Children’s Wellbeing and Schools Bill
Lord Norton of Louth Excerpts(1 day, 11 hours ago)
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Lord Norton of Louth
“Review of the Act(1) The Secretary of State must—(a) carry out a review of the operation and effect of this Act,(b) set out the conclusions of the review in a report,(c) publish the report, and(d) lay a copy of the report before Parliament.(2) The report must be published before the end of the period of five years beginning with the day on which this Act is passed.”
Lord Norton of Louth (Con)
My Lords, this is a big Bill. The noble Baroness, Lady Smith, has spent many hours at the Dispatch Box justifying its provisions. This amendment enables her to demonstrate her confidence that it will deliver what she claims for it. The amendment requires the Secretary of State within five years of the passage of the Act to undertake a review of its operation and effect.
Post-legislative scrutiny is essential to ensuring that the laws we enact meet the various criteria of good law. The case for it has been accepted by government since 2008. It results from the report of the Constitution Committee in 2004 entitled Parliament and the Legislative Process. The Government referred the committee’s recommendations on post-legislative scrutiny to the Law Commission, which endorsed the proposal. The Government then announced that Acts would be subject to review by departments three to five years after enactment, with the reviews being published. It was then up to Parliament to decide whether to undertake detailed scrutiny. In the Commons, this has been by departmental Select Committees. In this House, since 2012, we have usually appointed each year a special inquiry committee to undertake post-legislative scrutiny of an Act or of a particular body of legislation, such as adoption law.
In practice, scrutiny by departmental Select Committees in the Commons has been somewhat sporadic. The committees have other priorities. Our practice has been to be highly selective. We cover only a fraction of measures that have reached the statute book in recent years. Those reviews that have been undertaken have variously demonstrated how Acts have been misunderstood or misinterpreted.
We are now being overtaken by other legislatures in engaging in extensive and rigorous post-legislative scrutiny. The noble Baroness, Lady Smith, said in Committee that she had been able to advise foreign Parliaments on the significance of post-legislative scrutiny. The Westminster Foundation for Democracy has done especially valuable work in promoting its use. The result is that we are now falling behind many other legislatures. That includes within the United Kingdom: Holyrood has had a dedicated committee on post-legislative scrutiny that has been effective. The Ukrainian Parliament, despite obvious pressures, has engaged in significant post-legislative scrutiny.
The Government accept the case for post-legislative scrutiny; the problem is in delivering it. The case for it is compelling. It is essential that Acts of Parliament achieve what they are intended to achieve. Some Acts prove a disaster—those, we tend to hear about—but others may have unintended, albeit not disastrous, consequences. Some may be stillborn. There may be problems with application and interpretation. We cannot know that an Act has achieved its goals without undertaking a thorough review and, in effect, as I said in Committee, completing a legislative feedback loop. Success in legislative terms should not be seen as getting a measure on the statute book—which historically has been how Ministers have tended to see it—but rather in delivering what it is intended to achieve.
The problem is in ensuring that post-legislative scrutiny is undertaken. If there was rigorous and consistent scrutiny, this amendment would be unnecessary. However, not all departments undertake such scrutiny. Some are better than others. As I said, departmental Select Committees in the Commons vary in their willingness to pursue such scrutiny. The danger is that Bills that merit such scrutiny will not receive it. There is nothing to guarantee that they will. As I argued in Committee, there is a case for putting on the face of the measure provision for post-legislative scrutiny where the Bill is large, complex, makes substantial changes to the law, is contested, and has not been subject to pre-legislative scrutiny. This Bill qualifies under those criteria.
In Committee, the Minister stressed that she was part of the Government who accepted the recommendations of the Constitution Committee and put on record that the Bill will be reviewed within five years. This was very welcome, but she did not put forward an argument as to why the requirement for post-legislative review should not be in the Bill. To say that there will be a review is not so much an argument against the amendment as the basis for accepting it. Putting it in the Bill would guarantee that there will be a clearly structured review, not one that may be undertaken by a department as a tick-box exercise. Accepting the amendment would make clear the Government’s commitment to post-legislative scrutiny and their confidence in the provisions of the Bill.
Baroness in Waiting/Government Whip (Baroness Blake of Leeds) (Lab)
My Lords, the amendments in group 3 concern a review of the Act on commencement. Amendment 205 was tabled by the noble Lord, Lord Norton of Louth. I too recognise his continued dedication to this matter, echoing the comments of the noble Earl, Lord Effingham, and his undoubted experience and expertise in this area. As my noble friend Lady Smith of Malvern set out in Committee, I am pleased to reassure the noble Lord again that the department understands the importance of the legislative feedback loop, as he described it clearly then and again this afternoon, and is committed to that. However, we believe this amendment cuts across what is a perfectly clear set of cross-government expectations for post-legislative scrutiny.
The question he poses is: why did we not undertake pre-legislative scrutiny? The Government give consideration to which Bills will be published in draft, taking into account the overall requirements of the legislative programme and how to ensure that time is used as efficiently as possible. The Government did not consider the Children’s Wellbeing and Schools Bill necessary for pre-legislative scrutiny, and therefore did not publish it in draft. We wrote to the Education Select Committee upon introduction of the Bill in the House of Commons and provided a briefing opportunity with officials before its Second Reading.
The noble Lord has previously raised issues in this House with the current process for such scrutiny. The process seeks to ensure that the chair of the Commons Select Committee has adequate information to decide whether to instigate a fuller inquiry, and we would expect to undertake that fuller inquiry given the importance of this Bill. However, as he will know, should they decide not to, that inquiry can be taken up by another interested parliamentary committee of either House.
In Committee, the noble Lord noted that the Government included post-legislative scrutiny in the Football Governance Act. I am not sure if others in the Chamber were subjected to the passage of the Football Governance Bill, but it was an interesting process. That was a single-issue Bill, so it was deemed appropriate for that Bill. However, that does not mean it is appropriate for all Bills, as I am sure noble Lords will be aware. This Bill covers a broad range of measures, with different timelines for implementation and different evaluation needs. I think we would all agree, for example, that the rollout of a single unique identifier is quite different from the rollout of breakfast clubs.
None the less, alongside our commitment to post-legislative scrutiny, we have committed to a post-implementation review as part of the Better Regulation Framework. We published our plans in the impact assessment for this Bill, on which the RPC rated us green, for how we will monitor and evaluate the transformative measures that will change the lives of millions of children and young people. I hope that noble Lords are reassured. I repeat that commitment now, for good measure: we will undertake post-legislative scrutiny for this Bill, but it is not needed to be included the Bill when it is already an expectation.
On government amendment 246, Clause 67 currently provides that
“any provision of or amendment made by Part 1 or 2, so far as it confers or relates to a power to make regulations or an order”,
will come into force on the day the Act is passed. I thank the noble Earl, Lord Effingham, for his support for the amendment. It will clarify that, by order, we mean secondary legislation. The only instance of secondary legislation order in the Bill is Schedule 3, which amends the Education Act 2002 to provide that the Secretary of State may by order make provision requiring the remuneration of an academy teacher to be at least equal to the amount specified in or determined in accordance with the order. The amendment would ensure that it is clear what order the Bill is referring to.
I hope I have addressed the noble Lord’s concerns, and that he feels able to withdraw his amendment.
Lord Norton of Louth (Con)
My Lords, the Minister’s response is disappointing. I am grateful to the two Front Benches for their very kind opening comments but in terms of the substance of the amendment, I thought the Minister’s comments reinforced the case for post-legislative scrutiny; she spent some time explaining why the Bill has not been subject to pre-legislative scrutiny, which I would have thought adds to the case for subjecting it to post-legislative scrutiny. She referred to the Football Governance Act, which just dealt with one particular issue, whereas this Bill is very wide-ranging. There is therefore scope for a lot of things to go wrong, which I would have thought reinforced the case for checking that the Bill has delivered on all aspects of what the Government seek to achieve with it.
The value of committing to post-legislative scrutiny is the Government demonstrating that they have confidence in the measure. If there is to be a review anyway, why not put that on the face of the Bill? At least critics of it would then know that it will definitely be subject to review—it is in the Bill, and that will happen. That is one of the arguments for post-legislative scrutiny of the Football Governance Act.
As I say, I am disappointed with the response. I shall keep coming back to the case for putting provision for post-legislative scrutiny on the face of Bills that meet the criteria I have outlined, and will press the Government to have the courage of their convictions. In the meantime, I beg leave to withdraw the amendment.
Baroness Morris of Yardley (Lab)
My Lords, I will very quickly add my support to Amendment 206. I shall be brief, because the points have already been made. I was a fellow traveller on the committee that considered this and I share with others a recognition of the tenacity that the noble and right reverend Lord, Lord Harries, has shown with this.
The noble Baroness, Lady Morgan, reminded us of when “British values” was brought into the curriculum. It was not an easy time and it was not readily accepted. I congratulate the noble Baroness on her tenacity in getting that on the agenda.
Times are not easy now, what must be 10 years later, but it is right that we review the content of what we call British values. The teaching profession has had experience of teaching this and of organising schools that have it at their centre. We have learned a lot. The publication of the national curriculum review is an ideal opportunity to address this again.
Democracy is not taught well in schools. My noble friend Lord Blunkett is absolutely right that we do not do this well; we could do it a lot better. The need to do so is great. This amendment gives us an excellent opportunity to address that.
Lord Norton of Louth (Con)
My Lords, I reinforce what has just been said and endorse what the noble Lord, Lord Blunkett, said. He and I have made common cause on this for some time.
I shall be extremely brief, because I want to make just one point. It is not so much about the substance of the amendment but why, as has just been said, it is essential that we take citizenship teaching seriously in this country. It is crucial because, at the moment, there is a problem with public trust in government and in Parliament. It is slow and declining and, unless we do something about it, we are going to be in real trouble. We need to invest resources into the teaching of citizenship. That means making sure that schools take it seriously and have the incentive to do so. It is no good just saying it is in the curriculum. Schools have to realise, “We have to teach this, we’ve got the incentive to do it and we have the resources”. It cannot just be left to any teacher on a wet Wednesday afternoon to teach citizenship. It is crucial and has to be taken seriously. I regard this amendment as absolutely key to British democracy.
Baroness Bennett of Manor Castle (GP)
My Lords, I entirely agree with the noble Lord, Lord Norton, except that I do not believe that we can put all the pressure on schools, which have so many other pressures on them.
Lord Norton of Louth (Con)
I totally agree. I should have said that I regard this as necessary but not sufficient.
Baroness Bennett of Manor Castle (GP)
Schools have faced so many other pressures with exams, results and Ofsted judgments, that saying “And you’ve got to shove citizenship in here, but you’re not really going to get rewarded for it” is not going to work. The direction has to come from the centre.
It is interesting that this group of amendments has been so rich and apparently so varied. Actually, what it does is talk about education that prepares students for life, not just for exams or jobs but to be citizens, members of communities, neighbours and possibly parents, and it prepares them to have healthy bodies while they are doing that. That is the only point I will make on the amendment from the noble Baroness, Lady Sater, who made her point powerfully. Physical education has been totally downgraded, and that has to stop and be reversed.
In responding, I have to start with the suggestion from the noble Baroness, Lady Fox, that respect for the environment was “twaddle”. I looked it up in the dictionary. Among the definitions were “trivial” and “foolish”. I am assuming that the noble Baroness understands that she had to breathe to be able to deliver that speech. That relies on plants, algae and cyanobacteria to generate the oxygen to allow her to breathe. So that label is obviously incorrect. I will leave that there.
I turn to Amendment 220, which the proposer, the noble Baroness, Lady Barran, has not yet introduced. Schools do need practical and lawful guidance, but forcing the Government to bring that guidance in on the day that the Bill becomes an Act will inhibit schools’ ability. The guidance was always intended to be non-statutory, including when it was first published in draft by the previous Government. I acknowledge that we have not yet heard from the noble Baroness, but I do not think that, in Committee, we heard any explanation of why the guidance needs to be statutory.
I will speak very briefly on the two amendments that I actually signed. Amendment 208 has been very ably spoken to by others; I am just going to make one additional point. This is about providing relationship and sex education to persons of 16 and 17 in education. Your Lordships’ House chose to call for a ban on social media for under-16s. We do not know where that will end up, but, if the ban comes in and, assuming it works, young people at 16 start accessing a whole range of previously banned material, surely, they will need the help of education and support to be able to work through, process, understand and think about that. So we should think about how those two things fit together.
The other thing is that the noble Baroness, Lady Burt, knows that I have backed her Private Member’s Bill at least twice previously. She introduced it very clearly. The one thing I will add is that, in terms of education for life, we ask schools to create more space in school time in particular for cultural and social education, but where are they going to find the time? That assembly time could be a really useful time and, if that is preparing people for life—developing cultural interests, developing artistic interests, developing a love of the theatre or a love of music, all things that help people prepare for a rich and satisfying life—that is what we need our schools to be doing much more of.
Children’s Wellbeing and Schools Bill
Lord Norton of Louth Excerpts(4 months, 2 weeks ago)
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Lord Norton of Louth
“Review of the Act(1) The Secretary of State must—(a) carry out a review of the operation and effect of this Act,(b) set out the conclusions of the review in a report,(c) publish the report, and(d) lay a copy of the report before Parliament.(2) The report must be published before the end of the period of five years beginning with the day on which this Act is passed.(3) The report must, in particular—(a) assess the extent to which the objectives intended to be achieved by this Act have been achieved, and(b) assess whether those objectives remain appropriate and, if so, the extent to which they could be achieved more effectively in any other way.(4) In carrying out the review, the Secretary of State must publish an invitation for interested parties to make submissions on the operation of the Act.”
Lord Norton of Louth (Con)
My Lords, on my count, almost 20 amendments have been tabled to the Bill requiring the Secretary of State within six or 12 months of the Act being passed to promulgate some regulations or undertake a review of a particular provision of the Act. My amendment is more comprehensive and adopts a longer timeframe. It would require the Secretary of State within five years of the passage of the Act to undertake a review of its operation and effect. The wording is the same as that of an amendment I tabled to the Employment Rights Bill and has the same justification.
Post-legislative scrutiny is essential for ensuring that the law we enact meets the various criteria of good law. We cannot know that it does without undertaking a thorough review and, in effect, completing a legislative feedback loop. There is no point in enacting legislation that then fails to deliver what it is intended to deliver and for us to proceed, in essence, in ignorance of its effects.
The case for post-legislative review has been accepted by government since 2008, with a commitment to reviewing most Acts three to five years after enactment. Ministers have variously reiterated that commitment. However, not all departments are rigorous in complying with it. The Government have also introduced a get-out clause saying that there may not be a review if, following correspondence with the chair of the relevant departmental Select Committee, it is agreed that a review may not be necessary. As I pointed out when the noble Baroness, Lady Twycross, reported this, it is not clear how a chair will know that a review is not necessary without undertaking some initial review. It is also not clear why this House is excluded from the process.
As I argued on the Employment Rights Bill, there is a case for putting on the face of a measure provision for post-legislative scrutiny where
“the Bill is large, is complex, makes substantial changes to the law, is contested and has not been subject to pre-legislative scrutiny”.—[Official Report, 24/6/25; col. 223.]
This Bill is clearly substantial, both in length and content, and it makes a major change to educational law in this country—it has been characterised by my noble friend Lord Lucas as striking
“at the heart of the relationship between parents and the Government”.—[Official Report, 20/5/25; col. 173.]
It has clearly engendered strong opinions; we have had extensive debate, with 12 days in Committee, as to its likely effects. It has also been introduced without pre-legislative scrutiny.
Making provision in the Bill for post-legislative scrutiny would enable all the claims made as to the effects of the Bill to be tested. Including such a provision would also help reassure critics of the Bill that there will be such a review. That may help the process of getting the Bill through.
The Minister may say that the amendment is unnecessary given that the Bill will qualify automatically for review three to five years after enactment. Making a clear commitment at the Dispatch Box, putting on the official record that the Bill will be subject to post-legislative review, is obviously valuable; we got such a commitment on the Employment Rights Bill. However, as I pointed out in debate on that Bill, the wording of my amendment derives from the Government’s own amendment to the then Football Governance Bill. The Government, to their credit, accepted the argument for putting provision for post-legislative scrutiny in that Bill and brought forward their own amendment. The grounds for doing so apply in the case of this Bill.
As I say, it would be welcome to have a commitment at the Dispatch Box that there will be post-legislative scrutiny of the Bill, but it will be even better to enshrine it in the Bill. Putting it in the Bill will demonstrate that the Government are confident that they will deliver on what it is intended to deliver. If the Minister resists the amendment, it will be helpful to hear from her how she distinguishes this Bill from the Football Governance Bill in terms of the merits of putting post-legislative scrutiny in the Bill. Does she or does she not accept that good law is a public good? I beg to move.
Lord Wei (Con)
My Lords, I rise to speak to Amendments 502YN and 502YR, which stand in my name. These amendments are bound by a common theme: that the powers we create in this Bill must be effective, proportionate and accountable, not only in ordinary times but in moments of crisis, when authoritarian temptations grow stronger.
Amendment 502YN would establish an annual review of all measures introduced by the Bill. Each year, the Secretary of State would be required to test whether those measures are achieving their stated purpose, and whether they are doing so without imposing unnecessary or disproportionate burdens on parents, children, schools, providers, local authorities or the department itself. Where a measure fails, it should be amended or repealed. If no action is taken, within two years it must lapse. This is about accountability cutting both ways. Families, schools and community groups—huge numbers of stakeholders—are being asked in this Bill to account for children’s education. It is only fair that the Government should account for the laws they pass.
We have been warned many times in these debates about the dangers of excessive bureaucracy and mission creep. Clause 31, the proposed register of children not in school, illustrates this risk. In principle, such a register may help identify who is being educated outside mainstream settings. In practice, the Bill demands far more data than is needed. In Portsmouth, more than 70% of home-educated children have already been served notices or orders annually, compared with a national average closer to 1%. That is not proportional oversight; it is overreach.
The effects ripple outward. Children suffer when teachers, social workers and SEND staff are forced to spend more time filling in forms than supporting them, and parents are treated with suspicion, not because of evidence of harm but because they made a lawful choice to educate differently. Schools themselves may be dragged down by compliance checks that drain morale and resources. Providers and tutors may be chilled by one size fits all rules designed for large institutions but applied indiscriminately. Community groups and charities—often the lifeline for struggling families and children—will find scarce volunteer time consumed by licensing and paperwork.
We have seen where such unchecked bureaucracy leads. The contact point database was launched with the best of intentions to safeguard children. It collapsed under its own weight: disproportionate, unworkable and ultimately abandoned. Scotland’s named person scheme likewise promised protection but in practice extended excessive authority and intrusive data collection before being struck down. These are cautionary tales of what happens when there is no obligation to review and no sunset clause to cut away what does not work.
Yet the risks are not only of inefficiency; there is something deeper. Bureaucracy when excessive is not neutral. It becomes a means of control. It erodes freedom, not by open coercion but by endless demands that exhaust and intimidate until families, schools and communities yield.
That is why Amendment 502YR is so important: it recognises that powers created in good faith can one day be misused. It would require that, within six months of Royal Assent, the Secretary of State ensures that a mechanism is ready so that, in any national emergency or period of authoritarian governance, the courts, not Ministers, retain the final authority to uphold the primacy of parental rights in their children’s education.
We cannot ignore the geopolitical context. Across Europe and beyond, we see the rise of extremes on both left and right. Authoritarian Governments rarely declare themselves at the outset; they grow by increments, often beginning with education. They use registers and guidance powers, not to support families but to control them. They impose ideological curricula, marginalise communities of faith and stifle innovation and dissent in the classroom. Disturbingly, elements of this Bill draw inspiration, whether knowingly or not, from an unlikely and troubling source. The original departmental human rights justification cited to justify state intervention in home education here arose from a case in Germany where a home-educating parent was prosecuted under laws dating back to the 1930s. These laws, introduced under Hitler’s regime, continue today to ban home education outright in Germany. It is sobering that our own debates now echo arguments first made to defend a system designed not to protect children but to eliminate educational pluralism—one that our own national wartime Government in the 1940s sought to fight by giving parents the ultimate say over their children’s education.
We must not follow that path. We must not allow powers framed as safeguards to evolve into machinery that stifles freedom. This is not to deny the state its proper role in protecting children. Safeguarding is vital, but safeguarding fails when systems chase compliance instead of risk: when form filling replaces human judgment, when bureaucracy itself becomes the end rather than the means. In such a climate, children most in need are overlooked while families acting responsibly, and schools, are burdened and alienated.
The two amendments before us are modest disciplines against such outcomes. The first creates a feedback loop: Parliament learns from the real-world impact of its laws and corrects course where necessary. The second ensures that, when times grow dark, there is a constitutional anchor, that courts can guard against authoritarian misuse, ensuring that parental primacy in education is never extinguished by bureaucratic or dictatorial creep.
Baroness Smith of Malvern (Lab)
I am more than happy to meet my noble friend and to bring those legal minds with me that I hope will enable him to be reassured. Given that this is the last group that I will be responding to today, I also thank him for what he has said about this Committee stage. It has been lengthy, but usually carried out in a respectful, amicable and constructive way. For that, I particularly thank the opposition Front Benches and, obviously, my excellent Whip and co-responder my noble friend Lady Blake. I agree with my noble friend that I do not think anybody could say that we have not done our jobs as legislators in this place in well and truly giving this a good going over, and I thank all those who have been involved in that.
Lord Norton of Louth (Con)
My Lords, given that, as the Minister said, she is just bringing to a conclusion her 12 days in Committee on the Bill, I was rather hoping that she may be a little demob happy and put aside her brief and accept the amendment.
I naturally welcome the commitment that the Bill will be reviewed within five years. For the reasons I developed, I believe that putting the commitment in the Bill is the preferable option. As I trust was clear from what I said, I do not believe putting such a provision in the Bill should apply to all or even most Bills, but only those that meet the criteria I detailed. Providing for such a scrutiny imposes a valuable discipline in drafting the measure, stimulating Ministers to think about the criteria by which one would know whether an Act had actually achieved what it was intended to achieve. That is not always clear. It would also demonstrate the Government’s confidence in the Bill to achieve its purpose.
The arguments for doing this, as I said, are the same as those accepted by the Government on the Football Governance Act. This is an important issue, not least for the health of the statute book. We rather miss the significance of such provisions, along with commencement orders, by sticking them at the end of Bills. I think we need to look at that again, but that is a matter I will pursue on another day. Given the importance of ensuring good law, I may return to the issue on Report, but for the moment, I beg leave to withdraw the amendment.