9th August 2021
Over at the Times there is a news report about the Animal Welfare (Sentience) Bill currently before parliament.
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One response to this news is to doubt that cabinet ministers are sentient beings.
https://twitter.com/davidallengreen/status/1424658384020819971
But that would be silly.
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The bill is worth looking at, both for what it does and what it does not do.
The six-clause bill – with three operative clauses – does very little.
Clause one provides for an ‘Animal Sentience Committee’ to be established and maintained.
There is, of course, no need for primary or indeed any legislation for a committee to be formed.
Committees can be formed and dissolved informally in central government.
Clause two provides that the committee ‘may’ (not ‘shall’ or ‘must’) produce and publish reports on which government policies might (not necessarily will) have ‘an adverse effect on the welfare of animals as sentient beings’.
The committee also ‘may’ (again not ‘shall’ or ‘must’) make recommendations for how the government may have ‘all due regard to the ways in which the policy might have an adverse effect on the welfare of animals as sentient beings’.
Again, this is weak stuff – the committee would have no legal obligation to produce any reports or recommendations at all.
The bill certainly does not place a direct statutory duty on departments to have ‘all due regard to the ways in which [a] policy might have an adverse effect on the welfare of animals as sentient beings’.
(Though such a duty should, in my view, exist.)
Clause three – the last of the operative clauses – is the one where there is (slight) legal kick.
When a report is published, the government ‘must’ (and not only ‘may’) lay a response before parliament within three months.
The government’s response may be in the barest terms, just saying the report and any recommendations are noted, and it will have discharged its duty.
And that is it.
That is all the bill does.
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On the face of it, there is nothing in the bill that warrants the response of some ministers as described in the Times article.
In particular, there is little formal scope for anything to be ‘hijacked’ by ‘activists’.
And even if the committee were to publish a critical report packed with ambitious recommendations, there is nothing which would legally oblige the government to do anything different from what it would want to do anyway.
The bill (like the international aid legislation and other examples) is not especially substantial legislation.
One is not surprised that the government’s website says that the bill is ‘enshrining sentience in domestic law’.
That word: ‘enshrining’.
Hmm.
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But.
Perhaps because of my own bias (as a supporter of animal rights), I think there is something to be said for this legislation, weak as it is.
Even if there is no legal obligation on the government to follow any recommendations, it does oblige the government to publicly address any report and thereby any recommendations.
That obligation may turn out in practice to be as ultimately ineffective as the similar obligation on the government to report on why it is not complying with the international aid target.
It is, however, better than nothing.
It forces some accountability.
This duty being placed on a statutory basis makes it a little more difficult for the government to ignore any concerns altogether, which would be the case if the proposal had not statutory basis at all.
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The definition employed by the bill for animals – a lovely piece of drafting – is that ‘“animal” means any vertebrate other than homo sapiens’.
This is perhaps a little problematic – as there are invertibrates that are sentient and indeed highly intelligent (as this blog has recently discussed).
As Peter Godfrey-Smith sets out in his outstanding book Other Minds: The Octopus, The Sea, and the Deep Origins of Consciousness:
‘If we can make contact with cephalopods as sentient beings, it is not because of a shared history, not because of kinship, but because evolution built minds twice over.
‘This is probably the closest we will come to meeting an intelligent alien.’
The bill however provides that ‘invertebrates of any description’ can be added to the category of sentient animals by a secretary of state, spineless or otherwise.
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Usually I would be disdainful of such gesture-based ‘enshrining’ legislation – and I am sceptical about much of this bill.
The only direct merit of this legislation is in terms of forcing departments to take account in policy-making the sort of concerns that departments should be taking of anyway.
The recent turn away by the supreme court from allowing policy challenges in judicial review probably means that any non-compliance by a department with the committee’s recommendations will not get any judicial remedy.
But there could be indirect effects – though not the feared ‘hijacks’ of Rees-Mogg and others.
Courts when dealing generally with questions of animal rights will now be aware that the legislature had provided for a formal mechanism for policy recommendations about animal welfare to be taken seriously.
That may not make any direct difference in any litigation, but the existence of a statutory scheme would inform and promote judicial and legal awareness that the welfare of animals is not a trivial or extremist position.
This legislation is a small step towards enforceable animal rights (or at least to an enforceable duty that animal welfare be considered in policy-making) and it should be welcomed for what little it does – though that is a lot less than what its supporters and opponents aver that it does.
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