Commonwealth Parliamentary Association and International Committee of the Red Cross (Status) Bill

I beg to move, That the Bill be now read the Third time.

This is an important moment for the Commonwealth Parliamentary Association and the International Committee of the Red Cross. The Bill enables the Government to recognise both organisations individually as international organisations, conferring on them the legal capacities of a body corporate as well as specific privileges and immunities. While the Bill may be only halfway through its scrutiny process, as it will move on to the other place, today feels like a significant milestone. I underline that, at all stages, the Bill has received not only cross-party support, for which I am enormously grateful, but support from my hon. and right hon. Friends on the Treasury Bench. I thank each and every Member for their contributions to the Bill throughout its consideration.

I want to mention individually those who have been particularly supportive of the Bill. My hon. Friend the Member for Bridgwater and West Somerset (Mr Liddell-Grainger) must come at the start of that list, because he chairs the international executive committee of the Commonwealth Parliamentary Association. My immense appreciation goes to the secretary-general of the Commonwealth Parliamentary Association, Mr Stephen Twigg, whose passion and support for the Bill and for getting the change in status for the CPA has been clear throughout. My thanks go to all the hard-working and inspirational staff of CPA UK—including our new chief executive, Sarah Dickson, Helen Haywood, the deputy chief executive, and their teams—for their unwavering passion and commitment to the Commonwealth Parliamentary Association and continued support. Without them, this achievement would not have been possible. And I cannot forget Mr Jon Davies, Sarah’s predecessor, who I thank from the bottom of my heart for all his contributions while in office.

I thank the formidable team at the Foreign, Commonwealth and Development Office and my noble Friend Lord Ahmad, the Minister responsible for the Commonwealth, and the Deputy Foreign Secretary, my right hon. Friend the Member for Sutton Coldfield (Mr Mitchell), who is not on the Front Bench today—he is detained elsewhere—but has been ably replaced by the Minister of State, Ministry of Justice, my right hon. Friend the Member for Charnwood (Edward Argar). Throughout, those Ministers have understood why the Commonwealth Parliamentary Association status needs to change, why this is an important Bill and why the work of the Commonwealth Parliamentary Association is essential in supporting the strengthening of democracy around the world. I thank them all and their teams of officials.

At this stage of proceedings, it is also important to acknowledge the extraordinary work of the Clerks of the House, and to thank them. Their guidance and recognition of the Bill’s importance, combined with the support from the Government, have helped get the Bill to where it is today. In particular, I say a huge thank you to Ms Anne-Marie Griffiths, the Clerk who has been advising us, for her assistance in getting the Bill to this stage. I hope you will forgive me, Mr Speaker, for thanking you, too. You have a very special place in the heart of the CPA, as does the Lord Speaker. You are our joint presidents, and in your work, you support us enormously.

Two organisations are supported by this Bill. I thank the International Committee of the Red Cross for its incredibly important work and for supporting me in the preparation of the Bill. I know how much time and consideration its London delegation has put in, and Eve La Haye in the ICRC legal team in Geneva has also been heavily involved. I thank all of them.

The unique international humanitarian mandate and mission of the International Committee of the Red Cross has been formally recognised by states in the Geneva convention and additional protocols. The Bill will accord it a status or treatment in the UK equivalent to that of an international organisation, with the relevant privileges and immunities. To date, more than 110 states have accorded the ICRC those relevant privileges and immunities, including all other permanent members of the United Nations Security Council. The content of the Bill, and the conferral of relevant privileges and immunity to the ICRC in the UK, is critical to enabling it to continue to operate in the UK in accordance with its international mandate, maintaining its strict adherence to the principles of neutrality, impartiality and independence and its working method of confidentiality.

For more than two years, there has been intense work to get to this stage—it has been described as a labour of love. None of it could have been accomplished without the esteemed individuals and organisations that I mentioned. The perseverance from everyone is starting to be rewarded now, but there is much more to do. I welcome the fact that the Bill and the amendments debated and agreed to in Committee have received cross-party support, again demonstrating the high regard and esteem in which both the CPA and ICRC are held not only in this place but throughout the country and internationally.

Members of a number of overseas Parliaments in particular have reiterated how important the Bill is. We have listened and learned and gone forward with this historic legislation, which is now well on its way to putting in place such a fundamental change.

The Bill is integral to the CPA and the ICRC, as it provides the necessary powers for both organisations to be treated in a manner comparable with an international organisation, of which the United Kingdom, or His Majesty’s Government in the United Kingdom, are a member. Each organisation has its own role and constitutional arrangements. That had to be—and is— reflected in the Bill. Under certain clauses, secondary legislation can put in place the privileges and immunities that each organisation will need.

The Commonwealth Parliamentary Association element of the Bill will be widely and warmly welcomed by our fellow parliamentarians throughout the Commonwealth. I recall that on my recent visit to Kenya, the Speaker of that Parliament reminded me how vital it is to the African region of the CPA to achieve this new status for the organisation. Parliamentarians from Africa have long championed the need for this legislation and made the point that they want to continue to be part of the CPA because of the important work that it does, but they increasingly struggle to justify spending their taxpayers’ money with the CPA configured as a UK charity: a status that I believe we have long outgrown. Concerns about the CPA’s status date back more than three decades. If that can now be resolved, I believe that will serve to strengthen and renew the CPA’s mission, unity and sense of purpose.

I attended the Commonwealth Parliamentary Conference in Ghana last October, where I saw once again the strength of feeling across the CPA membership about the status of our organisation. Mr Speaker, last month you hosted Speakers and Presiding Officers from the Commonwealth in London for Commonwealth day, where you ensured that they were briefed about the progress that we are making on the Bill. The response was extremely warm and positive: a collective sigh of relief that this issue might be reaching a solution.

I am mindful, however, that the Bill will need to pass through the other place to become an Act, so may I say once again that, without this legislation, there is a strong possibility that the Commonwealth Parliamentary Association would relocate its headquarters outside the UK? By enacting the Bill, the UK can not only keep the CPA here but demonstrate our commitment to the Commonwealth itself in this, its 75th year.

I am delighted that key amendments were passed in Committee, the first of which recognises the unique and sensitive role of the ICRC, including visiting prisoners all around the world to help ensure their safety. It allows for protected ICRC information to be exempt from disclosure requirements imposed by an order of court or tribunal proceedings, other than criminal proceedings. The amendment is designed to protect information that the ICRC provides in confidence to His Majesty’s Government from being used in UK civil proceedings. That is necessary, as the withholding of confidential information from public disclosure cannot otherwise be assured. That reflects the ICRC’s standard working method of confidentiality, which is designed to protect not only its staff but its operations in active conflict zones. That principle also underpins the ICRC’s ability to operate in dangerous locations on sensitive issues, engaging with both state and non-state actors. Disclosure of confidential ICRC information could damage its ability to perform its sensitive functions when negotiating with conflict parties, and it could put its staff and operations at risk. There is a real risk and concern about ICRC information being used in legal proceedings—over the past 15 years, the ICRC’s confidentiality has been challenged some 20 times in the UK.

I tabled in Committee a probing amendment on the involvement of individuals in drawing up secondary legislation. I did not press it to a vote, and I thank the Minister in Committee, the hon. Member for Aldershot (Leo Docherty), for his extremely reassuring response to the debate on it. The amendment sought to lay down a formal requirement on the Foreign Secretary to consult the chair of the UK branch and secretary-general of the CPA, and the president and director general of the ICRC, respectively, before finalising secondary legislation.

The Minister was able to confirm that the Foreign, Commonwealth and Development Office will consult all those parties ahead of secondary legislation being laid before the House, and will work closely with them to agree arrangements for the appropriate privileges and immunities for each organisation separately. That ensures that the Bill works exactly in the way that the relevant organisations need it to, and that the right individuals are consulted before secondary legislation is laid before the House and implemented.

The Bill demonstrates that the House of Commons values the Commonwealth, values the work of the Commonwealth Parliamentary Association, respects the importance of the ICRC and recognises that these organisations need to be recognised as international organisations. I thank colleagues for their support, and I wish my Bill well as it continues its journey to the other place, taken forward ably by my noble Friend Baroness D’Souza.

I thank Dame Maria Miller for everything she has done to ensure a solid future for the CPA. It is much welcomed and appreciated by all sides of this House.

I do not intend to detain the House for long, but I will start by paying warm tribute to the right hon. Member for Basingstoke (Dame Maria Miller). Since becoming chair of the CPA UK branch, she has spearheaded and forced this issue with Ministers in the strongest possible terms, including two or three—I cannot quite remember—Foreign Secretaries. She has been at the forefront of this work. One key reason why that work has been so important—the right hon. Lady has spoken at length on that, as you just did, Mr. Speaker—is that it sends a message to the Commonwealth Parliamentary Association that the UK Government and this Parliament are listening to what member states are telling us.

I am privileged to serve as one of three representatives from the CPA British Islands and Mediterranean Region on the International Committee of the CPA. There have been some very difficult conversations over the past two years I have served on that body, including in—this is not some travel guide, Mr Speaker, but it does come up frequently when you are travelling with the CPA—Gibraltar, Canada and, at our most recent CPA conference last year, Ghana, where I and the force that is the hon. Member for Bridgwater and West Somerset (Mr Liddell-Grainger) were, quite rightly, cross-examined by nearly all member states of the CPA International about when the Bill will move forward. I am delighted and slightly relieved that the various commitments that the hon. Gentleman, the right hon. Member for Basingstoke and I have been giving to that body for the past two years are now at least at the halfway mark.

Two-and-a-half years ago, we felt like we were nowhere, so in that context, the speed of the last few months has been wonderfully refreshing. I pay tribute to the previous Foreign Secretary, the right hon. Member for Braintree (James Cleverly), and the current Foreign Secretary and the Minister in the Lords for their genuine engagement with the process. One key element has been the ability of my own Front Bench and the Government to work cross-party on setting the standard, supporting the Commonwealth family and listening to the Commonwealth family of nations.

I thank the hon. Member for Ogmore (Chris Elmore) for his speech, and I thank you, Mr Speaker, for the work you have done. I congratulate my right hon. Friend the Member for Basingstoke (Dame Maria Miller) on bringing forward this important Bill. I welcome the support it has received from both sides of the House and I am pleased to offer my own support.

The Bill is quite technical in nature. It makes provision for two specific organisations to be granted international status, which, owing to their unique constitutions, could not be included under existing legislation. However, the wording of the legislation should not distract us from the organisations cited in it. Moreover, we should not overlook the primary purposes of these organisations, which are to strengthen parliamentary democracy and provide humanitarian assistance. In a world where we frequently witness the devastation caused by violence and war, and the growing threats to democracy, the importance of those causes and the organisations that pursue them cannot be understated. I therefore welcome the Bill, which grants international organisation status to both the Commonwealth Parliamentary Association and the International Committee of the Red Cross. The new status will ensure that those organisations can continue to perform their vital work fully and without restriction.

The Commonwealth Parliamentary Association seeks to promote the values of parliamentary democracy and good governance. It facilitates dialogues between Parliaments and draws on our collective knowledge to improve our procedures and address the wide-ranging challenges that we, as parliamentarians, may face. Its efforts have included the development of recommended benchmarks for legislatures and for a code of conduct for Members. Its efforts have included the development of recommended benchmarks for legislatures and for a code of conduct for Members. It has also provided guidance on specific and pertinent issues such as improving mental health provisions, the challenges of climate change and the growth of AI.

I welcome the Government’s unwavering support for the Commonwealth and its ideals. Article 1 of the Commonwealth charter outlines our responsibility

“for upholding and promoting democratic culture and practices”.

I would therefore ask what support the Government and Parliament have provided to the CPA to strengthen democracy across the Commonwealth.

The fundamental mission of the International Committee of the Red Cross is to protect victims of conflict and violence through the provision of humanitarian assistance. Its work, often in the most difficult and perilous environments, encompasses everything from mine clearance and providing healthcare and sanitation to combating sexual violence, improving respect for international humanitarian law and establishing economic stability. I am very proud of the United Kingdom’s record in providing humanitarian aid across the world—to Afghanistan, to South Sudan, to Ukraine and right now to Gaza. However, what support have the Government provided to the ICRC and what can we, as Members of Parliament, do to support the Red Cross?

I commend my right hon. Friend the Member for Basingstoke (Dame Maria Miller) for making progress with this important Bill, which will recognise both the Commonwealth Parliamentary Association and the International Committee of the Red Cross as international organisations. These are important changes given that neither is recognised as such under UK law. Current laws cannot apply as neither is an intergovernmental organisation, so a new enabling power is necessary.

The CPA does vital work in promoting parliamentary democracy throughout the Commonwealth, but its current set up as a UK charity is a cause for concern among some members and is somewhat restrictive. The Bill seeks to address that. The Commonwealth is a unique club of nations united by our shared historical and economic ties, alongside a shared belief in the value of democracy and the rule of law. In an increasingly hostile world where the rule of ruthless autocrats is on the rise and democratic rights are under threat, advancing those basic values and supporting the flourishing of parliamentary democracy throughout the Commonwealth remains as important now as it was when the CPA was first founded in 1911. That is why the Bill is so important to ensure the CPA remains relevant and best placed to promote parliamentary democracy throughout the Commonwealth. That will allow the CPA to participate more fully internationally than it does today, removing some of the restrictions on it.

More than 60 countries and jurisdictions participate in the CPA, as well as more than 180 legislators. It helps to increase the participation of under-represented groups in Commonwealth Parliaments, including women, disabled people and young people. The organisation also does vital work to help develop shared learning throughout Parliamentary democracies across the Commonwealth, facilitating knowledge-sharing and helping to strengthen our democratic systems.

I am delighted to see you in the Chair, Mr Speaker—long may you reign.

It is a privilege to speak in favour of the Bill introduced by my right hon. Friend the Member for Basingstoke (Dame Maria Miller). I pay huge tribute to her, as she has been the flag-bearer for the Commonwealth Parliamentary Association for the whole time I have been in this House—four and a half years. One of the first conversations we ever had was about how important it is, particularly for a new Member of Parliament, to be part of the CPA. I took her at her word, and I have been delighted to be involved in that brilliant association.

Can we also pay tribute to my right hon. Friend the Member for Basingstoke for the work she did with new parliamentarians when we came into the House? She specifically promoted women in this Parliament in order to reach 50:50 status. This is about not just the work she has done for the CPA, but what she has done for women in this place.

Absolutely. I will not spare my right hon. Friend’s blushes: she is not only a brilliant parliamentarian, but she supports newer Members of Parliament, and I have been the beneficiary of her advice.

I have been the supporter of the incredible work of the Commonwealth Parliamentary Association for many years, and this Bill will cement in law the difference it has made across our beloved Commonwealth over the past 76 years. I also welcome the Bill as it recognises the work the ICRC does to support regions in crisis. From Australia to Anguilla, from Botswana to the British Virgin Islands, the CPA is crucial in keeping all parliamentarians connected across the globe, sharing good practice, helping us to learn from each other and fostering friendly, positive and long-lasting friendships across the 180 Parliaments and legislatures that make up the Commonwealth family.

As my hon. Friend was making her remarks about how we learn from other Parliaments, I recalled sitting in the New Zealand Parliament for questions one morning, where the Speaker took an interesting role. If the Speaker was not satisfied with an answer the Minister gave, he asked for the question to be answered again. Does she think we should considering doing that here as well?

I can always do that if you want! [Laughter.]

My right hon. Friend makes a good point, and I am sure those on the Front Bench would be delighted to comment on it in their speeches.

The ICRC is an essential partner for achieving the three core objectives of the UK’s humanitarian framework, which are:

“Prioritise humanitarian assistance to people in greatest need and provide them with what they need the most to recover from crises; Protect the people most at risk, including from conflict-related sexual violence and barriers to humanitarian assistance; Prevent and anticipate future shocks and build resilience in long-running crises by tackling the underlying drivers of crises, instability, and extreme food insecurity”.

Nobody could ever argue with any of that.

The ICRC is much respected, not only in this country, but abroad. It carries with it an unparalleled ability to engage with all parties engaged in a conflict and it supports innocent civilians caught up in the crossfire. The amendments tabled by my right hon. Friend in Committee are crucial to the successful operation of the ICRC. Amendments 1 and 2 are designed to protect information that the ICRC provides in confidence to the Government from being used in UK civil court proceedings. ICRC information being used in legal proceedings is a real risk and concern. I was surprised to learn that in the past 15 years the ICRC’s confidentiality has been challenged some 20 times in the UK, be it in respect of disclosing information regarding its work with British forces abroad or of its dialogue with a variety of actors on the global stage.

Today, I will be focusing my comments on the CPA, as I have been fortunate to work closely with it during my time in this place.

Before my hon. Friend leaves the subject of the ICRC, let me take the opportunity again to highlight the importance of the amendments introduced in Committee. She reiterated the number of times the ICRC has been threatened with having to divulge very confidential information. Does she, like me, hope that that is taken into consideration when the Bill goes to the other place? Obviously, providing that confidentiality and the need not to divulge such information except in criminal cases is an important step. Does she agree that we need to make sure those provisions are in place for civil cases as soon as possible? I hope that no debate in the Lords will delay their coming into effect.