My Lords, I am grateful to the Minister for introducing the Bill today and for arranging a helpful briefing with civil servants beforehand. I say at the outset that we support the Bill, which, as several noble Lords have said, has been much delayed in its arrival. Nevertheless, we have it here now. It reflects the ban on wild animals in circuses, which has been our party’s policy for some time, and is virtually identical to a Private Member’s Bill that was co-sponsored by our shadow Secretary of State in the other place.
While the Bill’s arrival is of course welcome, it also highlights the Government’s lack of action on the broader issues of increasing penalties for animal cruelty and recognising animal sentience, which seem to be stuck in some sort of legislative limbo despite the cross-party support for urgent action on them which we know exists. While my noble friend Lady Mallalieu will not be surprised that I do not agree with much of what she said, I agree that if we were going to prioritise our activities properly, priority could have been given to a Bill on animal cruelty at this time.
While we pride ourselves on being a nation of animal lovers and having the most advanced animal welfare legislation, the truth is that on this issue we are falling behind many other nations. It is no surprise to hear that at least 30 other countries have already placed a ban on wild animals in circuses. As we heard from the Minister, it seems the main reason the Bill is being prioritised is that the existing Welfare of Wild Animals in Travelling Circuses (England) Regulations 2012 are set to expire on 19 January next year, which would leave a legislative vacuum. We welcome the fact that that vacuum is to be filled but it raises questions about why the Bill was prioritised.
Not only is the Bill the right thing to do but, as noble Lords have said, it has huge public backing. Some 94% of the public supported the ban in the consultation carried out by the Labour Government in 2010. Most people are amazed to discover that wild animal performances are still allowed. The noble Baroness, Lady Bakewell, said that people think that wild animals are long gone, particularly lions and tigers, and therefore feel the issue has been resolved. But when people in this country are confronted with the reality, the vast majority say that they do not want wild animals in circuses. The Bill also has considerable support from animal welfare organisations, which have argued on ethical and welfare grounds that wild animals need a suitable environment to live in, with the ability to express normal patterns of behaviour and associate naturally with others of the same species, particularly if they are herd animals. Again, this was an argument that the Minister made.
It is impossible to imagine how life in a travelling circus, constantly being transported to new venues in cramped conditions, can ever replicate life in the natural world. Most people find it abhorrent that these animals are then expected to do tricks for our enjoyment. It is not surprising that the scientific review of the welfare issues for the Welsh Government in 2016 by Professor Stephen Harris concluded that wild animals in travelling circuses not only suffer poor animal welfare but do not have “a life worth living”.
I am of course aware that the circus operators are vehemently opposed to this Bill—several noble Lords referred to this—and I read their evidence to the Commons Committee with some interest. Although some of their statements was rather concerning, I do not doubt that they look after the animals in their care and have some affection for them. Circus owners also sought to complicate the interpretation of the Bill by describing their animals as exotic rather than wild. It is important that we pin down that definition so that no loopholes on that matter can occur. We may need to return to this matter at future stages of the Bill.
However, the circus owners also admitted that standards of animal treatment in circuses around the world vary enormously and that there is still a great deal of bad practice and suffering elsewhere. It is therefore important that we maintain high standards in the UK for any touring circus wishing to come here and display animals in this way. As a number of noble Lords have said, thankfully, we are talking about only a small number of animals in the UK being affected by this Bill—a total of 19 at last count—with no big cats or elephants currently involved, although, as I understand it, as recently as 2015, Chipperfield Circus was touring the UK with two lions and two tigers as part of that show.
My noble friend Lady Mallalieu portrayed the Bill as an attack on a long-standing tradition of travelling showmen. I disagree with her fundamentally; nobody is attempting to do that. The Bill will not affect circus owners’ operating model or their economic viability. Domesticated animals will still perform in their circuses. Furthermore, it could be argued that more people would be inclined to go if they felt assured about nature of the spectacle that they were about to see, which might boost attendances.
In the Commons, our colleagues raised a number of concerns that will need to be addressed during the passage of the Bill here—they have been echoed around the Chamber during this debate. First, there was concern that some circus owners would seek licences for a last big tour with wild animals, perhaps including big cats, prior to the implementation date of January 2020. Our proposal was for a moratorium on issuing new licences before that date, but there may be other ways to achieve it. The Minister may be able provide some helpful advice on what measures are in place to prevent this happening.
Secondly, the Bill allows for appointed inspectors to enforce this legislation—again, this issue was raised by the noble Baroness, Lady Bakewell. I seem to recall that during passage of the Ivory Bill a legal difficulty arose in relation to granting civilians the power to enter properties and make arrests. We need to ensure that the same problems do not occur here. Our proposal was for the powers in the Bill to extend explicitly to police constables. I know that the Minister partially addressed this matter in his opening speech, but it was not clear why the proposal for police constables to be written into the Bill has been rejected up until now.
Thirdly, we proposed that if a wild animal was found in a travelling circus in breach of the ban under this legislation, there should be an opportunity to remove the animal immediately to a safe place where it could be cared for properly with a view to rehoming it permanently. We know that a number of animal welfare organisations have already offered to provide such a service. Again, it would be helpful if the Minister could address that.
Finally, we sought to provide more clarity in the definition of a travelling circus to ensure that the common definition, which we would all recognise, could not be misinterpreted. I know that the Minister in the other place said that he planned to address this concern through guidance to back up the Bill. The Minister here has referred to the issue today, so it would be helpful
if he could set out in more detail the timetable for producing the guidance. He mentioned that it would appear “in good time”, but I think we all know that “in good time” in respect of legislative processes could be a long, expanding Elastoplast.
As I said at the outset, we support the Bill and want to aid its passage through your Lordships’ House. It represents a symbol of our ethical commitment to strong animal welfare legislation in the UK and has huge public support. I can see that we are heading for an extended debate on the ethical grounds of this legislation at later stages of the Bill. I am happy to be part of that debate if noble Lords so desire. In his closing remarks, the noble Lord, Lord Trees, began to recognise that this is only a small Bill and addresses only one ethical challenge. Of course, there are wider ethical challenges about how we treat animals to address in the future, but he did not particularly make the point that we should not cut off our nose to spite our face. There is a strong ethical reason for addressing this issue now and we can return to some of those wider issues on other occasions. While I listened to what he said with great interest, and he may well be right about a number of the other ethical challenges, this does not undermine the need for the Bill here and now.
In years to come, people will look back on our practice of subduing these increasingly rare animals and subjecting them to performing tricks for our entertainment with considerable disbelief. The time has come to address this issue, so I look forward to passing the Bill in a very short time. Indeed, I also look forward to passing all the other animal welfare Bills that we are still waiting patiently for priority to be given to. In the meantime, we support the Bill and will encourage its safe passage.
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