through the new deal, for a local construction firm, and he told my hon. Friend: "Now I have my bills sorted out. I am looking forward to buying presents for my kids. Why wasn't new deal brought in years ago?"
      8.30 pm
      Mr. John Healey: I welcome this debate. The new deal programme is important to every Member of Parliament, because every constituency contains groups of the long-term unemployed who will benefit from it. I am therefore disappointed that not one Back Bencher from either of the main Opposition parties is present in the Chamber.
      In areas such as Rotherham and South Yorkshire—and the constituency of my hon. Friend the Member for Hackney, North and Stoke Newington (Ms Abbott)—the new deal is the single most important policy programme of this Labour Government. For those whom the new deal aims to help, it is the first serious investment that they have seen from any Government in giving them real hope and opportunities to work and train, instead of drawing the dole.
      Rotherham was proud to be picked as a pathfinder area for the new deal. We were proud to place in work the first new deal recruit in the country on 5 January. That recruit was Simon Turner, a 23-year-old who had never worked since leaving education. R. G. Components took him on as an engineering trainee, and, after he settled in, Steve Corbridge, the personnel manager, said that he was a smashing lad who loved working and was eager to do whatever was asked of him.
      The twist in the tail is that, in September, R. G. Components was hit by a serious factory fire and had to lay off several workers, including Simon. However, by the start of October, Simon was in work again, through the open labour market, and he is still there. That is one case, like the many cited by my hon. Friend the Member for Amber Valley (Judy Mallaber), that is testimony to the new deal achieving the twin aims of employability and employment.
      I cannot understand the Conservatives, who begrudge the investment in the unemployed and belittle the achievements in opening up new opportunities for unemployed people. The Conservatives have opposed the new deal from the start. We should never forget that, without a Labour Government, we would never have had a new deal for lone parents, for disabled people or for older unemployed people. Without a Labour Government, Simon Turner would not be in work today, and 441 other youngsters in the Rotherham area would not hold the jobs that they now have.
      In paragraph 1 of the Committee's report on pathfinder areas, we state:
      "It is too early to say with certainty that the New Deal works but we find the early evidence of success very encouraging."

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      The early signs of success include 185,000 young people taking up the new deal, of whom 38,500 are now in jobs. Youth unemployment is at its lowest level for 30 years. An interesting pattern is emerging, because the new deal is doing well, and not just in those areas whose local economies are doing well.
      The unemployment unit, Youthaid, probably the most authoritative source of analysis and comment on the new deal, will release next week an analysis of the performance of the delivery units across the country. To do that, it will draw on data already published by the Department. I pay tribute to my right hon. Friend the Minister for making available on an unprecedented scale detailed information and figures to do with the operation of the new deal so that we can analyse its performance.
      The unemployment unit will produce what it calls job entry rates, area by area, showing the proportion of young people who have begun the new deal, and who are in work. In some areas of high unemployment, a large proportion of young people are going into jobs. Other areas in which local jobs growth and the economy are strong are performing poorly. We can draw the conclusion that, although the state of the local economy is important to the success of the new deal, the most critical factors are perhaps the commitment of the Employment Service and the new deal partner organisations, and the drive of key figures in those organisations.
      That has certainly been my experience in Rotherham, and I pay tribute to Peter Little, who leads the Employment Service; Chris Mallender, assistant chief executive of the local council; Chris Duff and Paul Iseard, who head new deal work at the chamber of commerce training and enterprise council; Roy Barnes, who does the lifetime careers input; and, Pat Heron, who, crucially, leads the local employers' coalition on the new deal.
      The commitment of employers in the Rotherham area has been fundamental to the programme's success. That experience was reflected in the Select Committee, where Members were impressed with the evidence of Employment Service district managers. That is why the Committee recommended, in recommendation 20, that the Department's review of contracting procedures should invite first-hand information from district managers and new deal partner organisations. I am disappointed that the Department is missing that opportunity to gather valuable insights from the front line, and to emphasise that the new deal is inclusive, flexible and adaptable in the light of experience of what does and does not work.
      The Select Committee paid attention to three other areas on which recommendations have been made to the Department. Paragraphs 39 to 43 of the report relate to new deal jobs in the public sector. Local authorities lobbied hard to be included in the jobs option of the new deal. Ministers listened, and, last September, adapted the programme to allow the wage subsidy arrangements of the new deal for public sector jobs. However, having risen to the challenge in leading local partnerships and in contracting for gateway provision, voluntary sector places and the environmental task force, the local authorities have failed so far to rise to the challenge of generating real jobs within the option for which they so strongly argued.
      There are exceptions. Seventy jobs as classroom assistants have been created in Wales under the new deal, and 240 jobs have been created in the national health service in Scotland. Those are new jobs created under the
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      new deal. To some extent, that shows the way ahead for the public sector part of the programme. We should expect local government and the NHS to raise their games. The Government should more forcefully encourage them to do so.
      During its inquiry, the Select Committee went to one of the country's leading pathfinder areas, in Cornwall.
      Ms Candy Atherton: Hear, hear.
      Mr. Healey: I have to say that it is one of the leading areas, not least as a tribute to all the work done to develop the new deal by my hon. Friend the Member for Falmouth and Camborne (Ms Atherton).
      I sat in on a discussion with local employers—small employers, in the main—signed up to the new deal. They said that the local economy was all right and that they were doing relatively well. They were looking to expand, but, being small, they could perhaps offer only a new part-time post. However, with the new deal, the job subsidy and the training dowry that comes with the new deal recruit, they could turn that part-time post into a full-time one.
      We heard the same evidence from the district manager of the Eastbourne office of the Employment Service. She made it clear that in Eastbourne the wage subsidy was in large part used as a subsidy for small firms, and was essential in their expansion. I am therefore concerned that, by focusing simply on employment, and not on the potential for employment growth as well, we are to some extent missing the opportunity to get more for the money that we are investing in the new deal.
      The Department's response to some of the points in our report is rather vague. In response to recommendations 11 and 12 in particular, it talks rather vaguely about what it terms a "sample survey of employers" in relation to new deal job creation, rather than building the issue into the Employment Service's negotiations of new deal contracts, employer by employer. I hope that the Minister can at least give us some more details about the planned evaluation of the extent to which the new deal is contributing to economic growth and local economic expansion.
      The Committee's report deals at some length with the gateway and with the personal advisers who are the essential foundations of the gateway. Personal advisers are not just the starting point for the new deal; in my view, they are the pivot on which the success or failure of the new deal programme for the client turns.
      My right hon. Friend the Member for Bishop Auckland (Mr. Foster), the Chairman of the Committee, described personal advisers as agents of transformation within the Employment Service. I agree. To my mind, personal advisers are the single most important innovation in the new deal for young people and in the new deal for lone parents. I pay tribute to the work that they do and to the way in which they have transformed the experience of the programme for the young people and lone parents involved. Personal advisers have to be the basis on which we develop the future of our employment and benefit services, and certainly the future of our proposed single work-focused gateway.
      Although the report endorsed the role of personal advisers, it also reflected criticism from providers that they were not referring new deal clients fast enough,

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      either to providers of gateway services or to providers of options. Instead of experiencing the gateway as an intensive spell of assessment, tasters and guidance, many young people found that they were on a regime of weekly or fortnightly interviews with their new deal personal advisers.
      Having examined the problem in some detail in Rotherham, I have found that it is not caused simply by the personal adviser wanting to build a solid relationship with the new deal client before referring him to a possible provider. Many young people in Rotherham area have been to the providers before. They have done the interpersonal skills, time-keeping and job-search skills courses. Even within the new deal programme, they regard referrals to some of the same places and agencies as merely another part of the scheme.
      Rotherham has been selected as a pilot area for the 25-plus new deal. We are linking the completion of basic skills modules with what we are calling a "skills for Rotherham passport". Under the scheme, employers in Rotherham, organised by the new deal employers coalition, guarantee a job interview and work trial to any unemployed person who has this passport. In that way, unemployed people are beginning to see a clear link between the employability skills training that they are required to undertake and workplace outcomes and potential results.
      In Rotherham, we need to reflect that experience and replicate it in the main new deal for 18 to 24-year-olds. We need also to make the linkage between the gateway and the new deal options a good deal more flexible. For instance, in the gateway period there may be training for a particular job that a young person could be lined up to take. There may, for instance, be more workplace tasters and fewer jobcentre or classroom sessions. There may also be the opportunity for basic skills courses, partly delivered in gateway, as part of the option that the young person moves on to, thereby enabling him or her to move on to that option more quickly.
      In summary, the pathfinders for the main new deal and the pilots for the loan parents new deal show the way forward, including the adjustments that we still need to make to both programmes to obtain the most from the new deal. The experience of both to date shows strong signs of the success and importance of the new deal.
      8.45 pm
      Ms Candy Atherton: I am grateful to be able to take part in the debate. It has been a fascinating experience as a Member in a pathfinder area to monitor the new deal for 18 to 24-year-olds, and an area where the new deal for the over-25s is being piloted.
      I am a member of the Select Committee, and we have seen other members of it in fine performance this evening. I have found the investigations that we have been conducting as we monitor the new deal some of the most interesting aspects of my work as a Member of this place. I sometimes wish that we had a new deal to enable us to spend more time monitoring this work. It seems that this interest resides on the Government Benches, given the vast ranks of empty Opposition Benches.
      Mr. Keetch: Will the hon. Lady give way?
      Ms Atherton: Oh, dear.
      Mr. Keetch: I always enjoy intervening on the hon. Lady. Does she think that more interest might be shown on
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      the Opposition Benches—the Government Benches are not exactly crowded—if we had more than one debate on unemployment per year? Our most recent debate on unemployment took place almost exactly a year ago. Perhaps we should have some more debates on unemployment. The Liberal Democrats, if the Government would care to give us some more Opposition days, would love to have a debate on unemployment on one of those days.
      Ms Atherton: The hon. Gentleman's memory is a little short. I remember debating employment less than three weeks ago, when the hon. Member for Havant (Mr. Willetts) was present. If the hon. Member for Hereford (Mr. Keetch) had been present, he might have contributed to the debate on the Gracious Speech as well as being involved in this debate.
      It is amazing to see the results of the new deal. Some hon. Members may remember my holding forth last winter on a young black man in Cornwall who wanted to work in home insulation, but whose dreadlocks, unfortunately, were seen by a local employer as a disadvantage. The local company was looking for a new deal recruit and the young man was desperate to work in home insulation. Sadly, the company told the jobcentre, "No way."
      The young man's personal adviser talked to the company and with the young man. His adviser persuaded him to compromise by putting on a hat, and persuaded the company to give him a try. Two weeks ago, I met that young man again as I helped promote home insulation for older people in the Falmouth area. He is now employed full time with the company—well past six months—and he has been joined by another new dealer.
      Mr. Healey: Is he wearing his hat?
      Ms Atherton: Wait. Both he and the company are as happy as Larry. He no longer wears a hat and, interestingly, he has cut his hair slightly. He still sports the dreadlocks, but everyone is happy.
      Some of the life stories and life-changing events of the past eleven and a half months are breathtaking. One example is the young man who had been a heroin addict in Cornwall for four years. He failed to tell his bewildered family, and finally admitted all to his personal adviser. He then felt able to tell his father, accepted help from the community drugs team, is now off heroin and is about to start the full-time education option.
      How, I ask Opposition Members, does one put a price on that? How does one compute the costs of that young man's benefits, the tax that he was not paying, the possibility of his family following in his footsteps, the probability of a life leading into crime, and the effects on the rest of the community? I could go on. Those are the social costs that never appear on a spreadsheet, but mean the earth to those whom they affect.
      I find as I visit local companies that many of the young people taken on through the new deal have been promoted and offered full-time permanent jobs at the end of six months. That will be the key to the long-term success of the new deal. Charities and voluntary organisations are taking on the young people when they finish their six months. It is now rare for me not to find a new dealer on my visits to local companies or organisations.

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      There is no doubt about it—the Cornish know a good deal when they see one. That is why the grapevine has spread the news. Young people on the new deal are to be found in all parts of the county. In an area where jobs are precious, more than 1,200 job opportunities have been notified by employers across the county. More than 600 employers have signed up.
      The figures are illuminating: 385 people have been placed in unsubsidised work, not including the young people who found their own jobs during the gateway; 445 are on the employment option; 332 are in full-time education; and about 400 are split evenly between the voluntary sector option and the environmental task force. If one puts all those bewildering figures together, one finds that more than 1,500 young people have been offered opportunities that they would not otherwise have had.
      In an area where almost 90 per cent. of our companies employ fewer than 10 people, it is clear that many small businesses each see the new deal as the way forward to create jobs and develop their businesses. Indeed, as was mentioned earlier, in our report we note the capacity-building opportunities that the new deal presents to small companies. I have anecdotal evidence of that from employers across Cornwall, as has my hon. Friend the Member for Wentworth (Mr. Healey) from his area. I pay tribute to his work in Rotherham, as he paid tribute to mine in Cornwall.
      Employers in Cornwall are saying that they have made the jump from employing a part-time worker to employing a full-time worker because of the opportunities that the new deal creates. The Government could pay more attention to that aspect of the new deal. Particularly in areas such as mine, it has been a major incentive for employers to improve their competitiveness locally and expand their companies.
      One of the issues that Opposition Members raised frequently during the debate on the Queen's Speech was the costs of the new deal and the alleged lack of benefits to employers. I challenged hon. Members to visit Cornwall and hear for themselves what local employers are saying. What was said from the Opposition Benches bore no relation to what employers in the county—let alone young people—are saying to me. Surprise, surprise—Opposition Members have not taken up the challenge to visit an area which they know is a Tory-free zone. They dare not. The new deal is one of the great success stories of the Government, and there have been many in the county of Cornwall.
      I find it wonderful to watch a previously ground-down service—the Employment Service—thrive and bloom with the new deal. I do not want civil servants to feel that they cannot be proud of working for Government. There is no doubt that, where the Employment Service locally has offered inspired leadership and driven the programme forward, it has succeeded.
      There are lessons to be learned, and the reports that we are debating today—as well as future reports—will focus on that. I pay tribute to Michelle Maslen, the leader of the Employment Service in Cornwall, for the work that she and her team have done to drive forward the new deal in the county. Let us be clear about this: the offices look different, and attitudes are different. An energetic and committed Minister—my right hon. Friend the Minister for Employment, Welfare to Work and Equal
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      Opportunities—has been vital in driving the programme forward, and, oh, what a difference there is between the Employment Service now and under the Tories.
      Our report on the pathfinders placed heavy emphasis on the importance of personal advisers. Members of the Select Committee share concern that they may become overloaded and that quality might be sacrificed for quantity. The personal advisers have been one of the great successes of the new deal. Let us not waste this opportunity to invigorate civil servants and put pride back into the service.
      Time is moving on, so I shall not say much of what I wanted to say. My hon. Friends—[Interruption.] My hon. Friends are telling me that I am all right to continue; I have time.
      We are currently piloting the new deal for people aged 25 and over, and I am pleased that early entry is offered to people over 50 who have been unemployed for more than three months. Crucially for an area that had five of the top 20 unemployment travel-to-work areas this January, there will be entry from day one of unemployment for seasonal workers. I am talking not only about tourism, but about our struggling horticulture industry, which is facing severe difficulties. Day-one entry is very important. Classic low pay alongside seasonal employment has always been a double whammy for many in the county. Roll on April, and the national minimum wage.
      Work has also started on tackling the other end of the problems that we face—those who slip through the education net at 15 and 16. As 30 per cent. of 15, 16 and 17-year-olds in Camborne are lone parents, many of my colleagues and I are desperate to raise many of those young women's aspirations. Should the area achieve education action zone status next year, as I hope it will be able to do, more work can be done to tackle the situation.
      It cannot be right for a third of young girls in Camborne to see lone parenthood as the be-all and end-all of their aspirations. Colleagues on the Education and Employment Committee will smile, but the judicious use of objective 1 funds will be important in raising aspirations. I am delighted that the new deal is reaching many of the brothers and sisters of those girls and enabling them to hold their heads up and see a future.
      Mr. Derek Foster: Will my hon. Friend give way?
      Ms Atherton: Yes, if my right hon. Friend is brief.
      Mr. Foster: I congratulate my hon. Friend on the way in which she has campaigned to achieve objective 1 status. We failed to achieve it in the county of Durham, but I am delighted that she has succeeded, as are many people in my county.
      Ms Atherton: I thank my right hon. Friend. We await the final signature on the dotted line, but we hope to achieve objective 1 status for the county of Cornwall.
      I want to tell hon. Members about a new dealer aged 24 who had no qualifications, only six months' work experience and literacy and numeracy problems. He completely lacked confidence, but his personal adviser guided him towards the environmental task force. He gained work experience, a reference, a fork-lift truck certificate and units towards a general national vocational qualification. He found permanent employment within a

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      month of completing the option. How do we put a price on that? We should compute the benefits that he and a future family might have required for generations, and think of the social benefits of that young man presenting a role model to his family and tackling his educational problems.
      Last month, Opposition Members claimed that the new deal was failing, but clearly for many thousands of young people it has offered opportunities that were previously undreamed of. More than 38,500 young people who previously had no job now have one. We all know that anyone can play around with figures—the Tories did it frequently with the unemployment figures—but seeing young people happy and settled in long-term jobs, and in many cases careers, has been a real achievement for the Government. If one does not deduct payments made by employed people, one ends up with a totally spurious figure, as the Tories did last month. Given that so many of their former colleagues now qualify for the new deal, one would have thought that they would be willing it to succeed.
      This week, I opened a training centre in Camborne. It operates from a former derelict site in the town centre, so we benefit from a refurbished town centre site and a new training centre. Behind the quiet, restrained exterior was a positive blooming of skills: young men training for building and other skills in a quiet and studious atmosphere. As the Eden project is being built in Cornwall—probably the biggest greenhouse in the world—we shall need many brickies, not to mention glaziers. New-dealers are working for the project, so it all goes round in circles.
      May I sound a cautionary note? Some further education colleges do not believe that the training funding is sufficient. Other providers, however, have told me that it is more than sufficient, which just goes to show that one cannot please all the people all the time.
      Ms Abbott: The point that my hon. Friend has made about training colleges is important. The Government must look again at the level of funding in areas with problems of literacy and basic skills.
      Ms Atherton: I am quite prepared to accept that. I was implying that training providers outside further education colleges, which, let us face it, also receive funding, said that they were not getting enough money, yet training organisations said that their funding was sufficient. Perhaps we do need to look again at funding; I accept what my hon. Friend says about numeracy and literacy.
      We must also ensure that bureaucracy does not deter business, particularly small businesses. Red tape could be the devil of the scheme. Although I am aware that the Committee demands ever more statistics from the Department, those statistics must be sensitively collected.
      Another interesting fact that the new deal has brought to light is that colleges and training providers are finding that a new group is becoming involved in the new deal—young people from areas that are so rural that they have little or no access to public or any other form of transport. As a result, in the past they have opted out of the educational and training system. The new deal has flushed them out. Some inspired leadership has had to be shown
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      in devising a means of getting such people to work by training providers, the transport broker appointed by Cornwall county, and by the Employment Service.
      One interesting new dealer travels to work on his skateboard. He was just about to leave Cornwall and head off to another part of the country to get away from what he called "the economic blackspot known as Cornwall" when he entered the new deal in January. He had no transport other than his skateboard, which he used to look for vacancies. He was prepared to take on any job that was offered to him. A local company was looking for a new production trainee. It gave him the job, and he offered to take on all extra duties and to work through holidays when other members of staff were away. So impressed was the employer that he was taken on full time at the end of the six months. He still travels to work on his skateboard.
      May I sound another note of caution? In its travels the Committee found that other schemes, such as Working Nation in Australia, have tended to restrict opportunities and flexibility due to the inevitable adverse comment that journalists just love to make. I urge my hon. Friend the Minister to take courage and retain flexibility so that personal advisers can respond in the most appropriate manner to a person's needs. Do not make people fit the programme; let the programme be flexible enough to fit the individual.
      The Minister must consider with great care the area of the new deal that we have not announced. I am concerned about the group of people—mostly older men—for whom no programme is in place. That is a great oversight. I urge the Minister to consider introducing a new deal for hereditary peers as a matter of great urgency. It is all they deserve.
      9.5 pm
      Yvette Cooper: I, too, welcome the debate on the new deal. It is an extremely important area of Government policy. Rather than repeat many of the points ably made by my colleagues on the Committee, I shall concentrate my remarks on the second of the two reports we are considering, which is on the new deal for lone parents.
      We should not underestimate how revolutionary the new deal for lone parents is, because it helps a group of ople who have been ignored by the Employment Service and by the state for a very long time. They have been abandoned as the passive recipients of benefits. The underlying assumption that mothers are at home looking after children, that if they want to work they can manage that themselves without any assistance, and that they probably stay at home anyway, is out of date. Some women will choose to stay at home and look after their children, particularly young children. The Committee has made it clear in its report that individuals should be left to make that choice. The Committee felt that it was not a matter on which we should make recommendations.
      Those choices are more available to some than to others. It is a striking fact that 62 per cent. of mothers are in work, whereas only 42 per cent. of single mothers are in work. Single mothers do not have the same range of choices as mothers with a partner who helps them bring up the children. I make no apology for concentrating my remarks on single mothers. It is true that many of the points we have made in our report are equally applicable

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      to lone fathers who are at home bringing up children. However, as the majority of lone parents are single mothers, and as women in the labour market face particular additional problems, I have chosen to concentrate my remarks primarily on them.
      It is easy to understand why single mothers face more obstacles getting into work. If there is someone else at home, there is someone else to juggle the child care responsibilities, so that child care or the lack of it is less of an obstacle. There are also two wage packets to share the cost of child care, which increases the chances of going out to work. If mothers are on their own, the sheer work load of looking after the children makes it harder for them to keep their skills up to date and to keep in touch with the world of work.
      For the first time, the Government are facing up to those problems. The Employment Service contacts lone parents saying, "We're interested in you. We care about you." Lone parent new deal advisers provide women with information about jobs, child care and, most important of all, the benefits system and the impact of in-work benefits, which are incomprehensible to most people, even if they have begun to work out the details of the system.
      Mr. Healey: One of the experiences from the pilots of the new deal for lone parents is that new deal advisers build up a special relationship with customers, and that has not happened before. On Monday, a new deal adviser for lone parents told me that her colleagues do not know whether it is a personal call or a customer on the line, because they all ask for Lorraine.
      Yvette Cooper: We should not underestimate the support that personal advisers can give. I have a letter that was sent to the new deal lone parent adviser in my local employment service by a woman who has now got a job through the new deal for lone parents in my area. She wrote:
      "I am overwhelmed with tears as I cannot believe that all of you should take so much time and effort in helping me in the way you have done. Without your compassion, expertise and backup I know I would have given up and been back at stage one on income support."
      Personal relationships such as that give people the confidence that enables them to go out and try things that they would not have tried before—to take the step into work that they might not otherwise have had the strength to take.
      Judy Mallaber: We have found evidence of that positive relationship with new deal advisers everywhere. I feel that I have let the side down by not mentioning advisers in my area. The two people I mentioned earlier were looked after at the job centre by Tina and Paula. Does my hon. Friend agree that that relationship has been a universal theme?
      Yvette Cooper: Yes—and those of us who have been concerned about the Employment Service and its history should especially congratulate those who have turned around its functions to such an extent, enabling it to play a very different role from the role that it used to play. While we are engaging in this congratulations love-in, let me pay tribute to Dave Barrett, the Employment Service manager in Castleford, and to his team, who have done so much locally.
      Mr. Derek Foster: I am supposed to be the expert here—the one who is long in the tooth, having been in
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      the House for nearly 20 years—but I have not even mentioned my constituency, let alone any personal advisers.
      Yvette Cooper: The new deal for lone parents is only just getting going in my area. So far it has held 58 interviews; many of those interviewed did not receive a letter, but volunteered to go in. Thirteen people have been helped into work. One person wrote to an adviser:
      "Thank you for all your help in getting me back to work. I am really enjoying the job and all the money."
      That is great stuff. It epitomises what the new deal is all about. Part of the role of the Employment Service, and the Benefits Agency, is to enable people to do things, rather than merely handing things out.
      I have some anxieties about the new deal for lone parents, however: I do not think that it is fulfilling its potential. Although its approach is revolutionary, and although it is doing much that has not been done before, I feel that it could do more. As the Committee's report states, we believe that the new deal for lone parents should include an education and training option like that provided by the young unemployed new deal. Education and training are important to lone parents, and the new deal should focus on them more.
      If we look at the figures, 79 per cent. of mothers with degrees are in work, and 79 per cent. of single mothers with degrees are in work. A single mother with a degree is just as likely to be in work as a mother with a partner. At the other end of the qualifications scale, it is a different story: 40 per cent. of mothers with no qualifications are in work, while only 21 per cent. of single mothers with no qualifications are in work. In other words, those with no qualifications are twice as likely to be working if they have partners.
      Skills make a massive difference to lone parents' chances of being employed. Let us look at the position in a slightly different way: a lone parent with a degree has a 79 per cent. chance of being in work, while a lone parent with no qualifications has a 21 per cent. chance. All the evidence that we took on the Select Committee reinforced that point. All the anecdotal evidence, and all the evidence from the groups, experts and lone parents themselves was that low skills and low qualifications were a huge barrier to getting into work.
      Obviously, child care, benefit advice and all those things are important, but, fundamentally, skills are the key thing that make a massive difference. That should not surprise us.
      Ms Abbott: My hon. Friend has made an important point. Does she share my concern about a constituent of mine who went to the new deal for lone parents office for help with child care because she was going to study, and was refused that help on the basis that her course was too advanced? She was going to do an access course for teaching. Teachers are badly needed in Hackney. The new deal needs to maximise the level of skill that people are encouraged to acquire.
      Yvette Cooper: Hear, hear. My hon. Friend makes a good point. The link between child care and education, particularly child care and further education, has to be developed further if we are to help many single parents and, also, many parents generally into work who currently are unable to work.

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      None of that surprises us. Ministers spend the whole time talking about the importance of education, training and skills, and the barrier that low skills pose for people who want to get work and find that they cannot. That is, after all, what the new deal for young people is all about. That focus on raising employability is the key to the new deal for the young unemployed. It is why, in the long term, the new deal for the young unemployed will successfully keep people in work five years down the line, not just help them into their first job tomorrow.
      The emphasis in the new deal for lone parents seems to be slightly different. Rather than focusing on employability, it seems to focus more on employment. The Select Committee recommended that the education and training option should be flagged up in bold, as it were, to focus women on reskilling—not just on getting their first job—and to help them to get a long-term career.
      I found the Government's reply to the report's comments on that issue slightly disappointing. It points out that support is readily available for women on income support to go into further education. That is right. The Committee has never recommended that there should be a new funding stream, for example, or that we should change the structure in relation to lone parents' entitlement to join education and training courses if they are on income support. However, the key issue is to flag it up to people to make them aware that that is something that they can do. In my experience, many lone mothers are not aware that they are entitled to have their fees paid for various further education courses and other such courses.
      The Department mentions in its reply that it has amended the letter that goes out to lone parents to flag up the education and training possibilities. I have a copy of that letter. It says:
      "If you've been wondering whether work is right for you then you've probably thought about all the difficulties. No doubt you've got many questions. Our team is here to provide answers.
      As Personal Advisers for lone parents, we've been specially trained to help you through the process of getting a job. We can advise on which jobs may be right for you and we can calculate how much better off you may be in work. We can help you with applications and, if you want, suggest training courses."
      That is it. That is only the reference to training courses.
      The letter goes on to refer to benefits and to help in finding child care. There are several more paragraphs saying, for example, that if lone parents decide that the job is not right for them, they do not have to proceed. It is a good letter, but, in the five paragraphs, there is only one brief reference to training courses. The letter does not mention that lone parents will not have to pay for those courses, are already entitled to them, or that they might be an extremely good thing to think of doing.
      Many single mothers who are out of work have low skills and may have left education earlier than they needed to, or may be anxious about going back into education—or it may not have occurred to them—but the letter does not give them the idea of perhaps going on a training course. If it did, it might raise the take-up rate. It might raise the number of lone parents who go along to the Employment Service and respond to the letter. Many people will not feel ready yet to go into work. Perhaps their children are still quite young, or they do not know whether child care arrangements will work out. Perhaps it
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      has been a long time since they have been in the labour market and they do not feel very confident because their skills are out of date. Perhaps they will not want to start something and then have to let people down. However, if there were a transition mechanism—such as a course, for example, which could help people to build their confidence, update their skills, give them time to work out child care arrangements and to discover whether the kids can cope getting home on their own—some people would be able to get into work who would not be able to without it.
      I wondered whether the Department's letter was expressing a fundamental difference in approach between the new deal for lone parents and the new deal for the young unemployed. It is possible that the Department is taking a different view—it is perfectly valid, although I disagree with it—of the new deal for lone parents. If such a view is being taken, I should like to hear more about it from the Minister, as we should have a public debate on it. The view is essentially that work comes first: we get people into work first, and training, education and lifelong learning will follow. Such a view maintains that we must make families better off, and that the quickest way of doing that is to get parents into work, rather than diverting them from jobs into education and training.
      There is evidence from other countries.
      Mr. Keetch: Sadly, the hon. Lady was unable to join the rest of the Committee members in Australia. However, the point that she is making was made very strongly in the countless meetings and discussions that we had there on the precursor of the new deal and on the current scheme. People who have had the mere opportunity of training and of turning up at an interview looking smart and presentable were able not only to get a job but to find better jobs, and so to progress. She is making a very valid point.
      Yvette Cooper: It is true that the best thing for many people will be to go into work first, and subsequently to consider lifelong learning and further education and training. However, for lone parents, the reverse is more likely to be true. As they have child care responsibilities, are more likely to be anxious about those responsibilities and are more likely to have already spent several years out of the labour market, the reverse approach—to ease them into work through education and training—would be more beneficial for them than for other groups who are currently outside the labour market. However, there is no conclusive evidence on that. Nevertheless, it seems that the work-first option—unlike the education-and-training-first option—is being heavily pushed in the new deal for lone parents, and that is a mistake.
      We should be pushing the education and training option for lone parents. I ask the Minister to consider rewriting the letter and to flag up a big education and training option for lone parents. After all, we are pushing that option for those who are participating in the new deal for the young unemployed. For them, we are thinking about their long-term employability and what they will be doing not only tomorrow but five or 10 years down the line.
      If we decide that the lone parents' new deal should concentrate on employment, whereas the young person's new deal should concentrate on employability, I fear that we will be in danger of fuelling some dangerous

      569
      prejudices. Although I do not think that the Department is inspired by such prejudices, there is a danger that we might fuel them. The first prejudice is that men have careers, but women have jobs. I think that, across society, that is still the prevalent view. An aspect of that view is that women, especially those with children, are fine in relatively low-paid and low-skilled jobs because their jobs take second place to their family responsibilities, whereas men think about long-term careers. After all, the young person's new deal is dealing primarily with men.
      Secondly, I fear that concentrating on employment for lone parents but employability for the young unemployed will fuel the prejudice that the problem of low skills affects primarily men. That is increasingly evident in the media. It is said that women do not have a skills problem because girls do better than boys at school. Women have child care problems. Men have a skills problem because the old unskilled manual jobs have gone, so they need to be reskilled or they are not going to get jobs. The assumption is that lone parents need only child care to help them get through. Those views are mistaken. I hope that the Government will adapt the new deal for lone parents to take into account the importance of education and training.
      I congratulate the Government on their revolutionary approach to the new deal for lone parents, which is incredibly important. They are doing more than any Government before. It is not clear that any Government before has done anything to help that group into work. The new deal for young people is brilliant. I hope that the Minister will be able to ensure that the new deal for lone parents can be brilliant, too.
      9.26 pm
      Mr. David Willetts: This has been an interesting debate, following some valuable reports from the Select Committee. I thank the right hon. Member for Bishop Auckland (Mr. Foster), the Chairman of the Committee, for the way in which he introduced the report and explained why the Conservative Member of the Committee was not able to be present tonight.
      Sometimes the debate became a little like an Oscar ceremony, with speakers naming all the individuals who have made the achievement possible. When it was not an Oscar ceremony, it was like a revivalist meeting, in which individual personal triumphs were celebrated, with the education Whip leading the hallelujahs from the Front Bench.
      We have to look rationally and coolly at the spending of £5 billion of public money. The right hon. Gentleman introduced the debate in a spirit of appraising how effective the programme was and what information we had to judge it on. Some Labour Members were so preoccupied with celebrating individual successes that they did not seem to accept that young people were finding jobs before the new deal came along. There were even young people who had been unemployed for more than six months who found jobs before the new deal came along.
      Judy Mallaber: Does the hon. Gentleman recall that, when we talked about those who had disappeared and we did not know what had happened to them, I pointed out
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      that, in my area, a number of them had got jobs? We are well aware of that. We are seeking jobs for those who are unable to get them.
      Mr. Willetts: It would be wrong to count every person who leaves the gateway and goes into employment as a success for the new deal. As evidence submitted to the Select Committee shows, 80 per cent. of young people who had been unemployed for six months moved off benefit in the following year anyway. I guess that that is one reason for recommendation 5 in the eighth report. It is a good recommendation. It begins:
      "We question whether the numbers recorded as entering unsubsidised employment should all be registered as outcomes from the Gateway."
      That is an important point. We cannot assess the success of the programme without reflecting on what would have happened without it.
      We think that the programme is an expensive way in which to deal with youth unemployment, because, once it is recognised that a significant proportion of those involved would have got off benefit anyway, we are left with a large sum of money being spent on small numbers of extra young people—if any—moving into work. The figures change almost every week, but we are talking about roughly 21,000 people moving into unsubsidised jobs and 9,000 moving into subsidised ones.
      If we took the approach hinted at in recommendation 5 in the Select Committee report and did not count the people moving into unsubsidised jobs from the gateway as successes of the new deal, but only the 9,000 moving into subsidised jobs, we would have an even higher cost per job for the new deal than the £11,000 calculated by my hon. Friend the Member for Ashford (Mr. Green) in the pamphlet published by the Centre for Policy Studies. We need to consider exactly what the new deal delivers in terms of employment opportunities in addition to what would have happened anyway.
      The Minister for Employment, Welfare to Work and Equal Opportunities (Mr. Andrew Smith): Does the hon. Gentleman concur with the figure that was published by the Centre for Policy Studies and the means by which it was calculated?
      Mr. Willetts: I am the deputy chairman of the Centre for Policy Studies and I was very proud of that publication. If anything, it is an underestimate. The costing of £11,000 is reached on the basis of those entering subsidised and unsubsidised jobs. If my hon. Friend the Member for Ashford had followed recommendation 5 and counted only the subsidised jobs, he would have calculated an even higher cost per job under the new deal. He went out of his way to be generous to the Minister. It is a pity that he did not read the report in the spirit in which it was written.
      Mr. Derek Foster: The hon. Gentleman heard me say that the economy can be run more successfully with more employable people and more adaptable organisations. I admit that that is incalculable, but the hon. Gentleman ignores that factor completely in his rather narrow concept of costing.
      Mr. Willetts: I appreciate that that is one argument for the new deal. Over time we have been offered various

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      arguments. We were told that it would save money that could then be released into education, but the profile of expenditure in the new deal does not appear to anticipate any savings during the lifetime of this Parliament. It certainly does not appear to be tailing off. Rather than spend the remaining few minutes on that, perhaps I can refer the right hon. Gentleman to a separate pamphlet on welfare to work in which I tackle precisely that point, which Professor Layard, now one of the Minister's advisers, is very keen on.
      I now turn to priorities. If Ministers believe that the new deal is so effective, why is money distributed in the way that it is? There are nearly twice as many long-term unemployed as there are young people unemployed for more than six months, yet young people get five times the budget. Ten times more per person is being spent on the young unemployed than on the long-term unemployed. As the hon. Member for Pontefract and Castleford (Yvette Cooper) said, even less per person is being spent on single parents. Recommendation 8 in the seventh report was that
      "the New Deal for Lone Parents"
      should
      "offer a full-time education and training option".
      If Ministers believe in the effectiveness of the new deal, it hardly seems equitable to distribute the resources between young unemployed, long-term unemployed and single parents in the way in which they are allocated in the new deal programme over the next four years.
      Statistics suggest that the long-term unemployed have a lower chance of getting back into work. Young people, even if they have been unemployed for six months, are particularly mobile and have a relatively good record of moving off benefit. The problem is older people who have lost contact with the labour market for longer.
      Let me raise some specific points. We are told that personal advisers are an important part of the new deal. I have enjoyed visiting several new deal projects in different parts of the country, and if the hon. Member for Falmouth and Cranborne—
      Ms Atherton: It is Falmouth and Camborne.
      Mr. Willetts: I do not know why that name sprang to mind. In fact, my hon. Friend the Member for Ashford cannot be here this evening because he is attending his association annual dinner at which Lord Cranborne was supposed to have been the guest of honour.
      As I was trying to say, the hon. Member for Falmouth and Camborne (Ms Atherton) invites me to Cornwall every time that we debate this issue. At this rate, I shall indeed end up going to Cornwall to inspect the new deal there.
      Ms Atherton: I am happy to invite the hon. Gentleman to Cornwall, as long as he meets the young people and the employers whom the Select Committee met—they might change his attitude significantly. If he wants only to visit the Falmouth and Camborne Conservative association, then forget it. If he wants genuinely to learn, however, I should be delighted to escort him personally.
      Mr. Willetts: There is a limit to this, but I am sure that something could be arranged.
      Mr. Keetch: May I suggest that, if the hon. Gentleman visits Cornwall, he does more than the Select Committee
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      did? Despite the fact that we flew into north Cornwall and spent an hour driving across Cornwall, we visited only one constituency—Falmouth and Camborne.
      Mr. Willetts: The purpose of the debate is not to discuss regional tours, so let us move on.
      Personal advisers represent a labour-intensive way in which to deliver services. The wider introduction of the gateway, which a recent Government document says is a fundamental feature of the welfare reform agenda, means that many people will operate as personal advisers in the Employment Service. Will the Minister give figures showing how many people in the service are working on the new deal, how many personal advisers he believes need to be recruited to deliver the gateway for existing new deal groups in the years ahead, and how much extra effort and how many extra staff will be needed to deliver the further proposals for an intensive personal service for the many people who are not registered as unemployed but who may, in labour force survey terms, be seeking work?
      I mentioned firms that have signed up for the new deal but have not yet taken on any new dealers. It will not do for the Minister, 18 months into office, to laud the success of the new programme but, when put under pressure, to blame what he calls the rotten statistical systems that he inherited from the previous Government. The new deal is a new programme and we were told that it would be properly appraised—the Government should be able to offer the information for which I ask.
      The media have identified the problem of paedophiles in the programme, outlining some disturbing cases in which serious sex offenders have been referred to work that involves children. I thank the Minister for his letter of 8 December; it was courteous of him to write to explain the position. He said in the letter:
      "The primary responsibility for checking the suitability of applicants lies firmly with employers."
      The Government cannot entirely wash their hands of the matter, however. There is a rather disconcerting tendency for new dealers to be offered almost indiscriminately to fill any gap in the labour market. The Under-Secretary of State for Wales, the hon. Member for Neath (Mr. Hain), I think, believed that they would all be classroom assistants; we have also been told that they will all be child minders. We must be careful in allocating new dealers to positions with such sensitive responsibilities. I would be grateful if the Minister could say in rather more detail than he was able to do in his letter what steps are being taken to prevent sex offenders from being referred to jobs involving children.
      The Select Committee report made helpful and interesting comments on the gateway, but there seems to be a problem of people becoming stuck. I should be grateful if the Minister would tell us how many new dealers, especially in pathfinder areas, are still in the gateway four months after entering it. There seems to be a problem of people being left in the gateway. There are theoretical powers to move them on, but it is not clear how often these are being used.
      I hope that the Minister will be able to answer some practical questions. If we are to assess the effectiveness of the new deal, the celebration of individual achievements will not do as the basis for appraising expensive new policy options.
      9.40 pm
      The Minister for Employment, Welfare to Work and Equal Opportunities (Mr. Andrew Smith): We have had a good and a cheerful debate—and so it should be, because the new deal is a cheerful programme, bringing hope and opportunity to people. I speak as one who has visited Cornwall and seen the excellent work that is being done there on the new deal. In fact, I have visited the constituencies of all my hon. Friends who have spoken in the debate. I join everyone who has paid tribute to the Employment Service, to the new deal personal advisers and to everyone else who is working so hard to make a success of this important and ambitious programme.
      I join my hon. Friends in finding it disappointing—although, perhaps, all too revealing—that not a single Conservative Back Bencher has taken part in the debate. I accept that my right hon. Friend the Member for Bishop Auckland (Mr. Foster) apologised on behalf of the Conservative member of the Select Committee. However, it shows a dismissive attitude towards one of the most pressing social challenges confronting this country.
      The hon. Member for Havant (Mr. Willetts) made a few amusing remarks and sniped here and there at the new deal. However, we had not a scintilla of a suggestion as to what the Conservatives might do differently, or what they might argue ought to have been done differently. They have a right nerve to talk about the priorities of allocating expenditure on new deal programmes when there would have been no new deal if, by some mischance, the Conservatives had won the general election and they had had their way.
      The hon. Member for Havant made an important and serious point about sex offenders. I have written to him, to the Chairman of the Select Committee—my right hon. Friend the Member for Bishop Auckland—and to the hon. Member for Hereford (Mr. Keetch) spelling out the position. The hon. Member for Havant said that the primary responsibility had to be on employers to have appropriate procedures to ensure protection for children and other vulnerable people.
      The Employment Service follows common-sense procedures, and lists are held manually by a senior officer in each jobcentre. Staff are advised and reminded that referrals to vacancies should be made where appropriate. Clearly, there will be cases where it is not appropriate to refer particular people who come into a jobcentre to particular things. I assure the hon. Gentleman that, from a senior level right down through the Employment Service, no one would knowingly refer anyone who was likely to offend to a position where he or she would be working with children or other vulnerable people.
      There is no doubt that the present system is not absolutely foolproof, and that is why the Government have an interdepartmental working party to examine precisely these matters. My right hon. Friend the Home Secretary will be making a statement shortly on the establishment of a criminal records agency to set out new and better procedures which, I hope, will command the support of the whole House.
      I wish to refer to the Select Committee recommendations. A great number of tributes were paid, rightly, to the work of personal advisers. The report referred to the importance of following up the work of advisers, monitoring the case load and ensuring that the very best was made of the innovation—so important to
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      the new deal—of the continuity and support that personal advisers give. The Government have acted on that recommendation, and we are monitoring the case load.
      Moreover, we have given advice throughout Employment Service offices—involving training and a series of meetings with personal advisers—to focus their role and responsibilities on what is important, and to ensure that people are progressing in terms of enhancing their employability, moving into jobs or moving into other options that are right for them.
      I find these debates and the Select Committee interviews and reports enormously helpful. As my right hon. Friend the Member for Bishop Auckland rightly, and kindly, said, we are a listening and learning Department. We have been flexible, and we have been responsive to the Select Committee recommendations.
      The hon. Member for Havant referred to the publication of information on the destinations towards which people are moving at different stages of the gateway. Recommendation 5 said that that should be disaggregated, and we have done that. The information is there for all to see in table 11 of the Government Statistical Service statistics.
      We acted on recommendation 18 on capacity building in the voluntary sector, and on recommendation 22 on ethnic minorities. That recommendation also informed a large range of initiatives that we have taken to promote the involvement of, and extend opportunities for, ethnic minorities. Several of my hon. Friends referred to that important issue—notably my hon. Friend the Member for Hackney, North and Stoke Newington (Ms Abbott)—as did the hon. Member for Hereford.
      It is not the case that such issues were not anticipated at the outset as crucial to the new deal. I am on record as saying right at the beginning of the new deal, rather as my hon. Friend the Member for Hackney, North and Stoke Newington said, that an acid test of its success or otherwise is whether ethnic minorities get full and fair opportunities through it.
      That is precisely why we said right at the outset that there had to be ethnic monitoring—for the first time in any Employment Service programme—so that we could see what progress people were making, and assess which initiatives were working and which areas were not delivering opportunities for ethnic minorities.
      Ms Abbott: If an understanding of those issues was built into the programme from the beginning, why was not more about them written specifically into Reed's contract, and why was not more care taken to ensure that Reed worked side by side with organisations that had some knowledge of labour market conditions in Hackney and other inner-city areas?
      Mr. Smith: It was made clear to all contractors in the process that they would be judged against the viability of the programmes that they initiated to meet the needs of the area that they were proposing to serve. Clearly, in Hackney, as in some other areas, especial importance will need to be attached to the opportunities that the programmes will extend to ethnic minorities.
      The Government attach great importance to that, and we have taken a range of initiatives: there is an ethnic minority advisory group to assist the national advisory task force; after widespread consultation throughout the

      575
      country with ethnic minorities, as well as the general public, we have drawn up an ethnic minority strategy: and we regularly review the membership and work of the partnerships throughout the country, which have such an important role in involving ethnic minorities and ensuring that programmes are sensitive to their needs.
      I do not go to a meeting with partnerships or local providers—today, I attended meetings in Manchester, Bolton and Stockton to see at first hand how the new deal is working—without raising the question of the work that is done to ensure fair opportunities for ethnic minorities.
      We have to be constantly vigilant. The levels of youth and long-term unemployment among ethnic minorities in this country are a scandal. As my hon. Friend the Member for Hackney, North and Stoke Newington said, they are as much as two or three times higher than the average. That shows the failure in the past to provide the necessary training and opportunities, and to challenge the stereotypes and discrimination that so often stand in the way of progress.
      There can be no room for complacency, and the Government are certainly not complacent. We can start to judge progress by the statistics that we have published; they show that ethnic minorities are moving into unsubsidised jobs from the new deal at very nearly the same rate as the total population. Ethnic minorities are disproportionately over-represented on the full-time education and training and the voluntary sector options of the new deal, but they are under-represented on the employment and environmental task force options.
      We are analysing that to see how far the under-representation on the employment option results from a lower rate of referral to employer option vacancies and how far it results from a lower rate of acceptance into those vacancies by employers. We will be able to compare how different areas are doing, see what is working best and take corrective action where necessary.
      Mr. Keetch rose—
      Mr. Smith: I am sorry, but time is limited and I wish to cover many points that arose during the debate.
      My hon. Friend the Member for Hackney, North and Stoke Newington referred to Reed and its contract. I assure her that that contract was let with absolute propriety, as were all the other new deal contracts, and with the same procedures being followed in every case. The criteria were applied fairly and properly, and the decisions were made by officials.
      I hope that my hon. Friend will accept that assurance and, equally, my assurance that performance will be scrutinised closely, whether a partnership is led by the private sector or by the employment sector or is a joint venture. They will all be judged by the same standards, and corrective action will be taken to tackle under-performance. That approach is at the heart of the continual improvement strategy for the new deal. We have consulted the partnerships about that strategy, and it is important in turning, already good programme into an even better one for the future.
      It is an enormous accomplishment to have helped 38,500 young people off benefit and into jobs, and it is a great achievement that some 30,000 young people have
      576
      been placed in high-quality training and work experience options and some 5,500 lone parents have been helped into work. However, we are in the early stages. The Committee's report underlines the fact that it is too early to start drawing conclusions about the success or otherwise of the programmes, but the progress that has been made so far is very heartening.
      The hon. Member for Havant accused my hon. Friends of being so swept along by their enthusiasm for successful case histories that they neglected the dispassionate analysis that he attempted. I would accuse him of the converse failure: he was so concerned to stick to what he thought was dispassionate analysis that he wholly overlooked the human and real benefits of a programme that is bringing hope and opportunity to many thousands of our fellow citizens. For example, my hon. Friend the Member for Amber Valley mentioned a constituent who said that her experience of the new deal was that it was the first time that she had ever been taken seriously. That is typical of the comments that I have heard from many new deal participants and their advisers.
      I commend my hon. Friends for the energy that they have put into promoting the new deal programme and understanding how it is working locally. They have worked with employers, the voluntary sector and the Employment Service to make the new deal better. It is an innovation of the new deal that it has involved Members of Parliament—especially my hon. Friends, but also Liberal Democrat Members and even some Conservative Members—in actively supporting and promoting the programme in their areas. That is a valuable and—to the clients, employers and the Employment Service—valued role for Members of Parliament.
      My hon. Friend the Member for Wentworth (Mr. Healey) raised the important question of the scope of the new deal to generate additional jobs. I was struck by the evidence that the Committee found, especially from its studies in Cornwall, of small businesses taking on people whom they would not have employed before because they could not have taken the risk without the support of the new deal.
      That is certainly being studied as part of our evaluation strategy for the new deal. My hon. Friend the Member for Wentworth asked for details of the surveys. Two will be undertaken: a qualitative survey in May and June 1999, which will be published in September; and a quantitative survey next September, which will be published in April 2000, or by July at the latest. A further important milestone in new deal evaluation, which will address the questions of several hon. Members, including the hon. Member for Havant, is the macro-analysis of the effectiveness of the new deal, which will be published next September. It would greatly surprise me if that had nothing to say about the issues raised.
      I am a little sceptical of the argument by my hon. Friend the Member for Wentworth that it would make sense to probe employers at the point at which they sign a new deal agreement or take on a new deal recruit as to whether an extra job had been generated. Some employers might suspect the motive behind that question, feeling that, if they gave the wrong answer, the subsidy might be withdrawn. We must be careful. Like my hon. Friend, I want to collect all available evidence and to publish an unprecedented amount of it. I thank my hon. Friends who have paid tribute to the publication of information about

      577
      the new deal. My right hon. Friend the Secretary of State and I shall continue to be much more open about publication than any of our predecessors ever were.
      Mr. Willetts: The Minister has claimed that new deal jobs cost £1,000 per extra job. On what basis does he make that calculation if he is claiming that he does not have the statistics?
      Mr. Smith: The estimate is based on the unit cost of the different steps that people took to get on to the new deal. For example, for those going into unsubsidised jobs, the estimate is based on an estimate of the cost of the help that they received in the gateway before entering the job. For those who have moved into subsidised jobs, the estimate is based on the cost of the gateway plus the cost of the subsidy and their support in the job.
      The hon. Member for Havant and his hon. Friends will regret having slung around their necks the ridiculous millstone of an £11,000—plus cost of new jobs. That is like waiting until week two of the operation of the channel tunnel and claiming that every passenger going through it on a train is costing millions of pounds. The hon. Gentleman loads the whole budget against the first people.
      Mr. Willetts: Will the Minister give way?
      Mr. Smith: No, let the hon. Gentleman listen to a lecture in elementary economics. He is fond of lecturing us on that. His figures are a ludicrous, extravagant, cynical fabrication, and they do a disservice to all the people throughout the country who are working hard to make a success of the new deal. They do a grave disservice to new deal participants, who appreciate the new hope and opportunity that the programme is bringing.
      My hon. Friend the Member for Pontefract and Castleford (Yvette Cooper) made an important point. I was pleased to hear my hon. Friend and others refer to the success and the revolutionary approach that the new deal for lone parents represents. I can assure my hon. Friend that there is no difference in philosophy between our approaches to the two programmes. Both are about employability, about helping people forward and about helping people into work if work is the appropriate option and choice for them. Both programmes are bringing new hope and opportunity to thousands of people who were denied it so badly by the Conservative party.
      On the letter and advice being sent to new parents under the new deal, let me assure my hon. Friends that we shall send out new information in the new year. It will give even more emphasis to the range of help available, training opportunities, help with child care and transport costs and much more. As for the text of the letter, the publication of our other promotional material will provide an opportune moment at which to revisit the wording on the education and training opportunities that are available to see whether it can be made still clearer.
      We are proud of the new deals. We are proud of the new deal for young people, the new deal for older, long-term unemployed people which is coming on stream, the new deal for lone parents, and the new deal for disabled people, because they give new hope and opportunities to our country.
      It being Ten o'clock, MR. DEPUTY SPEAKER proceeded to put forthwith the deferred Questions which he was directed by paragraphs (4) and (5) of Standing Order No. 54 (Consideration of estimates) to put at that hour.

    VOTE ON ACCOUNT 1999–2000

      Class IV, Vote 1
      Resolved,
      That a sum, not exceeding £2,299,414,000 be granted to Her Majesty out of the Consolidated Fund, on account, for or towards defraying the charge for the year ending on 31st March 2000 for expenditure by the Home Office on police; the Forensic Science Service; registration of forensic practitioners; emergency planning; fire services; the Fire Service College; criminal policy and programmes including offender programmes; the prevention of drug abuse; crime reduction and prevention; provision of services relating to the Crime and Disorder Act; criminal justice service research; criminal injuries compensation; organised and international crime; control of immigration and nationality; issue of passports; community and constitutional services; firearms compensation and related matters; and on administration (excluding the provision for prisons administration carried on Class IV, Vote 2).

      Class IV, Vote 2
      Resolved,
      That a sum, not exceeding £766, 651,000 be granted to Her Majesty out of the Consolidated Fund, on account, for or towards defraying the charge for the year ending on 31st March 2000 for expenditure by the Home Office in England and Wales on prisons (including central administration and other costs arising from the detention of prisoners); placements in secure accommodation under Section 53 of the Children and Young Persons Act 1933; Prison Service colleges; the Parole Board; the storage and maintenance of equipment; transport management; grants to "Prisoners Abroad", and Welfare to Work Schemes.

      Class 1, Vote 1
      Resolved,
      That a sum, not exceeding £6,826,077,000 be granted to Her Majesty out of the Consolidated Fund, on account, for or towards defraying the charge for the year ending on 31st March 2000 for expenditure by the Department for Education and Employment on voluntary and special schools; the Assisted Places Scheme; the provision of education for under-fives; City Colleges and other specialist schools; grant-maintained schools and schools conducted by Education Associations; music and ballet schools; the school curriculum and its assessment; the youth service and other educational services and initiatives; careers guidance and services; payments for or in connection with teacher training; higher and further education provision and initiatives; loans to students, student awards and other student grants and their administration; the payment of access funds; reimbursement of fees for qualifying European Community students; compensation payments to teachers and staff of certain institutions; expenditure on other central government grants to local authorities; the provision of training and assessment programmes for young people and adults; initiatives to improve training and qualifications arrangements and access to these; the promotion of enterprise and the encouragement of self employment; payments for education, training and employment projects assisted by the European Community and refunds to the European Community; events associated with the UK presidency of the EU; the UK subscription to the ILO; help for unemployed people; the promotion of equal opportunities, disability rights, childcare provision and co-ordination of certain issues of particular importance to women; the payment of certain fees to the Home Office; the Department's own administration and research and that of Capita; information and publicity services; expenditure via Training and Enterprise Councils and amounts retained by them as surpluses and spent by them on training; other initiatives within their articles and memoranda of association; expenditure in connection with the sale of the student loans debt; and on expenditure in connection with the Welfare to Work Programme and Millennium Volunteers.

      Class 1, Vote 3
      Resolved,
      That a sum, not exceeding £782,937,000 be granted to Her Majesty out of the Consolidated Fund, on account, for or towards defraying the charge for the year ending on 31st March 2000 for expenditure by the Employment Service of the Department for Education and Employment on: measures to help people, particularly people who are unemployed and people with disabilities, into work; the elements of the delivery of the Jobseeker's Allowance undertaken by the Employment Service; the administration of, and where appropriate the payment of allowances to people participating in, the Welfare to Work programme and other employment programmes, pilot programmes and new measures to help people into work; the payment of temporary subsidies to employers; the payment of grants to voluntary bodies and local authorities towards the provision of supported employment; and grant in aid and the provision of a temporary loan facility to Remploy Limited; assistance and advice on employment service and labour market issues to international organisations; research; publicity; and administration.

    Class XII
    Resolved,
    That a sum, not exceeding £22,716,706,000 be granted to Her Majesty out of the Consolidated Fund, on account, for or towards defraying the charge for the year ending on 31st March 2000 for expenditure by the Department of Social Security.
    MR. DEPUTY SPEAKER proceeded to put forthwith the Questions which he was directed to put by Standing Order No. 55 (Questions on voting of estimates, etc.).

    ESTIMATES, 1998–99 (NAVY) VOTE A
    Resolved,
    That during the year ending on 31st March 1999 an additional number not exceeding 10 officers be maintained for Service in the Reserve Marine Forces.

    SUPPLEMENTARY ESTIMATES, 1998–99
    Resolved,
    That a supplementary sum, not exceeding £924,068,000 be granted to Her Majesty out of the Consolidated Fund, to defray the charges for civil services which will come in the course of payment during the year ending on 31st March 1999, as set out in HC857 of Session 1997–98.

    ESTIMATES, 1999–2000 (VOTE ON ACCOUNT
    Resolvsed,
    That a further sum, not exceeding £69,610,689,000 be granted to Her Majesty out of the Consolidated Fund, on account, for or towards
    580
    defraying the charges for civil and defence services in Class I, Votes 2 and 4; Classes II and III; Class IV, Vote 3; Classes V to XI; Classes XIII to XVIII; and Classes XVIII, A and XVIII, B for the year ending on 31st March 2000, as set out in HC1134, 1135 and 1136 of Session 1997–98.
    Ordered,
    That a Bill be brought in on the foregoing resolutions: And that the Chairman of Ways and Means, Mr. Chancellor of the Exchequer, Mr. Stephen Byers, Mr. Geoffrey Robinson, Dawn Primarolo and Ms Patricia Hewitt do prepare and bring it in.

    CONSOLIDATED FUND (No. 2) BILL
    Dawn Primarolo accordingly presented a Bill to apply certain sums out of the Consolidated Fund to the service of the years ending on 31st March 1999 and 2000: And the same was read the First time; and ordered to be read a Second time on Monday 14th December and to be printed [Bill 8].

    BUSINESS OF THE HOUSE
    Ordered,
    That the following provisions shall apply to the Second Reading of the Greater London Authority Bill:
    (a) at the sitting on Monday 14th December, proceedings thereon may continue, though opposed, until midnight; and
    (b) at the sitting on Tuesday 15th December, the Speaker shall put the Questions necessary to dispose of proceedings on Second Reading of the Bill at Seven o'clock.—[Mr. Hill.]
    Ordered,
    That at the sitting on Tuesday 15th December, Standing Order No. 16 (Proceedings under an Act or on European Union Documents) shall not apply to any Motion in the name of the Prime Minister relating to fisheries, and the Speaker shall put the Questions necessary to dispose of proceedings thereon not later than Ten o'clock.—[Mr. Hill.]

    EUROPEAN SCRUTINY COMMITTEE
    Ordered,
    That Mr. Russell Brown and Mrs. Linda Gilroy be discharged from the European scrutiny Committee and Mr. Michael Connarty and Dr. Nick Palmer be added to the Committee.—[Mr. Hill.]

Mr. Rodney Ledward
Motion made, and Question proposed, That this House do now adjourn.—[Mr. Hill.]
10.3 pm
Mr. Michael Howard: At the outset, I should like to express my appreciation to my right hon. Friend the Member for Maidstone and The Weald (Miss Widdecombe) and my hon. Friend the Member for Rutland and Melton (Mr. Duncan) for their presence tonight. My hon. Friend the Member for Ashford (Mr. Green) and the hon. Member for Dover (Mr. Prosser) have told me that they have engagements in their constituencies, which is why they are not here.
The subject of this debate is the most painful that I have encountered in the fifteen and a half years that I have had the honour to represent the Folkestone and Hythe constituency in this place. It will be necessary for me to deal, however briefly, with some of the individual cases involved—cases of women who placed themselves in the care of a consultant gynaecologist, who gave him their trust and who have suffered physical and mental anguish ever since. Those cases will be harrowing to recount and distressing to listen to, not least for those who have already suffered so much.
Mr. Rodney Ledward worked as a consultant gynaecologist in south-east Kent between 1980 and 1996. He worked both in the national health service and in the private sector. In 1996, Mr. Ledward was dismissed by South Kent Hospitals NHS trust and removed from BUPA's list of approved consultants. In September 1998, the General Medical Council found him guilty of several cases of serious professional misconduct, and withdrew his professional registration.
At the latest count, about 418 of Mr. Ledward's former patients have contacted the South Kent Hospitals NHS trust or the South East Kent community health council, or both, to express their concerns about the treatment that they received while under his care. The South East Kent community health council, to whose chairman, Paul Watkins, and chief officer, Jean Howkins, I pay tribute, has called on the Secretary of State to hold a public inquiry into how these tragic cases were allowed to happen and into the lessons to be learned from them, both for the NHS and for the private sector. I support that call, and that is why I have asked for this debate.
To explain what happened, it is necessary to refer to some of the individual complaints that have been made. They include unnecessary and inappropriate surgical procedures, including hysterectomy, perforation of the bladder and the bowel causing incontinence and mental trauma following the discovery by women and their families that, unnecessarily, they could no longer give birth.
One woman was apparently left with a dead full-term baby inside her in the maternity ward for three days before being induced. Several women with mild stress incontinence had bladder repair surgery without the usual pre-operative investigation, which might well have led to alternative non-operative methods of treatment. Many patients are still grossly incontinent. I need hardly dwell on the blight that this has cast over their lives.
Many women had hysterectomies performed on them at an unusually young age. Some were in their 20s. Some have since been told that they were too young and that
582
their hysterectomy was unnecessary. The consequences for them and their families are obvious and final. Many still suffer from very bad adhesions and have had to have further operations—in one case, as many as 17 further operations. Many are still in constant pain.
One woman had an ovary removed. Shortly after the operation, something burst and she was found to have 38 abscesses. She was readmitted to hospital and had to have a colostomy. She still suffers great pain.
Some women had their ovaries removed without consent. A number have reported being seen in the course of a NHS consultation and being told, quite wrongly, that the treatment that they needed was not available on the NHS.
There is one case that I shall describe rather more fully. It is the case of Brenda Johnson. In September 1994, she went to her general practitioner with bladder problems that were causing her concern. Her doctor referred her to Mr. Ledward, who said that she needed a repair, but would need a hysterectomy in six months' time. He suggested that she had a vaginal hysterectomy, which he said was a simple operation with no stitching, and that she would be fine within a few days. She was told that the waiting time for an NHS patient would be two years, but she could have the operation carried out within a few days privately in St. Saviour's hospital.
Mrs. Johnson says:
"You put your life and body into these surgeons' hands so you have to trust. I didn't think it was so severe and went back to my GP who agreed with me but said, 'Trust the surgeon, he may have seen something I haven't.' I asked around and was assured by other people who had hysterectomies it would be fine after a few weeks. With great reluctance I went ahead."
On Thursday 13 September 1984, aged 37, Mrs. Johnson was operated on at St. Saviour's hospital. She was bleeding after surgery and became very seriously ill as the evening wore on. Her anaesthetist saw her and contacted Mr. Ledward to say that she was in mortal danger. He did not return for many hours. Mrs. Johnson was in a terrible state and unconscious. Eventually further surgery took place. Mrs. Johnson's husband was called into the hospital in the early hours of the morning and told that she was dying. For five days she was barely conscious. She says:
"I was in absolute agony and kept under sedation with morphine. I had a blood transfusion in one arm, a saline drip in the other and a catheter. When I started to regain proper consciousness, after five days, I could hardly move a muscle and was in sheer agony. I thought, 'You wouldn't let a dog suffer like this."
Since then, Mrs. Johnson has suffered constant pain. To add insult to injury, the action that she brought to receive compensation for her pain and suffering was dismissed by the High Court. She has obtained no redress. I hope it may still be possible for that to be put right.
The questions that arise from Brenda Johnson's case and all the other cases are not difficult to identify. How could such a state of affairs have gone on for so long? When did the various authorities—the former South East Kent health authority, the former South East Thames regional health authority, the South Kent Hospitals NHS trust, St. Saviour's hospital, the General Medical Council—first become aware of concerns about Mr. Ledward's professional conduct and performance? How many complaints did they receive about him? What action did they take? What has happened to the medical records and consent forms of Mr. Ledward's former

583
private patients, which are alleged to have disappeared or no longer to be available? Above all, what lessons can be learned from these tragic events to ensure that, so far as it is humanly possible to do so, nothing like them ever happens again?
Dr. Howard Stoate: I am grateful to the right hon. and learned Gentleman. Does he believe that, were the complaints procedures in private hospitals to be the same as in NHS hospitals, that might have alleviated some of the problems about which we have heard tonight?
Mr. Howard: I shall come to that. I fear that the course of events in the national health service in these cases does not enable me to answer that question with a simple yes. We would be wrong and utterly complacent if we assumed that complaints procedures in the NHS are anything like all they should be. However, I entirely agree that more should be done in relation to the regulation of the private sector. I shall deal with that point.
I do not lightly ask for a public inquiry. The Minister will probably tell us how expensive it would be and how much time it would take, but I do not see what other means there is to satisfy public concerns on the matter. My constituents who have suffered want to know the course of the investigations. They want to know that all the right questions are being asked and that all the answers have been tested.
Comparisons will inevitably be drawn with the public inquiry that is taking place in Bristol. The tragic events that I have drawn to the attention of the House this evening are, in my view, at least as serious as the events that led to the Bristol inquiry. Moreover, those events raise questions that will not be covered by the Bristol inquiry. In particular, they raise questions about the private sector in health care and the need for it to be effectively regulated. I understand that those involved in the provision of private health care would welcome such regulation. Indeed, I am told that they have been asking for that, but so far their pleas have fallen on deaf ears.
Be that as it may, these questions, and the others that I have raised, are serious and weighty. South East Kent community health council—an authoritative and serious body—reached the conclusion that they would be answered effectively only by a public inquiry. I agree with its conclusion, as does my hon. Friend the Member for Ashford and the hon. Member for Dover. I hope that the Minister will tell us that he agrees, too.
10.15 pm
The Minister of State, Department of Health (Mr. Alan Milburn): I congratulate the right hon. and learned Member for Folkestone and Hythe (Mr. Howard) on securing the debate. He and I would prefer not to be having it, but it is important, especially for the women patients who have been affected by the appalling practice of one hospital consultant, Mr. Rodney Ledward.
Let me say at the outset how sorry I am—on behalf of the whole Government and, I believe, the whole House—to all the women who have been affected by Mr. Ledward's activities. They should never have had to experience the physical and mental distress that the right hon. and learned Gentleman outlined so graphically.
584
Like every other person who has had any contact with these events, I am appalled by two things: Mr. Ledward's activities and the fact that they were allowed to go on for so long. The right hon. and learned Gentleman has set out very clearly his views—and, quite rightly, the views of his constituents—on these matters. Let me express my own views about Mr. Rodney Ledward. He was an incompetent, irresponsible and arrogant surgeon who seemingly had little or no regard for his patients. Women came to him when they were feeling vulnerable and scared, expecting first-class treatment. Instead, he caused a catalogue of harm, which is both horrific and unforgivable.
Mr. Ledward has not only undermined confidence in services at South Kent Hospitals NHS trust, but has damaged public confidence throughout the health care system. Since the days of Mr. Ledward, the trust, as the right hon. and learned Gentleman knows, has recruited new doctors to its obstetrics and gynaecology department, and has also set in place new quality control procedures.
Let me describe the three ways in which the Government and the health service are responding to these events, and respond to the specific points made by the right hon. and learned Gentleman. First, the immediate priority has been to identify former patients of Mr. Ledward who might need help. The trust shares my deep concern, and that of the right hon. and learned Gentleman, about the activities of Mr. Ledward. It is making every effort to assist any former patients. I am pleased that the local community health council has commended the trust for dealing with the situation in an open and responsive way since Mr. Ledward was struck off by the General Medical Council.
Special arrangements have been set in place to help former patients. The right hon. and learned Gentleman is right to say that, to date, 418 patients have called South Kent Hospitals NHS trust. I can tell him that 168 have already been seen. Preliminary analysis shows that 22 NHS and 15 private patients may have suffered injury as a result of an operation by Mr. Ledward.
I would encourage any former patients of Mr. Ledward to contact the trust, if they have not already done so. It will then assess, quite properly, each patient's needs, and provide appropriate services, including medical care, counselling, claims for compensation or simply the facility to talk through any problems or concerns that they may have.
Secondly, I shall describe how we are investigating the background to these awful events. I have heard the right hon. and learned Gentleman's call for an independent public inquiry. As he knows, he is not alone in calling for such an inquiry. My right hon. Friend the Secretary of State and I will consider those views extremely carefully, and make an announcement as soon as possible on how we intend to proceed. I promise him that, whatever happens, the Government will publish the facts, so that the patients affected, the public and national health service staff can see how those events unfolded.
What I can tell the right hon. and learned Gentleman this evening is that, after the General Medical Council decision and after serious concerns were raised by a number of Mr. Ledward's former patients, including the right hon. and learned Gentleman's constituents, the Secretary of State instructed the NHS trust to carry out an urgent internal review of the circumstances leading up to

585
Mr. Ledward's dismissal, and to report to the Secretary of State. That report has now been received, and has provided a useful starting point. However, it has raised even more questions, to which I have asked the NHS trust to provide answers. I want to be able to provide as comprehensive an answer as possible to all the questions the right hon. and learned Gentleman and others have posed.
Let me give the right hon. and learned Gentleman a flavour of just some of the questions that have been prompted by the preliminary analysis. Why did no alarm bells sound when Mr. Ledward apparently had 12 medical litigation cases against him in the years from 1983? Given that concerns were apparently raised about Mr. Ledward with the regional health authority as early as 1991, why was nothing done? Why was no investigation prompted when, in 1994, following a serious complication involving surgery by Mr. Ledward on a female patient, he apparently agreed to be on call for his own patients?
Given that doctors appointed to Mr. Ledward's department were apparently told, at the time of their appointment, that there were concerns about the department that they were joining, why was nothing done? If it is true that serious concerns were raised about Mr. Ledward's practice in 1995, in relation to his attitude to patients, his unnecessary roughness during physical examinations of those patients, his unnecessary highlighting of private practice options to NHS patients, and his non-attendance at NHS ante-natal clinics, how is it that subsequently nothing was done?
Why did not the standard-setting role of the royal colleges manage to penetrate the world in which Mr. Ledward operated? Why was Mr. Ledward in charge of clinical audit in that hospital from 1989–96? How did policies in place in the health service at that time fail to prevent or detect and stop those horrendous events?
Those are only some of the questions that are raised by this deplorable case. We are determined to get answers to them all, and to the questions that the right hon. and learned Gentleman and his constituents are asking. The existing evidence reveals that the problem has a long history. Inadequate mechanisms were in place for dealing with it and, most appallingly of all, the women affected by it were the last to know what on earth was going on. That is what is most deplorable about all this.
The third issue is how we are now seeking to ensure that such a tragedy is never repeated. It is important to stress that, overwhelmingly in the national health service, patients receive safe and effective care and treatment day in, day out. Most doctors do an excellent job, but when things go wrong, in the NHS or elsewhere, it is patients who suffer. As we see in this case, the consequences can be appalling. As the right hon. and learned Gentleman rightly said, nobody pretends that mistakes will not happen. They will. Doctors, clinicians and others working in any health care system are only human.
However, failings such as these highlight the need for new safeguards. We need to develop a new culture of openness in the NHS that acknowledges, highlights and deals with problems promptly, rather than pretending that
586
they do not exist. The preliminary evidence in this case shows overwhelmingly that that was the problem in the hospital in question. We also need a new system of quality assurance that supports clinicians in developing and maintaining good practice, and that nips problems in the bud.
The chairman of the British Medical Association, Dr. Ian Bogle, recently wrote:
"the days when doctors thought they could turn a blind eye to the incompetence of their colleagues have gone."
Dr. Bogle is right. It is in no one's interests—neither patient nor doctor—to cover up cases of outright failure.
The Government believe that new safeguards are necessary for patient safety and public confidence. We are taking five important steps. First, we are establishing a new duty of clinical governance to put quality assurance systems in place in all parts of the NHS. Secondly, we are placing a new emphasis on publishing clinical outcome data, so that results can be compared over time and between clinical teams. Thirdly, all doctors will in future be required to participate in a national audit programme, including specialty and sub-specialty national external audit programmes, to ensure that their performance is up to scratch. Fourthly, individual doctors will be required to share their results with the medical director of their NHS trust and the trust's lead clinician for clinical governance. Fifthly, a new external body—the commission for health improvement—will be established, whose job will be to monitor quality standards externally and to intervene promptly if necessary when things are going wrong, as they clearly were in the case of Mr. Rodney Ledward.
Those five points summarise the action that the Government are taking. The medical profession, too, has to play its full part. I believe that the leadership of the profession recognises the need for change, but that recognition must be matched by a commitment from the profession as a whole to take prompt and effective action. Without that, the whole system of professional self-regulation will not command the public's confidence.
The Government, like the profession, want professional self-regulation to work, but no one should be in any doubt that the system is under test. It must become more modern, more open and more accountable. If professional self-regulation is to be the bedrock of high clinical standards in the future, it cannot operate in isolation. It must form part of an integrated framework of new mechanisms that embrace the profession, the regulatory machinery, the educational bodies and the NHS.
I know that all this comes too late for the women who suffered at the hands of Mr. Ledward. We shall do everything that we can to help them. We shall get to the bottom of how Mr. Ledward was allowed to wreak such damage on so many of them, and we shall learn the lessons of these terrible events, so that we can do our very best to ensure that patients in the future are protected from bad doctors such as Mr. Ledward.
Question put and agreed to.
Adjourned accordingly at twenty-nine minutes past Ten o'clock.

SOCIAL SECURITY

  Korean War Veterans
  Mr. Pond
  To ask the Secretary of State for Social Security what the incidence of rheumatoid arthritis is amongst veterans of the Korean War; and how this compares with the incidence amongst the population as a whole. [62977]

  Mr. Timms
  The information is not available.

  Devolution
  Ms Roseanna Cunningham
  To ask the Secretary of State for Social Security what assessment he has made of the programmes which it will be ultra vires for his Department to fund or have sole responsibility for after devolution; if he will list these programmes; and if he will make a statement. [63298]

  Mr. Timms
  Social Security, Child Support and pension matters are reserved to the Westminster Parliament by virtue of Head F of Schedule 5 of the Scotland Act 1998. My right hon. Friend the Secretary of State for Social Security will therefore remain responsible for these matters in Scotland after devolution.

  Ms Roseanna Cunningham
  To ask the Secretary of State for Social Security how much is spent annually by his Department on research programmes in Scotland; and what proportion of this funding will be transferred to the Scottish Parliament after devolution. [63296]

  Mr. Timms
  Social Security, Child Support and Pensions are reserved matters, and the research associated with them will also remain this Department's responsibility after devolution. Therefore none of the funding attributable to research in this Department will be transferred to the Scottish Parliament.

  The cost of collecting data in relation to Scotland is an integral part of the cost of collecting data for Great Britain. The overhead costs of conducting the research are incurred on a Great Britain basis. It is not therefore possible to disaggregate the spending on research in Scotland from the total spending in Great Britain.

  Ms Roseanna Cunningham
  To ask the Secretary of State for Social Security if he will list(a) by programme over £50,000 and (b) the total of spending by his Department in Scotland on the identifiable spending areas detailed in Table 7.6A of the Public Expenditure Statistical Analysis 1997–98 (Cmnd 3601); which of these programmes will fall solely or jointly under the responsibility of the Scottish Parliament; and what arrangements are in place to transfer control of funds for these projects to the Scottish Executive or Parliament. [63297]
  244
  Mr. Timms
  I refer the hon. Member to the reply given by my right hon. Friend the Chief Secretary to the Treasury to the hon. Member for Tayside, North (Mr. Swinney) on 4 November 1998,Official Report, column 615, which sets out identifiable expenditure on Social Security benefits in Scotland. It does not include the costs of administration in or in respect of Scotland, or certain elements, e.g. benefits paid overseas which cannot be attributed separately.

  Social Security is a reserved matter and expenditure on it will not therefore be the responsibility of the Scottish Executive or Parliament.

  Supported Accommodation
  Ms Stuart
  To ask the Secretary of State for Social Security if he will make a statement about the future of the funding arrangements for supported accommodation. [63667]

  Mr. Darling
  We are publishing today a consultation document "Supporting People" proposing new funding arrangements for support services. The proposals arise from the Inter-Departmental review of funding for supported accommodation.

  Over the years Housing Benefit, which was designed to meet housing costs, has been used to meet other costs over which the Government have no control. As a result, Housing Benefit became the primary funding stream for support services that varied in standard from the very good to the very bad. There was no proper consideration of quality or standards.

  Nor has there been an effective over-arching strategy of the work of the various government departments involved, or ownership of responsibility for ensuring that vulnerable people receive the support they require. This has resulted in a focus on dealing with problems once they emerge, sometimes pushing people into more acute services than they might have originally needed.

  The new arrangements will enable many thousands of vulnerable people to get the cost-effective and high-quality services which they need.

  We propose to replace the current complicated arrangements with one single budget targeted specifically at support services. This will ensure that the Government meet people's basic housing costs and at the same time that vulnerable people get the quality help they need to meet their requirements. This will be administered at the local level by Local Authorities. The new single budget will be preceded by a new, time-limited, transitional Housing Benefit scheme which will be implemented when current regulations expire; these regulations were introduced to protect many thousands of vulnerable people whose support services were jeopardised by a Court ruling in July 1997.

  Our new proposals for delivering support to vulnerable people will operate in combination with community care, housing, and other existing policies to support vulnerable people in the community. Funding for support services will, for the first time, be clear and practical. This means that many vulnerable people—such as frail elderly people, people with mental health problems, and victims of domestic violence—will be able to remain independent within the community.
  245
  The proposals demonstrate the benefits of Inter-Departmental working, bringing together expertise across Government to develop policies that meet the needs of individuals. In carrying this work forward, the Government are keen to involve local government, the Housing Corporation, the providers and other stakeholders throughout the consultation process and beyond.

  Copies will be placed in the Library.

CULTURE, MEDIA AND SPORT

  Devolution
  Ms Roseanna Cunningham
  To ask the Secretary of State for Culture, Media and Sport how much is spent annually by his Department on research programmes in Scotland; and what proportion of this funding will be transferred to the Scottish Parliament after devolution. [63287]

  Mr. Chris Smith
  Nil.

  Television Education Channel
  Mr. Peter Ainsworth
  To ask the Secretary of State for Culture, Media and Sport what discussions he has had with the Secretary of State for Education and Employment over the establishment of a new television education channel. [63316]

  Mr. Chris Smith
  My Department is in regular contact with the Department for Education and Employment on a wide range of issues including broadcast educational material, and the Department for Education and Employment is discussing direct with broadcasters the development and broadcast of new specific digital educational services to support the GCSE National Curriculum.

  Parliamentary Questions
  Mr. Peter Ainsworth
  To ask the Secretary of State for Culture, Media and Sport if he will write in response to the questions tabled on 4 November by the hon. Member for East Surrey. [63325]

  Mr. Chris Smith
  I replied to the hon. Member in a letter dated 30 November and delivered to the House on 4 December 1998.

LORD CHANCELLOR'S DEPARTMENT

  Ministerial E-mail Address
  Mr. Brake
  To ask the Minister of State, Lord Chancellor's Department what is his e-mail address. [62560]

  Mr. Hoon
  Hon. Members can e-mail the Lord Chancellor's Department's Ministerial Correspondence Unit at:mcu.lcd@gtnet.gov.uk. Members of the public can e-mail the Department at: enquiries.lcdhq@gtnet.gov.uk.

  Maintenance Orders
  Mr. Truswell
  To ask the Minister of State, Lord Chancellor's Department what assessment he has made of the effectiveness of reciprocal enforcement of maintenance orders; and if he will make a statement. [62357]

  Mr. Hoon
  Officials from my Department frequently review the effectiveness of internal procedures for transmitting applications for the enforcement of maintenance orders between the UK and overseas authorities to discuss improvements to these reciprocal arrangements.

  Environmental Courts
  Mr. Gordon Prentice
  To ask the Minister of State, Lord Chancellor's Department if he will establish designated courts to deal with environmental issues. [62537]

  Mr. Hoon
  There are no plans to establish separate environmental courts. However, cases involving environmental issues will benefit, along with all other cases, from the regime of judicial case management to be introduced in April.

ENVIRONMENT, TRANSPORT AND THE REGIONS

  Road Traffic Law
  Mr. Kidney
  To ask the Secretary of State for the Environment, Transport and the Regions what progress has been made over the last five years(a) within his Department, (b) in conjunction with other Government departments and (c) in conjunction with European bodies towards developing systems involving the use of new technology for safety-related road traffic law enforcement and the administration of penalties. [62544]

  Ms Glenda Jackson
  Road traffic law enforcement and the administration of penalties are mainly matters for my right hon. Friend the Home Secretary. However, my department, in conjunction with his, is interested in the potential of new technology to support its road safety and environmental objectives. To that end it has an extensive research programme and is also supportive of a wide range of research in the UK and in Europe which seeks to develop practical applications of new technology for road traffic law enforcement and the administration of penalties. Examples of this are the research projects on vehicle speed control being conducted on behalf of the Department by the Motor Industry Research Association and the Institute for Transport Studies at the University of Leeds, and the field trials conducted in Sweden and the Netherlands evaluating different systems and technologies to control vehicle speeds externally.

  Donaldson Report
  Mr. Ainger
  To ask the Secretary of State for the Environment, Transport and the Regions when he plans to publish Lord Donaldson's report on command and control of major pollution incidents; and if he will make a statement. [62937]
  247
  Ms Lawrence
  To ask the Secretary of State for the Environment, Transport and the Regions when the report by Lord Donaldson relating to the 'Sea Empress' incident will be published. [63044]

  Ms Glenda Jackson
  We received Lord Donaldson's report on his review of marine salvage and intervention and their command and control on 20 November. Consideration is being given to the publication of the report.

  Housing Benefits
  Mr. Hancock
  To ask the Secretary of State for the Environment, Transport and the Regions how much housing benefit was paid to council tenants(a) in the UK and (b) of Portsmouth City Council in each of the last three years; and in each case, what proportion of that amount was funded from council rents. [63026]

  Mr. Raynsford
  The information requested is shown in the following table.

  1995–96

  1996–97

  1997–98

  UK

  HB paid to council tenants (£ million)

  4,421

  4,535

  4,441

  Percentage funded through rental surpluses

  23.7

  25.9

  27.4

  Portsmouth

  HB paid to council tenants (£ million)

  25.0

  26.6

  26.5

  Percentage funded through rental surpluses

  16.0

  18.3

  19.3

  Housing Development (North-West)
  Mr. Gordon Prentice
  To ask the Secretary of State for the Environment, Transport and the Regions if he will estimate the percentage and area of brownfield sites in the North West where the cost of reclamation is likely to make the site uneconomic for housing development. [63047]

  Mr. Raynsford
  The information requested is not currently available. Phase 1 of the National Land Use Database project, which we launched in May 1998, covers vacant and derelict sites and other previously developed land which may be available for redevelopment. Officials are currently working with English Partnerships, local authorities and the Ordnance Survey to collect the information for this first phase. Initial results should be available by the end of March 1999.

  Railtrack
  Mr. Mullin
  To ask the Secretary of State for the Environment, Transport and the Regions if he will list the levels of capital investment by Railtrack for each year since it was established; what the figures were for comparable capital investment by British Rail in the five years before privatisation; and if he will make a statement. [62600]

  Ms Glenda Jackson
  Railtrack was established on 1 April 1994 and privatised on 20 May 1996. The table shows annual total rail infrastructure investment between 1989–90 and 1997–98.
  248

  year

  Annual total rail infrastructure investment (£ million cash)

  1989–90

  1603

  1990–91

  625

  1991–92

  769

  1992–93

  843

  1993–94

  708

  1994–95

  2661

  1995–96

  744

  1996–97

  961

  1997–98

  1,250

  1 Investment figures for 1989–90 to 1993–94 cover BR investment on infrastructure, on buildings, and on new routes and new electrification. This approximates, but is not identical to, the types of investment now undertaken by Railtrack.

  2In addition, investment figures from 1994–95 onwards, based on information provided by Railtrack and as reported in the company's Annual Reports and Accounts, are not directly comparable with figures for rail infrastructure investment in previous years due to changes in accounting definitions and the adoption of a new accounting practice by Railtrack.

  Seat Belts and Child Restraints
  Mr. Sheerman
  To ask the Secretary of State for the Environment, Transport and the Regions (1) what steps he is taking to encourage motorists to use appropriate safety measures for child passengers; [62933]

  (2) what plans he has to encourage motorists (a) to use seat belts and (b) to ensure that their passengers wear seat belts. [62984]

  Ms Glenda Jackson
  The Department's leaflet "Seat Belts and Child Restraints" which provides advice on the law, on selecting the right child restraint and on wearing by pregnant women is widely available. Advice is also provided in the 1996 version of the Department of Transport publication "Choosing Safety", published by the Stationery Office. Copies of both documents are in the Library of the House.

  In the longer term, a standard method of attaching child restraints to cars will make fitting more straightforward. The UK has taken a leading role in the development of the ISOFIX system, which would provide standard attachment points on both child restraints and cars. We are keen for this system to be adopted as the European norm.

  Following the successful campaign last July to encourage rear seat belt wearing we are considering further advertising in 1999. Surveys by the Transport Research Laboratory show an increase in rear seat belt wearing (children and adults) from 67 per cent. in April 1998 to 72 per cent. in October 1998, the highest figure yet reported by these regular surveys.

  Great North Eastern Railway
  Mr. Sheerman
  To ask the Secretary of State for the Environment, Transport and the Regions what steps he is taking to encourage GNER to increase the speed and regularity of its services. [62983]

  Ms Glenda Jackson
  The franchise agreement, which governs the provision of services, includes a Passenger Service Requirement (PSR) which specifies a minimum level of service which GNER must plan to provide. The PSR includes maximum acceptable intervals between services and maximum acceptable end-to-end journey
  249
  times. What services operate over and above the PSR is a matter for GNER. Ministers are considering recommendations from the Franchising Director about the future provision of capacity for East Coast Main Line services, and will make a statement about that in due course.

  School Playing Fields (Redevelopment)
  Mr. Nigel Jones
  To ask the Secretary of State for the Environment, Transport and the Regions what monitoring his Department has carried out regarding redevelopments of school playing fields called in under the statutory consultee process. [62972]

  Mr. Raynsford
  Planning applications to develop school playing fields which are called in for the Secretary of State's determination are handled in the first instance by the Government Offices for the Regions. Four applications have been called in since June 1997.

  Waste Transportation
  Mr. Baker
  To ask the Secretary of State for the Environment, Transport and the Regions what percentage of(a) road, (b) rail and (c) water traffic can be attributed to the transportation of waste; and if he will make a statement. [62428]

  Ms Glenda Jackson
  [holding answer 8 December 1998]: Waste accounted for some 7 per cent. of the total tonnage of domestic waterborne freight in 1997. No information is currently available for the percentage of road and rail traffic accounted for by waste. This limited information will be taken into account in the follow up to the Department's consultation paper "Less Waste, More Value".

  Devolution
  Ms Roseanna Cunningham
  To ask the Secretary of State for the Environment, Transport and the Regions (1) how much is spent annually by his Department on research programmes in Scotland; and what proportion of this funding will be transferred to the Scottish Parliament after devolution; [63278]

  (2) if he will list (a) by programme over £50,000 and (b) the total spending by his Department in Scotland on the identifiable spending areas detailed in Table 7.6A of the Public Expenditure Statistical Analysis 1997–98 (Cmnd 3601); which of these programmes will fall solely or jointly under the responsibility of the Scottish Parliament; and what arrangements are in place to transfer control of funds for these projects to the Scottish Executive or Parliament; [63279]

  (3) what assessment he has made of the programmes which it will be ultra vires his Department to fund or have sole responsibility for after devolution; if he will list these programmes; and if he will make a statement. [63280]

  Mr. Meale
  Under the terms of the Scotland Act 1998, the Scottish Ministers will assume responsibility for a range of devolved functions which will in part depend on secondary legislation which has yet to be passed. My Department is reviewing its programmes, including the research components, in the light of the Scotland Act. It is too early to say to what extent programme expenditure which is currently administered by the Department may 250
  relate to functions which will transfer to Scottish Ministers. Work is taking place to establish the extent of any such expenditure and to assess the needs for any consequential transfer of funds to the Scottish Ministers. For the total spending by the Department in Scotland I refer the hon. Member to the reply given by my right hon. Friend the Chief Secretary to the Treasury to the hon. Member for North Tayside (Mr. Swinney) on 4 November 1998, Official Report, column 615.

  Pesticide Tax
  Mr. Paul Marsden
  To ask the Secretary of State for the Environment, Transport and the Regions what assessment he has made of the(a) environmental benefits and (b) costs to rural businesses of a pesticide tax. [63450]

  Mr. Meale
  The Department has commissioned extensive research work on the feasibility of an economic instrument to assist in delivering the Government's pesticide minimisation policy. This has included assessment of the potential environmental benefits of such an instrument, of the impacts on and costs to relevant agricultural sectors and on the manufacturers and distributors of pesticides.

  Greater London Authority Bill
  Mr. Ottaway
  To ask the Secretary of State for the Environment, Transport and the Regions when he intends to publish the explanatory notes to the Greater London Authority Bill. [63305]

  Mr. Raynsford
  Copies of the Explanatory note were published, today.

  Sea Stores, Yate
  Mr. Webb
  To ask the Secretary of State for the Environment, Transport and the Regions what current use is made of the sea stores property at Yate, owned by the Property Services Agency; and what plans he has for its future use. [63256]

  Ms Glenda Jackson
  This property is in fact owned by the Highways Agency. I have asked the Chief Executive of the Highways Agency, Mr. Lawrie Haynes, to write to the hon. Member.

  Letter from H. Parker-Brown to Mr. Steve Webb, dated 10 December 1998:
  The Transport Minister, Glenda Jackson, has asked Lawrie Haynes, the Chief Executive, to reply to your recent Parliamentary Question about the sea stores at Yate. I am replying in Lawrie's absence from the office.
  The stores are owned by the Highways Agency and are used to store mainly electrical equipment needed for the National Motorway Communications Network. There are no plans to change this use.

  UK Safety Oversight System
  Mr. Quinn
  To ask the Secretary of State for the Environment, Transport and the Regions when he expects to announce the results of the audit of the UK safety oversight system carried out by the International Civil Aviation Safety Organisation in April 1998; and if he will make a statement. [63665]

  Ms Glenda Jackson
  The United Kingdom was one of the leading nations in pressing the International Civil Aviation Organisation (ICAO) to set up, in 1995, a
  251
  programme of voluntary safety assessments of its member states. The objective of this programme was to seek to ensure that ICAO Contracting States are adequately discharging their responsibilities for safety oversight in certain specific areas: aircraft operations, the licensing and training of personnel and aircraft airworthiness.

  This Government took the initiative in December 1997—the first major aviation state to do so—of asking ICAO to assess the UK safety oversight system. The audit took place from 14–24 April, this year, and focused to a large extent on the role of the Civil Aviation Authority. The final Report, which was agreed with ICAO on 30 October, finds that the
  'CAA is an appropriately organised and funded organisation … very effective and efficient for its purpose'.

  There are 28 recommendations, relatively few compared with audits of other, smaller authorities, and none questions the performance of the Authority's fundamental safety work. The Government have accepted all but two of the recommendations, which could not have been met within the current legislative structure. We have agreed an Action Plan, drawn up by the CAA, to meet the recommendations; the Plan is included in the Report.

  We have also been firm advocates of the need to make the results of ICAO audits more transparent and widely available to the international aviation community and to the public at large. Today, we are happy to make the full ICAO report available on the Internet at the DETR web-site. Printed copies have been placed in the House Libraries.

  The UK is one of the leaders in safety oversight, with an excellent reputation world wide. But aviation safety needs constant vigilance; that is why both the Government and the Authority were keen to open its doors to ICAO. The Government welcome the audit results and the CAA's positive response, and will be following closely the implementation of the Action Plan. I am confident that the CAA, and the UK aviation industry as a whole, has benefited from this audit.

  Roads Review
  Mr. Fitzpatrick
  To ask the Secretary of State for the Environment, Transport and the Regions if he will make a statement on progress since the Roads Review on the Targeted Programme of Improvements and the programme studies. [63666]

  Ms Glenda Jackson
  My noble Friend the Minister for Roads and Road Safety announced today that we are able to provide further details of the construction programme for the schemes included in our Targeted Programme of Improvements listed in A New Deal for Trunk Roads in England.

  As previously stated by my right hon. Friend the Minister of Transport, on 31 July 1998, Official Report, columns 653–75, all the schemes listed in the TPI will definitely start within the next seven years, subject only to the completion of any outstanding statutory procedures.

  For those schemes where all the statutory procedures have been completed, the following are the planned start of works dates. Final confirmation of individual start dates within each year will be subject to the satisfactory completion of the necessary contract process.
  252
  2000–01

  Al: Willowburn—Denwick

  A6: Great Glen Bypass

  A27: Polegate Bypass

  A41: Aston Clinton Bypass

  A43: Silverstone Bypass

  A43: Whitfield Turn—Brackley Hatch Improvement

  A1033: Hedon Road, Hull Improvement

  2001–02

  A5: Nesscliffe Bypass

  A6: Clapham Bypass

  A6: Rothwell—Desborough Bypass

  A6: Rushden and Higham Ferrers Bypass

  A10: Wadesmill-Colliers End Bypass

  A1l: Roudham Heath to Attleborough

  A21: Lamberhurst Bypass

  A23: Coulsdon Relief Road

  A43: M40-B4031 Improvement

  A46: Newark-Lincoln Improvement

  A63: Selby Bypass

  A66: Stainburn and Great Clifton Bypass

  Al20: Stansted-Braintree

  A500: Basford/Hough/Shavington Bypass

  A650: Bingley Relief Road

  2002–03

  M25: J 12–15 Widening

  2003–04

  M60: J 5–8 (formerly M63 J 6–9 Widening).

  We propose to take forward the following five schemes under Design, Build, Finance and Operate (DBFO) contracts. These provide bidders with the flexibility to decide their own start dates as a means of producing better value for money. In line with our new objectives for Trunk Roads the proposed payment mechanisms for these schemes will incentivise efficient road operation and will include rewarding improved safety and good service to buses and lorries. We will further keep under review the scope for additional public private partnerships to implement the TPI.

  The DBFO Schemes are:

  Contract Award Date

  2002–03

  A1(M): Ferrybridge to Hook Moor

  Al(M): Wetherby to Walshford.

  The following three schemes, which we propose taking forward under DBFO contracts, are still subject to statutory procedures. The next statutory procedures for these schemes, together with the planned dates, are:

  1999–2000

  A249: Iwade-Queenborough Improvement (Public Inquiry)

  2000–01

  A2: Bean-Cobham Widening Phase 2 (Public Consultation)

  A2: A2/A282 Dartford Improvement (Order Publication).

  I am not yet in a position to announce the final start of works dates for the remaining schemes listed in the TPI. I am however able to announce the next statutory procedure for the remaining schemes where applicable.
  253
  1998–99

  A303: Stonehenge (Public Consultation)

  1999–2000

  A6: Alvaston (Order Publication)

  A34: Chieveley/M4 J 13 Improvement (Order Publication—revised CPO)

  2000–01

  A2: Bean-Cobham Widening Phase 1 (Public Consultation)

  A500: City Road/Stoke Road Junctions (Order Publication)

  2001–02

  A5: Weeford-Fazeley Improvement (Order Publication)

  A14: Rookery Crossroads Grade Separated Junction (Order Publication)

  A421: Great Barford Bypass (Order Publication).

  At the same time as the TPI was published, a further seven schemes were listed which were not sufficiently advanced to be considered for the TPI but which are to be progressed through their statutory procedures and, if endorsed as a result of the Regional Planning Guidance procedure process, will be taken forward without delay, subject only to the availability of funds. They are, with dates of the next statutory procedure:

  1999–2000

  A30: Bodmin-Indian Queens Improvement (Public Consultation)

  2000–01

  A11: Attleborough Bypass (Public Consultation)

  A11: Fiveways-Thetford Improvement (Public Consultation)

  A63: Melton Grade Separated Junction (Order Publication)

  2001–02

  A45/A46: Tollbar End Improvement (Public Consultation)

  A57/A628: Mottram-Tintwistle Bypass (Order Publication)

  A66: Temple Sowerby Bypass and Improvement at Winderwath (Order Publication).

  In A New Deal for Trunk Roads in England we also proposed a programme of studies to address the most urgent problems on the Trunk Road Network not addressed by schemes in the TPI. My Department is today beginning a consultation exercise with Regional Planning Bodies to agree the study programme and to seek views in particular on the timing of the studies. The provisional programme of studies is as follows:
  Tranche one multi-modal studies: West Midlands to North West Conurbation; London Orbital; South West Yorkshire Motorway box; Tyneside; West Midlands Area; Access to Hastings; London to South West and South Wales; North-South Movements in East Midlands; and South East Manchester.
  Work to begin in spring 1999.
  Tranche two multi-modal studies: Cambridge to Huntingdon, A453 (MI-Nottingham); Southampton to Folkestone; Hull; London to South Midlands; West Midlands to Nottingham; London to Reading.
  The start date for these studies will depend on the progress of tranche one studies in each region.
  Roads-based studies: Al Bramham to Barton; Norwich to Great Yarmouth; A5 Shrewsbury to Welsh Border; A38 Derby Junctions; M1 Junction 19; A3 Hindhead; Deeside Park Junctions; M40/A46 Longbridge roundabout; A419 Blunsdon; A66 Safety study.
  We intend to begin these within the next two years.

  A copy of the consultation document will be placed in the Library.

  Right to Buy
  Ms Blears
  To ask the Secretary of State for the Environment, Transport and the Regions if he will announce the results of the consultation exercise on the changes to the right to buy maximum discount. [63772]

  Mr. Fitzpatrick
  To ask the Secretary of State for the Environment, Transport and the Regions if he will announce the results of the consultation exercise on the changes to the right to buy maximum discount. [63807]

  Ms Armstrong
  We intend the Right to Buy scheme to continue, and that eligible tenants should continue to buy at substantial discounts. The annual cost of the scheme to the taxpayer is currently around £400 million a year at net present value. Tenants are, and will continue to be, eligible to claim up to 60 per cent. discount on a house and 70 per cent. discount on a flat, but we want to provide value for money to the taxpayer so the maximum cash limit of £50,000 will be reduced.

  We announced plans on 28 July 1998, Official Report, columns 124–25, to reduce the limit to a fairer level which reflected more closely the actual cost of buying a local authority home in each of the nine English regions. The consultation period ended on 30 September. We had 197 responses. The great majority of these welcomed the proposal to reduce the level of discount.

  Today the Housing (Right to Buy) (Maximum Discount) Order 1998, SI 1998 2997 has been laid before Parliament for approval.

  Subject to Parliamentary approval, the change will come into force on 11 February 1999. For anyone applying to buy on or after that date, the maximum cash limits on discounts available under the Right to Buy, the preserved Right to Buy and voluntary sales of council housing will range from £38,000 in London and the South East to £22,000 in the North East.

  The limits are based on 70 per cent. of the average value of local authority houses and flats in each region, and 65 per cent. in London where pressure on social housing is currently greatest.

  The Right to Buy scheme was reviewed as part of the Housing Comprehensive Spending Review. We are strongly committed to promoting sustainable home ownership so the Right to Buy scheme will still provide tenants with the opportunity to buy at generous discounts.

PRESIDENT OF THE COUNCIL

  Departmental Staff
  Mr. Robert Jackson
  To ask the President of the Council how many people in her Department are currently on secondment from private companies; and if she will list them, their companies and their current responsibilities within Government. [62825]

  Mrs. Beckett
  None of the current staff of my department is on secondment from a private company.

  Mr. Robert Jackson
  To ask the President of the Council if she will list the special advisers in her Department and the issues on which they specialise; and to what level they have been security cleared. [62834]
  255
  Mrs. Beckett
  The Special Advisers in my Department are Ms Sheila Watson and Ms Nicci Russell. They support me on the full range of issues for which I am responsible. It would be inappropriate to give details about their individual levels of security clearance.

  Mr. Robert Jackson
  To ask the President of the Council if she will list(a) the (i) task forces, (ii) review panels and (iii) advisory groups her Office has, (b) the remit of each and (c) the members of each together with their principal employment and their level of remuneration. [62807]

  Mrs. Beckett
  My department has no task forces, review panels, or advisory groups.

HEALTH

  Ritalin
  Mr. Nigel Jones
  To ask the Secretary of State for Health if he will provide figures for the last five years relating to the prescribing on the NHS of the drug Ritalin to treat children with attention deficit disorder. [62975]

  Mr. Milburn
  The number of National Health Service prescription items dispensed in the community and the net ingredient cost for methylphenidate hydrochloride are given in the table. Information about prescriptions dispensed in hospitals are not available centrally.

  Methylphenidate hydrochloride NHS prescription items and net ingredient cost dispensed in the community England 1993 to 1997

  year

  Prescription items (thousands)

  Net ingredient cost (£000)

  1993

  3.5

  25.7

  1994

  6.0

  52.3

  1995

  14.7

  253.0

  1996

  47.7

  811.7

  1997

  92.1

  1,636.5

  Notes:

  1. The data are from the Prescription Cost Analysis system and cover all NHS prescriptions for methylphenidate hydrochloride dispensed by community pharmacists and dispensing doctors in England. Methylphenidate hydrochloride is the approved non-proprietary name for Ritalin.

  2. The net ingredient cost (NIC) is the basic cost of a drug. This cost does not take account of discounts, dispensing costs, fees or prescription charges income.

  3. Total NHS prescriptions include prescriptions originating not only from general practitioners but also from hospital doctors where these are dispensed in the community. Also included are prescriptions written in Wales, Scotland, Northern Ireland and the Isle of Man but dispensed in England.

  4. It is assumed that the majority of prescriptions for methylphenidate hydrochloride relate to the treatment of children with attention deficit disorder, which is currently the only licensed indication of this drug. However, a small number of prescriptions may relate to the treatment of patients with narcolepsy (a licensed indication of the drug in the 1980s).

  Operating Theatre Practitioners
  Helen Jones
  To ask the Secretary of State for Health what representations he has received concerning a compulsory registration system for operating theatre practitioners; and if he will make a statement. [62115]
  256
  Mr. Milburn
  [holding answer 3 December 1998]: We have received a representation from the Association of Anaesthetists of Great Britain and Ireland concerning a proposed compulsory registration system for operating theatre practitioners. The representation is now being considered.

  Hospital Discharges
  Mr. Nigel Jones
  To ask the Secretary of State for Health which UK health authorities are meeting their target levels for the number of delayed discharges. [62976]

  Mr. Milburn
  There are no national targets levels for the number of delayed discharges for health authorities. Health authorities may set targets, but these are locally managed.

  Established good practice in hospital discharge seeks to balance the needs and wishes of patients and their carers with the requirement to make the most effective use of available resources. It is in no-one's interest for patients to stay in hospital for longer than they need to and hospital discharge procedures need to be sensitive to individual needs. Delays in discharge can reflect a variety of factors and these will vary between health authorities, depending on a variety of factors.

  Children's Homes (East Sussex)
  Mr. Waterson
  To ask the Secretary of State for Health how many private sector children's homes in East Sussex have been visited by social services inspectors in the last six months. [63032]

  Mr. Hutton
  In the last six months East Sussex County Council Inspection Unit has visited the two private children's homes in East Sussex registered under the Children Act 1989.

  Widowers' Pensions
  Mr. Prior
  To ask the Secretary of State for Health what estimate he has made of the cost of backdating the pension arrangements for widowers of female doctors so that they are in line with the pension arrangements for widows of male doctors. [62509]

  Mr. Milburn
  The capitalised cost of backdating widowers' pensions to 1972 based on 1994–95 salaries has been estimated at around £350 million.

  Mr. Prior
  To ask the Secretary of State for Health if he will amend the pension rights of the widowers of female doctors to make them equivalent to the pension arrangements made for widows of male doctors. [62510]

  Mr. Milburn
  The National Health Service pension scheme provides the widowers of female doctors with the same pension rights as widows of male doctors.

  Harefield Hospital
  Mr. Wilkinson
  To ask the Secretary of State for Health when he met Professor Sir Magdi Yacoub to discuss the future of Harefield Hospital; and if he will make a statement. [63267]

  Mr. Milburn
  My right hon. Friend the Secretary of State met Professor Sir Magdi Yacoub on Tuesday 1 December 1998 to talk about services in West London
  257
  and the regulation of clinical perfusionists. The Department recognises and pays tribute to the work undertaken by Professor Sir Magdi Yacoub and his colleagues at Harefield Hospital. My right hon. Friend gave Sir Magdi his assurance of the Government's determination not to allow planning blight to set in while the longer term reconfiguration of services was considered. The consequences of any reconfiguration of services would be properly explored. Any service changes at Harefield Hospital will be subject to full public consultation.

  Correspondence
  Mr. Winnick
  To ask the Secretary of State for Health when the hon. Member for Walsall, North will receive a reply to his letter dated 2 November concerning constituents: reference POH(2)5608/16. [63177]

  Mr. Milburn
  I replied to my hon. Friend today.

  Councillors
  Ms Harman
  To ask the Secretary of State for Health if he will list the local authorities which have informed him about the number and percentage of men and women councillors; if he will give the number and percentage of men and women councillors in each case; and if he will list those local authorities which have not informed him. [63254]

  Ms Jowell
  Copies of the information requested have been placed in the Library.

DEFENCE

  Service Women (Compensation)
  Mr. Swayne
  To ask the Secretary of State for Defence what estimate he has made of the costs of compensating servicewomen who left the services as a consequence of pregnancy(a) in each year since 1990 and (b) in the coming financial year. [62180]

  Mr. Doug Henderson
  Compensation payments to Servicewomen who left the Armed Forces because of pregnancy began in August 1992. Payments followed applications to industrial tribunals after the High Court ruled that to discharge women from the Armed Forces on the grounds of pregnancy was in breach of the European Equal Treatment Directive. The following amounts in compensation were awarded in each of the financial years shown:

  Financial Year

  Amount (£)

  1992–1993

  1,653,931

  1993–1994

  6,980,274

  1994–1995

  35,611,282

  1995–1996

  11,762,089

  1996–1997

  2,803,571

  1997–1998

  948,572

  1998–1999 (to 30 November 1998)

  520,063

  No further compensation will be paid in the remainder of 1998–1999 or in 1999–2000, as all claims have now been settled.

  Departmental Staff
  Mr. Robert Jackson
  To ask the Secretary of State for Defence if he will list the special advisers in his Department and the issues on which they specialise; and to what level they have been security cleared. [62842]

  Mr. George Robertson
  The two Special Advisers employed by my Department are Alasdair McGowan and Bernard Gray.

  They advise me on the full range of issues for which I am responsible. They are subject to the usual security clearance arrangements.

  Gulf War Veterans
  Mr. Beith
  To ask the Secretary of State for Defence what information is made available to doctors treating Gulf War veterans in relation to any exposure they may have had to materials which may have been toxic or hazardous, with particular reference to depleted uranium. [63033]

  Mr. Doug Henderson
  Any Gulf veteran who is concerned that his or her health has been adversely affected by Service during the Gulf conflict, including possible exposure to depleted uranium (DU), is entitled to seek a referral to the MOD's Medical Assessment Programme (MAP) for a full medical assessment. During this assessment, MAP patients receive a standard set of tests and are asked by the examining MAP physician to provide detailed information about possible factors, including DU, to which they may have been exposed during the Gulf conflict. Following the assessment, the examining physician will write to the doctor who referred the patient to the programme, to provide diagnostic information and recommend any appropriate treatment. It is then that doctor's responsibility to take forward and monitor the treatment as he or she would for any other patient. For veterans who have left the Armed Forces, their doctor will normally be a GP and any recommended treatment will therefore be carried out within the NHS.

  In consultation with the Department of Health and the health departments of the Welsh, Scottish and Northern Ireland Offices, the Ministry of Defence has produced an information pack with the intention of providing General Practitioners and other health professionals with information which they may find useful in dealing with Gulf veterans' health concerns. This pack includes summaries of what is known about a number of possible factors to which veterans may have been exposed during their service in the Gulf, including DU. It also includes an overview of research which has been carried out in areas related to Gulf veterans' illnesses, together with a bibliography of key papers. The information pack has been placed on the MOD's internet site and is available in hard copy on request. My Department is currently considering how best to ensure further than this information reaches its target audience. A copy of the pack has been placed in the Library of the House.

  Scammel Commander Tank Transporters
  Mr. Key
  To ask the Secretary of State for Defence if Scammel Commander tank transporters loaded with Challenger I and Challenger II tanks meet the regulatory
  259
  requirements in (a) Holland and (b) Germany; how many infringements have been reported in 1998; and if he will make a statement. [62072]

  Mr. Doug Henderson
  [holding answer 8 December 1998]: Formal clearance is sought from both the Dutch and German authorities when moving these vehicles along specified routes and at agreed times. There have been no infringements of the requirements.

  Sennybridge Army Field Training Centre
  Mr. Livsey
  To ask the Secretary of State for Defence if he will list the(a) chemicals used (i) for ground maintenance and (ii) in the training of troops in chemical warfare and (b) training activities that took place on each day between 1 and 9 September at Sennybridge Army Field Training Centre. [62654]

  Mr. Doug Henderson
  [holding answer 9 December 1998]: A number of non-toxic chemicals are used at Sennybridge Army Field Training Centre (AFTC) for the purposes of ground maintenance and training troops in chemical defence.

  The approved chemicals used for ground maintenance are ROUNDUP, GARALON, and occasionally ASULOX.

  During exercises to train troops for defence against chemical warfare, white smoke, CS Gas (Orthoclorobenzlidenmalononitrile), Chemical Agent Training Mixture Polyethyleneglycol 300, and Amyl Acetate are used, the latter to prove respirators prior to use.

  The Nuclear Biological and Chemical Battle Run, the area of Sennybridge Training Area used for training in chemical defence, was used by 3 Commando Brigade, the Royal Marines for training on 2, 3, 4, 5 and 8 September 1998. The remainder of the training centre was used for a number of infantry patrolling, live firing, and other tactical training exercises over the period in question.

  Missiles (China)
  Mr. Cousins
  To ask the Secretary of State for Defence if the acquisition by China of land-mobile intercontinental ballistic missiles and long-range cruise missiles was taken into account in the Strategic Defence Review. [62921]

  Mr. George Robertson
  Yes. These issues were fully considered in the Strategic Defence Review (Cm 3999) published in July 1998.

  Regiments and Bands
  Mrs. Ewing
  To ask the Secretary of State for Defence which regiments will be available to participate in the ceremonies for the opening of the Scottish Parliament; and what plans he has to ensure prominence is given to Scottish regiments and bands based in Scotland in the procession and ceremonies. [63304]

  Mr. George Robertson
  Initial planning has only recently begun for the ceremonies to mark the opening of the Scottish Parliament and it is not yet possible to confirm which regiments will participate. However, the 1st Battalion The Argyll and Sutherland Highlanders and the 1st Battalion The Black Watch will be assigned to public duties in Scotland during the summer of 1999 and it is likely that the soldiers who take part in the opening 260
  ceremony will be drawn from these regiments. It is anticipated that music for the occasion will be provided by Scottish military bands.

  Armed Forces Pay Review Body
  Mr. Borrow
  To ask the Secretary of State for Defence if he will make a statement about the terms of reference for the Armed Forces Pay Review Body. [63669]

  Mr. George Robertson
  The Terms of Reference for the Armed Forces Pay Review Body have been revised, as follows, to reflect the key considerations of the Comprehensive Spending Review White Paper.

  The role of the Armed Forces Pay Review Body is to provide independent advice to the Prime Minister and the Secretary of State for Defence on the remuneration and charges for members of the Naval, Military and Air Forces of the Crown.

  In reaching its recommendations, the Review Body is to have regard to the following considerations:
  the need to recruit, retain and motivate suitably able and qualified people taking account of the particular circumstances of service life;
  Government policies for improving the public services, including the requirement on the Ministry of Defence to meet the output targets for the delivery of departmental services;
  the funds available to the Ministry of Defence as set out in the Government's departmental expenditure limits;
  the Government's inflation target.

  The Review Body shall have regard for the need for the pay of the Armed Forces to be broadly comparable with pay levels in civilian life.

  The Review Body shall, in reaching its recommendations, take account of the evidence submitted to it by the Government and others. The Review Body may also consider other specific issues as the occasion arises.

TRADE AND INDUSTRY

  Hinduja Group
  Mr. Chope
  To ask the Secretary of State for Trade and Industry what grant applications his Department has received from the Hinduja group of companies since 1 May 1997; and what grants have been paid. [62239]

  Mrs. Roche
  [holding answer 3 December 1998]: We have no record of the Department receiving any application for grant from the Hinduja group.

  Ministerial Travel
  Mr. Redwood
  To ask the Secretary of State for Trade and Industry, pursuant to his answer to the hon. Member for Stratford-on-Avon (Mr. Maples) of 7 December 1998,Official Report, columns 70–71, for what reasons the Minister of State was required to return from Liverpool to London for an urgent meeting. [63308]

  Mr. Mandelson
  The Minister of State was required to attend an unscheduled meeting with the Prime Minister and the then President of the Board of Trade.
  261
  Mr. Boswell
  To ask the Secretary of State for Trade and Industry if he will list the occasions since 1 May 1997 on which Ministers in his Department have taken flights in chartered private aircraft; what were the relevant origins and destinations; what was the cost to public funds on each occasion; and what were the reasons such a mode of travel was authorised. [63336]

  Mr. Mandelson
  I refer the hon. Member to the reply given to the hon. Member for Stratford-on-Avon (Mr. Maples) on 19 November 1998,Official Report, columns 889–90.

  EU Structural Funds
  Mr. Wigley
  To ask the Secretary of State for Trade and Industry how much money allocated to the United Kingdom for specific Objective I projects since 1994, has been(a) returned and (b) renegotiated for later use, because of the failure of agreed projects to materialise in the agreed time. [63154]

  Mrs. Roche
  All structural funds money allocated to the United Kingdom under Objective 1 since 1994 has been to programmes which cover the period 1994–99. No money from these programmes has been returned or renegotiated for later use.

  Mr. Wigley
  To ask the Secretary of State for Trade and Industry if he will make a statement on(a) the definition of the conditions laid down by the European Union in respect of Objective I structural funding, requiring an undertaking by the recipient member state Government to a substantial commitment to substantial spending over the whole period in delivering an agreed programme within the Community Support Framework and (b) the United Kingdom Government's interpretation of that definition. [63156]

  Mrs. Roche
  The European Union structural funds contribute only a proportion of the costs of individual projects. It is for Member States to ensure that matching funding is in place. In the United Kingdom, this responsibility lies with the end beneficiary.

  Additionality is also a requirement of the structural funds regulations, and must be verified in respect of the whole territory covered by each Objective within each Member State. This means that UK expenditure on activities eligible for co-financing from the structural funds has to be maintained at least at the same level during the current programming period of 1994–99 as in the previous programming period. The United Kingdom has been able to demonstrate this to the Commission's satisfaction on an annual basis.

  Gas-fired Power Stations
  Mr. Blizzard
  To ask the Secretary of State for Trade and Industry when he will announce further decisions on outstanding applications to build new gas-fired power stations. [63809]

  Mr. Battle
  I have today announced the following decisions:

  Coryton Energy Company Limited (InterGen (UK) Ltd.)

  A direction has been given under section 14(3) of the Energy Act 1976 that the proposed 750 MW gas-fired generating station at Coryton in Essex may only proceed subject to a condition limiting the use of gas to
  262
  10,668 million kilowatt hours (364 million therms) a year. The station already has consent under section 36 of the Electricity Act 1989 and deemed planning permission.

  Medway Power Limited (AES Electric Ltd.)

  Consent has been given under section 36 of the Electricity Act 1989 for a 20 MW oil-fired black start facility at the Medway power station in Kent. The facility has also today been given deemed planning permission and (as an oil-fired station) clearance under section 14 of the Energy Act 1976.

  Keadby Developments Limited (Scottish Hydro-Electric plc.)

  A direction has been given under section 14(3) of the Energy Act 1976 to prevent the building of a 770 MW generating station to be fuelled by natural gas, at Keadby in Lincolnshire.

  Barking Power Ltd. (Thames Power Ltd.)

  Section 36 consent has not been granted for an open cycle gas turbine generating station (130 MW) and black start facility (24 MW) at the Barking power station. The application will be put on hold unless an interested party satisfies the Secretary of State that it should be determined at this stage.

  AES Partington Ltd. (AES Electric Ltd.)

  Section 36 consent has not been granted for a 380 MW combined cycle gas turbine generating station at Partington, Old Trafford, Greater Manchester. The application will be put on hold unless an interested party satisfies the Secretary of State that it should be determined at this stage.

  InterGen (UK) Ltd.

  Section 36 consent has not been granted for a 800 MW combined gas turbine generating station at Spalding in Lincolnshire. The application will be put on hold unless an interested party satisfies the Secretary of State that it should be determined at this stage.

  These decisions have been taken in accordance with the policy set out in the White Paper entitled "Conclusions of The Review of Energy Sources for Power Generation and Government response to fourth and fifth Reports of the Trade and Industry Committee" (Cm 4071). In the case of the decision on Coryton, the partial clearance arose from the unique circumstances and their impact on the interests of the developer.

  In cases where section 36 consent has not been granted or a section 14(3) direction given, the Secretary of State would be prepared to review the position, if requested, when the stricter consents policy announced in the White Paper is relaxed.

  Decisions on other applications under consideration will be announced in due course.

  Copies of the relevant Press Notices and letters are being placed in the Library of the House.

  Pesticides
  Mr. Boswell
  To ask the Secretary of State for Trade and Industry what studies his Department carried out into the impact of a pesticides tax on the costs of small and medium-sized distributors of such products. [63268]

  Mr. Battle
  My Department has been closely involved with the extensive research work which DETR has
  263
  commissioned on the feasibility of an economic instrument to assist in delivering the Government's pesticides minimisation policy. The research has included assessment of the effects of such an instrument on the competitiveness of distributors.

  My Department has not carried out any separate studies, but has asked the British Agrochemicals Association to work with the UK Agricultural Supply Trade Association, to provide information on the structure of the industry in order to further assess the impact on distributors and manufacturers.

  Devolution
  Ms Roseanna Cunningham
  To ask the Secretary of State for Trade and Industry (1) if he will list(a) by programme over £50,000 and (b) the total spending by his Department in Scotland on the identifiable spending areas detailed in Table 7.6A of the Public Expenditure Statistical Analysis 1997–98 (Cmnd 3601); which of these programmes will fall solely or jointly under the responsibility of the Scottish Parliament; and what arrangements are in place to transfer control of funds for these projects to the Scottish Executive or Parliament; [63282]

  (2) how much is spent annually by his Department on research programmes in Scotland; and what proportion of this funding will be transferred to the Scottish Parliament after devolution; [63281]

  (3) what assessment he has made of the programmes which it will be ultra vires for his Department to fund or have sole responsibility for after devolution; if he will list these programmes; and if he will make a statement. [63283]

  Mr. Mandelson
  Under the terms of the Scotland Act 1998, the Scottish Ministers will assume responsibility for a range of devolved functions which will in part depend on secondary legislation which has yet to be passed. My Department is reviewing its programmes, including the research components, in the light of the Scotland Act. It is too early to say to what extent programme expenditure which is currently administered by the Department may relate to functions which will transfer to Scottish Ministers. Work is taking place to establish the extent of any such expenditure and to assess the need for any consequential transfer of funds to the Scottish Ministers. For the total spending by the Department in Scotland, I refer the hon. Member to the reply given by my right hon. Friend the Chief Secretary to the Treasury to the hon. Member for North Tayside (Mr. Swinney) on 4 November 1998,Official Report, column 615.

HOME DEPARTMENT

  Women's Prisons
  Dr. Vis
  To ask the Secretary of State for the Home Department (1) what new guidelines he plans to issue in respect of women prisoners applying for admission to the mother and baby unit in Holloway Prison; [63171]

  (2) what are the current guidelines for women prisoners to apply for admission to the mother and baby units in (a) Styal, (b) New Hall and (c) Askham Grange prisons. [63170]
  264
  Mr. George Howarth
  The women's policy group of the Prison Service are conducting a review of principles, policies and procedures for mothers and babies in prison. The review will be completed by 31 March 1999. The review, with recommendations for a future strategy, will be submitted to the Director General by 31 March 1999. This review will be published. A copy of the current guidance is available in the Library.

  Prisoners (Repatriation)
  Mr. Beith
  To ask the Secretary of State for the Home Department (1) what plans he has to review procedures for the repatriation of prisoners serving a sentence in England and Wales to their country of origin; and if he will make a statement; [63050]

  (2) how many foreign prisoners were repatriated to their country of origin in (a) 1995, (b) 1996, (c) 1997 and (d) the first nine months of 1998; and how many in each case were repatriated to the Republic of Ireland. [63051]

  Mr. George Howarth
  Details of prisoners who have been transferred from England and Wales to foreign jurisdictions under the Council of Europe Convention on the Transfer of Sentenced Persons over the period in question, and, of these, the numbers transferred to the Republic of Ireland, are set out in the table.

  No prisoners were transferred from England and Wales under the Commonwealth Scheme for the transfer of Convicted Offenders or the United Kingdom's bilateral prisoner transfer agreements with Egypt, Thailand and Hong Kong.

  Procedures for handling applications from prisoners in England and Wales who wish to serve out their sentence in their own country, including the criteria and arrangements for their removal, are kept under regular review.

  Year

  Number

  Prisoners transferred to foreign jurisdictions

  1995

  12

  1996

  21

  1997

  17

  19981

  44

  Prisoners transferred to the Republic of Ireland

  1995

  0

  1996

  7

  1997

  12

  19981

  27

  1 up to and including 7 December

  Mr. Clappison
  To ask the Secretary of State for the Home Department (1) how many prisoners serving sentences of imprisonment in England and Wales were transferred under the Council of Europe Convention on the transfer of sentenced prisoners during(a) 1995, (b) 1996, (c) 1997 and (d) 1998 to date; and how many of these prisoners emanated from the Irish Republic; [63039]

  (2) how many foreign nationals serving sentences of imprisonment in England and Wales are nationals of countries to which repatriation of prisoners from the United Kingdom may take place under the terms of the Council of Europe Convention on the transfer of sentenced prisoners. [63037]
  265
  Mr. George Howarth
  The numbers of prisoners transferred from England and Wales to foreign jurisdictions under the Council of Europe Convention on the Transfer of Sentenced Persons, over the period in question, and of those, the numbers transferred to the Republic of Ireland, are set out in the table.

  No prisoners were transferred from England and Wales under the Commonwealth Scheme for the Transfer of Convicted Offenders or the United Kingdom's bilateral prisoner transfer agreements with Egypt, Thailand and Hong Kong.

  On 30 September 1998, the number of sentenced prisoners held in establishments in England and Wales recorded as being nationals of the 41 countries to which repatriation from the United Kingdom is possible under the terms of the Council of Europe Convention on the Transfer of Sentenced Persons was 1,424.

  Year

  Number

  Prisoners transferred to foreign jurisdictions

  1995

  12

  1996

  21

  1997

  17

  19981

  44

  Prisoners transferred to the Republic of Ireland

  1995

  0

  1996

  7

  1997

  12

  19981

  27

  1Up to and including 7 December

  Prison Offences
  Mr. Beith
  To ask the Secretary of State for the Home Department, pursuant to his answer of 9 November 1998,Official Report, column 41, if the figures for the total number of offences referred to the police for prosecution by prison governors in each year contained in table 2 are directly comparable; for what reason no figures are available for 1993; what assessment he has made of the increase in the number of offences in prison; and if he will make a statement. [63084]

  Mr. George Howarth
  The figures quoted in my response of 9 November are not directly comparable, as information for 1992–95 relates to cases referred by prison governors to the police which resulted in a prosecution, while figures for 1996 and 1997 relate to the number of cases referred to the police for prosecution but where the outcome is not known.

  Comparable, revised figures regarding the number of cases referred to the police by prison governors but where it is not known if a prosecution resulted are given in the table.

  Estimated number of offences referred to the police for prosecution by prison governors

  Year

  Amount

  1992

  580

  1993

  780

  1994

  910

  1995

  1,240

  1996

  1,600

  1997

  1,500

  Prisons (Costs)
  Mr. Beith
  To ask the Secretary of State for the Home Department how the net operating cost figure for contracted out prisons per place per annum which is contained in the HM Prison Service Annual report for the last financial year was calculated; and if he will make a statement. [63049]

  Mr. George Howarth
  The statistical information about contracted-out prison costs shown on page 56 of the Prison Service Annual Report for 1997–98 was calculated by dividing the "net operating costs" by either the "average baseline certified normal accommodation" or the "average prisoner population". The data shown for individual prisons listed—Blakenhurst, Buckley Hall, Doncaster, and The Wolds—are correct. Unfortunately, the summary figures shown have been distorted by including the average Certified Normal Accommodation and average prisoner population data for the contracted prisons—Altcourse, Parc, and Lowdham Grange—which opened towards the end of the operational year. This error has also carried forward into the summary table shown on page 55 of the Report. I have arranged for corrected copies of these tables to be placed in the Library.

  Despite these errors, the contracted-out prisons continue to provide good value for money. But, perhaps more importantly, the figures shown that the gap between the contracted-out prisons' costs and public sector prisons' costs continues to reduce.

  Former Secretary of State for Wales
  Mr. Blunt
  To ask the Secretary of State for the Home Department how much police time was expended investigating the complaint of the right hon. Member for Caerphilly (Mr. Davies) of assault and robbery in Brixton on the evening of 26 October, broken down by rank of officer involved. [62875]

  Kate Hoey
  The Commissioner tells me that some 656 hours of local officers' time were spent on the investigation, as set out in the table:

  Hours

  Detective Constable/Police Constable

  402

  Detective Inspector

  160

  Inspector

  14

  Detective Chief Inspector

  80

  Total

  656

  Other, senior officers were also involved with the case from time to time, but it is not practicable to calculate the duration of their involvement.

  Coldingley
  Mr. Clappison
  To ask the Secretary of State for the Home Department (1) what loans Wackenhut has received from HM Prison Service in connection with prison workshops at HMP Coldingley; and if such loans have been repaid; [62928]

  (2) what plans there are for the repayment of loans and debts owed to the Prison Service in respect of workshops at HMP Coldingley; [62925]
  267
  (3) if Wackenhut have paid HM Prison Service for public utilities they have used at HMP Coldingley since November 1997. [62929]

  Mr. George Howarth
  A loan of £105,000 was made to Wackenhut (UK) Ltd. in April 1998, of which £52,500 has been repaid. The Prison Service has asked for immediate repayment of the outstanding amount, together with amounts relating to utilities costs, which are payable by Wackenhut under the terms of the contract.

  Mr. Clappison
  To ask the Secretary of State for the Home Department what assessment he has made of the efficiency of operation of laundry, metal workshop and sign-making facilities at HMP Coldingley since 1997. [62926]

  Mr. George Howarth
  The Prison Service is awaiting the production of audited accounts by the contractor, Wackenhut (UK) Ltd. to enable a full assessment to be made.

  Mr. Clappison
  To ask the Secretary of State for the Home Department if Wackenhut have paid HM Prison Service for plant and machinery used by them at workshops at HM Prison Coldingley since November 1997. [62930]

  Mr. George Howarth
  The contract with Wackenhut (UK) Ltd. for the management of the Coldingley Prison industries does not require a payment from the company for industrial plant and machinery.

  Mr. Clappison
  To ask the Secretary of State for the Home Department what requests Wackenhut have made for renegotiation of the contract for providing workshops at HMP Coldingley. [62927]

  Mr. George Howarth
  Wackenhut (UK) Ltd. have expressed interest in re-negotiating the terms of the contract. The Prison Service is considering this.

  Foreign Prisoners
  Mr. Clappison
  To ask the Secretary of State for the Home Department how many foreign nationals were serving sentences of imprisonment in England and Wales at the most recent available date. [63038]

  Mr. George Howarth
  The latest available provisional information is for 30 September 1998. On that date, there were 3,545 sentenced foreign nationals (3,206 males and 339 females) in prisons in England and Wales.

  Information on the number of sentenced foreign nationals in prisons in England and Wales is published in "Prison statistics England and Wales" (Table 6.4 of the 1997 edition, cm 4017), a copy of which is in the Library.

  Common Criminal Justice System (European Union)
  Mr. Clappison
  To ask the Secretary of State for the Home Department what assessment he has made of the steps taken within the European Union to promote a common criminal justice system; and if he will make a statement. [62639]

  Kate Hoey
  Neither the Commission nor any of the member states has tabled formal legislative proposals for a common criminal justice system in the European Union. The proposals which have been made are contained in a268
  research study entitled "Corpus Juris", published in 1997 under the aegis of the European Commission, which recommends common penal rules and procedures to protect the financial interests of the European Community, and also the creation of an office of European Public Prosecutor. A further study is now being carried out for the Commission on the feasibility of these proposals.

  Although the Government fully share the objective of fighting fraud against the Community budget, we disagree with many of the recommendations of the "Corpus Juris" study. None of the recommendations have been submitted to the Council of the European Union, but if this were to happen, unanimous agreement would be needed for them to be adopted and come into effect. The Government see no prospect that it could support proposals for a common criminal justice system.

  Local Crime Strategies
  Mr. Greenway
  To ask the Secretary of State for the Home Department what letters or circulars have been issued by his Department to police authorities, chief constables or local police partnerships recommending what should be included in local crime and disorder strategies. [62876]

  Mr. Boateng
  The Crime and Disorder Act 1998 does not specify what should be included in the crime and disorder reduction strategies. This is a matter for local decision by the local authority and police, in partnership with a wide range of other bodies and in consultation with the community as a whole, based upon the priorities to emerge from local crime and disorder audits. The Home Office has, therefore, made no recommendation in this respect, although guidance dealing inter alia with the process of strategy development was issued to partnerships and other interested parties in July 1998.

  Gaming Act 1968
  Mr. Hancock
  To ask the Secretary of State for the Home Department what representations he has received in response to the consultation paper on modernisation of the Gaming Act 1968. [63027]

  Mr. George Howarth
  We went out to consultation on 5 August on proposals to relax certain controls imposed by the Gaming Act 1968 on casino membership, advertising and jackpot machines. The consultation period ended on 21 October.

  We received 37 responses, mostly in support of the proposals. We are discussing matters of detail with the industry and aim to make our intentions known in the New Year.

  Crime and Disorder Act 1998
  Mr. Nicholas Winterton
  To ask the Secretary of State for the Home Department when he will consult the National Association of Local Councils about the implementation of the provisions of the Crime and Disorder Act 1998 as they affect town, parish and community councils in England and Wales. [62931]

  Mr. Boateng
  Home Office officials corresponded with, and talked to, representatives of the National Association of Local Councils during the early Parliamentary stages of the Crime and Disorder Act.
  269
  I would, of course, welcome the opportunity to further discuss the implications of the Act with representatives from the National Association of Local Councils, if they so wish.

  Prison Visits
  Mr. Dawson
  To ask the Secretary of State for the Home Department if he will make a statement on the assisted prison visits scheme. [63768]

  Mr. Straw
  The assisted prison visits scheme exists to help prisoners maintain contact with their close relatives and partners. The scheme was established in 1988. To qualify for assistance in meeting the costs of travel to and from the prison, the visitor must be in receipt of a low income benefit as administered by the Benefits Agency.

  The scheme does not distinguish between married and non-married partners, but financial assistance is extended to same-sex partners only at the expense of support for a prisoner's family members. In consequence, some prisoners, including young offenders, do not receive visits from parents or close relatives.

  The Government are keen to encourage all prisoners to maintain family ties, and believe that same-sex partners should be treated fairly by the Prison Service. Therefore, both partners and relatives will, in future, be able to receive assistance with the cost of visiting, within the qualifying conditions of the scheme.

  Devolution
  Ms Roseanna Cunningham
  To ask the Secretary of State for the Home Department how much is spent annually by his Department on research programmes in Scotland; and what proportion of this funding will be transferred to the Scottish Parliament after devolution. [63290]

  Mr. Straw
  The principal responsibilities of the Home Office in respect of the police, probation, fire and prison services, and in respect of the criminal justice system, relate only to England and Wales. Almost all the research conducted by the Home Office concerns, in one way or another, the operation in future of these services and systems in England and Wales. In view of the separate Scottish legal system, research in these areas has been the responsibility of the Scottish Office and the question of a transfer does not arise.

  Ms Roseanna Cunningham
  To ask the Secretary of State for the Home Department if he will list(a) by programme over £50,000 and (b) the total spending by his Department in Scotland on the identifiable spending areas detailed in Table 7.6A of the Public Expenditure Statistical Analysis 1997–98 (Cmnd 3601); which of these programmes will fall solely or jointly under the responsibility of the Scottish Parliament; and what arrangements are in place to transfer control of funds for these projects to the Scottish Executive or Parliament. [63291]

  Mr. Straw
  Work is in train to identify areas in which it might be appropriate to effect a transfer of funds. I will make a statement in the Official Report when this work has been completed.

  Ms Roseanna Cunningham
  To ask the Secretary of State for the Home Department what assessment he has made of the programmes which it will be ultra vires for 270
  his Department to fund or have sole responsibility for after devolution; if he will list these programmes; and if he will make a statement. [63292]

  Mr. Straw
  The position is being examined in the light of the Scotland Act 1998 and work is in train to identify cases where it may be appropriate to transfer functions. I will make a statement in the Official Report when the work reaches a conclusion.

NORTHERN IRELAND

  Minimum Wage
  Mr. McNamara
  To ask the Secretary of State for Northern Ireland what estimate she has made of the number of people in Northern Ireland who will benefit from the introduction of the minimum wage. [62261]

  Mr. Ingram
  Current estimates indicate that some 57,000 employees in employment in Northern Ireland will benefit directly from the introduction of the national minimum wage in April 1999.

  Floyd and Palmer (Judicial Review)
  Mr. McNamara
  To ask the Secretary of State for Northern Ireland if she will place a copy of the judgment in the judicial review case of Floyd and Palmer in the Library; and if she will ensure that the provision of reading and writing materials for suspects held under counter or anti-terrorist legislation is dealt with in the review of legislation presently in progress. [62264]

  Mr. Ingram
  I have made arrangements for the Lord Chief Justice's Judgment in the Judicial Review case of Damien Floyd and Pauline Palmer to be placed in the Library of the House today. There is no statutory requirement for the provision of reading and writing materials for detainees held under the emergency legislation. However, the consultation paper on new counter-terrorism legislation will open for discussion the general regime for the detention of terrorist suspects, and interested parties will have an opportunity to comment.

  Compensation (Wrongful Convictions)
  Mr. McNamara
  To ask the Secretary of State for Northern Ireland how much has been paid during each of the last 10 years in compensation to persons wrongly convicted; and what was(a) the highest, (b) the lowest and (c) the average sum awarded. [62267]

  Mr. Ingram
  During the relevant period, the total amounts of compensation paid to persons whose convictions have been quashed were, by year:

  year

  Amount awarded(£)

  1993

  75,000.00

  1994

  25,000.00

  1995

  650,000.00

  1997

  263,969.50

  1998

  82,936.21

  271
  Only one application for compensation has been paid in full, amounting to £456,905.71. It is not possible, therefore, to provide information about the highest, lowest and average amounts awarded.

  Mr. McNamara
  To ask the Secretary of State for Northern Ireland what steps she has taken to make available the published guidelines on compensation for miscarriages of justice to interested parties. [62268]

  Mr. Ingram
  The guidelines on compensation for miscarriages of justice are automatically made available to the legal representatives of all persons the Secretary of State has determined to be eligible for such compensation. They are also available on request to other interested parties.

  Mr. McNamara
  To ask the Secretary of State for Northern Ireland how many people whose convictions have been quashed over each of the last 10 years have(a) applied for and (b) received compensation. [62266]

  Mr. Ingram
  (a) The numbers of persons who have applied for statutory compensation after their convictions had been quashed during the relevant period were, by year:

  Year

  Applicants

  1992

  3

  1997

  1

  (b) All of these persons have been paid compensation in full or have been paid interim amounts.

  Designated Police Stations
  Mr. McNamara
  To ask the Secretary of State for Northern Ireland if she will(a) list designated police stations and their approximate location, (b) indicate the number of interview rooms currently available in each and (c) estimate and break down the cost of fitting one room in each station with video recording equipment, indicating capital costs for equipment, building works (alterations), installation and running costs for the first year and subsequent years. [62262]

  Mr. Ingram
  Designated police stations and the number of interview rooms available in each are shown.

  Division

  Station

  Numbre Interview Rooms

  A

  Musgrave Street, Belfast

  2

  B

  Grosvenor Road, Belfast

  3

  Lisburn, Co. Antrim

  2

  D

  Antrim Road, Belfast

  2

  Antrim

  2

  E

  Strandtown, Belfast

  2

  G

  Newtownards, Co. Down

  2

  Downpatrick Co. Down

  2

  H

  Armagh

  1

  J

  Lurgan, Co. Armagh

  2

  Banbridge, Co. Down

  2

  K

  Cookstown, Co. Tyrone

  2

  Dungannon, Co. Tyrone

  2

  L

  Enniskillen, Co. Fermanagh

  2

  Omagh, Co. Tyrone

  3

  N

  Strand Road, Londonderry

  5

  Waterside, Londonderry

  2

  Strabane, Co. Tyrone

  2

  272

  Division

  Station

  Numbre Interview Rooms

  O

  Coleraine, Co. Londonderry

  2

  Limavady, Co. Londonderry

  2

  P

  Ballymena, Co. Antrim

  2

  Larne, Co. Antrim

  2

  Total

  48

  The cost of fitting out one room is broken down as follows:

  £

  Capital costs for equipment:

  1 x video interview recording system

  4,400

  2 x fixed colour cameras

  700

  Building works (alterations):

  Electrical work

  3,000

  Building work

  1,550

  Contingencies @ 10 per cent.

  450

  Installation:

  16 hours labour @ £24.30 per hour

  389

  Cabling, brackets, domes

  300

  Estimated total:

  10,789

  Note:

  Maintenance is estimated at £400 per annum together with the cost of video tapes at £6.00 each.

  Judicial Review (Holding Centres)
  Mr. McNamara
  To ask the Secretary of State for Northern Ireland what response has been made by the RUC Chief Constable to the request of the Independent Commissioner for the Holding Centres that he be given copies of court papers served in the course of judicial review cases involving the holding centres. [62265]

  Mr. Ingram
  This matter was raised in the Independent Commissioner's fifth Annual Report, with the recommendation that the applicant be ordered to serve the Independent Commissioner with the appropriate Court papers. As there is no provision in the Rules of the Supreme Court to allow for this, it was suggested that the Commissioner take the matter up directly with the Chief Constable. I am advised that the Chief Constable has not received any request from the Commissioner to be given copies of court papers in the circumstances described.

  Millennium (Emergency Cover)
  Mr. Brake
  To ask the Secretary of State for Northern Ireland what plans her Department has to contract with the armed services to provide emergency cover over the millennium period; and what estimate she has made of the cost of that cover. [62571]

  Mr. Ingram
  At present no Government Department can have firm plans involving military support over the millennium period because these will need to be considered in a co-ordinated manner and priorities identified if the demand is too great. The Ministry of Defence have invited Departments to identify by Easter
  273
  1999 predictable demands. By then most Departmental plans should be advanced enough to enable potential problems, which may require military aid, to be identified.

  At this stage no estimate can be made of likely costs.

  Ministerial E-mail Address
  Mr. Brake
  To ask the Secretary of State for Northern Ireland what is her e-mail address. [62877]

  Mr. Paul Murphy
  The E-mail address for the Secretary of State for Northern Ireland is mm@nics.gov.uk.

  Lagan Valley Regional Park
  Mr. Donaldson
  To ask the Secretary of State for Northern Ireland how many planning applications of a residential and commercial nature have been made in the

  Type of Application

  No. of Applications

  No. Approved

  No. Refused

  No. Pending

  Industrial-Commercial

  15

  14

  —

  1

  Housing development (more than one dwelling)

  8

  5

  1

  2

  Single dwellings

  9

  6

  3

  —

  Extensions to dwellings

  29

  27

  2

  —

  You may wish to note that the vast majority of those applications approved are located within the Belfast Urban Area of the Park or in existing settlements.

  I do hope this provides all the information you require.

  Departmental Staff
  Mr. Robert Jackson
  To ask the Secretary of State for Northern Ireland if she will list the special advisers in her Department and the issues on which they specialise; and to what level they have been security cleared. [62848]

  Marjorie Mowlam
  My Special Advisers are Nigel Warner and Andrew Lappin and they advise me on the full range of issues for which I am responsible.

  Special Advisers are subject to the usual security clearance arrangements. It is not appropriate to give details about particular individuals level of security clearance.

  Police Complaints Procedures
  Mr. McNamara
  To ask the Secretary of State for Northern Ireland if she will list(a) the steps she is taking to increase public confidence in police complaints procedures, (b) the measures taken to assure complainants that they may supply information confidentially and without fear of intimidation and (c) in cases where an interview is required to obtain further information, what choices are offered to a complainant with regard to (i) the time, date and location of interview, (ii) the gender of interviewer and (iii) whether a non-uniformed or civilian interviewer is preferred. [61970]

  Mr. Ingram
  [holding answer 9 December 1998]: (a) The Police (Northern Ireland) Act 1998 provides for the establishment of a new office of Police Ombudsman to handle complaints against the police. The Ombudsman will have complete control of the complaints process. The Ombudsman will independently investigate all serious complaints against the police and will decide how others
  274
  Lagan Valley Regional Park, within the Borough of Lisburn, since the commencement of the Lagan Valley Regional Park Local Plan; and how many of these applications have received planning permission. [62904]

  Mr. Paul Murphy
  Responsibility for the subject in question has been delegated to the Planning Service under its Chief Executive, Mr. T. W. Stewart. I have asked him to arrange for a reply to be given.

  Letter from T. W. Stewart to Mr. Jeffrey Donaldson, dated 10 December 1998:
  The Secretary of State has asked me to reply to your recent Question about planning permissions granted for residential and commercial developments in the Lagan Valley Regional Park, within the Borough of Lisburn, since the commencement of the Lagan Valley Regional Park Local Plan.
  Details of the number of applications submitted since the Plan was adopted on 13 March 1995 are set out in the table below.

  are to be investigated. The new system is designed to secure the confidence of both the public and the police. The Ombudsman will be appointed on 1 March 1999 and the new body will be functioning by summer 1999.

  (b) Information and statements provided by complainants are confidential documents. They are disclosed only in circumstances considered necessary to the investigation and in accordance with:

  (i) the RUC (Discipline and Disciplinary Appeals) Regulations 1988;

  (ii) NIO Guidance to the Chief Constable on Police Complaints and Discipline Procedures;

  (iii) the code and legislation dealing with disclosure in respect of criminal prosecutions;

  (iv) rules relating to disclosure in civil proceedings.

  If, of course, there was intimidation, then this would be grounds for a complaint.

  (cl) The initial letter forwarded to the complainant by the RUC Investigating Officer usually offers an interview, at a specified date and time, at the most suitable and convenient Police Station. The letter also invites the complainant to telephone, or reply by returning a proforma in an addressed and prepaid envelope.

  Should a complainant, or their solicitor, wish the interview to take place elsewhere, every effort is made to accommodate their request. Interviews can take place at the offices of the Independent Commission for Police Complaints and at other mutually acceptable locations, including solicitors' offices, homes of complainants and third parties and Church or Community Halls.

  (c2) Whilst no choice is offered on gender of the interviewer, the RUC do ensure that the most appropriate Investigating Officer is appointed having regard to the circumstances of the case. In supervised cases, it is open to the Independent Commission for Police Complaints, to approve, or otherwise, the appointment of a particular officer.
  275
  (c3) The 1998 regulations require that Investigating Officers are police officers. These officers operate in plain clothes.

  In future, under the Police (Northern Ireland) Act 1998, there will be greater opportunity for interviews at neutral venues, and by the independent investigators of the Police Ombudsman.

  Fair Employment
  Mr. McNamara
  To ask the Secretary of State for Northern Ireland how many certificates have been issued under section 42 of the Fair Employment (Northern Ireland) Act 1989 in each year since its enactment. [61971]

  Mr. Ingram
  [holding answer 9 December 1998]: This information is not recorded centrally but a check of our records shows that 43 certificates have been issued, in respect of 39 individuals, under section 42 of the Fair Employment (Northern Ireland) Act 1976. The table gives a breakdown by year.

  Year

  Number

  1977

  1

  1978

  3

  1980

  2

  1981

  4

  1982

  1

  1983

  1

  1984

  3

  1985

  15

  1986

  1

  1987

  2

  1988

  7

  1989

  1

  1990

  3

  1991

  4

  1993

  4

  1994

  11

  1 Of the certificates issued in 1984 and 1994, 4 were reissues.

  Benefit Fraud
  Mr. Evans
  To ask the Secretary of State for Northern Ireland what estimate she has made of the level of benefit fraud within the social security system; and what plans she has to tackle it. [63176]

  Mr. McFall
  Responsibility for the subject in question has been delegated to the Social Security Agency under its Chief Executive, Mr. Chris Thompson, and I have asked him to arrange for a reply to be given.

  Letter from Chris Thompson to Mr. Nigel Evans, dated 10 December 1998:
  I have been asked to reply to your Parliamentary Question about the estimated levels of fraud within the social security system and plans to tackle such fraud.
  The Social Security Agency is in the process of estimating the levels of fraud in the benefit system. The Agency is using a methodology, known as Benefit Review, which as been successfully used by the Benefits Agency to estimate the levels of fraud in Great Britain.
  As regards its plans to tackle fraud the Agency is committed to minimising opportunities for fraud and abuse within the social security system. In recent years the Agency has been working even more closely with a wide range of colleagues and other parties to provide a coherent and focused effort in combating fraud and abuse. These include the Benefits Agency in Great Britain, Child Support
  276
  Agency and Housing Executive in Northern Ireland as well as counterparts in the Department of Social, Community and Family Affairs in the Republic of Ireland.
  The Agency is undertaking a wide range of initiatives, which mirror similar work in the Benefits Agency, designed to provide an estimate of the level of fraud within benefit systems, to secure the gateway to benefit systems and to detect and prosecute those who seek to defraud the system. This programme of initiatives is being closely monitored and updated on a regular basis to take account of new developments which may emanate from the Benefits Agency or from new Ministerial objectives. I have recently set up a new Benefit Security Directorate to provide a greater focus and to co-ordinate the programme of work.
  I can assure you that the Agency will continue to seek new ways of ensuring that resources are targeted effectively at known areas of risk and that expenditure loss through fraud is kept to a minimum.
  I hope this explains the position for you but I would be happy to provide any further information you require.

SCOTLAND

  Millennium (Emergency Cover)
  Mr. Brake
  To ask the Secretary of State for Scotland what plans his Department has to contract with the armed services to provide emergency cover over the millennium period; and what estimate he has made of the cost of that cover. [62574]

  Mr. McLeish
  The Scottish Office has no specific plans for involving the military over the millennium period. There are procedures in place, however, through the standing military aid arrangements, which would be invoked in the event of any requirement for assistance.

  It is quite normal for military aid to be sought by local authorities, particularly over the winter, but as yet it is too early to identify any specific requirements which they or other bodies may have over the millennium period.

  HIV-AIDS
  Mr. Swayne
  To ask the Secretary of State for Scotland what estimate he has made of the cost of treatments for Aids-related conditions over the next financial year. [62529]

  Mr. Galbraith
  Health Boards in Scotland are expected to meet the cost of such treatments from within the general allocations of funds provided to them each year. In order to assist Boards in planning services for HIV/AIDS patients, my right hon. Friend the Secretary of State recently set up an expert group to recommend treatment protocols and to estimate the numbers of HIV/AIDS patients likely to be eligible for treatment with the new anti-retroviral drugs in the next few years. The group's report should be available shortly.

  Forestry
  Mr. Russell Brown
  To ask the Secretary of State for Scotland if he intends to prepare a strategy for forestry in Scotland. [63808]

  Mr. Macdonald
  Forestry is an important part of the rural scene in Scotland. Its importance will grow as timber production doubles over the next 15 years and Scotland's forests and woodlands become more valuable for recreation and wildlife. We believe that it is important to have a strategy for forestry in Scotland which will provide
  277
  a context for forestry policies and programmes. This will ensure that forestry integrates well with other aspects of the rural economy and plays its full part in the future well-being of Scotland.

  Clearly, the Scottish Executive will want to determine the form and content of a Scottish Forestry Strategy. Nevertheless, we consider that it would be helpful to prepare an issues paper which could form the basis for consultation on a strategy.

  We have therefore asked the Forestry Commission to set this work in hand, in liaison with other relevant Government Departments and Agencies, with a view to publishing an issues paper early next year.

  Devolution
  Ms Roseanna Cunningham
  To ask the Secretary of State for Scotland what discussions he has had with his ministerial colleagues regarding the transfer of funding for United Kingdom programmes operating in Scotland where sole or joint responsibility transfers to the Scottish Parliament or Executive; if he will list the projects he has identified as being within the sole or joint competence of the Scottish Parliament; and if he will make a statement. [63302]

  Mr. McLeish
  Under the Scotland Act 1998, Scottish Ministers will take over the delivery of public services that currently fall within the responsibility of the Secretary of State for Scotland. In addition, devolution will bring extra responsibilities to Scotland in areas such as transport and environment. Officials are currently discussing the details, including the issue of additional transfers of funding. There may also be cases where it is agreed by all concerned that the best course is a shared programme, which continues to be funded on a UK or GB basis.

  Regiments and Bands
  Mrs. Ewing
  To ask the Secretary of State for Scotland what representations he has made to the Secretary of State for Defence concerning requests for regiments to participate in the ceremonies for the opening of the Scottish Parliament; and what steps he is taking to ensure prominence is given to Scottish regiments and bands based in Scotland. [63303]

  Mr. Dewar
  I have made no such representations to the Secretary of State for Defence. However, the Services are represented on The Scottish Parliament Opening Ceremony Working Group which is taking forward the detailed planning of the event. In its deliberations, the Group will be considering to what extent military personnel, including Scottish regiments and bands based in Scotland, should be involved.

PRIME MINISTER

  Performance and Innovation Unit
  Mr. Illsley
  To ask the Prime Minister what progress has been made with the establishment of the Performance and Innovation Unit. [63769]
  278
  The Prime Minister
  The Performance and Innovation Unit (PIU) is now firmly established as an integral part of the new structure for the Cabinet Office that I announced on 28 July 1998,Official Report, columns 132–34.

  The Unit is beginning its work to improve the capacity of Government to identify and address strategic, crosscutting issues and promote innovation in the development of policy and in the delivery of the Government's objectives. Its first five projects will focus on:

  Developing Electronic Commerce in the UK
  How to achieve the Government's goal of making the UK the world's best environment for electronic commerce, ensuring that the UK benefits fully from the single fastest growing market place in the global economy;

  Active Aging
  How to improve the well-being and quality of life of older people by helping them to remain active. The study will identify ways of increasing the employment opportunities for older people, by examining the incentives for businesses to employ and retain older people and for individuals to remain in paid or voluntary work;

  Central Government's Role at Regional and Local Level
  Getting the right arrangements in place for joined-up delivery of central Government policies in regions and communities;

  Accountability and Incentives for Joined-Up Government
  Examining whether current accountability arrangements and incentive systems can be reformed to facilitate joined-up policy-making and delivery, for example by promoting the achievement of joint objectives which require co-operation between departments; and

  Objectives for rural economies
  Examining the differing needs of local rural economies, and the key factors affecting performance, so as to establish clear objectives for Government policies influencing the future development of rural economies.

  The PIU's review teams will be drawn from both inside and outside Government, to ensure that we bring new thinking and a wide range of experience to bear on the issues. The aim is to complete most of these reviews by next summer. Decisions flowing from the PIU's work will be announced in the normal way.

  House of Lords
  Mr. Mackinlay
  To ask the Prime Minister what proposals he has to set up a committee of both Houses of Parliament charged with undertaking a wide-ranging review of the House of Lords and to bring forward proposals for reform. [63257]

  The Prime Minister
  The Government have decided to build on their Manifesto proposal for a committee of both Houses of Parliament to consider further reform of the House of Lords, by first appointing a Royal Commission to undertake a wide-ranging review and to bring forward recommendations. A joint committee would be set up after the Royal Commission had reported.

INTERNATIONAL DEVELOPMENT

  Departmental Staff
  Mr. Robert Jackson
  To ask the Secretary of State for International Development if she will list(a) the (i) task forces, (ii) review panels and (iii) advisory groups her

  279
  Department has, (b) the remit of each and (c) the members of each together with their principal employment and their level of remuneration. [62814]

  Mr. Foulkes
  I refer the hon. Member to the answer I gave to the hon. Member for Eastleigh (Mr. Chidgey) on 30 July 1998,Official Report, column 462.

AGRICULTURE, FISHERIES AND FOOD

  BSE (Offspring Cull)
  Mr. Rhodri Morgan
  To ask the Minister of Agriculture, Fisheries and Food if he will report on the progress of the BSE offspring cull. [63771]

  Mr. Nick Brown
  Before exports of British beef can resume under the Date Based Export Scheme (DBES) the UK must slaughter all offspring born after 1 August 1996 to BSE cases confirmed before 25 November 1998 (the date of the Commission Decision on the DBES). When new cases of BSE occur any offspring born after 1 August 1996 must be slaughtered without delay.

  We have known for some time that this cull would be necessary and started it on a voluntary basis in August. We have been waiting for formal adoption of the Commission Decision in order to make it compulsory and ensure that the cull is properly carried out. Regulations are being laid before the House today for this purpose.

  Since the cull started on a voluntary basis in August we have, with the co-operation of the farming community, culled over 1,000 animals. The compulsory cull, which will come into force in January, will ensure that all remaining offspring animals are slaughtered and clear the way for the resumption of beef exports.

FOREIGN AND COMMONWEALTH AFFAIRS

  Lety Concentration Camp
  Mr. Grogan
  To ask the Secretary of State for Foreign and Commonwealth Affairs if he will make representations to the Government of the Czech Republic concerning the building of a pig farm on the site of the Lety Concentration Camp in contravention of the Helsinki Accord. [62692]

  Ms Quin
  We are aware of the ongoing discussions concerning an appropriate future for the site at Lety and hope that the Czech Government will soon reach a decision that is acceptable to all parties.

  Departmental Staff
  Mr. Robert Jackson
  To ask the Secretary of State for Foreign and Commonwealth Affairs if he will list(a) the(i) task forces, (ii) review panels and (iii) advisory groups his Department has, (b) the remit of each and (c) the members of each together with their principal employment and their level of remuneration. [62803]

  Mr. Fatchett
  The information is as follows:

  Task Forces: Nil

  Review Panels: Nil

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  Advisory Groups:

  1. Panel 2000

  Panel 1000 was established on 1 April 1998 to:
  produce a strategy to improve the way Britain is seen overseas;
  look at the methods and tools available to do this;
  make sure that the public and private sectors are working together to do this; and
  modernise the way the Foreign and Commonwealth Office communicates with the public.

  Panel members:

  Chairman: Derek Fatchett MP

  Members (Private Sector):

  Lord Alli—Plant 24

  Zeinab Badawi—Journalist

  Martin Bell MP

  Baroness Chalker

  Lord Clinton-Davies

  Dr. Francis D'Souza—Article 19

  Mark Fisher MP

  David John—British Oxygen Company

  Mark Leonard—Foreign Policy Centre

  Lord Levy

  Ruth Mackenzie—Scottish Opera

  Lord Marshall—British Airways

  Lord Paul—Caparo

  Shahwar Sadeque—Consultant IT/education

  Judy Simpson—Athlete

  Martin Sorrell—WPP

  John Sorrell—Newell & Sorrell/Design Council;

  Harriet Ware-Austin—Amnesty International

  Members (Public Sector):

  Baroness Blackstone—Department for Education and Employment

  Dr. David Drewry—British Council

  Andrew Fraser—Invest in Britain Bureau

  Tom Harris—Department of Trade and Industry

  Roger Liddle—No. 10 Policy Unit

  Peter Mandelson MP—Secretary of State for Trade and Industry

  David Quarmby—British Tourist Authority

  FCO

  Baroness Symons—Parliamentary Under-Secretary

  Sir John Kerr—Permanent Under-Secretary

  Sir Michael Jay—HM Ambassador Paris

  Claire Fulton

  Priya Guha

  Vivien Life

  Panel members do not receive remuneration, although expenses are payable.

  2. Diplomatic Service Appeal Board

  The Board aims to advise the Secretary of State whether premature retirement, or termination of an appointment on grounds of failed probation, or on dismissal grounds is fair.

  Panel members

  Sir Keith Morris (Chairman)—Retired

  Peter Fowler (Vice Chairman)—Retired

  Juliet Campbell—Mistress of Girton College, Cambridge

  281

  Rodney Bedford—Retired

  Sally Bull—Retired

  Lady Jacqueline Dyson—Lecturer in Law

  Kamlesh Bahl—Legal Adviser and Chair of the Equal Opportunities Commission

  No appointments are full time. Remuneration is only paid per diem when the Board meets. It did not meet in 1997–98.

  3. Wilton Park Academic Council

  The Council aims to ensure that Wilton Park retains full academic independence; it oversees Wilton Park's programme with this objective.

  Panel members

  Liliana Archibald—(Chairman)

  Anthony Bruce—Chairman, Marconi Overseas Ltd.

  Juliet Campbell—Mistress of Girton College, Cambridge

  Robin Corbett MP

  Lord Holme

  Tony Young—Joint General Secretary Commonwealth Workers Union

  Gael Ramsay—Chief Executive, British Executive Services Overseas

  Andrew Rowe MP

  Helen Wallace—Director, Sussex European Institute, University of Sussex

  Michael Walsh—Secretary, International Department, TUC

  Lady Suzanne Warner—Deputy Chair, Broadcasting Standards Commission

  Nik Gowing

  Panel members do not receive any remuneration, but expenses are payable.

  4. Government Hospitality Fund Advisory Committee for the Purchase of Wine

  The aim of the Committee is to advise on the purchasing of wine for government hospitality.

  Committee members

  Sir Ewen Fergusson (Chairman)—Company Chairman

  Anthony Hanson—wine consultant

  Sebastian Payne—wine buyer

  Mark Savage—wine merchant

  John Avery—wine merchant

  Committee members receive no remuneration, although expenses are payable.

  Edgar Fernandez Case
  Mr. Vaz
  To ask the Secretary of State for Foreign and Commonwealth Affairs what steps his Department has taken to encourage the Maltese and Turkish authorities to pursue and bring to a conclusion extradition proceedings relating to Mohammed Abdel Abbas Ali. [62599]

  Mr. Fatchett
  I refer my hon. Friend to my answers of 29 October 1998,Official Report, column 271. Our staff in Valletta and Ankara continue to remind the Turkish and Maltese Governments of the importance we attach to this extradition being processed as quickly as possible. My noble Friend the Under-Secretary raised the matter with the Turkish Ambassador on 2 December and the Vice-Consul in Valletta spoke to the Maltese Attorney General's office on 3 December.

  China
  Dr. Desmond Turner
  To ask the Secretary of State for Foreign and Commonwealth Affairs what 282
  representations he has made to China regarding the deaths of prisoners at Drapchi Prison in May who had chanted slogans during a visit by EU ambassadors. [63137]

  Mr. Fatchett
  When EU Ambassadors visited Drapchi prison on 4 May there was no evidence of any disturbances having occurred. Prisoners did not chant slogans. News of disturbances reached the Ambassadors only after their return to Beijing. We are very concerned about the reported deaths of prisoners and we have raised the incident with the Chinese authorities, both bilaterally and in conjunction with EU partners.

  Angola
  Mr. Ian Stewart
  To ask the Secretary of State for Foreign and Commonwealth Affairs if his Department has contacted UNITA in order to obtain information about Jason Pope, a missing British citizen in Angola. [63770]

  Mr. Tony Lloyd
  As an exception, and for the humanitarian purpose of obtaining information about the whereabouts and welfare of Jason Pope, we have sought and obtained an exception to paragraph 12(a) of Security Council resolution 1173. The United Nations Angola Sanctions Committee has granted this exemption to enable our Embassy in Luanda to contact UNITA in areas of Angola not under state administration. A full report of these contacts will be supplied to the Committee.

  Our Embassy in Luanda are already in contact with UNITA representatives in Luanda for the same purpose. We have also authorised our Embassy in Washington to approach the UNITA representative in Washington for assistance. Such contacts are not prohibited under UNSCR 1173.

  Sierra Leone
  Mr. Mackinlay
  To ask the Secretary of State for Foreign and Commonwealth Affairs if any officials in his Department saw a copy of Peter Penfold's letter of 30 December 1997 to Miss Grant prior to 6 April 1997. [63269]

  Mr. Tony Lloyd
  Sir Thomas Legg's Report (paragraph 5.29) states that"in spite of searches there, it [Mr. Penfold's letter of 30 December 1997] cannot be traced at the FCO, and seems never to have arrived".

  Legg records (paragraph 6.59) that the FCO (Equatorial Africa Department) finally obtained a copy from Freetown on 6 April.

  Overseas Price Mechanism
  Mr. Mackinlay
  To ask the Secretary of State for Foreign and Commonwealth Affairs what plans he has to review the overseas price mechanism; and if he will make a statement. [63082]

  Mr. Fatchett
  Officials in the FCO and HM Treasury are conducting a review into the operation of the OPM calculation. It is expected that this will be concluded shortly.

  Belarus
  Mr. Mackinlay
  To ask the Secretary of State for Foreign and Commonwealth Affairs if he will make a statement on the United Kingdom's relations with Belarus. [63134]

  Ms Quin
  Ministerial contacts with Belarus were suspended in 1997 by HMG and EU Partners following concerns about a constitutional referendum which failed to meet democratic norms, human rights abuses and lack of press freedom. EU member states have also withdrawn their Ambassadors from Minsk in response to the Belarusian Government's effective exclusion of certain Ambassadors from their residences. HMG are keen not to isolate Belarus. We continue to support the OSCE's Advisory and Monitoring Group's efforts to promote democracy in the country.

  Mr. Mackinlay
  To ask the Secretary of State for Foreign and Commonwealth Affairs what reports he has received about the freedom of individual Belarus MPs to conduct their duties and about their parliamentary immunity; and what representations have been made in this regard to(a) the Belarus President and (b) the OSCE. [63133]

  Ms Quin
  We and the EU regard the 13th Supreme Soviet as the legitimate parliament. It was disbanded following the 1996 constitutional referendum which failed to meet democratic standards. In its place, the National Assembly was appointed which is not genuinely representative. However, National Assembly members are free to conduct their parliamentary duties. Together with our EU partners, HMG have regularly raised their concerns with Belarusian Ministers about the flawed constitutional situation and human rights abuses. The OSCE Advisory and Monitoring Group was set up in Minsk in February 1998. It helps Belarus to promote democracy and comply with OSCE commitments. HMG support its work and receive regular reports from the OSCE and the British Embassy in Minsk on the situation.

CABINET OFFICE

  Departmental Staff
  Mr. Robert Jackson
  To ask the Minister for the Cabinet Office how many people in his Department are currently on secondment from private companies; and if he will list them, their companies and their current responsibilities within Government. [62824]

  Mr. Kilfoyle
  At 30 November 1998, the Cabinet Office employed three secondees from private companies, details as follows:Mr. H. S. Rolfe of Marks and Spencers PLC working in the Efficiency Unit;
  Ms A. Jordan of the NatWest bank PLC working in the Social Exclusion Unit; and
  Mrs M. Pye of BT working in the Office of the Civil Service Commissioners.
  284
  No secondees from private companies are currently employed in any of the Cabinet Office agencies, or in the Central Office of Information which is a separate Department reporting to me.

WALES

  Farming
  Mr. Barry Jones
  To ask the Secretary of State for Wales what was the amount of Government funding given to the farming industry in each of the last three years. [62912]

  Mr. Jon Owen Jones
  Government expenditure on agriculture in Wales was £225.8 million, £265.3 million and £198.5 million in 1995–96, 1996–97 and 1997–98 respectively. The fall during 1997–98 is mainly accounted for by the reduction in expenditure on the EU' s Sheep Annual Premium Scheme. This scheme provides for annual deficiency payments, measured in ECUs, on eligible breeding ewes. The reduced expenditure reflects both a strengthening of European sheep prices and the revaluation of the green pound.

  Mr. Barry Jones
  To ask the Secretary of State for Wales what is the sum currently allocated to the farming industry for each of the next three financial years, including extra moneys announced this autumn; and if he will make a statement. [62913]

  Mr. Jon Owen Jones
  My right hon. Friend the Secretary of State for Wales will announce his spending plans for agriculture for the next three years shortly.

  Mr. Barry Jones
  To ask the Secretary of State for Wales how many farms there are in Wales. [62915]

  Mr. Jon Owen Jones
  There are currently 35,500 farm holdings registered in Wales; 27,900 main farm holdings and 7,600 minor holdings.

  NHS Waiting Lists
  Mr. Barry Jones
  To ask the Secretary of State for Wales if he will make a statement on NHS waiting lists in Wales. [62696]

  Mr. Jon Owen Jones
  I am pleased to announce that the inpatient waiting list has fallen for 2 consecutive months and currently stands at 73,037—the lowest figure since February 1998. The numbers waiting over 12 months and over 18 months have also fallen, by 309 and 86 respectively.

  Outpatient lists to end-October also fell, by 1.6 per cent. to 133,210, the first fall in outpatient lists since January 1998. Although the number waiting over 6 months for an appointment rose by 487, this was a smaller increase than the 1,535 reported in September.

  Sheep
  Mr. Barry Jones
  To ask the Secretary of State for Wales if he will make a statement on the size of the sheep flock of Wales in(a) 1993, (b) 1996 and (c) currently. [62916]
  285
  Mr. Jon Owen Jones
  The information required has been taken from the annual June Agricultural and Horticultural Census and is shown as follows:

  Total sheep and lambs in Wales1

  Year

  Number

  1993

  11,256,200

  1996

  10,874,000

  19982

  11,609,300

  1Includes estimates for minor holdings

  2 Provisional estimate

  GP Fundholding
  Mr. Barry Jones
  To ask the Secretary of State for Wales when he proposes to abolish GP fundholding; and if he will make a statement on his proposed alternative arrangements. [62698]

  Mr. Jon Owen Jones
  We shall include provisions to abolish the GP fundholding scheme in the Bill to modernise the NHS. Although a fundholding scheme must remain available until that Bill reaches Royal Assent, this need not take the form of the existing standard and community fundholding schemes. The Department is therefore about to consult the GP representative bodies on proposals to bring these existing arrangements to an end on 31 March 1999 and substitute a residual scheme. This residual scheme would meet the requirements of the current primary legislation, should that still be in force on 1 April 1999, while minimising any disruption to the development of Local Health Groups. No new primary legislation is needed to implement our plans to establish Local Health Groups as Committees of Health Authorities from 1 April 1999.

  Welsh Development Agency
  Mr. Barry Jones
  To ask the Secretary of State for Wales how many people are employed by the Welsh Development Agency. [62914]

  Mr. Hain
  The Welsh Development Agency currently employs 424 permanent staff.

  Grant-maintained Schools
  Mr. Swayne
  To ask the Secretary of State for Wales if he will make a statement about the allocation of funds to grant-maintained schools in Wales in 1999–2000. [62981]

  Mr. Hain
  Grant-maintained schools in Wales will be funded in 1999–2000 in accordance with the Financing of Maintained Schools Regulations 1998 which were laid before Parliament on 3 December.

  Welsh Arts Council
  Mr. Wigley
  To ask the Secretary of State for Wales if he will make a statement on his plans for the appointment of a new chair to the Welsh Arts Council. [63155]

  Mr. Michael
  The selection process for a new chair of the Arts Council of Wales began in July with an advertisement in the national press. A shortlist of candidates has been drawn up and interviews will take place as early as possible in the New Year.

  A487
  Mr. Wigley
  To ask the Secretary of State for Wales if he will take steps to avoid the closure of the A487 across the Cob at Porthmadog, during rebuilding of the retaining walls; and what arrangements he has made for the alternative routing of trunk road traffic during the rebuilding. [63175]

  Mr. Hain
  The Department is presently in discussion with The Rebecca Trust concerning the condition of the retaining walls on either side of the cob at Porthmadog. Ownership of the walls above the A487 rests with the Trust. The Department's Agents, the North West Wales Trunk Road Agency, have been instructed to inspect the walls and consider possible strengthening schemes, which need to minimise traffic disruption. Some temporary closures may, however, be inevitable due to the narrowness of the A487 across the cob. Only on receipt of the strengthening proposals will the need for alternative routes be developed.

  Disability Wales
  Mr. Wigley
  To ask the Secretary of State for Wales what progress has been made in addressing the issues raised in the report of the Welsh Office Social Services Inspectorate in August 1998 on the problems of Disability Wales; and what plans he has for the future funding of Disability Wales. [63149]

  Mr. Jon Owen Jones
  The final report of the Management Review of Disability Wales was published on 19 November and I have sent a copy to the right hon. Member. I am now awaiting a formal response to the report from the Trustees of Disability Wales.

  The Government have a very positive agenda for disabled people, including the establishment of a Disability Right Commission. It is therefore essential that Disability Wales can play a strong and cohesive role during this important period. I hope that the report's recommendations will provide a sound foundation from which the organisation can develop. Welsh Office funding for Disability Wales is secured until 31 March 1999 and I will consider funding for the 1999–2000 financial year in the light of the response from the Trustees to the report by the Social Services Inspectorate for Wales.

EDUCATION AND EMPLOYMENT

  Departmental Staff
  Mr. Robert Jackson
  To ask the Secretary of State for Education and Employment how many people in his Department are currently on secondment from private companies; and if he will list them, their companies and their current responsibilities within Government. [62826]

  Mr. Mudie
  The Department for Education and Employment currently has 8 centrally managed staff seconded from the private sector. The details are as follows:
  287

  Secondee

  Seconded from

  Current position

  Prof. Michael Barber

  Institute of Education

  Head of Standards and Effectiveness Unit

  Ms Juliette Brown

  Aqument Services

  Private Finance Division

  Mr. Richard Edwards

  The Next Company

  National Disability Council Secretariat

  Mr. Anil Kumar

  Glaxo Wellcome PLC

  Higher Education Funding and Organisation Division

  Ms Lindsay Oliver

  Institute of Education

  Effectiveness Division

  Mr. Steve Pollock

  British Broadcasting Corporation

  University for Industry Transition Team

  Mr. Europe Singh

  British Broadcasting Corporation

  University for Industry Transition Team

  Mr. Alun Thomas

  Royal National Institute for the Blind

  National Disability Council Secretariat

  Asian Women (Employment Rights)
  Mr. Jim Cunningham
  To ask the Secretary of State for Education and Employment what steps the Government are taking to increase the amount of advice and information available to women from the Pakistani and Bangladeshi communities on employment rights and opportunities. [62282]

  Ms Hodge
  [holding answer 8 December 1998]: First and foremost, the Government fund the Equal Opportunities Commission and the Commission for Racial Equality to advise all individuals on employment rights. More specifically, the DfEE has adopted a Race Equality Strategy committing it, in all its policies and programmes, actively to promote equality between all ethnic and racial groups. The key principles of the strategy are built into all Employment Service programmes, notably the New Deal. This programme is designed to take account of the particular needs of ethnic minorities, including Pakistani and Bangladeshi women, to ensure that ethnic minority young people have advice and support that meets their particular needs. The Employment Service issues multi-lingual publicity leaflets to publicise its programmes.

  We also require Government-funded Training and Enterprise Councils to ensure that all sections (ie by ethnic group, gender and disability) of the eligible local population are fully represented on the programmes they run and the services they deliver. If not, the TEC must increase its participation by identifying and tackling whatever barriers exist to recruitment.

  Following a recent Social Exclusion Unit report, the Government have set up an Action Team on jobs to look at the particular difficulties facing people from ethnic minorities looking for work and to identify better ways of helping into jobs people like Pakistani and Bangladeshi women, who face some of the toughest barriers to work. It will report to the SEU in July 1999.

  Careers Services are also developing imaginative schemes to support ethnic minority women and prepare them to find suitable work. In Bradford, for example, Pakistani and Bangladeshi women are helped by the local Careers Service with information and advice, providing both reassurance and practical assistance, eg with language, to support entry for daughters onto work experience schemes. The local Careers Service also operates a mentoring scheme which draws upon the skills of experienced Pakistani and Bangladeshi community members to train and support young people into jobs.

  I recognise that people from ethnic minorities face particular difficulties in moving from education into work. It is because we must find ways of overcoming them that
  288
  I have made this an early priority for my advisory group, the Race Employment and Education Forum, which met for the first time on 20 October.

  Education Council
  Mr. Rammell
  To ask the Secretary of State for Education and Employment what was the outcome of the Education Council held in Brussels on 4 December; and if he will make a statement. [63164]

  Mr. Andrew Smith
  I refer my hon. Friend to the reply I gave to my hon. Friend the Member for Enfield, Southgate (Mr. Twigg), on 8 December 1998,Official Report, column 181.

  Performance League Tables
  Mr. Chaytor
  To ask the Secretary of State for Education and Employment what research he has commissioned on the impact of socio-economic factors on school performance tables. [62584]

  Mr. Charles Clarke
  [holding answer 9 December 1998]: No research has been commissioned on the impact of such factors specifically on performance tables, but in its internal analyses of performance information for school improvement purposes the Department does undertake investigations of the relationship between socio-economic factors and school performance.

  Teachers' Pensions
  Mr. Blizzard
  To ask the Secretary of State for Education and Employment if he will make a statement on the review of teachers' pension arrangements and its impact on opportunities for early retirement. [63230]

  Mr. Charles Clarke
  The Working Group on the Review of the Teachers' Pension Scheme has considered all of its terms of reference. These included whether teachers should be allowed to retire early with an actuarially reduced pension at their own request. The Working Group will cover this in its report which I expect to receive in January.

  Mr. Pickthall
  To ask the Secretary of State for Education and Employment if he will report on progress being made by the Working Group on the Review of the Teachers' Pension Scheme; and when he expects it to report. [62923]

  Mr. Charles Clarke
  The Working Group on the Review of the Teachers' Pension Scheme has considered all of its terms of reference. I expect to receive its report in January.

  Job Creation
  Mr. Jim Cunningham
  To ask the Secretary of State for Education and Employment what plans he has to increase local powers(a) over job creation and training programmes and (b) to co-ordinate different publicly funded regeneration and employment projects. [62344]

  Mr. Mudie
  [holding answer 9 December 1998]: (a)We are committed to the principle that local partnerships should be able to develop solutions to identified local needs. Initiatives such as the Single Regeneration Budget and New Deal for Communities offer vehicles for this, and people, jobs and skills are at their heart. It is crucial that all partners involved in activities focused employability work closely together to ensure that local programmes fit as effectively as possible with national programmes such as New Deal.

  The Government support the Local Government Association New Commitment to Regeneration Initiative which is seeking a more co-ordinated and flexible approach to regeneration in 22 pathfinder areas. The Government will work wholeheartedly with the pathfinder areas as they seek new and effective ways of meeting the needs and priorities of their localities.

  (b) Helping people in deprived communities to obtain jobs is a high priority in all regeneration initiatives. The 17 New Deal for Communities Pathfinders have been asked to put this at the centre of their plans. Guidelines for Round 5 of the Single Regeneration Budget emphasised the importance of employability.

  I also refer my hon. Friend to the reply my right hon. Friend the Deputy Prime Minister gave on 28 October 1998, Official Report, columns 168–69, which gives detailed information on steps taken by this Government to improve the co-ordination of area-based initiatives.

  Devolution
  Ms Roseanna Cunningham
  To ask the Secretary of State for Education and Employment (1) how much is spent annually by his Department on research programmes in Scotland; and what proportion of this funding will be transferred to the Scottish Parliament after devolution; [63299]

  (2) if he will list (a) by programme over £50,000 and (b) the total of spending by his Department in Scotland on the identifiable spending areas detailed in Table 7.6A of the Public Expenditure Statistical Analysis 1997–98 (Cmnd 3601); which of these programmes will fall solely or jointly under the responsibility of the Scottish Parliament; and what arrangements are in place to transfer control of funds for these projects to the Scottish Executive or Parliament. [63300]

  (3) what assessment he has made of the programmes which it will be ultra vires for his Department to fund or have sole responsibility for after devolution; if he will list these programmes; and if he will make a statement. [63301]

  Mr. Mudie
  Under the terms of the Scotland Act 1998, the Scottish Ministers will assume responsibility for a range of devolved functions which will in part depend on secondary legislation which has yet to be passed. My Department is reviewing its programmes, including the research components, in the light of the Scotland Act. It 290
  is too early to say to what extent programme expenditure which is currently administered by the Department may relate to functions which will transfer to Scottish Ministers. Work is taking place to establish the extent of any such expenditure and to assess the need for any consequential transfer of funds to the Scottish Ministers. For the total spending by the Department in Scotland I refer the hon. Member to the reply given by my right hon. Friend the Chief Secretary to the Treasury to the hon. Member for North Tayside (Mr. Swinney) on 4 November 1998, Official Report, column 615.

  Education Channel
  Mr. Peter Ainsworth
  To ask the Secretary of State for Education and Employment what estimate he has made of the cost(a) in total and (b) to public funds of establishing a new broadcast education channel. [63322]

  Mr. Charles Clarke
  The Department has no plans to establish a new broadcast education channel and no estimate of possible costs has accordingly been made.

  Funding
  Mrs. May
  To ask the Secretary of State for Education and Employment how much money has been allocated in each of the next three financial years for(a) the Standards Fund, (b) the New Opportunities Fund, (c) the Service Development Fund and (d) the Small School Support Fund. [63250]

  Mr. Blunkett
  The Standards Fund programme will be over £900 million in 1999–2000. This includes the DfEE grant and the local education authority contribution. Announcements of the size of the programme in future years will be made in due course.

  The Service Development Fund will be £750 million in 2000–01 and £1,000 million in 2001–02.

  Details for the Small School Support Fund will be announced in due course. Questions on the New Opportunities Fund are for my right hon. Friend the Secretary of State for Culture, Media and Sport.

  Headteachers
  Mrs. May
  To ask the Secretary of State for Education and Employment when he expects to publish details of the proposed resources which are to be made available within the school improvement grant element of the Standards Fund for the replacement of headteachers in underperforming schools. [63248]

  Ms Estelle Morris
  The Green Paper "Teachers—Meeting the Challenge of Change" (Cm 4164) indicates that additional resources will be made available within the Standards Fund to help underperforming schools to get the strong leadership they need. Details of this allocation will be announced in due course.

  Virtual Staff College
  Mrs. May
  To ask the Secretary of State for Education and Employment if he will make a statement on the Virtual Staff College for Senior Education Officers. [63251]

  Ms Estelle Morris
  The Virtual Staff College is a project, led by the Society of Education Officers with support from my Department, for the training and
  291
  development of local education authority officers. The project includes a competence framework which forms the basis for several newly developed Master's degree courses. Students can mix and match modules from difference universities and combine on-site tuition with distance learning. The project leader is on secondment from the Department. The DfEE is also providing £30,000 for the development of the competence framework, training materials and information.

  Teachers
  Mrs. May
  To ask the Secretary of State for Education and Employment what estimate he has made of the recurrent cost of providing funding to guarantee all new teachers the reduced teaching load and programme of support referred to in the Green Paper, "Teachers Meeting the Challenge of Change". [63249]

  Mr. Charles Clarke
  In 1999–2000 my right hon. Friend the Secretary of State will make available £251.5 million in the School Improvement Standards Fund grant to support activity designed to improve standards of pupil performance in order to meet school, LEA and national targets.

  Mrs. May
  To ask the Secretary of State for Education and Employment how many advanced skills teachers have been appointed to date to each salary band. [63246]

  Mr. Charles Clarke
  The information is not available.

  Pupils (Spending)
  Mr. Webb
  To ask the Secretary of State for Education and Employment if he will list the standard spending assessments for education per pupil for each English local authority for 1999–2000. [63255]

  Ms Estelle Morris
  The following table shows, for each local education authority,

  (a) its Primary education SSA per primary pupil;

  (b) its Secondary education SSA per secondary pupil; and

  (c) its total education SSA.

  LEA

  (a) Primary SSA per 5–10 pupil £

  (b) Secondary SSA per 11–15 pupil £

  (c) Total education SSA £ million

  City of London

  3,341

  9,841

  0.823

  Camden

  3,323

  4,135

  87.405

  Greenwich

  3,148

  4,034

  126.198

  Hackney

  3,514

  4,720

  103.657

  Hammersmith and Fulham

  3,305

  4,266

  63.226

  Islington

  3,364

  4,429

  91.734

  Kensington and Chelsea

  3,315

  4,130

  40.216

  Lambeth

  3,521

  4,883

  111.411

  Lewisham

  3,293

  4,276

  127.517

  Southwark

  3,396

  4,381

  124.188

  Tower Hamlets

  3,584

  4,624

  145.646

  Wandsworth

  3,082

  3,950

  98.179

  Westminster

  3,203

  3,915

  66.840

  Barking and Dagenham

  2,693

  3,500

  84.362

  Barnet

  2,556

  3,221

  135.917

  Bexley

  2,448

  3,130

  105.895

  Brent

  2,952

  3,846

  123.122

  Bromley

  2,416

  3,064

  125.844

  Croydon

  2,625

  3,416

  140.458

  Ealing

  2,762

  3,619

  129.439

  292

  LEA

  (a) Primary SSA per 5–10 pupil £

  (b) Secondary SSA per 11–15 pupil £

  (c) Total education SSA £ million

  Enfield

  2,661

  3,372

  139.354

  Haringey

  3,049

  3,990

  110.180

  Harrow

  2,512

  3,268

  81.160

  Havering

  2,406

  3,101

  99.018

  Hillingdon

  2,521

  3,232

  107.889

  Hounslow

  2,708

  3,415

  107.140

  Kingston upon Thames

  2,416

  3,071

  53.379

  Merton

  2,576

  3,314

  66.341

  Newham

  3,072

  3,943

  156.662

  Redbridge

  2,577

  3,284

  118.381

  Richmond upon Thames

  2,372

  2,989

  52.474

  Sutton

  2,468

  3,096

  78.844

  Waltham Forest

  2,845

  3,653

  111.079

  Birmingham

  2,509

  3,248

  506.054

  Coventry

  2,374

  3,053

  136.125

  Dudley

  2,176

  2,784

  120.419

  Sandwell

  2,392

  3,081

  136.000

  Solihull

  2,169

  2,759

  88.014

  Walsall

  2,300

  2,936

  124.674

  Wolverhampton

  2,403

  3,103

  111.897

  Knowsley

  2,631

  3,465

  85.254

  Liverpool

  2,582

  3,317

  238.351

  St. Helens

  2,282

  2,943

  76.521

  Sefton

  2,274

  2,904

  122.220

  Wirral

  2,343

  3,028

  148.745

  Bolton

  2,281

  2,921

  117.547

  Bury

  2,198

  2,800

  71.500

  Manchester

  2,663

  3,494

  207.706

  Oldham

  2,342

  2,991

  108.596

  Rochdale

  2,363

  3,052

  96.905

  Salford

  2,387

  3,097

  95.263

  Stockport

  2,155

  2,782

  104.481

  Tameside

  2,259

  2,885

  95.650

  Trafford

  2,222

  2,858

  91.122

  Wigan

  2,195

  2,801

  125.385

  Barnsley

  2,278

  2,943

  87.395

  Doncaster

  2,359

  3,055

  136.244

  Rotherham

  2,274

  2,898

  116.237

  Sheffield

  2,314

  2,972

  195.022

  Bradford

  2,404

  3,114

  233.854

  Calderdale

  2,281

  2,935

  88.234

  Kirklees

  2,310

  2,964

  164.385

  Leeds

  2,283

  2,925

  292.500

  Wakefield

  2,216

  2,846

  129.015

  Gateshead

  2,315

  2,979

  78.279

  Newcastle upon Tyne

  2,431

  3,128

  111.057

  North Tyneside

  2,245

  2,909

  77.634

  South Tyneside

  2,360

  3,024

  68.784

  Sunderland

  2,330

  2,992

  129.129

  Isles of Scilly

  4,136

  5,277

  1.206

  Cambridgeshire

  2,224

  2,846

  190.955

  Cheshire

  2,173

  2,774

  263.888

  Cornwall

  2,283

  2,937

  189.872

  Cumbria

  2,255

  2,889

  195.864

  Devon

  2,258

  2,914

  243.787

  Essex

  2,337

  3,003

  524.217

  Gloucestershire

  2,199

  2,818

  214.838

  Herefordshire

  2,270

  2,927

  61.120

  Worcestershire

  2,168

  2,774

  198.216

  Hertfordshire

  2,370

  3,029

  444.698

  Kent

  2,337

  2,997

  553.625

  Lancashire

  2,259

  2,898

  468.619

  Lincolnshire

  2,269

  2,916

  250.567

  Norfolk

  2,276

  2,912

  286.604

  Northamptonshire

  2,222

  2,852

  257.805

  Northumberland

  2,240

  2,879

  129.290

  Nottinghamshire

  2,196

  2,820

  296.082

  Oxfordshire

  2,291

  2,918

  217.420

  Shropshire

  2,220

  2,839

  100.824

  Somerset

  2,226

  2,863

  175.412

  Suffolk

  2,222

  2,836

  250.346

  Surrey

  2,337

  2,991

  358.271

  Warwickshire

  2,182

  2,796

  187.617

  West Sussex

  2,267

  2,905

  269.226

  293

  LEA

  (a) Primary SSA per 5–10 pupil £

  (b) Secondary SSA per 11–15 pupil £

  (c) Total education SSA £ million

  North Yorkshire

  2,235

  2,843

  219.711

  Bedfordshire

  2,285

  2,935

  160.984

  Buckinghamshire

  2,286

  2,944

  193.629

  Derbyshire

  2,173

  2,791

  272.411

  Dorset

  2,191

  2,800

  135.276

  Durham

  2,283

  2,943

  203.417

  East Sussex

  2,336

  3,009

  174.297

  Hampshire

  2,229

  2,871

  446.888

  Leicestershire

  2,119

  2,726

  228.231

  Staffordshire

  2,151

  2,761

  323.123

  Wiltshire

  2,209

  2,847

  159.098

  Isle of Wight Council

  2,397

  3,082

  52.955

  Bath and North East Somerset

  2,158

  2,717

  62.354

  City of Bristol

  2,338

  3,031

  134.265

  North Somerset

  2,170

  2,800

  68.008

  South Gloucestershire

  2,115

  2,728

  93.824

  Hartlepool

  2,331

  2,991

  42.580

  Middlesbrough

  2,451

  3,190

  68.493

  Redcar and Cleveland

  2,343

  2,988

  66.222

  Stockton-on-Tees

  2,295

  2,953

  82.138

  City of Kingston-upon-Hull

  2,412

  3,096

  114.854

  East Riding of Yorkshire

  2,186

  2,798

  121.284

  North East Lincolnshire

  2,312

  2,975

  72.999

  North Lincolnshire

  2,278

  2,928

  64.980

  York

  2,172

  2,810

  60.335

  Luton

  2,498

  3,217

  87.649

  Milton Keynes

  2,365

  3,057

  92.715

  Derby

  2,323

  2,983

  96.869

  Poole

  2,161

  2,766

  50.010

  Bournemouth

  2,271

  2,886

  55.817

  Darlington

  2,265

  2,925

  39.683

  Brighton and Hove

  2,418

  3,103

  82.786

  Portsmouth

  2,410

  3,084

  72.774

  Southampton

  2,424

  3,136

  87.402

  Leicester

  2,470

  3,171

  134.753

  Rutland

  2,190

  2,707

  11.642

  Stoke on Trent

  2,281

  2,943

  99.514

  Bracknell Forest

  2,340

  3,018

  41.567

  Windsor and Maidenhead

  2,343

  2,957

  51.147

  Newbury

  2,220

  2,822

  60.950

  Reading

  2,392

  3,131

  48.071

  Slough

  2,739

  3,607

  59.011

  Wokingham

  2,129

  2,745

  58.507

  Peterborough

  2,356

  3,022

  78.899

  Halton

  2,369

  3,070

  59.307

  Warrington

  2,151

  2,767

  78.552

  Plymouth

  2,274

  2,893

  107.756

  Torbay

  2,285

  2,929

  49.958

  Southend

  2,378

  3,047

  68.888

  Thurrock

  2,488

  3,194

  60.506

  Rochester and Gillingham

  2,313

  2,972

  117.985

  Blackburn

  2,442

  3,127

  70.696

  Blackpool

  2,289

  2,984

  52.823

  Nottingham City

  2,522

  3,281

  115.257

  The Wrekin

  2,288

  2,939

  66.230

  Thamesdown

  2,200

  2,830

  73.313

  England

  2,372

  3,033

  20,414.000

  Sixth Forms
  Mr. Prior
  To ask the Secretary of State for Education and Employment (1) what guidance his Department has issued on the optimum size of sixth form classes; [62506]

  (2) if he will make a statement on the average size of sixth form classes in (a) the United Kingdom and (b) Norfolk. [62507]
  294
  Ms Estelle Morris
  The average size of sixth form classes in England is 10.7 and in Norfolk is 10.2. The size of classes in the rest of the United Kingdom is a matter for my right hon. Friends the Secretaries of State for Scotland and for Wales.

  The Department has issued no guidance on the optimum size of sixth form classes. In deciding what courses to offer in their sixth forms, schools must weigh up issues such as quality of provision, demand for particular courses, breadth of curricular choices accessible to students across the area, cost effectiveness and financial implications for the school as a whole.

  Mr. Prior
  To ask the Secretary of State for Education and Employment what guidance his Department has issued on the optimum size of a sixth form college so that it is able to provide an appropriate choice of subjects. [62508]

  Mr. Mudie
  The Department has not issued guidance on the optimum size of sixth form colleges.

TREASURY

  Tax Harmonisation
  Mr. Nicholls
  To ask the Chancellor of the Exchequer how he proposes to ensure that Britain's taxation will not be harmonised with that of the rest of the EU when Britain joins European Monetary Union. [61760]

  Dawn Primarolo
  Decisions in this area are subject to unanimity. This would not be affected if the UK joined EMU.

  Mr. Cash
  To ask the Chancellor of the Exchequer if he will make a statement on his use of the veto in respect of EU tax harmonisation measures relating to(a) corporate and company taxation, (b) VAT, (c) income tax, (d) taxes on investment and (e) capital taxes. [61775]

  Dawn Primarolo
  Decisions in all these areas are subject to unanimity. The Government will not support any action at European level that will threaten jobs or the competitive position of British business.

  Mr. Chope
  To ask the Chancellor of the Exchequer if he will make a statement about the Government's policy on proposals for tax harmonisation in Europe. [61782]

  Dawn Primarolo
  The Government will not support any action at European level that will threaten jobs or the competitive position of British business. Tax harmonisation is not the way forward for Europe. The priority for Europe is the promotion of employment reforms and competitive markets to achieve higher levels of employment and prosperity.

  37. Sir Michael Spicer
  To ask the Chancellor of the Exchequer what action he intends to take to prevent tax harmonisation in the European Union. [61784]

  Dawn Primarolo
  Decisions in this area are subject to unanimity. The Government will not support any action at European level that will threaten jobs or the competitive position of British business.

  Debt Relief (Developing Countries)
  Mr. Burstow
  To ask the Chancellor of the Exchequer what steps he is taking to accelerate debt relief programmes for developing countries. [61761]

  Ms Hewitt
  At the annual meetings of the IMF and World Bank the Chancellor maintained momentum towards his Mauritius Mandate targets and has subsequently taken initiatives to help post-catastrophe countries.

  NHS Expenditure
  Mr. McNulty
  To ask the Chancellor of the Exchequer if he will make a statement on his public expenditure plans for the NHS for the next three years. [61764]

  Mr. Byers
  In the Comprehensive Spending Review on 14 July 1998,Official Report, columns 187–211, we announced an extra £21 billion for health in the UK for the next three years.

  This is the biggest cash increase in the history of the NHS and, combined with our programme of reform, will provide the stable funding base needed to deliver the Government's commitment to modernise the NHS.

  Coupled with the £250 million for the UK this year, which my right hon. Friend the Chancellor announced in the House on 3 November 1998, Official Report, column 688, of which £209 million is for England, this means health spending in England will rise by 3.8 per cent. a year over the lifetime of this Parliament. Figures for other countries of the United Kingdom are a matter for my right hon. Friends the Secretaries of State for Scotland, for Wales and for Northern Ireland.

  Public Spending
  Mr. Plaskitt
  To ask the Chancellor of the Exchequer if he will make a statement about his priorities for public spending for the next three years, with particular reference to the balancing of budgets across the economic cycle. [61765]

  Mr. Byers
  The Government are committed to spend an extra £40 billion on health and education over the next three years, and will double net public investment.

  The Government's prudent approach to managing the public finances ensures that these commitments will be honoured while meeting the Government's two strict fiscal rules.

  Public Services Expenditure
  Mr. Win Griffiths
  To ask the Chancellor of the Exchequer if he will make a statement on his plans to increase non-capital expenditure on public services over the next three years. [61766]

  Mr. Byers
  Spending plans for the next three years were set out in the Comprehensive Spending Review White Paper, published in July.

  Work Incentives
  Ms Ward
  To ask the Chancellor of the Exchequer if he will make a statement about his policy to increase the incentive to work. [61768]
  296
  Dawn Primarolo
  The Budget contained a number of measures to help ensure that work pays, including the Working Families Tax Credit and reform to National Insurance Contributions. These changes will ensure a guaranteed minimum income of at least £190 a week for working families. And, as the Pre-Budget Report stated, we will also introduce a 10p starting rate of income tax, when it is economically right to do so. In addition, the Welfare to Work programme will, through the New Deal, help people to make the move from welfare into work.

  Tax Revenue Statistics
  23. Sir Teddy Taylor
  To ask the Chancellor of the Exchequer what is the latest estimate of total annual tax revenue per person in the United Kingdom; and what was the total(a) five and (b) 10 years ago. [61769]

  Mr. Byers
  Figures for the total annual tax revenue per person in the United Kingdom were £2,812 in 1987–88; £3,574 in 1992–93; and £5,023 in 1997–98.

  Pensioners (Taxation)
  Dr. Cable
  To ask the Chancellor of the Exchequer if he will make a statement on the taxation of dividends paid to non-taxpaying low-income pensioners. [61770]

  Dawn Primarolo
  Having listened carefully to all interested parties, the Government confirm the arrangements set out in the July 1997 Budget for phasing out payable credits in order to correct a bias in the tax system against the retention of profits for investment. Individuals have time to consider their investments before the new rules take effect—for example, they can move to tax-favoured investments should they wish to do so.

  Mr. Waterson
  To ask the Chancellor of the Exchequer what measures he is proposing to improve the tax position of pensioners. [61778]

  Ms Hewitt
  In his statement to the House on the Comprehensive Spending Review, 14 July 1998,Official Report, columns 187–211, the Chancellor announced that, as part of a £2.5 billion package of support for pensioners, the Government would set a minimum tax guarantee, so that no pensioner would pay income tax unless their income rose above a specified level. The pre-Budget report confirmed that this level would be determined in the next Budget.

  Duty-free Sales
  25. Miss McIntosh
  To ask the Chancellor of the Exchequer what representations he has received on the continuation of duty-free sales after 30 June 1999; what transitional measures he proposes to introduce; and if he will make a statement. [61771]

  Dawn Primarolo
  I have received a number of representations on the continuation of duty-free sales after 30 June 1999. This matter was discussed at the ECOFIN Council meeting on 1 December where a minority of Member States, supported by the UK, called for a fresh look at the decision to end intra-EU duty free sales on 30 June 1999. However, unanimity amongst Member States is required and there was no consensus for change. The Government are continuing to consider the arrangements which should apply after 30 June 1999.

  Euro
  Mr. Townend
  To ask the Chancellor of the Exchequer what estimate he has made of the cost to the United Kingdom Government of conversion from sterling to the euro. [61772]

  Ms Hewitt
  The cost of the changeover should the UK decide to join the euro would depend on the manner in which businesses and other organisations were to approach the changeover and the extent to which organisations had incorporated euro compatibility into investment decisions before joining.

  ECOFIN
  Mr. Boswell
  To ask the Chancellor of the Exchequer what recent consultations he has had with his European Union counterparts on the co-ordination of taxation policies. [61774]

  Mr. Loughton
  To ask the Chancellor of the Exchequer what discussions he has had with EU finance ministers on the subject of EU tax harmonisation. [61776]

  Mr. Hood
  To ask the Chancellor of the Exchequer what was the outcome of the ECOFIN Council held in Brussels on 1 December; and if he will make a statement. [62329]

  Dawn Primarolo
  The Chancellor attended the Economic and Finance Council—ECOFIN—of the European Union in Brussels on 1 December. I accompanied him. ECOFIN was followed by a joint meeting of ECOFIN and the Social Affairs Council.

  I, as Chair of the Code of Conduct Group, presented the Group's first interim report to ECOFIN. The Council took note of the report, endorsed the further work and asked the Group to endeavour to complete its work as rapidly as possible. Commissioner Monti gave a brief presentation of the Commission's combined first annual report on the implementation of the Code of Conduct for Business Taxation and fiscal state aid and a progress report on the work concerning the taxation of income from savings and a common system of taxation from interest and royalty payments between associated companies.

  The Council noted a presentation by Commissioner Van Miert on the Commission's Communication on the application of state aid rules to direct tax measures.

  The Commission put forward a draft mandate for a study on company taxation which was not agreed.

  Commissioner Monti requested that ECOFIN consent to the Commission and the Presidency Troika initiating exploratory talks with third countries on the external dimension of the taxation of savings. ECOFIN agreed the mandate.

  The Presidency proposed that the Financial Questions Group continue its discussions on a framework for energy taxation based on the Commission's draft Energy Products Directive. This was agreed by the Council, with a view to the Council being able to assess the prospects for such a framework by May 1999.

  The Presidency put forward a draft progress report entitled "Reinforced tax policy co-operation". The agreed report will be submitted to the Vienna European Council.
  298
  The Council agreed a report to the Vienna European Council on Agenda 2000.

  ECOFIN discussed the Stability Programme of the Netherlands and the Convergence Programme of Denmark. The Council adopted opinions on these programmes.

  ECOFIN agreed that the Commission would adopt on 9 December a proposal that allowed for only very limited access for credit institutions in Monaco to the French payments system. France is to discuss this measure further with the European Central Bank and the Commission.

  The Council agreed a report to the European Council on the external representation of the euro area. The Council also agreed a report taking forward initiatives to reform the international financial institutions.

  The composition and statutes of the Economic and Financial Committee were agreed.

  ECOFIN agreed a statement on facilitating the reconstruction efforts in Central America following Hurricane Mitch.

  The abolition of intra-EU duty free shopping on 30 June 1999 was raised. Several Member States asked that this decision be looked at again. The request did not achieve the necessary unanimous support of Member States. The Presidency concluded that no further action would be taken.

  At the joint meeting of ECOFIN and the Social Affairs Council, agreement was reached on the Joint Employment Report and on amendments to the 1999 Employment Guidelines. Both texts will be sent to the Vienna European Council. The Chairman of the European Investment Bank gave a report on the progress made in implementing the programme agreed at the Luxembourg jobs summit.

  European Economy
  Mr. Alan W. Williams
  To ask the Chancellor of the Exchequer if he will make a statement on progress toward the co-ordinated expansion of the European economy. [61777]

  Ms Hewitt
  Articles 103 and 104c of the Maastricht Treaty provide a basis for coordination and surveillance of budgetary and economic policies in EMU. The Government believe that growth and high employment in the EU will be best served by policies which promote economic stability and improve the performance of labour, product and capital markets. As part of this process, Member States are currently submitting Progress Reports on Product and Capital Markets which will be discussed in the new year.

  Balance of Payments
  Mr. Spring
  To ask the Chancellor of the Exchequer if he will make a statement on the balance of payments. [61779]

  Ms Hewitt
  A small current account deficit is expected this year, and the Pre-Budget Report shows that, as a proportion of GDP, it is forecast to remain modest by historical standards over the next few years.

  VAT Village Halls
  Mr. David Heath
  To ask the Chancellor of the Exchequer if he will make a statement on his policy with regard to VAT reclamation by parish councils on building projects undertaken by village hall committees. [61780]

  Dawn Primarolo
  A parish council is not entitled to recover VAT incurred by a village hall committee. However, where a parish council owns, or is the sole trustee of, a hall and it incurs VAT in respect of works to the hall, this is normally recoverable. In addition, VAT may be recoverable where a parish council uses its own resources to undertake work to other halls.

  Economic Stability
  Dr. Desmond Turner
  To ask the Chancellor of the Exchequer what measures he has taken to ensure economic stability. [61781]

  Ms Hewitt
  We have put in place new frameworks for monetary and fiscal policy, and have taken tough action to deliver low inflation and sound public finances. These are essential for economic stability and sustainable growth.

  Pension Mis-selling
  Mr. Swayne
  To ask the Chancellor of the Exchequer if he will make a statement about the role of independent financial advisers in respect of pension mis-selling. [61783]

  Ms Hewitt
  I refer the hon. Gentleman to my statement of 5 November 1998,Official Report, column 685.

  Monetary Policy Committee
  Dr. Lynne Jones
  To ask the Chancellor of the Exchequer what assessment he has made of the effectiveness of the Monetary Policy Committee. [61767]

  Ms Hewitt
  The task of the Monetary Policy Committee is to set short-term interest rates to meet the Government's inflation target. The success of the new monetary framework is demonstrated by the fact that inflation is at its target, long-term interest rates are currently at their lowest level for over 35 years and inflation expectations have fallen.

  Debt Relief (Honduras and Nicaragua)
  Mr. Laurence Robertson
  To ask the Chancellor of the Exchequer what discussions he has had with the Governments of Honduras and Nicaragua regarding debt relief; what steps he has taken to secure debt relief for those countries; and if he will make a statement. [61773]

  Ms Hewitt
  The UK has already written off all of its aid loans to Honduras and Nicaragua. Last month, the Chancellor and Secretary of State for International Development called on the International Financial Institutions to look at mechanisms that could mitigate the debt service burdens on Honduras and Nicaragua and announced a £10 million contribution to a multilateral Trust Fund to help meet debt service payments to the IMF and World Bank.

  Employment Statistics
  Mr. Hancock
  To ask the Chancellor of the Exchequer if he will list the quarterly levels and changes in the United Kingdom employed labour force since 1990, identifying separately(a) employees in employment, (b) armed forces and (c) self-employment, with a breakdown of these categories by (i) full-time and part-time and (ii) sex. [62308]

  Ms Hewitt
  The information requested falls within the responsibility of the Director of the Office for National Statistics. I have asked him to reply.

  Letter from Tim Holt to Mr. Mike Hancock, dated 10 December 1998:
  As Director of the Office for National Statistics (ONS), I have been asked to reply to your recent parliamentary question on the labour force.
  The statistics you have requested (where available) can be accessed via the Central Shared Database (CSDB) in the House of Commons Library.
  Figures for males and females are available for Employee jobs (the new name for employees-in-employment), Self-employment jobs and HM Forces in the United Kingdom. However, a full-time and part-time breakdown is only available for the Employee jobs component, and only from December 1992.
  When accessing the database you will need to know the CSDB `identifiers' for each of the series of figures sought. These are as follows:

  Male Full-time Employee jobs: YEJN

  Male Part-time Employee jobs: YEJO

  Female Full-time Employee jobs: YEJP

  Female Part-time Employee jobs: YEJQ

  Male Self-employment jobs: YEJR

  Female Self-employment jobs: YEJS

  Male HM Forces: YEJT

  Female HM Forces: YEJU

  These estimates are subject to revision after 16th December 1998, when the short-term estimates will be benchmarked against the Annual Employment Survey (AES) results for September 1997. You may also wish to know that these figures are published in table B.11 of Labour Market Trends each month—copies of which are placed in the House Library.

  Registration (Births, Deaths and Marriages)
  Mr. Fallon
  To ask the Chancellor of the Exchequer when the options paper on registration of Births, Deaths and Marriages will be presented by the Registrar General to Ministers, as stated in his written answer to the hon. Member for Tewkesbury (Mr. Robertson) of 30 June 1998,Official Report, column 175, and when he expects to publish proposals for reform. [62552]

  Ms Hewitt
  The Registrar General expects to present the options paper to Ministers shortly.

  Proposals for reform will be included in the consultation document arising from the Civil Registration review announced in the answer I gave to my hon. Friend the Member for Preseli Pembrokeshire (Ms Lawrence) on 7 December 1998, Official Report, columns 27–28.

  Working Families Tax Credit
  Mr. Webb
  To ask the Chancellor of the Exchequer what the average weekly gains from the introduction of the working families tax credit will be by decile of(a) benefit unit income and (b) household income. [62244]
  301
  Dawn Primarolo
  [holding answer 3 December 1998]: The table shows estimated average gains arising from the introduction of Working Families Tax Credit for those eligible for the credit. The overall average gain including childcare costs is estimated to be £17.20 per week. Individual decile gains do not include gains arising from the changes to the treatment of childcare costs in Working Families Tax Credit or other behavioural changes arising from the introduction of the credit, as they can not be reliably apportioned across deciles.

  Average gain of gainers from introduction of Working Families Tax Credit by decile

  £ per week

  Declie

  Benefit unit income

  Household income

  Lowest

  1—

  14.40

  2nd

  17.40

  18.60

  3rd

  16.10

  12.40

  4th

  12.20

  15.20

  5th

  14.90

  12.60

  6th

  12.00

  1—

  7th

  1—

  1—

  8th

  1—

  1—

  9th

  1—

  1—

  Highest

  1—

  1—

  1 No gainers or number of gainers too few to calculate reliable estimate of average gain

  Note:

  Deciles are defined in terms of equivalised income on a benefit unit and household income basis using the McClements scale; decile boundaries are higher for households than benefit units.

  Source:

  These estimates have been derived from projections of Family Expenditure Survey data to 1999–2000

  Revised Earnings Index
  Mr. Cousins
  To ask the Chancellor of the Exchequer which sectors of the workforce were re-allocated between the public and private sectors of the economy in the now suspended revised earnings index. [62905]

  Ms Hewitt
  The information requested falls within the responsibility of the Director of the Office for National Statistics. I have asked him to reply.

  Details of private sector firms currently seconding staff to HM Treasury and staffs' responsibilities as at 1 December 1998

  Seconding organization

  Responsibilities

  Barclays Capital

  Export and export credits policy and oversight of the Export Credits Guarantee Department.

  Midland Bank

  Provision of advice and guidance on small and medium sized enterprises; business associations and representative bodies; business links and other intermediaries.

  Tarmac plc

  Private Finance Initiative (PFI) Adviser in the Procurement Group with responsibility for: links between PFI and mainstream procurement; support to departmental Procurement Units on PFI issues; and support to Treasury led Taskforce on procurement issues.

  Pannell Kerr Forster Associates

  Provision of commercial, financial and accounting advice on private sector companies, and public and private sector commercial undertakings. Support to other work areas in the Treasury, as well as support to OFGAS, OFFER, OFTEL and OFT.

  Ernst & Young

  Developing policy on aspects of public private partnerships, including the guidance on selling services into wider markets and on parts of the Treasury's on-going work on productivity.

  Manpower plc

  Provision of advice and guidance on strategic issues relating to supply chain management, electronic commerce and procurement business plans, to central Government Departments and Treasury officials.

  Securities Investment Board

  Deals with money laundering, financial crime and subjects in the wider area of regulatory policy.

  PricewaterhouseCoopers

  Provision of economic advice on housing and urban regeneration planning policies and programmes. Works on social exclusion.

  302
  Letter from Tim Holt to Mr. Jim Cousins, dated 10 December 1998:
  As Director of the Office for National Statistics (ONS), I have been asked to reply to your recent parliamentary question on the public and private sectors of the economy in the now suspended revised earnings index.
  Reclassification mainly affected privatised parts of public transport. The introduction of legal status rather than nature of business led to a very small number of reclassifications of individual enterprises. Confidentiality restrictions prevent me from naming these.

  Vehicle Excise Duty
  Mr. Grogan
  To ask the Chancellor of the Exchequer how many vehicles qualified for the exemption from vehicle excise duty for historic and classic cars in each of the last 10 years. [62691]

  Ms Hewitt
  The exemption for vehicles over 25 years of age dates from November 1995.

  Thousand

  Year

  Exempt: Tax class 88 vehicles

  All vehicles

  Cars

  19951

  over 25 years of age

  120.0

  90.8

  19961

  over 25 years of age

  278.4

  173.3

  19971

  built before 1 January 1973

  325.7

  203.4

  19982

  built before 1 January 1973

  337.7

  208.8

  1 At year end

  2 At end of June 1998

  Departmental Staff
  Mr. Robert Jackson
  To ask the Chancellor of the Exchequer how many people in his Department are currently on secondment from private companies; and if he will list them, their companies and their current responsibilities within Government. [62830]

  Ms Hewitt
  At present, 13 staff in the Treasury and the Debt Management Office are on secondment from private companies. Details of the seconding authorities and the secondees' Departmental responsibilities are shown in the table. It is our normal policy not to disclose the names of individual officials.
  303

  Details of private sector firms currently seconding staff to HM Treasury and staffs' responsibilities as at 1 December 1998

  Seconding organization

  Responsibilities

  Arthur Andersen

  Provides policy support where necessary to the leading Department on the Public-Private Partnerships for National Air Traffic Services (NATS) and the London Underground. Maintains Treasury interests on the completion of the Jubilee Line extension and oversees progress on the Belfast Port Public/Private Partnership.

  PricewaterhouseCoopers

  Monitoring and control of expenditure commitments in relation to PFI; assurances of funding and other expenditure issues; value for money/public sector comparators; management and measurement of risk; payment mechanisms; tax and accounting matters; reduction of bid costs; international interest including liaison with international financial institutions.

  Arthur Andersen

  Provides advice and guidance on corporation and capital tax policy issues.

  Arthur Andersen

  Encourages enterprise and economic growth in industry.

  PricewaterhouseCoopers

  Provision of accountancy advice and guidance to the Treasury, including accounting implications of PFI projects.

  Charity Tax Review
  Mr. Waterson
  To ask the Chancellor of the Exchequer when the Government expect to conclude their review of charity taxation; and if he will make a statement. [62907]

  Ms Hewitt
  The Government received over 3,000 replies in the first phase of the Review and are determined to consider carefully all the options before launching the next phase. We intend to publish a Consultation Document as soon as possible.

  EU Budget
  Mr. Gill
  To ask the Chancellor of the Exchequer what(a) amount and (b) proportion of revenues raised by VAT have been earmarked for financing the EU budget. [63099]

  Dawn Primarolo
  The latest estimate for the gross UK VAT contribution to the EU budget is £4,034 million in 1998–99. The amount paid is related to a notional harmonised VAT base, covering the same goods and services in all EU member states, and is not directly proportional to VAT revenues raised in the UK. UK VAT revenues are forecast to be £52.6 billion in 1998–99.

  Informal Economy
  Mr. Cousins
  To ask the Chancellor of the Exchequer what estimate he has made of the size as a proportion of gross domestic product of the informal economy(a) in the United Kingdom, (b) in each region and (c) in each nation; and what assessment he has made of trends in the size of the informal economy. [62906]

  Ms Hewitt
  The information requested falls within the responsibility of the Director of the Office for National Statistics. I have asked him to reply.

  Letter from Tim Holt to Mr. Jim Cousins, dated 10 December 1998:
  As Director of the Office for National Statistics (ONS), I have been asked to reply to your recent parliamentary question on the informal economy.
  Definitions of what is included in the informal economy are not entirely clear, and therefore no official estimates are available for the UK. However, the ONS has done work based on the following three definitions:
  The UN System of National Accounts 1993 (SNA93) defines the informal sector as comprising own-account enterprises (household enterprises owned and operated by own-account workers, which may employ contributing family workers and employees on an
  304
  occasional basis) and enterprises of informal employers (who operate below a certain size or are unregistered). The SNA says that the concept of informal sector activities should be distinguished from the concept of activities of the hidden or underground economy.
  In the context of household satellite accounts, 'movement between the formal and informal economy' is movement between the economy measured by GDP and unpaid household production.
  Illegal economic activities are also sometimes described as 'informal'.
  The activity of informal own-account enterprises, who are registered with the Inland Revenue, are included in National Accounts estimates of mixed income. Adjustments are made in the National Accounts to allow for the incomes of those who are not registered for income tax. However, this evasion adjustment does not claim to measure the total size of the 'hidden economy'. Section 14.20–24 from the 1998 National Accounts Concepts, Sources and Methods describes these adjustments, and I enclose a copy of this. Estimates for the value of household production were published in October 1997, based on Time Use data from 1995—a copy of the article is enclosed. The results of some research into the illegal economy were published in Economic Trends in July 1998—a copy of that article is also enclosed.
  There is no regional or sub-national breakdown for any of these data. Because much of the work is developmental, there are no time series, so it is not possible to assess the rate and direction of any change.

  Euro Preparations Committee
  Mr. Malcolm Bruce
  To ask the Chancellor of the Exchequer if he will list those members of the House who have been nominated to date for membership of the new Euro Preparations Committee; and if he will make a statement. [62281]

  Ms Hewitt
  [holding answer 7 December 1998]: My right hon. Friend the Chancellor of the Exchequer wrote to the Treasury spokesmen of each Parliamentary Party on 10 November inviting nominations for representatives for the new Cross-Party Advisory Group on preparations for the euro.

  To date, the right hon. Member for Haltemprice and Howden (Mr. Davis) and the hon. Members for Twickenham (Dr. Cable) and for North Tayside (Mr. Swinney) have been nominated for membership.

  Given the importance of preparations for the euro, I hope that every Parliamentary Party will wish to be represented on the Group.

  Company Cars
  Mr. Baker
  To ask the Chancellor of the Exchequer if he will make it his policy to reform company car taxation so as to remove the incentive to increase business mileage. [62423]

  Ms Hewitt
  [holding answer 8 December 1998]: The Chancellor announced in the March Budget that he would be considering, in relation to income tax charged on company cars, the case for replacing the existing business mileage discounts with discounts for driving fewer private miles. People were invited (Budget 98 Press Release Inland Revenue 6) to send comments to the Inland Revenue. As stated in the Pre-Budget Report (paragraphs 5.52 to 5.54), in the light of the views expressed, we are continuing to review how the company car tax regime might be altered to send better environmental signals.

  Community Finance Initiatives
  Mr. Jim Cunningham
  To ask the Chancellor of the Exchequer what plans his Department has(a) to encourage the growth of community finance initiatives to promote regeneration in poorer areas and (b) to ask banks to disclose information on their servicing of poorer areas. [62284]

  Ms Hewitt
  [holding answer 9 December 1998]: As part of the Government's Social Exclusion agenda, I have established two Policy Action Teams looking at 1) Business and 2) Access to Financial Services in
  306
  poorer neighbourhoods, which are due to report in July 1999. As part of its remit, the team looking at Business will consider a wide range of methods to improve the availability of finance for small and start-up businesses in deprived areas. The Access to Financial Services team will also consider the service banks provide to customers in poorer areas and consider with the Banks possible measures for improvement.

  Tax Receipts
  Mr. Jack
  To ask the Chancellor of the Exchequer if he will list the taxes in respect of which he receives monthly estimates of receipts from the Inland Revenue. [61762]

  Dawn Primarolo
  Monthly receipts of taxes collected by the Inland Revenue are published in the monthly "Public Sector Finances First Release". Forecasts of receipts are published in the "Financial Statement and Budget Report" and in the "Pre-Budget Report".

  VAT (Tourism)
  Mr. Gordon Marsden
  To ask the Chancellor of the Exchequer what progress HM Customs and Excise has made on its assessment of the recent British Tourist Authority report on the implication of a reduced VAT rate on hotel accommodation and other tourism-related services. [61757]

  Dawn Primarolo
  Customs have just completed their analysis of this detailed report and will shortly report to me with their findings.

Preamble
The House met at three of the clock (Prayers having been read earlier at the Judicial Sitting by The Lord Bishop of Birmingham.): The LORD CHANCELLOR on the Woolsack.
Lord Rollo (Lord Dunning)— Sat first in Parliament after the death of his father.

Young Offenders
Earl Russell Earl Russell asked Her Majesty's Government:
Whether they will take steps to discover what proportion of 16 and 17 year-olds in detention were, at the time of offending, without legal visible means of support.
The Minister of State, Home Office (Lord Williams of Mostyn): My Lords, the circumstances of young offenders are assessed, but these assessments are neither standardised nor co-ordinated. This is symptomatic of much that is wrong with the youth justice system; that is why the Government have embarked upon a far-reaching reform of it. The Youth Justice Board, established by the Crime and Disorder Act, is considering what form of assessment could best establish the circumstances of all young offenders so that the principal aim of the youth justice system, to prevent offending, can be achieved more effectively.
Earl Russell: My Lords, is the Minister familiar with a survey of young offenders in HM Young Offenders Institution Portland, reported in the annual report of the Chief Inspector of Prisons 1996–97, which shows that six out of 10 young offenders had never been employed in any capacity and that 19 per cent. had been disowned by both of their parents before the age of 15? If Sir David Ramsbotham could discover that information, so surely could the Minister. If that is the case, why did he not do so?
Lord Williams of Mostyn: My Lords, the noble Earl entirely misunderstands the point of my answer. I know the figures about Portland; I know the figures about Werrington and other young offender institutions. I am pointing out the lamentable lack of central co-ordination of the figures generally. At present, one can have figures from a particular institution but not across the board. The noble Earl will agree that that is a serious gap that needs to be filled, and filled soon. That is the point of Youth Justice Board activity.
Lord Murray of Epping Forest: My Lords, will my noble friend ensure that not only is the information co-ordinated but that it identifies the causes that take these young people into detention—for example, having been in care, having a record of truancy, being black? Will he also ensure that the policies to be developed are so co-ordinated—or, in the Government's phrase,
1026
"joined up"—as to ensure that fewer young people present themselves for sentencing into these institutions?
Lord Williams of Mostyn: My Lords, my noble friend is absolutely right. We have the Home Office research document Young People and Crime 1995 which identifies key factors related to juvenile criminality—for example, being brought up in a criminal home, living in a family with multiple problems, having poor parenting. having poor discipline in the family and at school, playing truant, having brothers and sisters who offend, and so forth. Obviously we need to use that material in a systematic way which has been lacking to date. I entirely agree with the concluding remarks of the noble Lord.
Lord Dholakia: My Lords, does the Minister agree that on average it costs £75,000 per person to detain offenders in these institutions, and that a little money spent on welfare at this stage is more likely to result in better rewards later on? Will the Minister explain the release mechanism plans for the people who do not qualify under the tagging or the home curfew systems after 28th January?
Lord Williams of Mostyn: My Lords, the group identified by the noble Lord will not qualify because they will not be serving sentences of the type on which the home detention curfew is intended to focus. To use a phrase used earlier, this has got to be "joined up". That is why it is so important that the Home Office co-ordinates with the insistence of Mr. Blunkett that educational standards are properly delivered in our schools. A significant part of the work started on by the Youth Justice Board is to bring together these disparate themes and to produce common solutions across the board. We should welcome its work.
Lord Ewing of Kirkford: My Lords, does my noble friend accept that there are invisible means of support which are perfectly legal? If so, can my noble friend give a definition of "legal visible means of support"?
Lord Williams of Mostyn: My Lords, I do not want to be indelicate in wondering what "invisible means of support" the noble Lord had in mind. The noble Earl was perhaps referring to a topic that he has raised on earlier occasions; namely, that there is a possible gap in the benefit system for people of the age he describes.
Lord Elton: My Lords, if I give the noble Lord the opportunity, will he respond to the intervention of the noble Lord, Lord Dholakia, about the desirability of prevention rather than cure of crime, and the role of the voluntary movement in that? Are the Government seized of, and will they take every opportunity to publicise, the enormous discrepancy between the cost of prevention and the cost of punishment?
Lord Williams of Mostyn: My Lords, the noble Lord will know that he has put his finger on precisely the underlying theme of the Crime and Disorder Act. For

1027
the first time in our legislative history the statutory purpose of the youth justice system is identified as including the prevention of crime by young people. It is a terrible waste of money and, much more profoundly the noble Lord will agree, it is a waste of young human life. We have stood away from it for too long and we are determined to attack these problems.
Lord McNally: My Lords, recently a group of young people in Slough were recognised for their help in counteracting inter-communal violence. Is there not a way of involving young people more in programmes for combating youth crime?
Lord Williams of Mostyn: My Lords, that is another theme in the Crime and Disorder Act. People in local communities—of all ages and all ethnic and social backgrounds—are to join together in producing local plans for local conditions, such as those specifically referred to by the noble Lord. I stress the importance of the voluntary organisations and the voluntary sector, which do so much good in this field.
Lord Cope of Berkeley: My Lords, is not the best means of support in most cases the young person's parents? Do I take it from the Minister's earlier answers that the new co-ordination of information will also show the proportion of these young people who before or at the time of their offence were in full-time education? That is obviously an important element in why they came to offend in the first place.
Lord Williams of Mostyn: My Lords, I welcome the noble Lord, Lord Cope of Berkeley, to his first appearance at the Dispatch Box in this best of all portfolios, recognising my regret that the noble Lord, Lord Henley, has departed for possibly an even hotter seat than trying to deal with home affairs Questions. The noble Lord is quite right. The Werrington study, to which I alluded earlier, shows that no fewer than 64 per cent. of the inmates came from unsettled home backgrounds. The noble Lord is absolutely right. I have always thought that we do not do enough about teaching parenting in the school curriculum. A very large number of those in detention had a poor educational background; 33 per cent. had been excluded from school and only 37 per cent. had been regular school attenders.

Nursing Auxiliaries and Health Care Assistants
3.10 p.m.
Lord Clement-Jones Lord Clement-Jones asked Her Majesty's Government:
Whether they are considering the regulation, qualification and recruitment of nursing auxiliaries and health care assistants.
Lord Hunt of Kings Heath: My Lords, concerns have been raised in the past about the need for regulation of support workers, which include, among
1028
others, nursing auxiliaries and health care assistants. Some concerns were raised during the consultation process for the review of the Nurses, Midwives and Health Visitors Act, completed earlier in the year. The Government are currently considering the report's recommendations.
Lord Clement-Jones: My Lords, I thank the Minister for that reply. Does it mean that the Government really do believe that there are standards of recruitment which are not currently being met in hospital trusts? When the Bill to modernise the NHS comes before the House, will they take the opportunity to introduce regulation of nursing assistants and health care assistants?
Lord Hunt of Kings Heath: My Lords, on the question of legislation, I am afraid that the noble Lord will have to await the outcome of Ministers' current consideration. On the wider issue, we recognise some of the concerns that have been expressed about the non-regulation of such health care assistants. I point out to the noble Lord that health care assistants carry out assigned tasks supervised by registered professionals and for the most part we owe a great debt of gratitude to the thousands of health care assistants working in the health service.
Baroness Gardner of Parkes: My Lords, is it not a fact that many health care assistants are doing exactly the same job as nurses have done in the past? Since everyone has moved up to higher levels of training and junior hospital doctors' hours have been reduced, state-registered nurses have replaced them and "diplomates" or graduate nurses are being replaced by health care assistants. Is it not time that we looked at renaming health care assistants and giving them the status that they deserve? Many people wish to enter nursing but cannot get the A-levels required to take up the Project 2000 training.
Lord Hunt of Kings Heath: My Lords, as I said earlier, Ministers are considering the question of the regulation of health care assistants. However, I do not think that there is evidence to support the point that they are filling the gap left by registered nurses. The ratio of qualified nurses employed in the health service compared with unqualified support staff is the same now as it was 10 years ago.
Baroness Masham of Ilton: My Lords, does the Minister agree that it was a retrograde step to do away with the state-enrolled nurse? He or she had to be qualified for two years and was a practical nurse.
Lord Hunt of Kings Heath: No, my Lords, I do not agree with the noble Baroness. The changes that we made to nursing training through Project 2000 have been very advantageous. Nurses are taking on more and more responsibilities. They must have the right training for that. However, I accept that enrolled nurses still have an important role. We have around 100,000 on the register.

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The Chief Nursing Officer at the Department of Health has encouraged, and continues to encourage, the health service to employ enrolled nurses.
Viscount Bridgeman: My Lords, does the Minister accept the need for the early implementation of a central register for carers which embraces all carers? That will make checking for criminal records much more straightforward and so give further protection to a vulnerable section of the population, the aged, so many of whom live alone.
Lord Hunt of Kings Heath: My Lords, I welcome the noble Viscount to the Dispatch Box for his first appearance. I think I would prefer to write to him on that question. As regards health care assistants, as I have said, Ministers are currently considering the legislative question.
Baroness Castle of Blackburn: Is the Minister aware that auxiliary nurses, who in many cases play a vital role in the running of a ward, receive no training whatever before they appear on the ward?
Lord Hunt of Kings Heath: My Lords, no specified training has been laid down centrally for health care assistants. However, I can tell my noble friend that the Department of Health is encouraging NHS employers to train health care assistants and encouraging them to use NVQs as a training programme.
Lord Meston: My Lords, does the Minister agree that the risks are perhaps greatest in those homes, particularly private homes, where only one qualified nurse is required to be on duty at any time and which otherwise depend on auxiliary staff? Does he further agree that, at the very least, the proprietors of such establishments should be encouraged to require and to take up employment references?
Lord Hunt of Kings Heath: Yes, my Lords, we wish to encourage the proprietors and managers of nursing homes to do just that. Those proprietors have a duty of care to ensure that all employees are suitably qualified and competent.
Lord Rea: My Lords, can my noble friend say what practical steps the Government are taking to encourage back into the National Health Service those many nurses of all grades—nurses and nursing assistants—who have left to look after their families or to take up another occupation?
Lord Hunt of Kings Heath: My Lords, the Government inherited a very difficult situation in relation to nurse shortages, poor morale, the effect of the internal market and the ravages of macho management. The Government are dealing with the problem. We are injecting resources and we are abolishing the internal market. We are developing a new HR strategy, we are encouraging more students, we are encouraging returnees and we are developing better
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working conditions. For nurses and for people coming into nursing, the future is very bright in the health service.

Grammar Schools: Ballots
3.17 p.m.
Baroness Blatch Baroness Blatch asked Her Majesty's Government:
Whether they consider that regular balloting on grammar schools will have unsettling effects on the staff and the pupils, especially those taking public examinations.
The Minister of State, Department for Education and Employment (Baroness Blackstone): My Lords, there will not be regular balloting on grammar schools' admission arrangements. If the result is in favour of change, there will be no further ballot. A ballot will only be held at the request of 20 per cent. of parents at relevant schools. If a ballot supports the existing admission arrangements, no further ballot can be held for at least five years. If there is a ballot in favour of change, there will be at least 20 months for staff preparation before the first non-selective year group arrives. We expect existing pupils, including those taking public examinations, to continue to be educated in grammar school classes while they remain at the school.
Baroness Blatch: My Lords, the noble Baroness is astonishingly sanguine about what is nothing less than guerilla warfare and a war of attrition on these schools. It is not true to say that there will not be a revisiting of the petitions in the ballot. The petitioning system is revisited after four years, not five years—it is the ballot after five years—and will continue to be so. Does the noble Baroness agree that the resources, the time and the energy which are already having to be expended because of the activities of some of the noble Baroness's colleagues, such as the noble Lord, Lord Hattersley, is disruptive to the parents, to the staff and to the children?
Baroness Blackstone: My Lords, I am sure that my noble friend Lord Hattersley will speak for himself. I do not know whether he is in his place this afternoon. I do not agree with the noble Baroness. She seems to have forgotten that this was a manifesto commitment. The Labour Party made it clear in its election manifesto that there would be a system of asking parents whether they wished the admission arrangements in grammar schools to change. Clearly, the electorate think rather differently from the noble Baroness opposite.
Lord Pilkington of Oxenford: My Lords, may I ask the noble Baroness, in her academic mode as a person who ran institutions, whether she would have been happy if those institutions were subject to structural change every five years, subject to the electorate, particularly in view of the fact that grammar schools provide between 20 to 30 per cent. of the pupils from the state sector who go on to the more prestigious

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universities? As an academic, is the noble Baroness happy about that? May I remind her of "education, education, education"?
Baroness Blackstone: My Lords, I am happy to switch to my academic mode, although I am not here to answer questions as an academic but as a Member of the Government. However, I can say from my experience as an academic, that the institution that I ran constantly suffered from the ravages—I can put it no differently—of the previous government's higher education expenditure cuts. The proposed changes are a matter for parents. They will decide whether they think it is right to petition and then to go for a petition again later, if a ballot is lost, after five years.
Baroness Lockwood: My Lords, can my noble friend tell me when balloting of schools first started and the difference between balloting for grammar schools and balloting for other state schools, which I believe happened quite frequently under the previous administration?
Baroness Blackstone: My Lords, I entirely agree with my noble friend. Noble Lords on the other side of the House have a tendency to accept ballots where they think that holding a ballot is desirable, but where they are obsessed with a particular issue—for example, a very small number of, say, 130 schools—they take a totally different position.
Lord Tope: My Lords, can the Minister confirm that the ballot information code, which comprises Schedule 4 of the regulations, applies not only to LEAs and governing bodies but to all groups and individuals wishing to influence the result of a ballot? The information code states, among other things, that written materials,
"should be objective and explanatory, seeking to clarify the issues without omitting important facts or arguments, and without selecting facts or arguments in such a way as to distort or mislead"
It adds that:
"oral information should be accurate and should not mislead the audience".
What effect does the Minister think that such a code might have if it were applied to the next general election campaign?
Baroness Blackstone: My Lords, I do not believe that such a code would be appropriate in a general election campaign.
Lord Carlisle of Bucklow: My Lords, can the noble Baroness explain to the House, either as an academic or a Member of the Government, how she equates the pursuit of excellence in education with the abolition of the assisted places scheme and the continual attack on grammar schools?
Baroness Blackstone: Yes, my Lords. The assisted places scheme involved the expenditure of large amounts of public money on very small numbers of
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pupils who were taken out of the public sector on the assumption that private schools were automatically better than schools in the public sector. I do not for a moment accept that. Moreover, the money that has been saved from the abolition of that scheme will be used to reduce class sizes in our primary schools. I believe that is something that most parents greatly welcome. This is a Government committed to education for everybody, not just the privileged minority.
Lord Davis of Oldham: My Lords, perhaps I may declare an interest as chairman of the Further Education Funding Council, although that is not directly relevant to this Question. During the very large number of transformations of the status of grammar schools in the 1980s under the administration of the noble Baroness, Lady Thatcher, was there any evidence at all that examination results suffered?
Baroness Blackstone: My Lords, I am most grateful to my noble friend for reminding us of the fact that more grammar schools were changed to comprehensive schools when the noble Baroness, Lady Thatcher, was Secretary of State for Education than under any other education Minister since the war. I can also confirm that that had no impact on examination results. Indeed, throughout the 1980s and into the 1990s, examination results in secondary schools improved.
Baroness Platt of Writtle: My Lords, the noble Baroness refers to educational standards and I agree with her on that point. However, does she agree that teachers in grammar schools base their experience on very bright children who are doing very well, and that because of the current insecurity such teachers will take that expertise out of the public sector and into the private sector, which will not be to the advantage of public sector standards?
Baroness Blackstone: My Lords, I do not believe that that is the case. I do not believe that the professionalism of our grammar school teachers is such that they will feel insecure as a result of a change of this kind. I believe that many of them will see this as an important new challenge. My own daughter went to a school that had been a grammar school and became a comprehensive. None of the teachers left. They were all able to make the adjustment extremely well and found it most challenging.

Duty-free Sales
3.25 p.m.
Lord Skelmersdale Lord Skelmersdale asked Her Majesty's Government:
Whether, in view of Commissioner Monti's opposition to their decision to seek a reversal of the agreement to abolish duty-free sales, they will continue to co-operate with Commission attempts to reduce "unfair" tax competition in the European Union.
Lord McIntosh of Haringey: My Lords, decisions on unfair tax competition are a matter for member states,

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not Commissioner Monti. The work on tackling unfair tax practices in the EU is being taken forward under the code of conduct on business taxation. The code was agreed by member states, not the Commission. It is a political commitment, not a legally binding one. The UK supports, and will continue to support, the code and the need to tackle harmful tax practices.
Lord Skelmersdale: My Lords, how schizophrenic can this Government get? On the one hand, they sign up to the new European way and tax harmonisation; on the other, they try to destabilise a long-standing EU policy on the abolition of duty-free sales. Which of those is an example of what the Prime Minister calls "being a leading player in Europe"?
Lord McIntosh of Haringey: My Lords, the Government are consistent on both matters. As the noble Lord well knows, the Prime Minister and Chancellor Schröder yesterday signed a statement of common position in which they confirmed that they regard unfair tax competition as damaging, but that they do not favour a unified system of corporate taxation. As for duty-free sales, a number of noble Lords on the Opposition Benches have been arguing for its continuation for a considerable time. The opportunity to raise the matter will arise in Vienna tomorrow and the day after and it is up to any head of state, including our Prime Minister, to raise it one last time.
Lord Grenfell: My Lords, with reference to the Anglo-German joint statement to which my noble friend has just referred, is he not encouraged by the fact that that statement says, and I paraphrase, that exceptions to initiatives designed to combat unfair tax competition should be granted where a member state can demonstrate that the competitiveness of Europe is in jeopardy? Does he not agree that that could protect our Eurobond market from the proposed withholding tax and render totally unnecessary any use of the British veto against such a tax measure?
Lord McIntosh of Haringey: My Lords, my noble friend's paraphrase is very close to the original, which I have with me. Yes, I can confirm that that is indeed what the common position means. I confirm that we will not sign up to any change which would damage the Eurobond market.
Lord Higgins: My Lords, is it not clear from the Prime Minister's exchange at Question Time yesterday that the Government are weakening as regards tax harmonisation? Is it not also clear from the letter signed with the German Chancellor that that is so? Can the Minister give us an assurance that in the discussions he mentioned a moment ago, the Government will be absolutely categoric in saying that they are opposed to the withholding tax, which would damage the City, and that they will oppose further harmonisation on savings taxes generally?
Lord McIntosh of Haringey: My Lords, I am sorry to say that the noble Lord has followed the interpretation of the distinguished political editor of the Financial Times, which is wrong. We have always said that as a last resort we would veto any unsatisfactory agreement. We now think, as a result of the common position taken up by the British and German Governments, that it will not be necessary; in other words, avoiding damage to British financial institutions, combined with the benefit of action against unfair tax practice, is now possible.
Lord Razzall: My Lords, does the Minister agree that, far from the conclusions we are asked to draw from the remarks of the Conservative Opposition, the remarks of Commissioner Monti refute recent scare-mongering on tax harmonisation? Does he not agree also that tax phobia can now be added to Europhobia as a political and economic illness to be avoided in your Lordships' House?
Lord McIntosh of Haringey: My Lords, in setting out the respective responsibilities of member states and the Commission, I did not intend in any way to criticise Commissioner Monti, who was perfectly entitled to say what he did.
Lord Elton: My Lords, to save the noble Lord great embarrassment when he reads Hansard's account of his reply to the first supplementary question, will he confirm that it was an entirely accidental and not a Freudian slip which led him to refer to the Prime Minister as head of state rather than head of government?
Lord McIntosh of Haringey: My Lords, the noble Lord is strictly correct. I apologise for any unintended mis-statement.
Lord Marlesford: My Lords, does the Minister agree that it is a great deal better to allow market forces to put pressure on governments to harmonise taxes, because that would harmonise them downwards, rather than to allow the Brussels Commission to harmonise them, which would almost certainly harmonise them upwards?
Lord McIntosh of Haringey: My Lords, we do not know the result of the deliberations of the group on the code for business taxation. We do not know what the result will be or in which direction harmonisation will occur. Clearly it has been a proper and a valuable initiative. I think the noble Lord should wait to see what comes out of it.

Business
3.31 p.m.
Lord Carter: My Lords, at a convenient moment after 3.30 p.m. my noble friend Lady Hayman will, with the leave of the House, repeat a Statement that is to be made in another place on tobacco.

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I recently announced that, subject to progress of business, the House would be asked to return from the Christmas Recess on Thursday 7th January. I have to tell your Lordships that there has been a change to these arrangements. Following further negotiations with the usual channels, it will now not be necessary for the House to be asked to return until Monday 11th January. As previously announced, the House will sit on Thursday 17th December at 11 o'clock and rise at the end of that day's Sitting.

Freedom of Information Bill [H.L.]
Lord Lucas: My Lords, I beg to introduce a Bill to extend the right of access to information held by public authorities; and for connected purposes. I beg to move that the Bill be now read a first time.
Moved, That the Bill be now read a first time.—(Lord Lucas.)
On Question, Bill read a first time, and to be printed.

House of Lords Offices: Select Committee
The Chairman of Committees (Lord Boston of Faversham): My Lords, I beg to move the first Motion standing in my name on the Order Paper.
Moved, That the Select Committee on the House of Lords Offices be appointed and that, as proposed by the Committee of Selection, the following Lords together with the Chairman of Committees be named of the Committee:

L. Brabazon of Tara,

L. Brougham and Vaux,

E. Caithness,

L. Carter,

L. Colwyn,

B. Darcy de Knayth,

L. Dean of Beswick,

L. Dholakia,

L. Dixon,

L. Harris of Greenwich,

L. Henley,

B. Hilton of Eggardon,

L. Hunt of Wirral,

L. Irvine of Lairg (Lord Chancellor),

B. Jay of Paddington,

L. Mackay of Ardbrecknish,

L. Marsh,

B. Nicol,

Bp. Oxford,

L. Renfrew of Kaimsthorn,

L. Rodgers of Quarry Bank,

B. Seccombe,

B. Serota,

L. Strathclyde,

B. Thomas of Walliswood,

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L. Tordoff,

V. Ullswater,

L. Weatherill,

L. Williams of Mostyn.—(The Chairman of Committees.)

On Question, Motion agreed to.

Procedure of the House: Select Committee
The Chairman of Committees: My Lords, I beg to move the second Motion standing in my name on the Order Paper.
Moved, That the Select Committee on Procedure of the House be appointed and that, as proposed by the Committee of Selection, the following Lords together with the Chairman of Committees be named of the Committee:

B. Anelay of St. Johns,

L. Browne-Wilkinson,

L. Burlison,

L. Burnham,

E. Caithness,

L. Carter,

L. Denham,

E. Ferrers,

L. Gladwin of Clee,

B. Gould of Potternewton,

B. Hamwee,

L. Harris of Greenwich,

L. Henley,

L. Irvine of Lairg (Lord Chancellor),

B. Jay of Paddington,

L. Mackay of Ardbrecknish,

L. Mackay of Clashfern,

B. Rendell of Babergh,

L. Rodgers of Quarry Bank,

E. Shannon,

L. Skelmersdale,

L. Strabolgi,

L. Strathclyde,

L. Tordoff,

L. Weatherill,

L. Williams of Mostyn,

B. Young.—(The Chairman of Committees.)

On Question, Motion agreed to.

Social Security Contributions (Transfer of Functions, etc.) Bill [H.L.]
3.33 p.m.
The Parliamentary Under-Secretary of State, Department of Social Security (Baroness Hollis of Heigham): My Lords, I beg to move that the Bill be now read a second time.
I am sure that noble Lords listened with great interest to the Chancellor's Budget Statement in another place on 17th March this year. Some of the measures to reform welfare announced in that Statement led to the changes to the structure of national insurance

1037
contributions that noble Lords debated in the Social Security Act earlier this year. Amidst these more eye-catching measures noble Lords may recall that the Chancellor announced that the Contributions Agency is to transfer from the Department of Social Security to the Inland Revenue in April 1999. That transfer is provided for by the Bill before us today. Noble Lords may recall that we debated in the Social Security Act powers authorising expenditure in preparation for the transfer.
First, I would like to remind noble Lords of the context in which we are working. We have set out the key principle underlying our welfare reforms—work for those who can, security for those who cannot. With the New Deal we are making the biggest ever investment by government in jobs and training. This is changing lives and providing opportunities—by next April 300,000 people will have benefited.
We are introducing the working families' tax credit and the disabled person's tax credit so that every family working full-time will be guaranteed an income of at least £190 a week, and up to 1.5 million hard-working families will be better off as a result.
We are also reforming the structure of national insurance contributions to make work pay. We are removing the NICs "entry fee" and raising the threshold at which employers begin to pay NICs to the level of the single person's tax allowance. These changes will increase the incentives for the low paid to work and for employers to offer them jobs, without adversely affecting their entitlement to contributory benefits.
Many noble Lords will think of the Department of Social Security in terms of paying benefit to groups such as the unemployed, disabled people and pensioners. But the Contributions Agency and the system of national insurance contributions have been an important part of the department's existing work. The focus of this work is very different—principally towards employers, employees and the self-employed. These are much the same groups as the Inland Revenue deals with. Indeed, the Inland Revenue already collects 94 per cent. of NICs alongside PAYE tax.
In our Green Paper on welfare reform we stressed the importance of a modern system of delivering government which is flexible, efficient and easy for people to use. Too often government is designed in ways which best fit our bureaucratic structures, not which best meet the needs of the people who deal with us.
There have already been moves to bring the Inland Revenue and the Contributions Agency closer together. Noble Lords may recall the joint working programme between the two departments that was launched in 1995. This programme has led to a number of benefits such as the joint annual pack for employers and a single leaflet and registration form for the newly self-employed.
But joint working can take us only so far. Employers and individuals still need to deal with two separate departments. There is no single focus for employers to discuss improvements in process across tax and NICs. To bring out the real benefits for business and individuals we need to bring the two organisations together. Bringing the Contributions Agency and the Inland Revenue together is a good example of the way
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this Government are redesigning their services to deliver policies more effectively and to deliver a better service to taxpayers and contributors. That is what this Bill does.
Bringing the Contributions Agency and the Inland Revenue together will have many advantages. It will reduce the burdens on businesses and individuals as they can sort out taxes and contributions through a single organisation. It will help the two departments share experience, knowledge and skills, so making better use of resources, helping fairness in taxation and national insurance contributions and combating avoidance. It will enable the two departments to combine their efforts on customer service. It will give business and other representative bodies one focus for discussion of improved legislation, procedures and guidance, and so, over time, make it easier to achieve a gradual alignment of the tax and national insurance contributions rules.
The major benefits to business will come from aligning over time the tax and NICs rules. But some earlier benefits arise from bringing together delivery of the two systems in one organisation. Information on NICs will be available in Inland Revenue tax inquiry centres—to be renamed Inland Revenue inquiry centres. Tax and NICs leaflets will progressively be brought together from next April. And the process for making a complaint against theh Inland Revenue or Contributions Agency will be unified from next April.
It is estimated that there could be a loss of around 200 jobs countrywide in the combined organisation as a direct result of the transfer. Newcastle will remain an important site for government employment. The recently announced project to redevelop the Longbenton estate will go ahead as planned and the Inland Revenue sees Longbenton as one of its strategic sites for the future in the new combined organisation.
The transfer has been welcomed by representative bodies. In its October 1998 Budget submission the Institute of Directors welcomed,
"the transfer of the Contributions Agency to the Revenue and the planned transfer of national insurance policy to the Revenue".
And the British Chambers of Commerce said that,
"the merging of the Contributions Agency and the Inland Revenue has our full support and we look forward to working with the merged organisation over the forthcoming year to investigate the possibilities for aligning the PAYE and NICs systems".
I am sure that some noble Lords will be looking to this Bill for signals as to the future direction of tax and benefits policy. Let me therefore make clear at the outset what the Bill does not do. It makes no changes to the structure of NICs. It does not affect the tax or NICs yield, nor benefit expenditure. It has no effect on individuals' entitlement to contributory benefits. And it makes no changes in pensions policy.
Instead, the Bill provides for a technical transfer of functions—of the Contributions Agency to the Inland Revenue and of policy responsibility for collecting national insurance contributions to the Inland Revenue and Treasury. Over time these transfers will reduce the burdens on business and take a first step towards removing the technical differences between tax and NICs rules that employers fear will trip them up.

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However, this Bill does not itself provide for any major legislative tax/NICs alignment (subject to one point which I shall come to shortly). We can best work on that with representative bodies once the organisations are brought together. Our priority in the short term is to bring the organisations together to deliver a better service to employers, employees and the self-employed.
The Bill paves the way for long-term improvements. Perhaps I ought first to explain why a Bill is necessary to transfer the Contributions Agency to the Inland Revenue. As I am sure noble Lords are aware, most machinery of government moves between government Ministers are implemented by an Order in Council under the Ministers of the Crown Act 1975. That option was not available in this case. The Inland Revenue is a statutory board, not a department headed directly by a Minister. That means that it is not covered by the Ministers of the Crown Act 1975. So we need a Bill to transfer the operational functions of the Contributions Agency to the Inland Revenue.
We could then have transferred NICs policy functions to the Treasury under an Order in Council. But that would have left a Bill solely concerned with the operational functions. We concluded that that would be unsatisfactory since no single piece of legislation presented to Parliament would make our intentions clear. So the Bill contains the explicit provisions for the policy transfer as well. We need a Bill also because we are proposing some changes as well as the transfer of functions. I shall return to those.
It may help noble Lords if I start with an overview of the Bill before going on to describe what the Bill does. Part I of the Bill provides for the transfer of both operational and policy functions. It also deals with the use of those operational functions by the Inland Revenue. Part II of the Bill deals with the new arrangements for decisions and appeals, which I shall discuss shortly. Part III deals with the supplemental issues around the transfer.
Turning to Part I dealing with the transfer of functions, the first task of the Bill—in Clause 1 and Schedules 1 and 2—is to provide from an appointed day for the transfer of the operational functions of the Contributions agency to the Inland Revenue. The Chancellor has announced that that will be in April 1999. The Contributions Agency is an executive agency of the Department of Social Security and is responsible for the collection and recording of national insurance contributions which are paid into the National Insurance Fund. In addition, the Contributions Agency carries out a number of functions which are related to the collection of national insurance. These include employers' recoveries of statutory maternity pay and statutory sick pay and the administration of contracting-out of the state earnings related pensions scheme. These operational functions are all to be transferred to the Inland Revenue.
The second task of the Bill—in Clause 2 and Schedule 3—is to provide for the transfer of policy responsibility for national insurance contributions and the management of the National Insurance Fund to Treasury Ministers and the Inland Revenue from an
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appointed day. Policy responsibility for other areas administered by the Contributions Agency—statutory sick pay, statutory maternity pay and contracting-out—will remain with social security Ministers.
The next task is to ensure that the Inland Revenue has the necessary powers to collect and run national insurance contributions. Clause 3 therefore brings national insurance contributions within the care and management of the Board of Inland Revenue. I ought to sound a note of warning here. I know that many representative bodies are hoping that bringing national insurance contributions within this concept of care and management will give employers the opportunity to make simplifications in their record-keeping. However, payment of national insurance contributions builds entitlement to certain social security benefits. So, in exercising its duty of care and management over national insurance contributions, the Inland Revenue will bear in mind its duty to the contributor. So the Inland Revenue will expect employers to keep accurate records of individuals' contributions in the same way as the Contributions Agency does now.
Clause 4 and Schedule 4 deal with the powers of inspectors. There is scope for confusion between "tax inspectors" and "Contributions Agency inspectors", appointed under different law and with different roles. Today we are focusing on the latter category.
I know there has been concern among some representative bodies and employers that this Bill will provide for a levelling up of enforcement powers. Here I can reassure noble Lords. The powers of enforcement in the Bill simply provide officers dealing with National Insurance with the same powers as they have now. The one change that I expect noble Lords to welcome is that the offence of delaying or obstructing an officer for contribution purposes will cease to be a criminal offence and will instead attract a civil penalty. This will align with existing tax sanctions.
Clauses 5 and 6 deal with the use of information by the two departments to enable them to continue their business. Clearly the Department of Social Security will still need contributions information in order to pay benefits and to fight benefit fraud. So existing information flows will broadly be maintained.
Noble Lords will rightly want to be reassured that the transfer will maintain and build on work to improve the security of the national insurance system. It may be helpful if I take a few moments to explain what the situation will be after April 1999. The Department of Social Security will retain policy responsibility for the allocation and security of national insurance numbers, including checking identity. In practice this will mean that the Inland Revenue will be responsible for allocating and registering NI numbers and the DSS will specify the standards of security to be maintained. These specifications will ensure that at least the current best practices to verify identity are followed. A new service level agreement on national insurance number security between the DSS and Inland Revenue will be in place prior to the transfer to ensure that the necessary levels of security are met.

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The current procedures aimed at preventing fraud will be followed by the Inland Revenue. Applications for NI numbers will continue to be rigorously checked and activities to validate numbers already in the system will continue to be undertaken. Our Green Paper on fraud, Beating fraud is everyone's business, envisaged more data-matching in future to tackle benefit fraud. This Bill does not provide for that. Those are proposals that we shall bring forward in due course.
I turn now to Part II of the Bill, dealing with new decisions and appeals processes. I mentioned earlier that we were making one significant step towards tax/NICs alignment in the Bill. Noble Lords will recall that in the debates on the Social Security Act 1998 we considered new arrangements for making decisions and handling appeals on national insurance contributions. The Government gave an undertaking to review and revise this in the light of the transfer of the Contributions Agency to the Inland Revenue—I believe under legitimate pressure from the noble Lord, Lord Goodhart.
The first change we are making is a straightforward one reflecting the transfer. Contributions Agency staff will become officers of the Board of Inland Revenue from April 1999 and so the Bill provides for Inland Revenue staff to be responsible for making decisions on national insurance contributions, statutory sick pay and statutory maternity pay. Some decisions currently made by the Contributions Agency—on national insurance credits and home responsibilities protection—will continue to be made by the Secretary of State for Social Security, but the Inland Revenue will undertake the operational functions on behalf of the Secretary of State.
The second change relates to the appeals process. Noble Lords will be pleased to hear that, following the undertaking we gave to the House and to the noble Lord, Lord Goodhart, on the Social Security Act 1998, we have considered the appeals process further and have decided that, in the light of the transfer, it would be more appropriate for appeals on national insurance contributions, statutory sick pay and statutory maternity pay to be heard by the tax appeal commissioners. In many cases the same issue will arise in both a tax and NICs case—for example, a question over whether someone is employed or self-employed.
As for income tax, we envisage that the more, straightforward cases may best be heard by the local general commissioners, with the most important and technically demanding cases being heard by the special commissioners in the first instance. The Bill reproduces tax provisions for elections for appeals to be transferred to the special commissioners.
Most appeals about decisions on entitlement to statutory sick pay and statutory maternity pay raise questions about a person's employment status and their average weekly earnings. There are relatively few such appeals and we believe that the tax appeal commissioners are in the best position to decide those issues. In the very small number of cases where medical issues are raised, the commissioners will be able to hear medical advice.
Bringing the appeals process together will have distinct advantages for contributors and taxpayers, as well as for employers, since they will only need to deal
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with one appeals system. I am sure that this change will be welcomed by tax practitioners, such as the Tax Law Review Committee. I hope that the noble Lord, Lord Goodhart, will be able to welcome this change in principle, although I am sure he will want to look at the detail carefully in Committee.
So Part II contains the necessary detailed changes to bring appeals about national insurance contributions, statutory sick pay and statutory maternity pay within the jurisdiction of the tax appeal commissioners. Appeals against decisions on national insurance credits, home responsibilities protection, contracting-out issues and social security benefits will be to the social security unified appeals tribunals, once the provisions of the Social Security Act 1998 are in place.
I now turn to the miscellaneous and supplemental provisions in Part III, on which I do not need to spend much time. Part III deals with the supporting arrangements for the transfer, such as providing for the transfer of property and liabilities and for the continuity of contracts. But there are three points I should mention.
Clause 19 is a technical accounting provision which puts right a defect in the Pension Schemes Act 1993 as amended by the Pensions Act 1995. It has always been intended that rebates to money purchase pension schemes contracted-out of the state earnings related pension scheme should be paid from the National Insurance Fund. Unfortunately an oversight in the Pensions Act 1995 means that these can only be paid from money provided by Parliament, not from the National Insurance Fund. This is a slip that I and others in your Lordships' House should have picked up at the time. Clause 19 corrects this.
As noble Lords will have seen, we have had to make some judgments about the most appropriate home for some functions around the margins of the Contributions Agency's business. It is quite possible that in the light of operational experience, or your Lordships' warnings in due course, we may need to make some adjustments. Clause 22 provides the flexibility to make these adjustments at the margins by Order in Council, as is normal for machinery of government changes, rather than returning to the House with a Bill.
Clause 23 deals with arrangements in Northern Ireland. Noble Lords will know that Northern Ireland has its own social security scheme and its own National Insurance Fund, which runs in parallel with, and maintains parity with, the Great Britain scheme. National insurance contributions operations in Northern Ireland are managed by the Contributions Unit, part of the Northern Ireland Social Security Agency, although, as in Great Britain, the bulk of NICs are collected by the Inland Revenue alongside tax.
Maintaining the contributions records of Northern Ireland contributors and much of the "back office" work is already done by the Contributions Agency in Great Britain on behalf of the Northern Ireland Social Security Agency. Clearly it would make no sense to leave Northern Ireland out of the new arrangements for NICs envisaged by the Bill, so we intend that the Contributions Unit should transfer to the Inland Revenue at the same time as the Contributions Agency.

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Paragraph 10 of Schedule 2 to the Northern Ireland Act 1998 excepts NICs and related matters from the legislative and executive authority of the new Northern Ireland Assembly. Under the powers in Section 86 of that Act, policy and operational matters in respect of the matters excepted by Paragraph 10 of Schedule 2 are planned to be transferred, by Order in Council, to the Secretary of State for Social Security on the appointed day for the Assembly to take up its powers. Clause 23 of the Bill allows for these functions to be transferred on from the Secretary of State to the Inland Revenue and the Treasury at the same time as the corresponding functions for Great Britain. It does so by an Order in Council. It would have been possible to provide for this second transfer on the face of the Bill. However, since essentially we are talking about replicating line by line the provisions of this Bill but in terms of Northern Ireland legislation, this would have added half as much again to the length of the Bill, and perhaps much to the length of our discussions, while adding little to the clarity of our intentions.
In conclusion, transferring the Contributions Agency to the Inland Revenue is good news for employers. The Bill allows that to take place. But I hope I have explained that the Bill and the transfer from April are only the start of the process. This Bill is not the vehicle for major alignment of tax and national insurance contributions. We want to work through that in consultation with representative bodies. Instead, this Bill is about a safe landing of the Contributions Agency within the Inland Revenue and about making sure that the Contributions Agency can operate within the Inland Revenue from next April. That will provide a platform on which we can build service improvements and gradual alignment of tax and NICs over the forthcoming years. The Bill paves the way for a better delivery of the tax and national insurance systems. I commend the Bill to the House.
Moved, That the Bill be now read a second time.—(Baroness Hollis of Heigham.)
3.56 p.m.
Lord Higgins: My Lords, the House will be grateful to the Minister for the explanation she has given of what is clearly a very complicated Bill. Since it is our intention on these Benches to approach the opposition to the Bill in a constructive context, perhaps I may begin by congratulating the Government on the publication of a volume of explanatory notes, itself bigger than the Bill, which will be of help to the House in carrying out that task. That is a relatively new innovation which is to be welcomed. I make only one point on it. The notes on the financial provisions of the Bill appear in the explanatory notes. They are usually printed in the Bill itself, although not formally part of it, and I hope that that practice will continue. It is perhaps a little inconvenient to have them separated from the Bill.
Since some of the measures in the Bill affect ordinary company pensions—though the Minister spent little time on that matter—I should declare an interest in that I am the chairman of a company pension scheme.
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The Minister stressed that the Bill is helpful in terms of combating fraud. That is certainly a matter in which she will have our support. At the same time, I am a little suspicious of any Bill which is described as "technical". One can often find in the details a number of things which may be sinister rather than technical. In that context, I am a little puzzled about the motivation of the Bill. The costs involved are not inconsiderable—£16 million one year, £17 million the next, £4.8 million the next, and so on—and savings are slow to come through. In terms of government efficiency, that does not seem a very good deal. As the Minister pointed out, though with a rather interesting Freudian slip, 200 jobs will be lost. I suppose that one might look at it more from the point of view of the Treasury and the Inland Revenue and say that 200 jobs will be saved.
Baroness Hollis of Heigham: My Lords, it was not a slip. Those jobs will be lost to the people holding them. It will, of course, be a saving to the Exchequer.
Lord Higgins: My Lords, absolutely; I agree on both points. Nonetheless, in terms of efficient allocation of the nation's resources, one might perhaps have described it as a saving since presumably the motivation of the Bill is that the Government should become more efficient, and in that context it is important that one should operate with as great a degree of efficiency and economic savings as is possible. Indeed, it is true that quite a few of the proposals in the Bill merely reflect the existing situation. As the Explanatory Notes point out, 94 per cent. of the revenue to which we refer is already collected through the system which involves the Inland Revenue.
I have looked up the position of the previous government. In June 1995 the Chancellor of the Exchequer was asked a question on integrating the national insurance and Inland Revenue systems. Sir George Young replied:
"The relationship between the Contributions Agency and the Inland Revenue was examined last year. It was concluded that the overlap between the Revenue and the agency did not warrant an amalgamation of the two businesses. In addition, any efficiency gains would be outweighed by transitional costs and disruption to both departments".
We all enjoyed the "Yes, Minister" series. The previous government's Ministers turned the proposals down. But the moment the present Government came to power the same proposals were submitted to them. In terms of efficiency, it is uncertain whether the Bill is as justified as the Minister seeks to argue.
However, the Minister was at pains to say that this is a mechanical measure not related to other policy changes. That is difficult to accept. The whole thrust of the Government's social security policy over the past year or 18 months has been to undermine the contributory principle in a number of respects. That in turn undermines universal benefits. The effect of moving the Contributions Agency from the DSS to the Inland Revenue is to make the contributions more and more like a tax. In moving the purely administrative arrangements from one department to another, the Bill is clearly in line with the Government saying, "We shall now merge the Contributions Agency and the Inland

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Revenue". It will become more and more a tax, and therefore easier to argue that a contribution to a specific national insurance scheme does not have the same force of entitlement to benefits as was previously the case.
Therefore, contrary to what the noble Baroness argued, I believe that the legislation should be viewed in the context of that overall move. The contributory principle has been the bedrock of our national insurance and social security systems since World War II. We are concerned about this issue not least because of the implications of means testing the national insurance basic pension. In general the Government have moved more and more towards means testing. We believe that that is important.
I give some examples of the way in which the contributory principle is being undermined. On the one hand there are people who are not receiving benefits to which they were previously entitled. They believed that they would receive them because they had made their national insurance contribution. A few days ago the Government put forward a proposal with regard to widows benefits. In another context there are changes in incapacity benefits and the offsetting of those payments against pensions. On the other hand, people are receiving benefits for which they have not contributed. The so-called guaranteed minimum pension is a move in that direction.
Although the measure may be in many respects highly technical, we are concerned about the general thrust of the Government towards more and more means testing. We know that more means testing undermines thrift for the reasons spelt out clearly, for example, by Mr. Frank Field. Contrary to the proposals in the Bill, the move towards means testing—the Government have introduced a number of measures recently—are likely to increase rather than reduce fraud.
The front page of the explanatory memorandum states that,
"policy responsibility for NICs would transfer to the Inland Revenue once decisions had been reached on a new benefit entitlement test".
The Minister made no reference to that point. When the noble Baroness winds up, perhaps she will tell us when the new benefit entitlement test is to be specified in detail; and when it is likely that the transfer to which I have referred is likely to take place.
On that issue, perhaps I may add one word of caution as regards timing. The integration of the two systems seems likely to take place during the millennium. We know that there are grave concerns, not least in the pensions industry, as to the effect of the so-called millennium bug on the ability of organisations, in particular large organisations such as the Contributions Agency or Inland Revenue, to cope with those problems. To impose on those two departments the added burden of this transition seems rather unwise. Since many pension companies are looking into the matter in great depth, perhaps the Minister will tell us to what extent, in deciding to make this change now, the Government have taken into account the problems that may arise with regard to computers, and so on.
I turn now to penalties. The Minister sought to reassure the House. However, there is a general feeling that the penalties imposed by the Inland Revenue are
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more severe than those imposed by the Department of Social Security. In order to reassure us further, will the Minster give a clear undertaking that nothing presented in the Bill as a mechanical or technical measure will result in anyone who commits an offence being subject to a heavier penalty than was otherwise the case. There may be an argument for a heavier penalty in a specific instance but it should not be achieved in that way.
The Minister did not refer to this point. I understand that some of the offences previously dealt with in this area of legislation will no longer be criminal offences. I am not clear whether that is so. I see the Minister indicates that that is so. However, in her opening remarks—I may have been distracted for a moment—I do not think that she dealt with that problem.
In Committee we may wish to examine in more detail the investigatory powers of the Government. The Bill is one among other recent Bills which include a disclaimer by the Minister that nothing in the Bill contravenes the European Convention on Human Rights. We had some problems last year on the Social Security Bill in that respect. It will be interesting to see how that operates now that the convention has been incorporated into domestic law. It is an innovation which on the whole is to be welcomed. But we shall need to establish that the undertaking given by the Minister is justified.
She also mentioned the relationship between the Inland Revenue and the Department of Social Security concerning the security of national insurance numbers. I was not entirely clear what she had in mind on that subject but I believe it is the case that there has always been a concern about the exchange of confidential information between one department and another. Certainly, the situation is now a lot better than it was some years ago. Indeed, there are statutory penalties for those in government who transfer information, contrary to statute, between one department and another. But inevitably the integration of the two departments seems to mean that there is a greater exchange of information at a lower level of authority than was previously the case. Indeed, there are references in the Bill to pooling arrangements and so on, particularly as regards Clause 6. Perhaps I may draw your Lordships' attention to that. Information which is held by the board or by a person providing services to the board can be transferred, as I understand it, from one part of the organisation to another. The expression,
"a person providing services to the Board"
would seem to involve people outside government service who might then have access to confidential information. Perhaps the Minister can reassure us, if not now, then at Committee stage, as regards that particular point. It has always been a matter of concern as regards Parliament.
There is a number of other very detailed provisions in the Bill and not least, as the Minister stated, concerning ACT and the rebates issue on which, as she rightly pointed out, there appears to be some problem in the existing legislation. Again, I hope we shall be able to probe that particular point.
Finally, I raise the question of the extent to which, under these new arrangements, there will be any change in the power of officials to carry out investigations at

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particular premises. In my opening remarks I declared an interest. I was rather intrigued to see that under these arrangements it is apparently possible for the Inland Revenue to "raid"—I believe that is the right expression—the particular premises of a trustee of a pension fund. There is an exclusion for a person's home, provided that it is not used for business. But it may be that the business which takes place at the person's home has nothing whatever to do with his function as a trustee of a pension fund. I am sure your Lordships will wish to have that provision, but it seems a little doubtful whether it is as secure as it might be.
As I say, generally speaking, our concerns about the Bill are more as regards the way in which it fits into the Government's overall policy regarding the integration of national insurance and taxation and the strength which that then gives to their policy, which seems to us to involve more and more a move towards means testing and away from universal benefit to which people have contributed and to which, until now, they have been entitled. But as I said at the beginning, it is certainly a complicated Bill. We shall do our best to ensure that when it finally moves from this House to another place it is in a shape which is more appropriate for the statute book than in its present form.
4.13 p.m.
Lord Goodhart: My Lords, on behalf of the Liberal Democrats I give a warm welcome to the Bill. It is extremely technical and, to a large extent, non-controversial. I believe that that may be indicated by the fact that no-one has put down their name to speak in this debate other than the "usual suspects" and not all of them since my noble friend Lord Russell, who is sitting beside me today, has taken a vow of silence on this occasion.
As the Minister pointed out, the Bill contains two distinct parts. Part I deals with the transfer of responsibilities for the administration and collection of NICs from the DSS to the Inland Revenue. Part II deals with the transfer of decisions and appeals on questions of contributions from the DSS and the social security appeal tribunals to the Inland Revenue and to Commissioners for Income Tax. We strongly support both parts of the Bill.
Turning first to Part 1 of the Bill, we certainly agree that, as now proposed, national insurance contributions should be collected by the body responsible for the collection of direct taxes. Why is that? First, because national insurance contributions are not insurance contributions at all, but a hypothecated tax on earned income in the case of employees or a payroll tax as regards employers. The national insurance system has not for many years, if ever, been a genuine system of insurance. For example, retirement pensions make up more or less three-quarters of the total spending under the contributory system. In a proper insurance system retirement pensions would be paid for by retaining and investing the contributions in order to provide pensions for the contributors when they retire. But right from the start of the non-means-tested state pension system, under the Pensions Act 1925 pensions have been paid
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on a pay-as-you-go basis. Therefore, today's contributors are not saving for their own retirement pensions, but paying for the pensions of today's pensioners. In other words, the National Insurance Fund is not, as most people believe, a reservoir but a pipe.
It is true, of course, that people must have made contributions in the past in order to qualify for the right to a pension now. But, frankly, that is not so very different from saying that one has to pay vehicle excise duty before one is entitled to drive one's car on the public highway. Further, of course, there is no link between the amount of benefit payable and the amount paid in contributions. Contributors pay a percentage of their income between the lower and upper earnings limits or, in the case of employers, NICs without limit. But the benefits, with the only serious exception being the state earnings-related pension supplement (SERPS), are flat rate. The fact that the amount paid in contributions has no link to the amount paid in benefits is again a characteristic of tax rather than insurance.
Looking at administration, since we stopped buying stamps to stick on cards, which I believe occurred in 1981, national insurance contributions have been collected through the PAYE system along with income tax. The noble Baroness said that that collection now amounts to 94 per cent. of the total amount received by way of contributions. It is obviously sensible to collect NICs through the PAYE system and no one wants to go back. Furthermore, it is clear that further alignment between NICs and income tax is both possible and desirable. It is absurd that some forms of remuneration have been treated as income for income tax, but not for national insurance contributions. For example, that leads to many ridiculous schemes to avoid national insurance contributions by payment in gold bars or hay or various other tradeable commodities. It is quite clear that the test of income should be the same for both income tax and national insurance contributions. All this emphasises both the logic and convenience of treating NICs as a tax. One might say that if one owns a dog which quacks like a duck, waddles like a duck, flies like a duck and lays eggs, what one has got is not a dog, but a duck. NICs are not a dog, but a duck: they are not an insurance premium, but a tax. The sooner that is made clearer the better. I do not believe in trying to fool the public, which, frankly, is what the national insurance scheme sets out to do. I therefore welcome anything which leads to a closer integration between national insurance contributions and income tax.
Lord Higgins: My Lords, I am grateful to the noble Lord for giving way. What he says is true as regards insurance, but there is a crucial difference between a national insurance contribution and a tax. Paying your taxes does not entitle you to any specific benefit, but paying a national insurance contribution does. Until now, and subject to the erosion of the principle by the present Government that has been the case.
Lord Goodhart: My Lords, that has not been the case. For instance, it occurred not only under the present Government in relation to widows' benefits, but it happened twice under the previous government in

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relation to SERPS. It is clear that there is no guarantee that payment of a contribution buys you a right to any particular amount of benefit.
I welcome the Minister's statement that the process of alignment will continue. I should like that process of alignment to proceed to the point of open recognition that national insurance contributions are indeed a tax. If the Government were to replace SERPS with a compulsory funded second-tier pension—as we believe they should and we will hear soon whether they plan to do so—we can open up the argument as to whether we need to keep contribution records at all. That would lead to a substantial saving in administrative costs. It would provide help to those who do not have a full contribution record; for example, because their earnings are below the lower earnings limit or because they are women who do not qualify for home responsibility protection. It would greatly simplify record-keeping for employers which, as the Minister conceded, the present proposals do not.
However, it must be said that those are issues for another day and for another Bill. They cannot be included in this Bill. Having gone through the argument on Second Reading, it would not be appropriate to bring it back at a later stage in the Bill. For today, I am happy to say that Part I is a sensible and practical step in the direction in which we would wish to go.
I turn to Part II. When the Social Security Act 1998 was going through this House, we welcomed the fact that for the first time there would be an independent tribunal for deciding questions about contribution payments. However, the Social Security Act provided that contribution questions should go to the social security appeal tribunals. Many people, including members of the Tax Law Review Committee, felt that that was the wrong tribunal and that the proper tribunal was the Commissioners for Income Tax. The reason for that view is that contributions questions are very different from most questions decided by the social security appeal tribunals. The vast majority of the questions decided by that tribunal will concern right to benefit or disputes as to the amount of benefit to which somebody is entitled. Those questions are entirely different from questions related to liability to pay contributions.
However, contributions questions and income tax questions are often similar or identical. As the Minister pointed out, the question whether an earner is an employee or self-employed will decide whether he or she pays tax under Schedule D or Schedule E; it will decide whether the PAYE system is applicable; it will decide whether the individual pays contributions as an employee or as someone who is self-employed; and it will decide whether there is an employer who is liable for the employer's contributions. It is obviously right that there should be a single tribunal which decides whether an earner is an employee or self-employed for both tax and national insurance.
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As the Minister mentioned, we raised this issue by amendments in Committee on the Social Security Act. The Government replied encouragingly. They gave an undertaking that the matter would be reviewed in the light of the proposed transfer of functions which is taking place in the Bill. The Government have made good their undertaking and I can therefore give a very warm welcome to Part II.
I have only one doubt about Part II, which is technical. I understand from paragraph 170 of the Explanatory Notes that the effect of Clause 15 is that decisions on the contracting-out of SERPS by occupational pension schemes will be taken by an officer of the Inland Revenue, but appeals from that decision will go to the social security appeal tribunals rather than to the commissioners for income tax. At first sight, that seems rather odd. The Government's explanation is that it will enable pensions experts to sit as members of the social security appeal tribunals. My view is that while contracting-out issues are unsuitable for the general commissioners of income tax they would be entirely suitable for the special commissioners.
The commissioners decide questions relating to pensions; for instance, a question as to whether a scheme satisfies the conditions for approval under Section 590 of the Income and Corporation Taxes Act would go to the commissioners. Special commissioners are used to dealing with questions of great complexity and technicality and are perfectly capable of handling contracting-out cases. I believe that that is the tribunal to which the contracting-out issues should go, together with other contributions questions.
Although I said that that was the only point that I wished to raise, I am not giving an undertaking that at a later time I shall not find other points to raise. Indeed, I have not yet received a proper briefing from the Tax Law Review Committee, which may have other points it wishes me to raise in Committee. But that is all that I wish to raise for the time being.
I conclude with two comments. First, like the noble Lord, Lord Higgins, I found the new Explanatory Notes extremely helpful. They are a most desirable innovation. Secondly, I welcomed the meeting with the Minister and several civil servants from the DSS and the Inland Revenue in the Moses Room last week. It was most helpful and it satisfied me on two or three other issues which I might otherwise have had to raise in the course of debate. In extending a welcome to the Bill, I hope and expect that the remaining stages will not detain us for too long.

Business
Lord Hunt of Kings Heath: My Lords, before we move to the Statement on tobacco, I would like to take this opportunity to remind the House that the Companion indicates that discussion on a Statement should be confined to brief comments and questions for clarification. Peers who speak at length do so at the expense of other noble Lords.

Tobacco
4.28 p.m.
The Parliamentary Under-Secretary of State, Department of Health (Baroness Hayman): My Lords, with the leave of the House, I would like to repeat a Statement made in another place by my right honourable friend the Secretary of State for Health. The Statement is as follows:
"Madam Speaker, today I present to the House our White Paper on tobacco. It is entitled Smoking Kills; and that is a fact. It has been known for years. That is why a lot of adults gave up smoking. But the number of adults who smoke has stopped falling. Worse still, the number of children who smoke is going up, with more girls than boys taking up the deadly habit.
"And it is a deadly habit. Out of 1,000 20 year-olds who smoke regularly, one will be murdered, six will die in road accidents, 250 will die in middle age from smoking and a further 250 will be killed by smoking later in life.
"Smoking causes 84 per cent. of deaths from lung cancer and 83 per cent. of deaths from other lung diseases like bronchitis.
"Smoking does not just cause lung cancer, it causes cancer of the mouth, the larynx, oesophagus, bladder, kidney, stomach and pancreas. Smoking causes one in seven of deaths from heart disease. Smoking is very high among people who are severely mentally ill.
"Smoking is now the principal avoidable cause of premature deaths in Britain. It hits the worst off people hardest of all. Smoking is one of the principal causes of the health gap which leads to poorer people being ill more often and dying sooner. Smoking harms people who do not smoke. Smoking harms babies in the womb.
"These are all good reasons why this Government are so determined to turn things round. We cannot possibly achieve the reductions everyone wants to see in deaths and illness from cancer and heart disease unless we tackle smoking.
"Unless we reduce smoking we cannot reduce the inequalities in health which bear down most on the worst off. We want to help existing smokers quit the habit and help children and young people not to get addicted in the first place.
"We face an uphill struggle because the tobacco companies are committed to doing everything they can to promote the sale of cigarettes. That is because they have to keep recruiting new smokers to make up for the 120,000 of their own loyal customers they kill off every year.
"Most smokers take up the habit when they are children or young people. Few people start smoking once they are grown up. For years, the tobacco industry has poured millions into highly sophisticated advertising campaigns. People of all ages, including children, have been exposed to clever and eye-catching advertising material.
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"All that will now change. Tobacco advertising is going to end and it is going to end soon.
"This White Paper spells out the measures which will be targeted on children to protect them from being exposed to tobacco promotions. It will require a sustained effort over a long period. Some benefits will not show up for decades, but unless we act now they will never show up.
"We will also be trying to help the seven out of every 10 smokers who want to quit the habit. All this calls for a concerted plan of action and that is what the White Paper outlines.
"From 1989 up to the last general election the previous government had helped block all European efforts to ban tobacco advertising and sponsorship. We changed that. We put Britain's full weight into getting a European directive through. We succeeded.
"As a result a Europe-wide anti-smoking framework is in place. We now propose to end tobacco advertising on billboards and the printed media in this Parliamentary session. Most tobacco sponsorship will end by the year 2003. Formula 1 motor racing, as a global event, may qualify for exemption to the year 2006 if, and only if, tobacco sponsorship funding and advertising are already being reduced.
"The European directive is intended to keep to a minimum tobacco advertising in shops and this will be fully applied in Britain through the law.
"The tobacco advertising ban will be backed up by an anti-smoking campaign. Over the next three years we will be putting £50 million into an anti-smoking campaign. We want to make sure that children and young people no longer fall into the trap of seeing smoking as cool and a passport to adulthood.
"We have negotiated with representatives of the hospitality industry a code of conduct for reducing smoking in public places.
"It is illegal to sell cigarettes to children under 16. This law is very frequently broken. We are taking action to increase compliance with this law by shopkeepers and to promote more effective action by trading standards officers.
"Some individual shopkeepers and others knowingly and repeatedly flout this law. To deal with repeated offenders we propose to introduce a new criminal offence and we are looking at the practicalities of such a measure.
"Following discussions with my officials the National Association of Cigarette Machine Operators are issuing new rules on the siting and operation of cigarette vending machines to make them inaccessible to children.
"We have also been encouraging the companies who sell age restricted goods such as alcohol, cigarettes and fireworks to develop an industries-wide `proof of age' card. This package should make a real impact on the illegal sales of tobacco to children: the tobacco advertising ban, the £50 million anti-smoking campaign, the crack down on sales to children, a new

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criminal offence for repeated sales to children, new restrictions on vending machines, and the proof of age card.
"Then there are the people who are smoking already. Every 10 years more than 1 million British people get killed by smoking. Most of the millions who will be killed by tobacco over the next few decades are already adult smokers. Most smokers say they want to stop, and these are the people that we particularly want to help.
"If they keep on smoking there is a 50–50 risk that they will eventually be killed by their habit. Yet if they stop smoking before they get ill then they will avoid most of that extra risk of death. So it is really worthwhile for people to quit smoking.
"As part of our effort to help those seven out of 10 adult smokers who want to quit we are investing up to £60 million in the first ever comprehensive NHS service to help them give up their addiction. This will involve all health professionals—midwives, health visitors, doctors, nurses, pharmacists and dentists, all taking every appropriate opportunity to counsel patients to give up smoking.
"This effort will be particularly targeted on smokers living in those deprived areas which have been chosen as health action zones. We will encourage the use of nicotine replacement therapy (NRT) again especially targeted on health action zones where free NRT products will be available for the worst off. Health improvement programmes in every part of the country will be expected to address the need to reduce smoking in the worst off areas.
"As part of the drive to reduce tobacco consumption, the new Government have raised tobacco duties by just over 5 per cent. in December last year and again this year.
"These and other measures set out in the White Paper amount to a formidable plan of action to stop children from taking up smoking and to help existing smokers to quit. To achieve this we will need to counter the efforts of the tobacco companies. There is evidence to show that for most of the last 20 years they have been planning to counter the loss of sales which might follow an advertising ban.
"That time has now arrived so we can be assured that they will be well prepared. As I speak, I am certain that executives in the tobacco industry will be planning their strategy to keep up tobacco sales. We have got to get ahead of the game. That is all the more reason why everyone who cares about the health of the nation should work together to support this strategy and I am confident that everyone who cares about the health of the nation will do so".
My Lords, that concludes the Statement.
4.36 p.m.
Earl Howe: My Lords, as ever, I am grateful to the Minister for repeating the Statement. I wish to say at the outset that there is much in it that we can welcome. I shall comment on those sections of the Statement which are less palatable to us on this side of the Chamber. The
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overriding thrust of the White Paper, and in particular the emphasis on the need to reduce the prevalence of smoking among the young, is one with which we can readily identify and endorse.
Smoking is the single most important cause of premature death in this country, accounting for, as I believe the Minister said, 120,000 deaths every year. The avoidance of smoking would eliminate one-third of the cancer deaths in Britain and one-sixth of deaths from other causes. However, the recent trends in smoking prevalence are of particular concern. Looking at the graph of the number of adult smokers, one can see that the downward curve, seen since 1972, was reversed in 1996.
Among young people the trend has been upwards for a much longer period. That is extremely worrying. We know that almost all smokers start to smoke as children or young adults. We also know that the health warnings, while they are known about and understood. are simply ignored as irrelevant by most young smokers. At the same time, it is clear that a variety of factors influence the take-up of smoking in younger age groups: for example, parental attitude, peer pressure and, not least, the price of cigarettes. Therefore, we understand the Government's view that only a concerted and sustained government campaign is likely to stand any chance of shifting attitudes and behaviour among smokers, and especially among young people.
Let us look at the ingredients of the campaign and specifically at the proposed ban on tobacco advertising and sponsorship. I have always been sceptical about a compulsory ban. I say that for a number of practical reasons. The first is, paradoxically, that a ban may turn out to be counter-productive. If different brands are prevented from competing with one another through advertising, then they are likely to try to compete in the other obvious way; that is, through price.
We know that cigarette consumption is extremely price-sensitive. It has been shown to decrease by 0.5 per cent. for every 1 per cent. increase in the retail price. That effect, not surprisingly, is greater in the low income groups. There must therefore be a real concern that more intense price competition will start to occur and will actually drive up the number of cigarettes consumed.
The second feature about advertising which will be lost with a ban is that one important way of encouraging smokers to switch from strong brands to less harmful ones—that is to say, the low tar varieties—will disappear. That seems perverse. Aside from saying that they want smokers to give up the habit altogether, what is the Government's answer to that point?
I worry too that it will be all too easy for the tobacco companies to drive a coach and horses through the legislation. I do not know how many of your Lordships have travelled on the London Underground in recent days. There is a prominent advertisement in many stations for a certain brand of cognac. It depicts a glamorous and sophisticated-looking young lady holding a smoking cigarette. If the tobacco companies are looking for a way of glamorising the activity of smoking, they need look no further than that. But it is not as such a cigarette advertisement.

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While I have no evidence to suggest any involvement by the tobacco companies in that poster, how do the Government feel it will be possible to stop tobacco companies taking advantage of that type of opportunity in the future by, as it were, piggy-backing on other products? For all those reasons we strongly question the wisdom of a compulsory ban on tobacco advertising and would have preferred to see an extension of the voluntary approach. However, I have a specific question for the Minister on that aspect of the White Paper and it relates to the withdrawal of tobacco sponsorship. Tobacco sponsorship will need somehow to be replaced if a number of sports are to continue in their present form. What proposals do the Government have to assist those sports in obtaining alternative sponsorship?
We welcome the emphasis placed on encouraging smokers who want to quit the habit. Nicotine patches are an obvious way to do that. However, there is an interesting aspect to the Government's proposals. The Minister said that free NRT (nicotine replacement therapy) products will be available for the worst off. I have no quarrel with the idea of promoting NRT products. But what does the proposal say about the Government's publicly stated and oft repeated policy towards the health service? If they make a nicotine patch prescription available free to those on a low income and do not make it available to anyone else, does not that amount to the introduction, for the first time, of a means test for prescriptions? How much further down that road do the Government intend to travel?
Looking at the issue from a broader perspective, do the Government agree that this is a classic example of how community pharmacists can play a part in preventive help, advice and treatment? Research indicates that a smoker has a one in 100 chance of a successful cessation of smoking using willpower alone. Quitting with informal support increases that to one in 20; using NRT doubles the chances of success but if professional counselling is given as well—for example, from a pharmacist—in conjunction with NRT, that can increase the success rates to better than one in four. To my mind that is a powerful argument for looking to the local pharmacy as an important means of delivering the Government's targets.
Perhaps I can turn briefly to smoking in the workplace. Can the Minister be a little more specific about what the Government intend under the code of practice? If its force under the Health and Safety at Work Act is to be as robust as the White Paper suggests, it would appear that businesses will ignore it at their peril. Will the code require companies to create smoking areas in the workplace if smoking is to be allowed there at all? If there is to be any suggestion of compulsion for employers to alter their workplace premises, can the Minister confirm that that would be the subject of primary legislation to give the opportunity for a full and proper debate on the matter? Will all workplaces be affected by this legislation?
We welcome the voluntary proof-of-age scheme and the plans to enforce the ban on cigarette sales to the under-16s more toughly. We are also glad that the Government have stepped back from imposing an
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outright ban on smoking in public places, including restaurants and pubs. As was argued very effectively in your Lordships' House on 21st October, a voluntary approach is likely to prove fairer to industry and allow more readily informed choice by consumers.
Finally, it would be helpful to understand what targets the Government have in mind to judge the success of these measures. Can the Minister say what percentage drop in cigarette consumption over whatever period of time she chooses to take, is envisaged as a result of the measures announced today?
4.45 p.m.
Lord Clement-Jones: My Lords, I too thank the Minister for making the Statement today and warmly welcome a great many aspects of it. On these Benches we wholly accept the medical evidence which shows that there is an increased risk of disease not only through smoking, but also through passive smoking. That was demonstrated by the report of the Scientific Committee on Tobacco and Health which reported earlier this year and also the recently published WHO multi-centre research into the effects of environmental tobacco smoke which your Lordships may recall was the second largest study ever carried out on the subject. That shows quite clearly that there is a risk equivalent to the death of several hundred lung cancer deaths a year in the UK as a result.
As the Minister pointed out, significantly associated with passive smoking is sudden infant death syndrome, heart disease in adults and respiratory illnesses and asthma in children. We particularly welcome the proactive stance of the Government towards the European directive and of course that is in sharp contrast to that of the previous government.
However, there are some areas of concern in the Statement and in the White Paper. One of the areas your Lordships may recall which the BMA raised in recent weeks is the whole question of regulation of nicotine content. It is clearly vital to reduce the nicotine content of cigarettes. They must be manufactured to be less addictive. On these Benches we support the BMA's call for an overhaul of the regulatory framework in that respect. We must also deal with misleading labels and additives.
We need the Government's commitment in relation to raising the price, in particular the duty, on cigarettes. We are not quite clear from the wording of the White Paper whether it is an unequivocal commitment to raise the price year by year or simply a general statement of intent.
As regards the methods of marketing in the third world, clearly they must be regulated. We note the Government's strong support for an international framework convention by the WHO and welcome that. But we note also that the Statement said that it was likely to be brought forward to the World Health Assembly in 2003. Is there any way in which we can bring that forward earlier? Clearly international action in so many of these areas is the only way forward.
We welcome the commitment completely to phase out sponsorship and advertising. But when is the legislation going to come forward as regards the

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advertising ban? As regards sponsorship, why do we have to wait for the period that the Government stated for that to be phased out? Furthermore, on these Benches we do not accept the Government's case on Formula One motor racing. I have been associated with Formula One motor racing for many years. Indeed, my father-in-law ran a Formula One racing team. I still believe that the arguments put forward by Mr. Bernie Ecclestone earlier this year are totally bogus to justify the postponement of a ban on sponsorship on Formula One. We believe this should be treated in a way which is no different from any other form of sponsorship.
We also note the code of practice proposed for the workplace, to be introduced on a voluntary basis. Although the Government clearly trailed their coats in terms of a ban on smoking in the workplace, no doubt many people have been surprised by the eventual conclusions. We believe, unlike the noble Earl, Lord Howe, that the ban should have real teeth and that if it does not work on a voluntary basis enforced by the Health and Safety Executive then eventually a complete ban on smoking in the workplace may be necessary. For pubs, restaurants and so on, we agree with the voluntary approach and we made that quite clear in the previous debate on the subject in October. We believe that we should effectively outlaw smoke and not the smoker but, as part of that, we insist on the ability to segregate and to have adequate ventilation. We believe that the voluntary code should make that quite clear.
We commend the Government's approach, in public health terms, of setting very clear targets for smoking cessation. This is absolutely vital, as Sir Donald Acheson made quite clear in his recent report, to combat health inequalities. This must be reflected through health improvement programmes, health promotion and so on, but it must he put explicitly in the national priorities guidance. We do wonder whether some of those targets themselves are quite strong enough, in view of the recent take-up rise in smoking by the young. We believe that the target of a decrease from 13 per cent. to 9 per cent. over 12 years is rather too modest. One can argue about those targets over a period of time but they must be reflected in health improvement programmes.
It is particularly vital that pregnant women should be discouraged from smoking because, as we know and as Sir Donald made quite clear, smoking leads to low birth weight in children, a failure to thrive in early childhood and also to glue ear. Clearly we need education through the midwifery health visiting services, as recommended by the Scientific Committee on Tobacco and Health. We welcome the Government's statement of intention in that regard, but again the White Paper is not absolutely specific. What are the specific intentions of the Government as regards making that information available through the midwifery and health visiting services? We need strong campaigns directed at young people, as both the Minister and the noble Earl, Lord Howe, mentioned. It is particularly worrying that one-third of teenagers now smoke, and we know there has been an increase in the numbers of young women who smoke
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We welcome initiatives like the Respect Roadshow which ran in May but we ask what will be done on a continuing basis. It is important that any such campaigns are properly evaluated. For example, how far is the Department of Health exploring the possibilities of peer group education, where young people can communicate with each other about the problems associated with smoking, in a way similar to drug-education campaigns?
We welcome the additional expenditure announced by the Minister today. Currently, only something like £6.5 million is spent on education as regards smoking, compared with the costs of smoking-related diseases for the NHS, which is estimated to be between £1.4 billion and £1.7 billion, so the rise from £6.5 billion to £50 billion is, in our view, a significant increase.
What about the duties of retailers? We welcome the Government's plan to ensure that they are fully aware—
Lord Williams of Elvel: My Lords, perhaps I may draw the noble Lord's attention to the Companion, which says that these Statements should not be the occasion for a mini-debate?
Noble Lords: Hear, hear!
Lord Clement-Jones: My Lords, I fully intend to ask further questions. I thank the noble Lord for his intervention, and I will be concluding very shortly. Do the Government plan to ensure that they are continuously aware of their legal responsibilities? As a member of the Parents Against Tobacco Campaign in the late 1980s and early 1990s, I welcome the local authority enforcement protocol which has been mentioned and I look forward to seeing the proposals for criminal law when they come forward.
As regards the making available of nicotine replacement therapy on prescription, will this be universally available? It is not clear from the Statement. We on these Benches believe that this is a good day for Britain's health and the health service and a bad day for the tobacco companies. We therefore welcome the Statement on that basis.
4.56 p.m.
Baroness Hayman: My Lords, I am grateful for the broad welcome that has been given to the Statement by the noble Earl, Lord Howe, and the noble Lord, Lord Clement-Jones. This is a comprehensive package of measures intended to try to reduce smoking in this country, and it is important to stress the comprehensive nature of the package.
The noble Earl, Lord Howe, asked about the effects of banning advertising in itself on rates of smoking. He asked whether this was not in fact price-sensitive. He also referred to the possibility of unintended consequences. There has been a great deal of evidence on this and an important study was undertaken by the Department of Health, looking at the effect of the banning of advertising in four countries: Norway, Finland, Canada and New Zealand. The conclusion was that in each case the banning of advertising was followed by a fall in smoking on a scale that cannot

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reasonably be attributed to any other factors. Even the small percentage falls which have followed advertising bans, given the large number of people who are affected, are extremely important. That is why we believe that an advertising ban is extremely important.
In answer to the noble Earl, we also believe that the terms of the directive are very wide. They do not deal only with billboard advertising for smoking or newspaper advertisements for smoking. The concept of brand stretching is included in the directive, as are all the promotional activities of the tobacco companies that go on, such as the giving out of free cigarettes at nightclubs, among many other promotional activities. So there is a very broad range of activities which we believe are usefully covered by the ban and that ban will be brought in as soon as possible. Obviously it is important that we consult on the regulations, and that is what is being done within this parliamentary Session, but we want to make progress and we want it to be effective as soon as possible.
As for the targets, the noble Lord, Lord Clement-Jones, suggested that they were not stretching enough. We believe, given the current increase in the numbers of young people who are smoking, that it is extremely challenging to make the kinds of rates of reduction that we hope to see by the year 2005. We are also challenging ourselves to make sure that the rates of reduction lie across all social classes. The evidence of the Acheson Report showed the difficulties involved in achieving those rates, and we do not want to see the health gap increasing in this area.
Turning to the issue of nicotine replacement therapy, perhaps I can clarify the position there. It is not that we are making this available on prescription for some people and not for others. This therapy is not available on prescription at the moment: it is available for sale over-the-counter from pharmacists. For those targeted groups where the problems are greatest, as part of a smoking cessation plan—and the evidence is very clearly that the greatest effect is when nicotine replacement therapy is given as part of an overall supportive plan to help people give up smoking—particularly in health action zones and among the poorer people, we hope it will be possible to give at least a week's supply, a starter supply, of nicotine replacement therapy.
I should point out of course that once you have got over the hump of the first week or two, the costs of the nicotine replacement therapy are in fact less than the average smoker is spending on smoking, and so we start seeing people being able to pay for their own therapy. I agree with the noble Earl, Lord Howe, that pharmacists can be particularly helpful in this area and we welcome the involvement that they have pledged themselves to make in giving advice and support, as well as selling nicotine replacement therapy products.
As regards the workplace, I can tell the House that it is intended that the Health and Safety Commission should consult on a new approved code of practice on smoking in the workplace. It will toughen up existing measures and be designed to improve the protection and welfare of all employees by defining the kind of
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smoking policies that employers need to operate to comply with existing health and safety legislation. Inspectors would then be able to quote the code in court cases alleging breaches of the Health and Safety at Work etc. Act 1974. Both in the areas of workplace smoking and public place smoking, we believe that the best way forward is to build on what is already there. We hope to see results and to monitor them, but we shall be willing to consider further action if we do not see the results that we wish.
I turn now to the international concerns. On the issue of tar content, the European Commission is considering further legislative proposals covering tar, nicotine and carbon monoxide, as well as tobacco labelling and health warnings. We welcome those steps and will work closely with the Commission and other member states to achieve practical improvements on current directives in these subjects. In terms of broader international action, which I believe the noble Lord, Lord Clement-Jones, mentioned, the new director general of WHO has made smoking one of its top priorities. The framework convention proposal will provide an overall structure of objectives, with more detailed action set out in various protocols. The aim would be to commit all signatory states to develop policies along the same broad lines, but not bind them to particular activities until they are ready to commit themselves to the relevant protocol. We have been asked to play a leading role in developing the convention to see how we can help other countries.
Perhaps I may now turn to the question of sports sponsorship. The international experience is that, given enough time to adapt, sports and other tobacco-sponsored activities can find alternative sources of sponsorship. Perhaps I may tell the noble Earl that we certainly want to help sports find exactly those sorts of alternatives because we are anti-tobacco advertising, not anti-sport. Indeed, my honourable friend the Minister for Sport has called together a group of experts to advise and help sports, which are facing difficulties in adapting, to find the new sponsors that they need.
The noble Lord, Lord Clement-Jones, drew attention to the particular needs of pregnant women. He is absolutely right: this is one of the areas where we have set ourselves targets for reductions. We believe that it is an especially important time when parents and parents to be are focused on their health needs. It is also a particularly useful time to intervene and we shall be working with the relevant professionals to ascertain what is the most effective form of activity in certain areas.
I believe that I have covered most of the points raised, but I shall review what has been said when I read the Hansard report tomorrow. I shall write to noble Lords if I have not covered all the matters raised.
5.3 p.m.
The Earl of Lauderdale: My Lords, after the 10 minutes used up by the Liberal spokesman, I have one quick question for the Minister. Can she say whether the Government's anti-smoking campaign includes positive

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encouragement to smoke herbal tobacco? If you smoke herbal once, you never want to smoke again! That is how I gave up the habit more than 50 years ago.
Baroness Hayman: My Lords, the noble Earl has made a fascinating contribution and one which I believe deserves serious attention. I shall ensure that my right honourable friend the Minister for Public Health takes note of his suggestion.
Lord Janner of Braunstone: My Lords, does my noble friend the Minister recognise how important this White Paper is and how greatly it will be welcomed by most people, even the majority of smokers? Having said that, does my noble friend agree that those adults who exercise their freedom to smoke should also respect the wishes of non-smokers not to be adversely affected by it; not to have to work in an environment of smoke; and not to have to eat and drink in places where the air is polluted by smoke? If my noble friend does agree, does she not consider that this House could set an example? To the best of my knowledge, the only place in this House where you can eat smoke free is in the staff dining room. Therefore, should there not be a smoke-free area in all eating places in this House? If not, can my noble friend say why not?
Baroness Hayman: My Lords, I think I made it quite clear that we want to build on the progress which has already been made in many sectors of the hospitality industry to make improvements and give real choice to consumers. As my noble friend rightly points out, there are different sorts of freedoms here. For example, there is the freedom, which no-one is challenging, for individuals to continue smoking if they so wish. There is also the freedom of people who want to eat and drink in a smoke-free area. We want to encourage the industry to make progress in providing separate facilities.
As my noble friend will be well aware, I answer for the Government in this Chamber, not for the Chairman of Committees or for the committees of the House which are in charge of issues relating to smoking within your Lordships' House. I understand that a working group is currently undertaking a review of smoking policy in this House. As a Member of the House rather than a member of the Government, I suspect that I would tend towards my noble friend's views on the matter.
Lord Mackie of Benshie: My Lords, will the Minister tell the House what the Government think of smoking as portrayed on television and, in particular, smoking in televised plays? This must be the most dangerous practice for young people to see on the screen, or in a televised play, where sometimes people smoke continually. I believe that that sort of thing does as much damage to the young as anything else. Has the Minister any idea as to how the Government could control the situation?
Baroness Hayman: My Lords, the noble Lord, Lord Mackie of Benshie, is correct to pin-point the number of different factors that can influence the climate which
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encourages young people to take up smoking. Indeed, it is multifarious. We need to attack the climate in which smoking is considered the norm—certainly the climate in which it is considered in some way attractive, romantic or indeed the "grown up" thing to do. There are responsibilities in the matter for all parts of society. For example, there are some areas in which sports men and women have been particularly helpful in joining in campaigns to provide young people with role models, which are anti-smoking rather than pro-smoking. I believe that other parts of the entertainment industry should rightfully look to their own policies in this area.
Lord Gisborough: My Lords, I fully support the Minister in her efforts to reduce smoking. However, when one compares the 120,000 deaths a year caused by smoking with the billions of pounds, millions of cattle and the destruction of the farming industry for the sake of 10 deaths per year, one wonders whether the £50 million designated will be enough.
I have four questions for the Minister. First, can she tell us what sort of loss she anticipates the Exchequer will suffer if cigarette smoking is reduced? After all, that is a very important part of the tax take. Against that, can she tell us what sort of savings she expects might be made in the National Health Service by fewer people becoming ill through smoking? Secondly, as the Minister knows, the European Commission actually subsidises a number of countries to grow tobacco. Can she say what pressure the Government will put on the Commission to stop subsidising people growing tobacco in Europe?
Thirdly, we have heard about peer pressure. Does the Minister agree that it is important that school teachers should not smoke and that young children should be put in the position where there is reverse peer pressure so that, from an early age, they learn that the pressure is on them not to smoke rather than to smoke? In that way they can follow by example.
Fourthly, I should just like to confirm what the noble Lord, Lord Janner, said. On Tuesday night I went into the Dining Room, which was full of cigarette smoke. I then went down to the Home Room, which was full of cigar smoke, and eventually ended up in the Barry Room. I understood that smoking was not allowed in our dining rooms; indeed, I believe that that is the rule. I feel that we ought to set an example rather than go the wrong way about it.
Baroness Hayman: My Lords, I am sure that the House authorities will look carefully at the comments made today about the difficulties caused for non-smokers by the present arrangements.
I accept very much the point made by the noble Lord, Lord Gisborough, and the noble Lord, Lord Clement-Jones, that some of the most successful educational programmes for young people are undertaken by young people. I suspect that lecturing by government Ministers is not the most potent weapon affecting the behaviour of teenage girls. We need to be very careful and ensure that our advertising campaigns are targeted so that they communicate effectively with young people.

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Some quite novel and radical approaches have been tried in America which focused very much on conventional ways of showing the vested interests of those who persuade people to take up smoking. It has been very effective in reducing smoking among young people.
As to the common agricultural policy, we do not consider that financial support for tobacco production is an effective way of spending Community money. The Government strongly disapprove of the tobacco regime and would like to see its end for reasons of health, costs and control. We would like to see a progressive disengagement from the sector and we will press for an end to tobacco subsidies in the long term. We are actively promoting that policy within the EU.
As to the financial loss to the Exchequer, I should make it absolutely clear that the policies that we are putting forward today are the policies of the Government as a whole—including my right honourable friend, other health Ministers and the Chancellor of the Exchequer. Yes, if we are successful there will be a loss of tobacco revenue—and the sooner the better.
Lord Monson: My Lords, I welcome the decision not to use the criminal law to force pubs and restaurants to provide non-smoking areas, especially as market forces will achieve the same result without compulsion. Non-smoking adults in Britain now out-number those who smoke by more than two to one. It is in their own interests for catering establishments to provide non-smoking areas. If they fail to do so, they will be increasingly boycotted by non-smokers.
I have three questions for the noble Baroness. In the light of her response to the noble Lord, Lord Gisborough, I think she probably agrees that young people throughout history have enjoyed doing whatever is forbidden by the elder generation. As suggested in the Sunday Telegraph a few days ago, the right deterrent is not to tell young people that tobacco is dangerous—because danger has a certain glamorous aspect in the eyes of young people—but to try to convince them that the smell of tobacco makes them repellent to members of the opposite sex.
Does the noble Baroness agree that constant price rises, in real terms, encourage smuggling and are unfair on the elderly poor, who derive comfort from cigarettes? It does not affect most of us, but it affects them particularly badly.
Finally, as everybody has to die sometime, what is the precise definition of "premature death"? Is it one year, two years, three years, or whatever, before someone might otherwise be expected to die?
Baroness Hayman: My Lords, I will certainly write to the noble Lord, Lord Monson, with the precise definition of "premature death". The figures that I gave in the Statement are quite clear: of 1,000 young people who are smoking at age 20, 250 of them will die in middle age of smoking-related diseases. A further 250 will die prematurely in later life. We are not just talking
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of people losing a year of life at the end of their life, we are talking of large numbers of people dying in their middle years because of smoking-related diseases.
I accept in one sense what the noble Lord said about the importance of stressing in the messages why young people should not take up smoking—not only in the health messages but in the messages about the things that matter to them. The insidious message in the past about weight loss and smoking is perhaps one of the reasons that more young women than young men have taken up smoking. We have to target very carefully the advertising and educational campaigns.
It is also possible for us, who have listened to the health messages for more than 20 years, to over-estimate how well they have been translated to the 13, 14 and 15 year-olds of today. They have not been hearing these messages for 20 years in the same way that we have done. We have to make sure that they understand the health-related dangers very clearly. I am not sure that we have done so in the past.
Smuggling is a real and serious issue. We need to ensure that we take action against it. That is why it was announced that we are allocating the considerable sum of £35 million to the Customs and Excise over the next three years to implement the recommendations made in the Government review into alcohol and tobacco fraud. It is important that we ensure that we tackle effectively the smuggling going on at the moment, which for many reasons is dangerous and which is causing a loss of revenue to the Exchequer.
Lord Rea: My Lords, I speak for all members of all the health professions in welcoming this comprehensive White Paper. I notice that my noble friend the Minister has a very nasty cough. I am sure that in her case it has not been caused by the effects of smoking, either personal or environmental. I am sure that there is not much environmental smoke in the Department of Health.
I welcome my noble friend's remarks about how the £50 million to be allocated to an anti-smoking campaign will be spent. We should have learnt by now that big bill-board posters do not work. Certainly that was the case in campaigns to inform young people about drugs. If anything, drug-taking increased during those campaigns.
My first question relates to nicotine replacement therapy. Why not put it on prescription? People with low incomes will then be exempt from the charge and it would surely be far less bother to do that on a nation-wide scale than to allocate it to specified vulnerable groups. My noble friend may not have the figures available<—perhaps she could write to me—but how much would it cost to put nicotine replacement on prescription?
The issue of health warnings on cigarette packets has not been mentioned. The present size of such warnings has been shown to be virtually useless. Have the Government any plans to increase the size of the health warnings so that they actually cover the whole of the side of a packet of cigarettes?

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The noble Lord, Lord Clement-Jones, made the point about nicotine content as well as tar content being properly labelled on cigarettes. At the moment low-tar is a big con. People who smoke low-tar cigarettes are getting enough nicotine to keep their habit going.
Baroness Hayman: My Lords, my noble friend is correct. One of the problems about the supposed advantage of switching to lower tar brands is that it has been shown that people actually inhale more deeply of the lower tar brands. Therefore, the supposed advantage is not there. I shall write to my noble friend with the figures that he asked for.
We are anxious to target nicotine replacement therapy on the areas where it will have most effect. That is why we are starting off with action in smoking cessation services. As I said earlier, there is clear evidence that, while NRT can double the success rate of people trying to give up smoking, it is most effective when it is part of an overall programme to support people. We are trying to do that within the most deprived areas—the areas that have been designated health action zones. We have also made it clear in the national priorities guidance for the NHS and local authorities that smoking cessation had to be a priority from April 1999. We hope to see action plans to tackle that coming through in their health improvement programmes. We will be looking at the success of what we are doing in terms of the NRT given in the health action zones and seeing what further services we want to build on top of that.
I take my noble friend's point about not simply using exhortation and assuming that that will be the most effective motivator for young people not to take up smoking. I can certainly confirm that, as he was my general practitioner for about 20 years, my own cough has nothing to do with a smoking related disease.
The Viscount of Oxfuird: My Lords, does the noble Baroness agree that, ironically, the only effective way of resolving the smuggling issue, which is costing this country £1 billion a year, is to seek European-wide harmonisation of tax; namely, excise duty?
Baroness Hayman: My Lords, the UK was disappointed at the failure of the Commission to make any substantial proposals in its second biannual review of minimum rates of excise duty. The Government advocate upward price convergence through high minimum duty rates across the EU. But just because we failed to get member states to agree on that should not stand in the way of taking UK action when it relates to overriding health objectives in this country.
Lord Williams of Elvel: My Lords, can my noble friend say whether there is any evidence that cigarette smoking is more dangerous than cigar or pipe smoking? There is a good deal of debate about cigarette smoking but none about cigar or pipe smoking.
Baroness Hayman: My Lords, my understanding is that all smoking, with perhaps the exception of herbal cigarettes to which the noble Earl referred earlier, is damaging to health. Obviously, the main bulk of
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smoking is cigarette smoking. That is certainly the area in which most young people are taking up smoking. I shall certainly write to my noble friend with specific details about the relative risks of cigar, pipe and cigarette smoking.
Lord Mackie of Benshie: My Lords, perhaps I may—
Lord Hunt of Kings Heath: My Lords, we have reached 20 minutes. We must move on.
Lord Mackie of Benshie: My Lords, perhaps I may—
Lord Hunt of Kings Heath: My Lords, the Companion is quite clear. We have reached 20 minutes. We must move on.
Lord Mackie of Benshie: My Lords, I wish to talk about a procedural point. The noble Lord, Lord Williams of Elvel, raised a point with my noble friend when he was speaking. I think that the point needs clearing up. My understanding is that the Front Bench speakers may speak for a reasonable time and comment on policy if they so wish. I think that the noble Lord, Lord Williams of Elvel, was wrong on this point and I should like the opinion of the House on it.
Lord Hunt of Kings Heath: My Lords, perhaps I may read from the Companion:
"Ministerial statements are made for the information of the House, and although brief comments and questions for clarification from all quarters of the House are allowed, such statements should not be made the occasion for an immediate debate. Discussion on a statement should not exceed 20 minutes from the end of the Minister's initial reply to the Opposition spokesmen who are themselves expected to be brief.",

Social Security Contributions (Transfer of Functions, etc.) Bill [H.L.]
Second Reading debate resumed.
5.25 p.m.
Baroness Anelay of St. Johns: My Lords, reference was made much earlier this afternoon by the noble Lord, Lord Goodhart, to the usual suspects taking part in this debate. I suspect that I am indeed one such spokesperson.
As other noble Lords explained earlier, the Bill deals principally with the complex and technical process of the administrative transfer of functions from the Secretary of State for Social Security to the Inland Revenue and the Treasury. I have approached my examination of the Bill by asking what it would mean for the individual taxpayer and contributor.
Overall, there are just two issues which I will seek to address now and in later stages of the Bill. The first is a general but practical matter. Can the transfer be carried out effectively? Secondly, what are the proposals for

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appeals systems? That is a subject in which I retain a keen interest having sat for many years locally as a lay member of a social security appeal tribunal.
I add my thanks to the noble Baroness the Minister for setting up the briefing meeting in an effort to obviate the need for having so many probing amendments at the Committee stage. I may ask questions today which the noble Baroness answered at that meeting. I do so in an effort to put answers on the record. Answers which I found most helpful last week I am sure I will find helpful again today.
The noble Baroness will recognise that on occasions it may be necessary in Committee to put down one or two probing amendments on the same basis—that it is important to test out the aims and objectives against likely outcomes. This will not be done in a partisan manner but perhaps in the manner described during the passage of the Social Security Act earlier this year as the "Bassingthwaighte principle"—that is, where there is a lack of partisanship and agreement on the Bill, paradoxically, one sometimes has to be even more careful about analysing the aims and objectives. I notice that the noble Baroness has some misgivings on this point. I do not think that we will be detaining her overlong in Committee despite that principle.
First, can this transfer be carried out effectively? I am something of an IT anorak, but even I can appreciate the potential in the Bill for bureaucratic and IT meltdown. Questions will arise relating to data protection. It is essential that the public can be assured that the transfer will be carried out in such a way that the integrity of the system is maintained throughout the process of change—in other words, it carries on working properly—and that confidential information is not disclosed inadvertently or improperly.
Public confidence in the use of IT in complex DSS operations has been shaken by the current fiasco of the computer glitches at the DSS which has left millions of personal pension holders being owed well over £1 billion by the Government. New computers, which were set up to deal with the NI records of the entire nation, are sadly in a shambles after a summer of turmoil. The new system—NIRS2, the national insurance recording system—cost £171 million and is one of the biggest in Europe. It was an ambitious and proper project to be undertaken. It holds 65 million individual contribution records. It was switched on in July but had to be shut down almost immediately due to technical problems.
Each April the Contributions Agency calculates how much people have paid in contributions and what rebate is due to those with personal pensions. This is usually paid during the summer. But this year, no payments had been made by October. The computer was shut down over the summer and the DSS has been playing catch up ever since. Because the money has not been invested, those affected will also miss out on the autumn rise in the stock market. More than £2¼ billion-worth of payments have been missed already, with more than £1 billion still owed. I understand that insurers think it
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extremely unlikely that the problems will be resolved before March next year. In a briefing note to insurers the Contributions Agency admits that
"more problems have been encountered than were anticipated".
Perhaps that is the understatement of the year.
In the light of that difficulty, how confident are the Government that that will be a one-off problem with large computer systems, and how will they ensure that similar problems cannot plague the transfer of functions which will follow the passage of the Bill?
I note that paragraph 228 of the helpful Explanatory Notes refers to the costs involved in such matters as making the necessary amendments to IT systems. How will the Government make the public confident that the new systems will work during and after the transfer of functions in the light of the problems faced this summer by the Contributions Agency?
A second related problem is data protection, an issue raised earlier by my noble friend Lord Higgins. Clause 5 introduces Schedule 5, which sets out the powers to exchange contributions information following the transfer. The Explanatory Notes state:
"Schedule 5 inserts new gateways and amends existing ones so that the Inland Revenue and DSS can exchange the information necessary to carry out their functions".
I note the attempts at reassurance in paragraphs 129 and 130, but I remain concerned about who controls the "Open Sesame" command to those new gateways and about whether the command could be misused, either intentionally or in error. We shall need to pursue such questions in Committee.
I turn to appeals. The noble Lord, Lord Goodhart, referred to the fact that appeals concerning contracting-out matters, credits and home responsibilities protection, will be heard by the new unified appeals tribunals to be set up under the Social Security Act 1998. I should be grateful if the Minister could explain further why those issues have been left with the unified appeals tribunals systems. At the briefing last week the noble Baroness helpfully gave two reasons for that: first, that she believed that such cases would be rare, and, secondly, that commissioners were lawyers, but that unified appeals tribunals could contain expert members—either actuaries or pensions experts. Can the noble Baroness confirm that those are the two main reasons—perhaps there are others—why those matters have been left with the unified appeals tribunals? How rare is "rare" expected to be? Have the Government felt it necessary to take steps to recruit such pensions experts and actuaries? Can appellants expect prompt hearings? What is the Government's estimate of the likely waiting time for such cases?
Still on the subject of experts, but in a slightly different context, I note that Clause 8(2) states:
"Where it appears to an officer of the Board that a matter before him involves a question of fact requiring special expertise, he may direct that in dealing with that matter he shall have the assistance of one or more experts".
The notes cite the example of medical evidence being relevant to a claim for sick pay.

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What is the intention in the regulations about the occasions on which assistance shall be sought and what is the recommendation about when such assistance ought to be sought? I approach this matter from a practical point of view. I have served on appeals tribunals where a decision has been taken not to seek assistance from experts and subsequently that has proved to be a problem. What if an officer of the board does not seek such assistance when the person who is being investigated, the appellant, believes that that should have been done? What would be the appellant's avenue to seek redress in such circumstances?
We shall also need to ask questions at a later stage about the arrangements for the Inland Revenue procedures for investigation and appeal. I refer, for example, to paragraph 100 of the Explanatory Notes, which refers to the "new section 110ZA … powers". Perhaps the Minister could clear up that minor matter before Committee by writing to me rather than attempting to do so tonight. Paragraph 100 states that, initially, the powers will be exercised by,
"the former staff of the Contributions Agency who will become officers of the Inland Revenue when functions are transferred".
However, paragraph 111 states:
"Initially the officers authorised by the Inland Revenue will largely he the former members of the Contributions Agency who currently use the powers conferred by section 110"
of the Social Security Administration Act. If the powers are to be exercised by those who have not been Contributions Agency officers, presumably there could be issues regarding training to be considered at an early stage. Can the Minister comment now—perhaps in writing would be better—on whether paragraph 100 or 111 is the more accurate?
I have one final question on appeals and it is one where I find myself treading on unfamiliar territory. Clause 12 refers to regulations governing appeals; in particular, to the role of the Lord Advocate. Can the Minister confirm that the reference to the Lord Advocate's role and powers in this Bill is still relevant in the light of the changes wrought by the Scotland Act?
I recall that during the course of our debates on the Social Security Act earlier this year the Lord Advocate at that stage opposed the Question that Clause 7 stand part of the Bill. On 30th March, the noble and learned Lord, Lord Hardie, stated
"Under the terms of the Scotland Bill, the Lord Advocate will remain as head of the Systems of Criminal Prosecution and Deaths Investigation in Scotland. He will also be the Law Officer to the Scottish Executive. Most of his other ministerial policy functions, including those relating to tribunals, will be transferred to the Scottish Ministers … That does not preclude the possibility that the Lord Advocate, as a Minister in the Scottish Executive, might have similar functions to those he exercises at present in relation to tribunals. But it will not be clear who would be the Minister responsible for these functions in Scotland until after Scottish devolution has taken place". [Official Report, 30/3/98; cols. 117–118.]
I should be grateful, therefore, if the noble Baroness could point to the provisions which make it possible for the Lord Advocate to act in the manner prescribed in Clause 12.
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Like other noble Lords, I have struggled to get to grips with the technicalities of the Bill, but perhaps not with the success of some other noble Lords. I tried to approach it from the point of view of what it will mean to the ordinary taxpayer and contributor. I shall continue with that struggle in Committee.
5.37 p.m.
Lord Skelmersdale: My Lords, I regard myself as an erratic these days on social security matters. I might even be described as a "dilettante", and it is noticeable that I am the only Member of your Lordships' House speaking today who is very firmly on the Back Benches. That said, I believe it would have been reasonable for the noble Baroness to have opened by saying that this is a very complicated Bill with two very simple purposes; namely, to pass the operational functions of collecting and recording National Insurance contributions from the Contributions Agency to the Inland Revenue, and to allow the Inland Revenue to deal with SERPS, statutory sick pay, statutory maternity pay and, of course, their appeals, rather than the Secretary of State. My noble friend Lady Anelay has just "zeroed in" on matters concerning appeals and I shall not go any further than that.
This change results in the Inland Revenue holding the National Insurance Fund, from which contributory benefits are paid. In a nutshell, we no longer have NICS but NICIRS. This obviously makes logistical sense. For many years, the Inland Revenue has had the responsibility of being agent for the Department of Social Security for collecting the vast proportion of money going into the fund, both from employers on a monthly basis and employees on a weekly or monthly basis, and the self-employed on an annual basis. These three amount to well over 90 per cent.—I think that the notes say 94 per cent., if memory serves me right—of the total sums going into the fund. The rest is made up of Treasury top-ups, as in most years the Treasury has to subsidise the fund because incomings and outgoings do not match, and of voluntary contributions, which are collected by the Secretary of State.
So far so good, but being a dilettante, as I said at the beginning, I was not invited to the meeting which the noble Baroness so generously held and therefore my questions may be a little more lengthy and detailed than they would otherwise have been. However, I certainly do not expect the noble Baroness to answer them today. I shall be happy to receive a letter before Committee stage.
To my mind the Bill gives rise to a number of questions, but, first, I wish to give half a cheer to the Minister and her department. Between them they have provided a document on the Bill that I have never seen before entitled Explanatory Notes. Other interested parties and I—this is clear from the speeches we have heard—are grateful for that document. I assume, though, that that is all we shall get and that it replaces the more normal Notes on Clauses. If I am right, I am afraid that I shall contribute to a rather longer Committee stage than would otherwise be the case, especially in regard to the schedules.

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I take Schedule 1 as an example. Obviously it is right that the occupational pension schemes (contracting out) regulations 1996 S.I. Number 1996/1172 be transferred. I confess that I have had no time to check up on this, but why, oh why, is not the whole set of regulations transferred? Why does the Secretary of State need to hang on to Regulations 23 and 61? There must be a reason, but is it right when other regulations are transferred lock, stock and barrel? The Minister would be right to criticise me for this Committee stage point and ignore it when she replies to the debate, as I have said. She would be quite wrong, though, to fail to answer my next question.
I join my noble friend Lord Higgins in asking why is there no financial memorandum attached to, rather than separated from, the Bill? Is the noble Baroness—I hope not—trying to disguise the fact that fewer civil servants will be required, and that BG Plc (that is, the British Government Plc, not British Gas) will save money as a result, but, as my noble friend Lord Higgins pointed out, not much and not yet? More generally, will everyone who receives the Bill automatically receive also the accompanying notes? After all, as my noble friend also pointed out, anyone reading the Bill needs the financial memorandum at the very least. That, of course, is not attached to the Bill itself.
My next point is, what price the fund? Government Ministers of all persuasions have defended the separation of national insurance contributions and tax from 1948 onwards as being for two entirely different purposes. One of the lines of defence used was that they were administered by two entirely separate government departments. This defence disappears once this Bill becomes operative. I must confess I always thought that the argument was rather opaque, not to say threadbare, but there you are. To a great extent junior Ministers must do as they are told!
However, is this Bill the thin edge of the wedge? The noble Lord, Lord Goodhart, made the point that the general public and the taxpayer have always believed NICs to be another form of tax. Now that we have NICIRS, as I said, they will be even more convinced of that. Shall we soon see a Bill which seeks to do away with the National Insurance Fund altogether? If so, there is nothing to stop all benefits being means tested rather than only some non-contributory benefits, as is the case at the moment. My noble friend Lord Higgins waxes lyrical on this subject—indeed he is muttering in my ear as I speak—and therefore I shall leave it to him to carry this particular flag as and when he wishes to do so, as I have no doubt that he will.
My interest is current. The Inland Revenue is among the minnows of government departments. I know the noble Baroness said that technically it is not a government department, but to all intents and purposes it is. Indeed I seem to remember that it is an agency looked after by the Treasury. Will future legislation regarding the fund be included in the Finance Acts? If so, this House will be yet again disadvantaged in that we shall be able to discuss it but not to amend it. We shall not be able to spend many happy hours—as I once did at the Dispatch Box opposite—seeking to amend,
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for example, a clause on the Treasury supplement. Will these matters come under the heading of money Bills? Will they be given the Speaker's certificate, and so on? Who will conduct the appeals with regard to Clauses 10 to 13 of the Bill? Will it be the Commissioners for Inland Revenue, or will the existing arrangements continue? Despite the fact that my noble friend mentioned this matter, it is unclear to me at least.
I think I have probably spoken long enough for now. It would be unfair to subject the Minister to any more questions on what is, after all, a Second Reading debate. However, I wish to congratulate the Minister and the Government on Clause 23 which concerns Northern Ireland, as the Minister mentioned in her opening speech. Northern Ireland has always been determined as far as humanly possible to have its own statute book. As far as I can see, that position is maintained by the clause. I finish as I began by giving this Bill half a cheer.
5.45 p.m.
Baroness Hollis of Heigham: My Lords, I am sorry that the noble Lord finished with half a cheer as I was about to thank the House for the three-quarter cheers from the other speakers in the debate. I thought that was extremely begrudging of the noble Lord, Lord Skelmersdale. I can think only that it has something to do with the supplemental section on Northern Ireland not being in Part I but only in Part III. But perhaps I am being unreasonable.
I am delighted that apart from the noble Lord, Lord Skelmersdale, the Bill has been so broadly and warmly welcomed. I am grateful in particular for the response to the Explanatory Notes and to the briefing meetings which I am sorry the noble Lord, Lord Skelmersdale, could not attend as so many of the points he raised today could perhaps have been usefully raised at those meetings. However, as I said, we shall offer another meeting before Committee stage of which I hope the noble Lord will be able to take advantage as I accept that these are difficult and technical issues. It often helps to understand the conceptual thinking behind the measure. The officials may be able to help us all with that, including myself. I look forward to seeing the noble Lord, Lord Skelmersdale, at the meeting.
The discussion has ranged from the contribution principle to the millennium bug. I shall do my best to answer the major points, but your Lordships will understand that as about 30 or 40 points were raised in the course of this short debate, some of them are perhaps better addressed in correspondence.
First, I shall deal with some of the points raised by the noble Lord, Lord Higgins. The first point he made was, I believe, also mentioned by the noble Lord, Lord Skelmersdale, and the noble Baroness, Lady Anelay. I refer to the ratio of the high cost to low savings in this Bill. The noble Lord said that his colleague Sir George Young rejected such a Bill on a previous occasion. That was because Sir George Young was, I think, motivated by what was efficient in the name of government. That clearly was the ratio of costs to savings.

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However, that is not why we proposed this Bill. We accept that, at least to start with, there are primarily more costs than savings—to answer the point made by the noble Baroness, Lady Anelay—because much of the expenditure is investment in staff training which, as she rightly identified, is crucial to the activity. Therefore we may spend £16 million or £17 million for the first couple of years and then subsequent savings may be of the order of £3 million or £4 million. There is a high front end loaded cost in staff training. We think that is right.
The purpose of the Bill, as I have tried to make clear, is to ensure that we produce an integrated service for employers and employees. I do not know why Sir George Young rejected the measure other than on cost grounds. I think we all accept that national insurance is different from taxation. Clearly national insurance is not graduated, whereas taxation is. National insurance is concerned only with earnings whereas taxation is concerned with income. There are no reliefs in national insurance whereas there are reliefs in taxation. One pays at the lower earnings level with regard to national insurance, whereas one pays annually and cumulatively with regard to taxation. I think we accept that those are different structures. We are not at this stage in this Bill proposing integration of those structures.
But nonetheless it remains the case that 94 per cent. of CA money is collected by the Inland Revenue. The situation will become more efficient and easier for employers and employees and the self-employed if we tackle this matter in the way that we propose. It is the quality of service that we seek to drive forward in this Bill rather than immediate savings. Had Sir George Young perhaps had a wider remit at the appropriate time, he too might have decided that it was worth proceeding with this measure. The warmth of welcome that the Bill has received today suggests that perhaps only five years on Sir George Young might have changed his mind.
The second substantive point raised by the noble Lord, Lord Higgins, which also occupied the attention of the noble Lord, Lord Goodhart, regarded the more general debate and is a proper Second Reading debate issue. It related to the contributory principle and NICs, and whether NICs were effectively becoming a tax. There seemed to be a suggestion that the role of the contributory principle was being eaten into by means testing. The idea was that under the contributory principle, there was less and less of a relationship between what was paid into the system and what people got out of it, and therefore effectively this was a hypothecated tax and we should, as it were, say that the emperor is wearing no clothes. I believe that was the argument, if I may bring together the position of both noble Lords.
That is not a fair description. It is true that there has been some growth in means testing at the expense of the contributory principle. Probably the biggest single incursion into means testing was conducted by the previous government when they reduced the contributory basis of unemployment benefit from two years to six months and sent a whole host of people,
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including young single people, onto means-tested benefit. That was one of the biggest incursions into the contributory principle, and with the least justification.
What we are doing in the two areas that the noble Lord identified as regards widows' benefit is extending for the first time the contributory principle to widowers as well, which I should have thought the noble Lord would have recognised as an extension of the contributory principle, and by relating incapacity benefit more clearly to the contributory conditions. At present people can receive IB 20 years after paying in a contributory condition. Those people might have been unemployed for all the intervening time. By relating it more closely, we are defending the integrity of the contribution principle.
The second point I wish to make is that we accept, and always have, that there must be limitations on the contributory principle, simply because it privileges people who have the luxury, as it were, of a 35 or 40-hour a week job extending over 40 years. That means that women, part-time workers, those who are in and out of employment and those who have a disability tend to have a less adequate income under the contributory principle than would otherwise be the case and it must be supplemented regularly by a means-tested benefit.
Therefore there is no single answer as to the right nature of benefit support. The contributory principle is one answer, particularly for pensions; the means testing of benefit is another, also for particular groups who may be in and out of the labour market who have special needs, family needs and so on which cannot be covered by a contributory benefit; but there are also category benefits such as child benefit.
A main reason why contributory benefits have fallen as a proportion of social security expenditure has been partly the growth of means-tested benefits, but means-tested benefits of a particular sort. Since the late 1960s and early 1970s the three major benefits that we have seen growing, all of which are necessarily income-related, have been housing benefit, in-work benefits, and the "citizen's right" benefits of disabled people. The first two are by definition income-related and the third is a category benefit. That is one of the main reasons that the amount of expenditure in the social security system, which is contribution-linked, has fallen. It is not just about the increase in means-tested benefits, although that has also been true. It is that different types of benefit have grown up for which either an income test or alternatively a category test is relevant. I do not believe that anyone in this House thinks that that is an inappropriate way forward. It is clearly not right to have a benefit such as housing benefit on a contributory basis which takes no account of housing cost and housing need.
I therefore hope that noble Lords do not continue to insist that the Government are getting rid of a contributory principle and that as a result we might just as well accept that national insurance is a hypothecated tax. The picture of social security is much wider and more complicated than that. We should accept that different contingencies are rightly entitled to different responses. Some benefits that are attached to the labour

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market should be on a contributory basis; others associated with special needs may be category or income-related. What is important is that we match the right benefit with the right sort of situation. Those are some of the discussions and debates that we shall have over the next year or two.
The third issue raised by the noble Lord, Lord Higgins, related to the lower earnings limit and entitlement. It will be a matter for the Chancellor to determine when we bring forward our proposals. There are many approaches that he could take. He could do it by crediting people in; by deeming that they have paid a contribution; or by modelling it on home responsibility payments. The undertaking has been given that people who move from the 65 to the 81–83 personal tax level will not thereby lose their entitlement to benefit. These discussions are ongoing and the Chancellor will make his determination in due course.
The noble Lord, Lord Higgins, and the noble Baroness, Lady Anelay, were worried about the weight being borne by the IT system in this change, and in particular the question of the millennium bug. Like the noble Baroness, I am an anorak or a windcheater nerd when it comes to IT systems. We are transferring the existing CA business, and with it the existing IT system, over to the Inland Revenue. I am told that the only main change will be the heading on the stationery—it will no longer read "CA" or "DSS", but "IR". In other words, the systems go over as they currently stand. Therefore there will be a very limited impact on the IT systems. I agree with the noble Baroness that if we were to see a repetition of the NIRS experience, it would be extremely worrying. I am assured that NIRS is not relevant to this consideration. As I said, there will be a limited impact; we have well-developed programmes within IR and the amount of IT change that is required is trivial because the system will be taken over as a package in its existing form.
The noble Lord, Lord Higgins, and the noble Baroness, Lady Anelay, raised an interlocking set of questions about penalties, privacy and visiting powers. It is certainly—
Lord Higgins: My Lords, I am mystified by the expression, "visiting powers", which can probably be more correctly described as "carrying out a raid".
Baroness Hollis of Heigham: My Lords, that was obviously a joke by the noble Lord and I receive it in that way. There is no indication of knocking down doors at 4 a.m. I should like to accuse him of seeing too many "cops and robbers" films on TV, but that would be to impugn the work and attention that he gives to this House. No, any such arrangements will be made at a reasonable time and in co-operation with those involved. Certainly the financial penalties could increase. But they will change from being criminal to civil penalties.
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The private staff about whom the noble Lord was worried will be under the same duties of confidentiality as the Civil Service. This is a path well-trodden by the previous government when they originally constructed the EDS contract, and already well-trodden by local authorities, which have arrangements with private companies to handle quite sensitive information on issues such as housing benefit.
As regards privacy of information, we are not creating any new cross-departmental flow of information, merely protecting the right of the current flow of information.
As for the visiting powers, I am told that they go back 50 years, to 1946. It is estimated that there are some half a dozen or so such cases a year, under a warrant. I understand that visits are always arranged to take place at a reasonable time and in a civilised manner. If the noble Lord has any evidence to the contrary, we should like to know. As I understand matters, there is no substantive change in any of those fields.
The noble Lord, Lord Goodhart, gave his support and pressed us particularly on national insurance as a proper scheme. I have tried to answer those points more generally. The noble Lord and the noble Baroness, Lady Anelay, raised questions about appeals and the noble Baroness referred particularly to appeals on pension matters. She asked why they should go before the unified appeals tribunal rather than to the tax appeal commissioners, and how many there might be.
Appeals on pension matters are expected to involve relatively complex, specialised issues which we do not believe are appropriate to send to the general commissioners as a lay tribunal, but which are equally not appropriate to send to the special commissioners, who, while legally qualified, do not necessarily have any pensions expertise. By contrast, the unified appeals tribunals can be constituted, and pensions appeals are intended to be constituted, to include a member with personal experience in pensions. I hope that that provides the explanation sought by the noble Baroness.
The noble Lord, Lord Skelmersdale, raised a number of detailed points. He referred to the delays. He asked why there were no notes on clauses. The explanatory notes replaced those and that was regarded as a welcome improvement. With regard to the financial schedule, which was also referred to by the noble Lord, Lord Higgins, as I understand it, the change came from the Modernisation Committee, possibly from another place, and has already been applied to other Bills. I am receiving a nod from the Table, so I believe my information is correct. However, if noble Lords are concerned about this matter, I am more than willing to consider it to ensure that, if necessary, we have belt-and-braces information. It is a legitimate and reasonable concern to raise.
The questions of the noble Lord, Lord Skelmersdale, were detailed and I should prefer to answer them in writing; and, if he is not happy with that, to raise them at the pre-Committee meeting with officials that we seek to have.
I hope I have addressed the major points raised with regard to policy issues in the Bill. I thank noble Lords for welcoming the Bill. I hope that the next meeting

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with officials to tease out what are inevitably technical issues—but which, I accept, have a real impact on how people live and organise their working lives—will be helpful.
On Question, Bill read a second time and committed to a Committee of the Whole House.

Central America: Hurricane
6.1 p.m.
Viscount Montgomery of Alamein Viscount Montgomery of Alamein rose to ask Her Majesty's Government what progress has been made towards alleviating the devastation caused by the recent hurricane in Central America.
The noble Viscount said: My Lords, it is a great pleasure to welcome the noble Baroness, Lady Amos, who is, I believe, to answer a debate for the first time from the Front Bench as a Minister at the Department for International Development. As this is an Unstarred Question, perhaps I may thank all those who are to speak in the debate on this important subject. We have considered it before, in a small amount of detail, but it is good that we have the opportunity to look at it again at this crucial time.
As your Lordships know, in the 25 years following 1965 this small group of countries suffered a great deal from internal and external conflicts. But over the past 10 years we have seen the restoration of democracy and, as a result, peace has returned to the region, which is so important for the reconstruction of their economies. When all seemed to be going well, they were suddenly struck by this catastrophic natural disaster. It is difficult for us to envisage the degree of the catastrophe. When we last discussed this subject, we heard from the noble Baroness some detail of what had happened. Millions of people were left homeless; thousands of kilometres of road were destroyed; and hundreds of bridges collapsed. The infrastructure of the whole area, particularly of Nicaragua and Honduras, has effectively been destroyed, E1 Salvador and Guatemala having suffered to a lesser extent. Honduras, in particular, has suffered intense devastation.
When the noble Baroness previously spoke on this subject she indicated that Her Majesty's Government had made a rapid response. It is particularly opportune to mention the contribution made by the Royal Navy, which was most effective and clearly much appreciated by all concerned. But, however generous the response of Her Majesty's Government was at the time, clearly it was not enough and probably never could be enough. The situation is one of major devastation from which it may take many years to recover.
It is interesting to hear what has happened subsequently. The Department for International Development has sent a mission to the area and we look forward to hearing about what they find out and what more can be done.
In the short time at my disposal, I should like to refer to two issues. All four countries, particularly Honduras and Nicaragua, depend on agriculture, and specifically
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on certain crops. Agriculture is what creates their export trade. Seventy per cent. of the export earnings of Honduras and Nicaragua is generated from bananas, coffee and sugar. These crops have been completely wiped out.
Bananas from Latin America are currently penalised under EU regulations, which are in total contravention of the regulations and rules laid out by the newly formed World Trade Organisation. I know that there are reasons for this. The European countries wish to protect their former colonial, and subsequently dependent, territories. If we are to reconstruct the economies of these four countries, some initiative will have to be taken to relieve the situation and to create a level playing field so that they can recover their export earnings. Unless there are export earnings, there is no economic activity. These are not countries which will be able to generate vast industrial enterprises. This is an important matter and I believe that Her Majesty's Government should reconsider with regard to the WTO and the position on bananas.
Looking further ahead, another area of concern is the question of debt relief. As I said, if there are no exports, there are no earnings and there is no economic activity. There is at present a moratorium on the debt. While that is in place, it is vital that the international agencies—the World Bank, the Inter-American Development Bank, the IMF and other institutions—should consider some form of exoneration of the debt and a complete reconstruction. It needs to be done on an international level. Unless that happens, these countries can never recover their position and participate in the world to which they were beginning to become accustomed by virtue of their return to democracy and their wish to participate in the economy of the region. There seems to be an opportunity now for Her Majesty's Government to take a lead within the EU in pressing Washington and the international organisations to take positive action on this matter.
We may not be able to consider these two issues fully tonight but I hope that the noble Baroness will be able to say something about them and that we shall be able to return to them at a later stage. Recovery of the area will take a long time.
I had the good fortune many years ago to live in Central America and I know all the countries concerned. They are occupied by hard-working, dynamic people who respond to initiatives. They are immensely friendly people and these are delightful countries. They deserve our support and assistance and I hope that we can give it to them in the way they have come to expect.
6.8 p.m.
Lord Ponsonby of Shulbrede: My Lords, I begin by thanking the noble Viscount, Lord Montgomery of Alamein. This is an important subject and it is right that the House should have the opportunity to debate the Government's response to Hurricane Mitch. I should correct the noble Viscount. The noble Baroness, Lady Amos, is rarely off her feet. She has taken this House by storm in the past few weeks, having responded to a number of debates.

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I wish to give a personal example relating to this matter. On the 13th November my family received an e-mail from a friend who married a Nicaraguan and who farms in Nicaragua. If your Lordships will allow me, I shall read from the e-mail:
"Thursday two weeks ago (it hardly seems like it), the river rose up to the bridge for the third time in two days, in the morning we noticed large cracks appearing in the soil between the reinforced wall of the gully and the house and at midday that whole section, downriver of the bridge, went. At around 1 o'clock, the first of the big trees also went, at which point it was obviously time to evacuate the children. When I got back several large trees had hit the bridge head on and so I decided to get the most valuable things out. I was still trying to get the computer unplugged when I felt the wave hit the house and presume that the tremor I felt was a combination of that and the bridge finally going down. Almost all the damage was done by that one wave. In one fell swoop it took everything loose from the house and from my drying shed outside the workshop. The water on the other side of the gully swept over our nursery and vegetable area taking everything with it, (where the vegetable banks were, we now have deposits of up to 2 feet of alluvial sand).
"We've lost more than 95% of our nursery plants, 100% of our vegetables and herbs and around one third of our total infrastructure—perhaps $8–10,000 worth in all"—
and that is in the context of people who earn only a couple of hundred dollars a year.
"But all that is recoverable—the irreparable damage is what I find most difficult to come to terms with, it is the amount of land which has just been torn away and rendered useless. The geography has completely changed—you wouldn't believe it".
The writer lists the seeds and help that he hopes to receive from charities in England to replant his farm. It is worth making the point that this friend of my family was not in the worst hit area. There were no deaths. However, in certain areas there was even worse devastation than that described in this correspondence.
I echo the congratulations of the noble Viscount, Lord Montgomery of Alamein. The swiftness of the Government's response has been referred to by several of the NGOs to which I have spoken in the past day or so. There has been little or no history of bilateral aid between this country and the countries of Central America. I think that I am right in saying that aid programmes only started with the incoming Labour Government, so they ought to be congratulated in that respect.
I understand that the aid will mainly go through the UN agencies and the Pan-American health organisation. In the past the original idea was that the aid—it was about £6 million over a two-year programme—would go towards institution building. My first question to the Minister is this. Am I right in assuming that the £6 million or so will now all go into post-Hurricane Mitch reconstruction?
The Government gave a full Answer to a Written Question in the Official Report, Commons, on 3rd December. They assessed the disaster and the DfID's own humanitarian assistance and forward strategy. However, I have three further questions arising from the points made by the Government. I think we would all accept that the region needs long term commitment, not simply to bring it back to its previous parlous state but to try to build something better in order directly to help poor people. To do that, help is needed
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for the civil society and not just the working government of the day. While there will never be enough money, will the Minister be ruthless in ensuring that good policies and practices are properly targeted at government and civil society level and at the NGOs? Hard choices need to be made, because there will never be enough money for all the work that is required.
My second point, which relates to cancellation of debt, was also raised by the noble Viscount, Lord Montgomery of Alamein. The Government are to be congratulated on their initiative on a debt moratorium. Can the Minister tell me whether debt relief will be on the agenda of the EU summit in June, when I believe that it is to talk about Latin American issues?
My third point is on transparency. I hesitate to use that word since it tends to be over-used these days. This point was put to me by some of my friends and colleagues in the NGOs. With funds coming from multilateral agencies, frustration is felt by the NGOs and the people receiving the aid that the decision-making processes are not understood. The Government could have considerable influence in opening up that process.
In conclusion, I echo the words of the noble Viscount, Lord Montgomery. Hurricane Mitch has caused devastation which few of us can imagine in countries which were already among the poorest in the world. I wish to join with the noble Viscount in his generous congratulations on the Government's response.
6.15 p.m.
Baroness Hooper: My Lords, as a result of Hurricane Mitch, thousands have died, hundreds of thousands are homeless and have lost everything they owned; crops have been ruined; industry destroyed; communications interrupted; and entire communities laid waste. The example cited by the noble Lord, Lord Ponsonby, brings the matter home to us all.
However, apart from the damage to property and infrastructure in the countries concerned, threats of famine and disease now hang over the whole region. Cholera, typhoid and malaria are endemic to Central America. Moreover, with the breakdown of sanitation and public health, there is a real prospect of starvation and major epidemics. That is very much an ongoing issue.
The depths and extent of the tragedy have been acknowledged in this short debate. I believe that the media have played an important and responsible role. They have given fair coverage to the event. Of the television programmes I have managed to watch, the balance and real effort to raise awareness in terms of general news coverage and specific programmes have been exemplary. But we must move on. The important factor now is to ensure that the ongoing consequences—they will affect the whole region but in particular Honduras, Nicaragua and E1 Salvador—are remembered and that we do not forget those who are suffering, as international events inevitably move on. I am certain that my noble friend Lord Montgomery will ensure that that is so so far as concerns this House and the Government. I know that the Minister and her department intend to keep a close watching brief.

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Some further acknowledgement of efforts are in order. There has been a huge response from the Government, as has been said. I underline the comments already made and thank the Government for their swift response, with emergency aid and support given almost instantaneously. I support also the comments made about ensuring that the Government continue to act to relieve the national debt in the countries concerned. That is essential for their long term future.
As regards the European Union effort, I should like to see the Government taking a firm lead in the action taking place in Central America, in particular in relation to the relief of the national debt. I should also be interested to hear the results of the report of the special United Kingdom mission which went to the region.
As has already been done, I acknowledge the efforts of the non-governmental organisations, including those of some of the small organisations. I am very familiar—as is my noble friend—with the bilateral organisations such as the Central American Society, which is co-ordinating efforts with the Central American British Chamber of Commerce, as well as with the more structured approach of Oxfam, the Red Cross, CAFOD and many others. Their involvement is absolutely essential because of their networks and abilities—subject to all the infrastructure problems that have been mentioned—to get aid to where it is most needed. We all acknowledge the enormous and important role that those organisations have played.
There is another group, which perhaps is not often recognised; that is, the private sector. Its response should also be acknowledged. I did some research via the corporate members of Canning House and the Hispanic and Luso Brazilian Council, of which I am currently the president. The pharmaceutical companies, such as Zeneca, Glaxo Wellcome and SmithKline Beecham, made an immediate response. I shall not go into all the detail and the statistics. There were instant shipments of medicines, vaccines and medical teams to the area. That has been very much welcomed. It is important to acknowledge that effort in the hope that it will be on going.
Finally, I make a very special plea. I was in Honduras at the end of January of this year at the inauguration of the new president. In the course of my few days there I visited a centre called Zamorano. It is a unique centre for agricultural research and training, which covers the whole of Latin America. There are students from that area. It has a very wide international remit with students from all over the world, including from this country.
I communicated with the director of the centre to find out how it had survived the tragedy. He reported that the damage was not as bad as it might have been, but indicated that, nevertheless, in the near future the life-threatening immediate danger will give way to serious, longer-term problems relating to the extensive destruction of food crops that were maturing; the death of hundreds of thousands of farm animals; and the literal washing away of thousands of businesses and jobs involved in the agriculture and agri-business area. As they begin to rebuild their lives, the farmers and businesses will lack the basic inputs which they need to
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be productive again. Therefore, agriculture more than ever is the key to the development and even survival of these societies. Without productivity in rural areas, these countries will be unable to feed themselves when foreign aid organisations move on to the next emergency, as may well happen.
In that context Zamorano is particularly well-prepared in terms of its human resources, experience and infrastructure, to lead significant, sustained and effective actions aimed at restoring rural economies and productivity. So in making this special plea, I hope that the Government—if they are providing aid in relation to agricultural issues and towards the long-term training of agricultural workers—will consider this centre, which is world renowned, and that it will be a recipient of government activity. I look forward to hearing from the noble Baroness as to the progress being made.
6.24 p.m.
Lord Rea: My Lords, practically all the questions that I had thought of have now been asked by the noble Baroness and noble Lords who have already spoken. My reason for speaking in this Unstarred Question is because I have visited Central America and the Caribbean three times, including Nicaragua and Guatemala on one occasion. Therefore, I have an interest in the area quite apart from a general interest in the humanitarian effort that has been put in after the disaster.
I was in Cuba at the end of September at the eastern end of the island in a small town called Baracoa, when hurricane George arrived. We were right in the eye of the hurricane. It was a very mild disturbance by the time it reached Cuba. It ranked number two in a scale of five and it was nothing like as fierce as hurricane Mitch, having spent most of its force on the Dominican Republic and Haiti. It was still quite an experience.
What struck me almost more than the strong wind was the torrential rain, which fell for most of the day at one inch an hour. I gather that that was the main cause of the devastation in Central America; namely, the torrential rain rather than the wind. I was very impressed by the precautions taken. All the hotel windows were criss-crossed with sellotape and so were the windows of public buildings, schools, clinics and hospitals. Villagers living right on the coast moved inland for a day or two while the hurricane blew over. Town dwellers were not allowed to travel. A day or two after the hurricane trees were quickly cut up and removed from roads. Work on re-erecting electric pylons and telephone cables that had fallen was quickly under way, with the aid of the army in some cases. I understand that in Belize anticipatory action was also quite effective in minimising the worst effects of hurricane Mitch. I am sure that the noble Viscount, Lord Waverley, with his connections in Belize, will be telling us about it.
While reconstruction and rehabilitation is now beginning in Nicaragua and Honduras, it would be very good to know whether the next hurricane is being borne in mind. Are bridges going to be built more strongly so they can withstand being hit by tree trunks? Are proper surveys to be done to try to ensure that land for housing

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will not be washed away? That may be impossible because there may not be any land available which is safe for poor people. It will be interesting to know whether there is any information on this subject.
Like the noble Baroness, Lady Hooper, I ask my noble friend to give a progress report as to how far and well reconstruction is taking place. It is early days yet. Is there any hope that the opportunity can be used—as my noble friend Lord Ponsonby asked—to improve on the infrastructure that was there previously? All the countries affected were desperately poor before the hurricane struck. Can the relief funds that are available be used in such a way that not only farmers—and this is the point made by the noble Baroness, Lady Hooper—be given grants and loans to buy seed, tools etc. that they need to begin production again, but can roads, co-operative marketing centres and processing plants be developed or redeveloped on a scale which will help the areas concerned to climb out of poverty?
Obviously, all this will have to be done in conjunction with the governments concerned. As my noble friend said, I hope that local civil society and local communities will be very much involved. Here both local and international NGOs will be able to play an enormous part.
In conclusion, I wish to ask my noble friend for up-to-date figures. Can she give the total amount of our outright aid; low interest rate or interest free loans; the amount of debt which has already been cancelled, both official and commercial; and the amount of the moratoria on debt which have already been agreed? Our contribution needs to be stated in relation to the total provided by the whole world. If it is not possible for her to produce those figures tonight, it would be helpful if she could write to me.
We have read that there have been some outbreaks of cholera. How is the emergency public health rescue operation being carried out? There must have been a great deal of damage to the already poor health infrastructure which existed. Can my noble friend describe how the disaster has affected the health of the people and what has been done to sustain and improve the situation? Yesterday, the Paris Club discussed cancellation of debt, but there is still a long way to go. I am sure that my noble friend will comment on that, so I shall hand over to other noble Lords and then to her.
6.32 p.m.
Viscount Waverley: My Lords, following all the congratulatory messages tonight, I fear that I might be inviting some criticism. However, I shall continue with a view to being realistic and constructive for the future.
Of course, I endorse the broad spirit of all that has been said tonight. But as the question of aid with ensuing issues has been well covered, I wish to go down a different road and ask whether the Government's reaction to this disaster was the right one; what lessons can be learnt; and what must we do to prepare ourselves for the future?
However, perhaps I may make one quick point before doing so. I believe that this House, through the Minister, should show its dissatisfaction with the United States
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for attempting to hijack WTO discussions with the European Union. The United States is attempting to resolve the EU banana regime in advance of settlement procedures.
It is this type of hurricane disaster, which brings us together tonight, that requires sensitive understanding of the dire effects on the majority of banana smallholders in the Caribbean. Bananas are currently the only crop which can produce new fruit for export in reasonably short order. We must keep our markets open at preferential terms for hardship cases. I hope the Minister can give us an undertaking that the Government will not weaken in their resolve to protect those who all too often cannot fend for themselves.
This country's approach to Hurricane Mitch, with regret, was not totally satisfactory. I realise that the Government will wish to defend their position, but the reality is that the DFID's reaction to the disaster was wanting: Whitehall's bureaucratic maze was a severe hindrance; and with no government department wishing to take an immediate lead, the Treasury effectively said that no immediate funding would be forthcoming.
I say that all in the spirit of needing to get it right next time. It was a mercy that we had a training mission at that time in the region and so were able to assist Honduras and Nicaragua with ships, helicopters and soldiers. I believe that without their presence nobody would have been sent. But they were and must be congratulated on being able to implement defence diplomacy at its best.
Lord Ponsonby of Shulbrede: My Lords, I thank the noble Viscount for giving way. He seems to be accusing the Government of being somewhat tardy in their response. It might be appropriate to refer to CAFOD, one of the NGOs to which I spoke recently. It stated that after the first telephone call it received a donation of £95,000 to its work in the region. That was an immediate response. Not only did the Government have their own facilities in the region, but they were quick to fund other NGOs which also had facilities there.
Viscount Waverley: My Lords, this afternoon I attended a round table discussion where the message was somewhat different. At a later time I shall be delighted to discuss the issues with the noble Lord, but we must press on. I believe that there is a concern. We want the best for the future and therefore I shall continue. NGOs have a problem, but I can discuss the issue with the noble Lord at a later time. I thank him for his intervention.
I believe that without the presence of the training mission in the region nobody would have been sent from the military. But they were and they must be congratulated on being able to implement defence diplomacy at its best. The difficulties start arising when one realises that, although our ambassadors were requesting assistance via the Foreign and Commonwealth Office, the DFID, which is the leading Ministry for disaster relief, declined, for example, to request MoD assistance on the grounds that it might have to pay. The MoD, to its eternal credit, decided to take hold of the situation. But because its ships and men

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were not equipped for relief operations, save for the West Indies guard ship, and because no Whitehall department would authorise any expenditure, our servicemen were limited in what help they could provide. An immediate dispatch of essential and specialist stores and personnel might have made a significant difference to the relief operation.
I note that the deployment of the guard ship is to be reduced as a result of the reduction of warships under the recent Strategic Defence Review and so future support for disaster relief in the Caribbean will be less. Will the Minister confirm that?
Finally on this theme, although credit must be given to our regional ambassadors and defence attachés, is the Foreign and Commonwealth Office, through necessity, considering closing posts in both Honduras and Nicaragua? If so, will the Government reconsider that position?
On a different tack, I understand that today Central American Presidents will meet with international donors to discuss a massive injection of aid, with the Presidents also looking for trade benefits and immigration support from the United States. Will the governments contribute to that? If so, will the Minister comment on it? UN agencies estimate that it will cost 5.3 billion dollars just to repair the damage to infrastructure and housing in the region. I also understand that Nicaragua will be seeking fast-track approval to open US markets for its products. Ministers here might wish to keep a watch on that situation, as the United States may be about to contradict its Lomé concerns. On the question of debt, are European governments offering to suspend bilateral debt service payments to help Honduras and Nicaragua?
Briefly, what of the future? I believe that dramatic action is called for. I call on the Government to set up an inquiry to consider the implementation of an effective rapid response mechanism, and to consider such matters as whether disaster relief should be taken out of the hands of the DFID and given to the Foreign and Commonwealth Office, for which I believe there could be a strong case. Central America and, by extension, the Caribbean are susceptible to an annual catalogue of disasters and it is essential that we prepare ourselves for such calamities.
6.39 p.m.
Lord Redesdale: My Lords, I thank the noble Viscount for initiating this timely debate. It is timely as this week the international community will hold two meetings of vital importance to the future of Central America. The Paris Club of creditor nations held their regular monthly meeting in Paris a couple of days ago. On the agenda was an item to discuss debt relief for Central America. Also, the leaders of Nicaragua, Honduras, Guatemala and E1 Salvador will meet in Washington DC with international donors today and tomorrow at an emergency consultative group, hosted by the Inter-American Development Bank.
I have two questions for the Minister. What progress does the noble Baroness expect to come out of those meetings and what will be Britain's contribution? I want to focus on those points because I believe that many
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questions, as the noble Lord, Lord Ponsonby, has said, have been answered in a fabulous Written Answer in Commons Hansard for 3rd December. I fervently wish that that will be the level of answer for all Written Questions in the future.
Prior to Hurricane Mitch, the countries of Central America were already among the poorest nations in the western hemisphere. In 1997, 2.6 million Hondurans and 2.1 million Nicaraguans lived below the poverty line. That represents 50 per cent. and 47 per cent. of the countries' respective populations. In Guatemala, 53 per cent. of the population live on less than 1 dollar per day.
Flooding, high winds and mud slides in Nicaragua, Honduras, E1 Salvador and Guatemala have resulted in an estimated 25,000 dead and missing and over 2 million homeless.
Surveys by Oxfam International staff in the districts of Choluteca and Valle in Honduras reveal a dire situation. Displaced families are living in rudimentary shelters; food shortages prevail; and town and village water systems have been destroyed. Not only have people lost loved ones and homes, but many have lost their only sources of livelihood as well. An estimated 80 per cent, of the region's agricultural production has been lost, including food crops as well as valuable export commodities.
Modesta Ordanne, an Oxfam project partner in Choluteca, said,
"We have lost everything, the school, hospital, police station. The wells are filled with contaminated water and we need a pump to access the clean water that there is. Everything is dead, there's nothing green, it is like the vegetation has been burned".
Outbreaks of cholera, and other water-borne diseases resulting from contamination of food and water, have been reported in all four countries, and the death toll, as may be expected, may exceed the death toll caused by the hurricane itself.
If the reconstruction programme is to be equitable and sustainable, it must make rural development a priority. Reconstruction must not stop at the cities. In Nicaragua, for example, three-quarters of the poor live in rural areas. For those who have been displaced by the storm. the goal must not simply be a return to unsafe, crowded and marginal land, only for them to be swept away by the next storm. For the many farmers at risk of losing their land as a result of loan defaults, debt forgiveness by local banks will be necessary. Efforts are needed to protect those small landowning farmers from displacement and to open access to land and credit to those surviving on unsupportable lands. Environmental degradation, closely related to the poverty of the people—a major contributing factor in the devastation—must be reversed.
Clearly, achieving sustainable development, beyond merely restoring those countries to the pre-Mitch status quo, will take far more resources than any of the countries can provide themselves. The Government of Honduras have made preliminary estimates that recovery efforts may cost more than 2 billion dollars and take more than 20 years to complete. just to reach the development levels in existence prior to Hurricane Mitch.

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The long-term problems of these countries are, I believe, closely associated with their debt levels. Rather than focusing on the immediate problems of aid, which was so necessary after the hurricane, I would like to focus on the issues of debt.
Even before Hurricane Mitch, Honduras and Nicaragua were struggling under the weight of immense debt burdens. Their positions will be far worse now. At the end of April 1998, Nicaragua had a debt of over 6.1 billion dollars, with the highest per capita debt in the world, at 1300 dollars per person. Debt service payments of 254 million dollars in 1997 took over half of government revenue.
Debt service payments in Nicaragua were two-and-a-half times current expenditure in health and education combined, yet over half the population was living below the poverty line and two-fifths of poor children were malnourished. Half of those people are unable even to meet their daily food needs.
A similar situation could be found in Honduras. Honduras had a debt of 4.1 billion dollars at the end of 1997. Debt servicing of 410 million dollars represents a third of government revenue. At the same time, 40 per cent. of children below five years of age are malnourished.
Guatemala and El Salvador, whose debts are not as high as Nicaragua or Honduras when compared to exports, also are under the strain of debt payments. According to the World Bank, El Salvador paid approximately 314 million dollars to service its debt in 1996. Thus, debt relief for those countries would also be an important component of the recovery package.
Both Nicaragua and Honduras are among the 41 countries classified as heavily indebted poor countries (HIPC). The HIPC initiative is a World Bank/IMF framework, covering all categories of debt owed by poor country borrowers. It is intended to reduce debt to sustainable levels.
The HIPC framework was inadequate for Nicaragua and Honduras even before the hurricane. Under the best assumptions, neither Nicaragua nor Honduras would have received multilateral relief through HIPC until some time past the millennium. Nicaragua is not due to receive debt relief until the end of 2002 and Honduras is not set to receive assistance until at least 2004, if it qualifies at all.
One reason for delay is that countries have to comply with up to six years of IMF adjustment programmes before becoming eligible for HIPC relief. Nicaragua will have completed half of those programmes by the end of 1999. Honduras has yet to sign a new agreement with the IMF, which would allow it to enter the framework at all. Such programmes are unlikely to survive the economic shock of this catastrophe, and would need to be adapted to include human development concerns. Prior to Mitch, the IMF argued that Honduras might not be eligible for debt relief because its export revenues were high enough to cover debt service. That point was disputed by the Honduran Government, although it is clearly irrelevant now.
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Rather than read out too many more statistics—I believe they have been covered—I would ask the Minister to give a brief oversight of how the meetings have progressed and to press the Government to make sure, in their membership of the IMF/World Bank and in their representations to the Inter-American Development Bank, that they push as hard as possible in the area of debt relief.
The levels of devastation from hurricane Mitch could consign these countries to years of poverty and misery, with massive reversals in human development. An unprecedented disaster deserves unprecedented support, not just in the months ahead, but in the years ahead. The emergency consultative group and the Paris Club meetings present the international community with an opportunity to marshal the political will to deliver a package that matches the significant human needs.
I want to add just one point, which is quite frightening and should be borne in mind in relation to disaster relief. It came from the newspapers recently. Dr. Willoughby, an expert of the National Hurricane Centre in Miami, discussed what had made Hurricane Mitch so devastating. It was not the wind-speed factor, but the amount of rain that fell. That point was raised by the noble Lord, Lord Rea. The frightening factor is that he also predicts that those storms are not that unusual; indeed, the conditions that brought about Hurricane Mitch this year could prevail next year.
Before I sit down I should like to say that the work of the NGOs on the ground and the military personnel who were so quick to respond deserve the congratulations of this House.
Baroness Rawlings: My Lords, I too thank my noble friend Lord Montgomery, for initiating this debate today. It is most timely, with the Paris Club meeting having taken place yesterday and the Red Cross transition announcement also being made this week. It has been an interesting and constructive short debate on a subject which is vitally important as thousands of people's lives are still at risk. This evening I shall concentrate on only one of the countries that was devastated by Hurricane Mitch. Other noble Lords have already vividly covered the others.
The horror that struck Honduras with Hurricane Mitch is now nearly two months old. But it was not until 9th November that we eventually had a Statement from the Secretary of State. Britain's aid package was but the paltry sum of £750,000 to a country that is burdened with debt repayments of over £1 million a day. In 1996 it still had a debt of £3 billion, more even than its annual GDP. That is clearly unsustainable even in normal circumstances, which we are not discussing today.
I should like to cover just three points in the short time we have available today: first, humanitarian relief; secondly, the horrific statistics, many of which have been mentioned by my noble friend Lady Hooper; and, thirdly, debt relief, which was also mentioned by most noble Lords today. In relation to humanitarian relief the British Red Cross, in whose gallant activities I have worked for over 30 years, sent three emergency flights in November with water containers, purification tablets,

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cooksets, disinfectant, and backpack sprayers. That is but a start. So far the emergency aid has been remarkable considering the relatively small funds available.
The Red Cross has also had assessment teams in place in the area. They reported back to Geneva only this week. They have already been debriefed and we are about to receive details of what is now most urgently needed for energy relief and reconstruction. The directors will lay out the plans and budgetary needs. It is important that there is worldwide co-ordination with only one appeal document. The federation has a website on the Internet which we all hope will help the appeal.
I wish to ask the noble Baroness, Lady Amos, three questions. First, did the DfID team of assessors co-ordinate its activities with those of the Red Cross? Secondly, what allocation of the £3 million pledged by the Secretary of State during this transitional period for further humanitarian assistance has gone to the Red Cross? Thirdly, will there be additional funds?
The people of Honduras are so weary with disasters that they would set their lives on any chance to mend it or be rid of it. The Minister for the Interior said:
"The catastrophe set them back 40 years".
It was only 10 years ago in 1988 that Hurricane Gilbert swept throughout the area leaving devastation in its path. There were many promises in its wake but none materialised. It is a mountainous country, three-quarters covered by pine forest. Ambitious zoning and development plans were supposed to give the country order, conserving crucial green areas in its hilly country traversed by rivers and strictly limiting precarious hillside development. Sadly, the plan was never implemented. Today, both we and they have an Augean task—seemingly impossible—to get it right this time. Unfortunately, those rivers were destructive rather than constructive.
My second point concerns the horrific toll of over 6,000 deaths, over 8,000 missing and over 2 million homeless and destitute in a population of only 5.7 million people. The real problems we face today are the epidemics that have sprung up because many cities were under water and mud for so long. Most of the epidemics are being spread by contaminated water. The doctors say that health conditions will probably get worse before they get better. According to health officials 20,000 people have cholera, 31,000 have malaria and 208,000 have diarrhoea. Surely we can do more to help this modern hazard.
That leads me to my third point which concerns debt relief and which has been mentioned by nearly all of your Lordships today. This debate is timely because the Paris Club of western creditors met only yesterday, as the noble Lord, Lord Redesdale, said. It concluded by granting a three-year moratorium on bilateral debt repayments for Honduras and Nicaragua, but Honduras is to go through the Paris Club rescheduling of debt. That means it will have to comply with a structural adjustment programme and that will not be easy. The people of Honduras had no Balshazzar's feast before and were probably one of the poorest nations in the western hemisphere, as was mentioned by the noble
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Lord, Lord Rea. In 1997, 2.6 million Hondurans lived below the poverty line. The country had a trade deficit of 91 million dollars and a current deficit of 309 million dollars.
Despite the UK's support for the World Bank Trust Fund, whereby one creditor merely helps another, the UK still fails to agree to cancel our unilateral debt. It is a minimal amount but the cancellation would send a huge signal to G7 and G8 leaders and multilateral institutions. France cancelled its unilateral debt, which is far larger than ours at £42 million. It is taking the lead on this issue. Why do the UK Government still fail to lead in our response?
The leaders of Nicaragua, Honduras, Guatemala and El Salvador are attending an emergency meeting in Washington with international donors today and tomorrow to discuss debt. I am afraid that Hurricane Mitch was not foreseen and was far worse than anyone could have envisaged. As Shakespeare's Antony said:
"We cannot call her winds and waters sighs and tears: they are greater storms and tempests than almanacs can report".
I fully support my noble friend Lord Montgomery, and look forward to the reply of the noble Baroness. I trust that she will press our views to the Secretary of State.
7 p.m.
Baroness Amos: My Lords, first, I thank the noble Viscount, Lord Montgomery of Alamein, for his kind words of welcome. I should like to assure your Lordships that it is correct to say that this is the first debate to which I have responded on the subject of international development, although your Lordships have been keeping me on my toes and very busy with Questions and a Statement. I should like to join with other noble Lords in thanking the noble Viscount, Lord Montgomery of Alamein, for initiating this very important debate. His commitment to Central America is well known in this House. I should like also to thank other noble Lords for participating in what has been a high level and expert debate. I should also like to thank your Lordships for having recognised the efforts made by the Government. In the time available, I may not be able to answer all the questions that have been raised this evening, but if I fail to do so, I undertake to write to noble Lords and give the detailed answers which are required.
Hurricane Mitch has been devastating for the poor countries of Central America, particularly Honduras and Nicaragua, but also Guatemala and E1 Salvador. Many of your Lordships have referred to the scale of the devastation, and I shall not go into the details again. However, I am sure that your Lordships will agree that despite frequently hearing these figures, it is extremely difficult to grasp the impact in terms of personal tragedy and the effect on the people in those countries.
The long-term effect on their economies is being carefully assessed, but those fragile economies have been severely knocked back. Before this latest disaster, the United Kingdom had decided, following the publication of the development assistance White Paper a year ago, that we should increase our modest assistance

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programme to Central American countries because they are so poor. That point was raised by my noble friend Lord Ponsonby. Recent events underscore the vulnerability of those countries and their need for international assistance. We shall be re-focusing our own plans for the region to take account of their post-hurricane needs.
I take issue with the noble Viscount, Lord Waverley, in that the DfID response was immediate; it was focused; and it was effective. In my Statement to your Lordships in early November, I made it clear that DfID immediately contacted NGOs who were already working in the countries concerned to offer support. We made money available to the Red Cross regional appeal. We contributed to the Pan-American Health Organisation for basic health care needs; we gave money to CAFOD and to Christian Aid and to NGO care.
In addition, we greatly valued the eye-witness reporting from our very small HMG posts in the countries concerned. They also helped us to facilitate elements of the emergency response; for example, by giving advice and help to NGOs and others. However, I must say to the noble Viscount that it is my view that the FCO does not have the right kind of expertise, experience or resources to take on the job of co-ordinating United Kingdom emergency aid. I think that the DfID did an excellent job in relation to these issues.
Our first priority after the hurricane was to provide emergency aid to save lives and to offer some immediate relief. Four Royal Navy ships in the region made a magnificent contribution, both in delivering emergency supplies and in search and rescue operations. They saved many lives, and governments in the region have expressed appreciation of their efforts. The noble Baroness, Lady Hooper, referred to the importance of partnership, and the Government welcome the partnership approach to immediate relief and, in particular, the work between NGOs, the private sector and Government.
Once the immediate life-saving phase of the operation ended, we began to focus on reconstruction. The United Kingdom plans to operate within the framework of a "transitional appeal" launched and co-ordinated by the United Nations. We will provide, in addition to the £1 million already spent on emergency relief in the region, over £3 million in further humanitarian assistance over the next six months to enable people, especially those who have been left completely destitute, to survive and cope. I hope that my noble friends Lord Ponsonby and Lord Rea will be reassured about that.
We are also working on plans to respond to longer-term needs. We have already planned to spend £6 million on Central America over the next two years. We are now re-focusing this to take account of reconstruction needs, and we are also taking forward the proposals on debt relief which the Chancellor announced on the 7th and 10th of November. I will come back to that later in my response. The £3 Million which we have allocated for the next six months will
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be spent on repairing and rehabilitating roads and small bridges in Honduras and also on a public works programme to benefit poor families by creating short-term local employment.
In Nicaragua we plan to work through UNICEF to repair the water and sanitation infrastructure and to restore primary health and education services for some of the communities affected by the hurricane. My noble friend Lord Rea and the noble Baroness, Lady Rawlings, also referred to health. We shall be supporting a regional health programme in this transitional humanitarian phase. There has been 60 per cent. damage to the health sector. Good research is already in place and that has given us a great deal of information about the spread of diseases and so on.
Early detection and targeted control interventions have already proved their value in the region through aborting potential epidemics. Continuing support for this will remain essential in the coming months. The diseases outlined are all endemic to the region. We recognise that the best work is being done by agencies which are already established in the region and are working on the ground. They are able to mobilise existing structures and systems and to draw on their local knowledge and on the trust which they have built up in the countries concerned.
The noble Baroness, Lady Hooper, talked about the next phase, and indeed this was also referred to by several speakers. The United Kingdom's contribution to the next phase has been put together on the recommendations of an expert mission from the DfID, which visited Honduras and Nicaragua at the end of November. In his opening remarks the noble Viscount, Lord Montgomery of Alamein, welcomed the mission and asked for particular information on its outcome.
It has reported that during the next few months, survivors of the hurricane will remain vulnerable in several ways because the lack of safe water and the disruption of health services increase the risk of disease. Food security will be threatened if seeds and other materials are not provided in time for the current planting season. If primary schooling is not restored, there is a risk that children may drop out permanently from education. The best way of delivering our assistance is by working within an overall international framework in order to target local communities, which are often very effective in mobilising self-help and reconstruction programmes.
In Honduras, however, there is a particular problem as regards access to poor communities because of disrupted roads and communications. This is why we shall be focusing on the rehabilitation of rural roads and bridges as part of our package of assistance. A consultant based in the region has started work today in consultation with the Ministry of Works in assessing priorities for assistance.
The noble Lord, Lord Redesdale, talked in particular about the need to rebuild the economies of the region. As has already been mentioned, the international donor community is meeting today and tomorrow in Washington, under the chairmanship of the Inter-American Development Bank to consider the

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medium and longer-term reconstruction needs of the region. The United Kingdom will be pressing for the reconstruction effort to be as well-co-ordinated and coherent as possible. We shall also be pressing for assistance to be delivered in a variety of ways which reflect needs: some assistance, for example, is best delivered through NGOs and organisations of civil society. The multilateral institutions, particularly the World Bank and the Inter-American Bank, are also likely to have a key role to play in pulling together the elements of the international reconstruction effort. As I have already mentioned, the UK's own bilateral contribution to longer-term reconstruction will be some £6 million over the next two years.
I said earlier that there are a number of statistics which have been mentioned by noble Lords in relation to the devastation. Honduras has lost 80 per cent. of its banana crop. The noble Viscount, Lord Montgomery, asked in particular about bananas and the noble Viscount, Lord Waverley, was also robust in his approach to the issue. The economic effect of Honduras losing 80 per cent. of its banana crop is that, in terms of replanting and the medium and long-term recovery of the economy, we need to look in particular at the agricultural sector. Those issues are being considered by the governments of the region as part of discussions on the planned international assistance effort.
On bananas in particular, our experience with Caribbean banana producers—and, indeed, with other developing countries whose economies depend on single crops—indicates the need for countries like Honduras, in the context of planned replanting of its banana crop, to consider the need to restructure the industry and also the scope for diversification into other crops.
On a separate matter, we are supporting the European Commission in seeking to resolve through established WTO dispute settlement procedures the current dispute between the European Union and the United States on EU support for ACP banana producers. We are also in the process of renegotiating the Lomé Convention in the context of a new round of WTO negotiations. Indeed, the two things are coming together.
The noble Baroness, Lady Hooper, mentioned the expertise of the agricultural centre which she recently visited. We shall, of course, bear that in mind when looking at the reconstruction effort.
We are also discussing with the European Community how its own assistance to the region may most effectively be spent. It has already made available about 15 million ecu through its Humanitarian Office for immediate relief needs. The Commission is now considering the establishment of a regional reconstruction fund, for which a preliminary figure of 150 million to 200 million ecus (over several years) has been suggested. We shall be keeping in close touch with the European Commission about the delivery of this assistance. We shall also be pressing the EC to ensure that its own regional reconstruction fund is consistent with the wider international reconstruction effort. The EC is taking part in the Washington meeting today.
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I believe that all noble Lords who participated in the debate mentioned debt relief. Debt relief will also be an important element in the economic reconstruction of these countries. It is quite clear that neither Honduras nor Nicaragua will be in a position to service their external debts for some time; a point made by the noble Baroness, Lady Rawlings. Funds are needed urgently for reconstruction. So we have been working with like-minded creditors in the Paris Club to ensure that there is support for the cancellation of bilateral debt repayments. Yesterday, as has already been mentioned, the Paris Club met and agreed to defer bilateral debt service payments for the next two to three years, with no late interest charges.
However, most of these countries' debts are owed to international financial institutions such as the Inter-American Development Bank, the Central American Bank for Economic Integration, the World Bank and the IMF. These funds could not simply be written off without causing enormous damage to the institutions themselves; and, of course, jeopardising the likely future needs of Central American Governments to borrow from the development banks.
Therefore, we have proposed two courses of action. I have to point out to noble Lords that we are taking the lead in these discussions. First, we propose that the international financial institutions look at ways of meeting some of the costs themselves; for example, by financing existing loans on more concessional terms. Secondly, we propose the establishment of a multilateral trust fund to help service those debts. The UK proposed that such a trust fund be set up shortly after the hurricane, and the World Bank board has now approved the establishment of such a fund. The UK is contributing £10 million and I am pleased to tell noble Lords that total pledges already stand at over 100 million dollars. When the German presidency of the European Union begins in January, I can confirm that Germany will be putting together its own debt initiative for the G8 summit in Cologne next year.
I hope that noble Lords will bear with me while I say a few words in conclusion. The UK has also proposed to the international financial institutions that the timetable for relief under the heavily indebted poor countries (HIPC) debt initiative be shortened to help countries affected by the hurricane. The HIPC initiative aims to reduce the external debt of heavily indebted poor countries to a sustainable level. I shall not go into the detail of how that impacts upon Nicaragua and Honduras, bearing in mind the time factor.
However, I should remind noble Lords that 1998 has been a particularly bad year in terms of there being a large number of natural disasters, which some experts link to climate change. We believe that there is a stark lesson about being better prepared for disasters which emerge from events such as those which took place in Central America. Therefore, it would be critical to include in the international recovery programme for Central America specific elements to improve the ability of these vulnerable countries to withstand future

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disasters. We have worked hard to strengthen the capacity of the international system to respond in a co-ordinated way to emergencies of this kind. We shall be pursuing those aims in the context of a UN-led
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"lessons-learnt exercise" early next year. What we are seeking to establish is the basis of sustainable long-term recovery.
House adjourned at eighteen minutes past seven o'clock.

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