My Lords, I start by thanking the noble Lord, Lord Dubs, for tabling Amendments 30 and 31 to Clause 10, which requires the Secretary of State to be satisfied that a child aged between five and 17 cannot reasonably acquire another nationality in order to be registered under the stateless child provisions. I also note the opposition to and concerns about this clause of the noble Lords, Lord Paddick and Lord Rosser, should they not be satisfied by my response. In an ideal world, we would not need to include this clause, but current trends mean that we feel we must.
That goes to the question that the noble Lords, Lord Paddick and Lord Rosser, asked about the figures. In 2017, in the case of R v Secretary of State for the Home Department, even though the applicant was eligible for the grant of British citizenship under paragraph 3
of Schedule 2 to the BNA 1981, and despite the fact that they could acquire the nationality of their parents, the judge recognised that his conclusion
“opens an obvious route to abuse”.
The figures bear that out. In 2010 there were five cases; in 2018 they peaked at 1,775. There is obvious evidence that this is happening. I rest my case there.
Clause 10 has been developed in response to concerns that a number of non-settled parents, many of whom did not have permission to be in the UK at the time of their child’s birth, have chosen not to register their child’s birth with their own authorities in order to qualify under the current child statelessness provisions. This in turn can impact on the parents’ immigration status.
Amendment 30 would add a new condition to Clause 10, so that a child is defined as being able to acquire a nationality from birth only if there were no legal or administrative barriers to them doing so. That would mean that the parents I have talked about could, in theory, benefit from the stateless child provisions by not registering their child’s birth. In answer to the point made by the noble Lord, Lord Paddick, it is very easy to register a child’s birth. The parents simply need to complete a form and provide supporting information about their identity, status and residence and the child’s birth. I do not think that is difficult.
I appreciate that the noble Lord’s use of the term “barriers” might have been intended to suggest something more significant and assure him that the clause already reflects our expectation that children who cannot reasonably acquire another nationality should not be excluded. The UNHCR’s document Guidelines on Statelessness no. 4: Ensuring Every Child’s Right to Acquire a Nationality through Articles 1-4 of the 1961 Convention on the Reduction of Statelessness recognises that the responsibility to grant nationality to children who would otherwise be stateless is not engaged where a child could acquire the nationality of a parent through registration or a simple procedure. The genuinely stateless child will not be affected. This is about those who can reasonably acquire another nationality. It is not about the Windrush generation—they are entitled to be British.
We do not think it is fair that parents can effectively secure a quicker route to British citizenship by choosing not to register their child’s birth. In doing so, they are depriving their child of a nationality, which is not only about identity and belonging, as I heard one noble Lord say, but can allow them to acquire a passport or identity document and the ability to travel overseas to see family, for example.
They are also taking advantage of a provision intended to protect those who are genuinely stateless. We want them still to be able to benefit, but we want to change the registration provisions so that parents cannot effectively choose statelessness for their children and then benefit from the provisions. We think it is appropriate that families should take reasonable steps to acquire a nationality for their child. We will set out in guidance the sort of steps that we think are reasonable, and applications will be considered on their individual basis.
Amendment 31 would mean that we could not regard a child as being able to acquire another nationality, and so decline their British citizenship application, if it would not be in the best interests of the child to gain
that nationality. Noble Lords have pointed out the value they see in a child being able to secure and acquire a nationality, and it is difficult to see why parents might argue that it is not in their child’s best interests to share their status. We have already taken into account that some countries’ nationalities may be problematic for a child to acquire. The proposed clause reflects our expectation that a parent should not need to try to acquire a nationality for their child if it is not reasonable for them to do so.
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Adding a statutory assessment of a child’s best interests in not holding a particular nationality would not be helpful. The Home Secretary is already required by Section 55 of the Borders, Citizenship and Immigration Act 2009 to take into account the need to safeguard and promote the welfare of children. Including this requirement here could cast doubt on the application of Section 55 in other areas where the duty is not expressly required.
We want to use Clause 10 to amend the existing registration provision for stateless children by adding a requirement that the Secretary of State must be satisfied that the child cannot reasonably acquire another nationality. We hope that this will encourage parents to acquire a nationality for their child where they can. As I have said, it will not affect genuinely stateless children or those who have a nationality but whose parents cannot approach their own country’s authorities for a passport or documentation.
In answer to the right reverend Prelate the Bishop of Durham, for children born in the UK who do not become British and do not have any other nationality, there are specific provisions to register as a British citizen. A child can be registered as a British citizen if they were born in the UK, have always been stateless, have lived in the UK for five years and make an application before their 22nd birthday. This means that, if a child is stateless and has had no other citizenship or nationality from birth, they can effectively be registered on reaching the age of five, rather than after the age of 10, like other children born in the UK.
On international obligations, the noble Baronesses, Lady Lister and Lady Ludford, asked whether we are breaching the 1954 and 1961 conventions and the UN Convention on the Rights of the Child. We propose having two separate registration routes: one that applies to those aged between 18 and 22, to which no additional requirements apply; and a new registration route that applies only to children below the age of 18 and which introduces a new requirement that the Secretary of State be satisfied that the child is unable to acquire another nationality. We are satisfied that this complies with our obligations under the statelessness conventions, and we have taken into account the approach recommended by the UNHCR’s guideline No. 4 in drafting this provision.
I should add that citizenship is not the only option. There are also provisions in the Immigration Rules for a stateless person to apply for permission to stay in the UK and for which they do not have to wait five years. Equally, their parents are able to apply for immigration leave more generally if they believe that they have a valid basis to stay here.
I hope that, with those explanations, noble Lords will be happy to withdraw and not press their amendments to Clause 10.