Universal Credit (Removal of Two Child Limit) Bill

[Caroline Nokes in the Chair]

Clause 1

Removal of two child limit: GB

Question proposed, That the clause stand part of the Bill.

With this it will be convenient to discuss the following:

Clauses 2 and 3 stand part.

New clause 1—Removal of two child limit: report on effects on children in households subject to the benefit cap—

“(1) The Secretary of State must, within six months of the passing of this Act, lay before Parliament an impact assessment of the effects of this Act on households and children.

(2) The assessment under subsection (1) must include an estimate of the total number of households, and the number of households in poverty, which will not receive—

(a) an overall increase in benefit support from the abolition of the two child limit from April 2026 due to being subject to the overall benefit cap, and

(b) the full potential increase in benefit support they would have been entitled to from the abolition of the two child limit from April 2026, but for the fact that they became subject to the overall benefit cap following any increase provided through the abolition of the two child limit, and the assessment must include the total number of children in such households, and the impact on the number of such households in poverty.

(3) The estimates made under subsection (2) must include analysis at the following levels—

(a) country,

(b) county,

(c) local authority, and

(d) parliamentary constituency.”

New clause 2—Report on the effects on households with a disabled family member—

“(1) The Secretary of State must, within 12 months of the passing of this Act, lay before Parliament an impact assessment of the effects of this Act on the number of households in poverty with more than two children that have at least one disabled family member.

(2) The assessment under subsection (1) must also consider—

(a) the cumulative impact of changes to universal credit since July 2024 on households in poverty that have at least one disabled family member, and who are affected by this Act, and

(b) any changes in the standard of living for households with—

(i) three or more children, and

(ii) at least one person in receipt of the Universal Credit health element, arising from implementation of this Act.”

It is a privilege to bring this Bill back before the House. This Government believe that everybody should have opportunity in life: opportunity to achieve their potential and their ambitions, whatever their background. However, at the moment too many children are held back by the scourge of poverty, which affects their wellbeing, how well they do at school and their prospects in their adult working lives as well. No child should have to face lifelong consequences like those, and neither should the country have to bear the huge cost of so much wasted talent and potential.

Lifting the two-child limit in universal credit is the single most cost effective lever that we can pull to reduce substantially the number of children growing up in poverty. In doing so, we are helping hundreds of thousands of children to live better lives, supporting their families and investing in their future success. It is this Government’s mission to break down barriers to opportunity, to change the course of children’s lives for the better and to build a more hopeful future. The Bill makes a big contribution, delivering more security, more opportunity and more respect for families and communities across the UK.

Clause 1 removes the universal credit two-child limit in Great Britain from April this year. By doing so, we will lift 450,000 children out of poverty. That means that for assessment periods starting on or after 6 April, the universal credit child element will be included for all children in the household, increasing the amount of social security support available to families on universal credit with three or more children. All the associated exceptions will be removed at the same time, including the notorious rape clause.

Specifically on that point, does the Department have good enough data on subsequent children? Have people provided the information that the Department needs to ensure that the extra payments can be made timeously?

We are confident that we can do that from April onwards. Reinstating support for all children in universal credit is a key step to tackling the structural drivers of child poverty. This Bill, combined with other measures in our child poverty strategy, will lift over half a million children out of poverty.

Clause 2 removes the two-child limit from universal credit in Northern Ireland from April. We are including Northern Ireland in the Bill at the request of the Northern Ireland Executive, who are bringing forward a legislative consent motion in the usual way. I am delighted to see the hon. Member for Strangford (Jim Shannon) in his place. On Second Reading, he made the point that 50,000 children in Northern Ireland will be lifted out of child poverty. He rightly said:

“If anyone is against that, there is something wrong with them.”—[Official Report, 3 February 2026; Vol. 780, c. 168.]

I agree with him on that point and I am grateful to him for making it.

I very much welcome what the Government are bringing forward. It is good news and, as the Minister says, if anyone is against that, there is certainly something wrong with them. I cannot see how the measure will not be welcomed. The fertility rate in Northern Ireland is 1.71 children per woman, but for the population level to be stable it needs to be 2.1 children per woman. Does the right hon. Gentleman think that the measures in the Bill will encourage more people to have children? If they do, then that is good news as well.

I am not sure what the effect will be. It is often said that a Labour Government has the effect of increasing the birth rate, but whether that will prove to be the case this time, I do not know.

Child poverty is a big challenge. Reducing it over the next 10 years will require commitment and collaboration across all four nations. The strategy, including removing the two-child limit, builds on plans under way across Government and devolved Governments. We will continue to collaborate with devolved Governments on the issue, particularly through the implementation phase that will now follow.

Clause 3 sets out the territorial extent of the Bill, the commencement dates for each of the sections, delegated powers and the short title of the Act.

The Government recognise the consequences of child poverty and the damage that it does to a child’s life chances. In the poorest 10% of areas, babies are twice as likely to die before they turn one as those in the wealthiest 10% of areas. Poorer children are more likely to have mental health difficulties by the age of 11, to be unemployed later and to earn less as adults. We estimate that the Bill will increase the universal credit award for 560,000 families, who will gain on average £5,310 per year. That is a much-needed change from the choices of the previous Government—they chose austerity, and children paid the price. Tackling child poverty is an investment in our economy and a downpayment on Britain’s future.

Before the House are four new clauses to the legislation. They set out a pathway through which we can generate data, particularly around the welfare cap, which we know holds back 141,000 children. In the assessments that the Government make, will the Minister draw out particularly the impact of the welfare cap on those children? Will he look to remove it to ensure that those children are not held back in poverty?

I am sure that we will turn to the points that my hon. Friend makes in a few moments, but I reassure her that we will undertake a thorough evaluation of the impacts of the strategy. We will publish regular updates, and I think she will find there the information that she is interested in.

We cannot leave millions of children to succumb to the damaging impacts of poverty. The Government want instead to invest in children and in Britain’s future.

I call the shadow Minister.

I will speak in part to amendments 1 and 2, although we will not vote on them this evening. Essentially, I am speaking because we do not believe that scrapping the two-child limit and lifting it in this way is the way to tackle child poverty.

When the Conservatives introduced the two-child limit in 2017, we did so for one simple reason: fairness. We believed then, as we do now, that people on benefits should face the same financial choices about having children as those supporting themselves solely through work. Nine years later, we stand by that principle.

The welfare state should be a safety net for people in genuine need, yet too many people feel that the welfare system has drifted from its original purpose. They see a system that rewards dependency while working families and individuals shoulder the tax burden. The two-child limit is a way of saying that work should pay, that taking responsibility should matter and that the system should stand with those who pull their weight.

I am excited to hear that the hon. Member thinks work should pay. Can she tell us why, under the last Government, we went from one in three children in poverty having a parent in work to two in three children in poverty having a parent in work?

We know that poverty decreased under the last Government; I will make some progress.

True compassion for families in poverty means offering sustainable solutions, not just sticking plasters. We need to tackle the root causes of poverty, rather than masking the symptoms. That means dealing with structural issues that damage children’s life chances, rather than simply handing out more cash to families.

It is worth noting that the two-child limit has had no significant negative effects on school readiness for third and subsequent children in England. School readiness is the cornerstone metric of the Government’s opportunity mission. Labour and other opponents may criticise the cap for all sorts of reasons, but scrapping it will not be a cost-effective way of improving children’s educational development.

In terms of holistic solutions, we know that work is the single most transformative route out of poverty. Work provides stability, self-respect and the crucial stepping stones to a better future. We should be doing everything we can to ensure that families on universal credit can access meaningful employment. As I have said before, children in long-term workless households are four times more likely to be materially deprived, and they are 10% more likely to end up workless themselves.

When we were in government, Conservatives oversaw a consistent reduction in the number of children in workless households, yet under Labour that number has reached a nine-year high: there are now 1.2 million children living in homes where no parent has worked for over a year. Without a working parent at home, children miss out on seeing the rhythms and rewards of working life—the morning alarm, the daily routine, the pride of earning a wage and the discipline of saving up for things that matter. This Government seem bent on disincentivising work and destroying jobs.