My Lords, in speaking to the amendment I will speak to Amendments 20, 29 and 32, which are in my name. My suggestion is that the requirement to register Section 7 exemptions—that is, objects with the de minimis amount of ivory in them, which are not made of ivory per se but are ornamented with it—should be removed. I should declare that I am also the owner of a few ivory objects but, as a mere Baron, the extent and quantity of my ivory objects is probably less than that of most Dukes.
I hope that your Lordships will forgive me, but I want to go back to the Bill and look at the Explanatory Notes in particular, because sometimes we lose sight of what we are trying to do and why. Paragraph 5 states:
“The aim of the Ivory Bill is to help conserve elephant populations, specifically by reducing poaching, through significantly limiting the legal market for ivory in the UK. This is intended to reduce demand for ivory both within the UK, and overseas through the application of the sales ban to re-exports of ivory from the UK. This aim is in line with the 2017 Conservative Manifesto commitment to ‘protect[ing] rare species’”.
I am sure that the noble Baroness, Lady Jones, can subscribe to that, as well as the noble Baronesses on the Liberal Front Bench and equally, I would hope, the Minister. I am confident that he can. The end of the next paragraph states:
“Finally, the ivory ban will demonstrate the UK does not consider commercial activities in any ivory that could fuel poaching to be acceptable and it sends a message that similar actions should be taken globally”.
I do not think that anybody would take exception to that either. It seems that there is a direct correlation between the sale of ivory and poaching.
Finally, the end of paragraph 16, which talks about exemptions, states:
“Strictly-defined exemptions will therefore apply where a ban on the commercial use of items is unwarranted. This is considered to be the case when it is understood that both the continuation of sales of certain categories of items would not contribute either directly or indirectly to ivory poaching, and the intrinsic value of that item is not due to its ivory content”.
Here we have an acceptance from the Government that, in certain circumstances, some items that contain ivory do not contribute in any way to the poaching of elephants. I am as enthusiastic as anyone about preserving elephants. Equally, I am interested in old things. It seems clear that this policy begins with the proposition that we should protect elephants, then says as an instrument of policy that the way in which we wish to do that is by introducing a ban on ivory that encourages the poaching of elephants. At the same time, it also spells out expressly that certain categories of items containing ivory do not do that. I am saying that the de minimis exception does not affect the market for ivory which threatens elephants.
That being the case, what is the purpose of the registration? On the Government’s own admission, this category of items does not contribute directly or indirectly to ivory poaching. Against that background, we have an embryonic system whose scope is very
unclear. We have heard talk about 2 million to 3 million items, possibly more, that might fall within this category. Of course, not all of them will be sold—certainly not all at once—but we are not talking about a few rich and rare items, such as Byzantine ivories. We are talking about a very substantial quantity of, for want of a better way of putting it, household goods across the country. Given that the value of many of these items is small, as pointed out by the noble Lord, Lord De Mauley, the cost of registration will inevitably be big, relatively speaking.
I know from the Minister that the system and how it would work has not yet been finalised, but it will be expensive, time-consuming, bureaucratic and potentially iconoclastic. We have heard how items will be damaged or have the ivory removed if they are valuable. I cry no crocodile tears for the very rich man, whoever he was, who tried to sell the Chippendale cabinet in New York and found himself frustrated because it did not make as much as he wanted. If you buy works of art as an investment, they may go up or down in value, like all investments. The vandalism of that particular piece of furniture is a tragedy because, once you remove the original aspects, you degrade the inherent quality and characteristics. It is no good saying that a piece of furniture adapted in this way is the same as it was before. That is like saying that an original work of art is just the same as a photograph of it. It is not. This proposition intrudes into people’s ordinary lives. The other problem, as has been touched on, is that a lot of items in this category—such as chests of drawers with escutcheons or boxes with ivory inlay—are effectively, if not actually, the same. So, the argument for registration so that you can trace items will be more or less impossible in practice, even if it were worth doing.
Finally, you could say that at least we will know whether ivory is capable of being sold lawfully, but that is a pretty thin argument. If you can measure it once, you can measure it twice. Given the context and the fact that these items, by the Government’s own admission, do not contribute to the poaching of elephants, I also wonder whether it may be in breach of Article 1 of Protocol 1 to the European Convention on Human Rights:
“Every natural or legal person is entitled to the peaceful enjoyment of his possessions”.
I would have thought that being told that you had to do this to sell some of your household possessions is pretty close to a breach, if not already so. Echoing comments made on both of the main Front Benches, I am worried that a bit of collateral damage here is thought to be all right somehow. As I have said, I am as enthusiastic as anybody about preserving the elephants. I think, however, that it also matters that these items should not be indiscriminately and pointlessly put at risk and possibly destroyed or damaged. It is like a warlord saying, “We have got to take out that particular strongpoint in order to win the battle. If we happen to zap a lot of innocent civilians at the same time, it does not really matter. The end justifies the means”. I do not think that is right, and I think we need to be a bit more subtle in our thinking and sophisticated in our approach to this. This kind of “New lamps for old” attitude does not seem to fit the case of the world we
are in. I would like to think that we should remove the registration requirement, not least because it seems to be a classic case of “de minimis non curat lex”.