Prisoners (Disclosure of Information About Victims) Bill
(Limited Text - Ministerial Extracts only)
Read Full debateTuesday 11th February 2020
(4 years, 10 months ago)
Commons ChamberRead Hansard Text
This text is a record of ministerial contributions to a debate held as part of the Prisoners (Disclosure of Information About Victims) Act 2020 passage through Parliament.
In 1993, the House of Lords Pepper vs. Hart decision provided that statements made by Government Ministers may be taken as illustrative of legislative intent as to the interpretation of law.
This extract highlights statements made by Government Ministers along with contextual remarks by other members. The full debate can be read here
This information is provided by Parallel Parliament and does not comprise part of the offical record
The Lord Chancellor and Secretary of State for Justice (Robert Buckland)
I beg to move, That the Bill be now read a Second time.
This is a short Bill—it consists of just three clauses—but its importance cannot be underestimated. It responds directly to real-life issues that we know have caused, and continue to cause, immense distress to the families of victims of serious crimes.
Despite its full and proper title, this is a Bill that we have all come to know as Helen’s law. Helen’s mother, Marie McCourt, has long campaigned for this change to the law. I want to take the opportunity—and I am sure that the whole House will want to join me—to pay tribute to her bravery, her determination and her tenacity. It is in large part thanks to her that we have reached this point at all.
Let me tell the House something about the case with which we are dealing. Helen McCourt was a 22-year-old insurance clerk from the village of Billinge, near St Helens in Merseyside. On the evening of 9 February 1988, just over 32 years ago, Helen disappeared while on her way home from work. The following year, Ian Simms was convicted of her murder and ordered to serve a minimum of 16 years in prison as part of his mandatory life sentence, but he has never revealed where Helen’s body is, and, despite extensive searches, her remains have never been found, which has compounded the misery and the grief of the McCourt family.
I have had the pleasure of meeting Mrs McCourt and her family on several occasions, often in the company of the hon. Member for St Helens North (Conor McGinn). Their dignity in the face of such unimaginable distress is something quite astonishing. All they want is the opportunity to lay their dear daughter to rest.
We have all lost people who are dear to us. We all know the closure and comfort that can arise from laying a loved one to rest. When we take into account the horrific circumstances of Helen’s death, a proper burial and an opportunity to say goodbye must take on a wholly different dynamic for the McCourt family and others in their position. The campaign has resulted in this legislation. We have responded to the issues raised by it to identify a solution that works within the existing sentencing, release and Parole Board framework to ensure that a failure on the part of a prisoner to disclose such vital information is rightly and properly taken into account as part of the risk assessment of the prisoner before any release. It is the least we can do to support the victims of such horrendous crime, and I am grateful to my right hon. Friend the Home Secretary—who is present in the Chamber to lend her consistent support to victims, their families and those who have suffered as a result of criminality—for the close partnership working that we have in Government to deal with this important agenda.
I shall now deal with the clauses in the Bill. Clause 1 will amend the release provisions that apply to life sentences for murder and manslaughter in order to place a statutory obligation on the Parole Board to consider a non-disclosure of information about a victim’s remains when making a public protection decision—that is, a decision to release—about such a prisoner. In order for the Bill’s provisions to apply, the Parole Board must not know the location of a victim’s remains, and the board must believe that the prisoner has information about this that he or she has not disclosed to it. This is the essence of the prisoner’s non-disclosure, and it is this that must be taken into account by the board when assessing whether a prisoner can safely be released on licence.
Sir Robert Neill (Bromley and Chislehurst) (Con)
My right hon. and learned Friend is absolutely right to say that the Bill is morally necessary and the right thing to do. Does he agree that this is really no more than an extension by analogy of the way in which remorse will be taken into account in sentencing, in that those who admit guilt and give full assistance to the police are regarded as more likely to have accepted their guilt? That is true in relation to the approach of the Parole Board too, and this is therefore just a simple extension of the fact that someone who has done their best to accept what they did, even in the most awful of crimes, may be less of a threat to the public in the future than somebody who makes a blanket and wilful denial and is therefore likely to be much less reformed and much less safe to let loose.
Robert Buckland
My hon. Friend, the Chair of the Select Committee on Justice, like me has much experience in the criminal justice system. He will know that deciding whether remorse is real or feigned is sometimes a difficult judgment for a court to make. He makes his point very well.
I think it is right for me to deal at this stage with the concept of whether we should have gone further and introduced a rule of “no body, no release”. Tempting though that might be—and I listened carefully to the arguments—there is a danger that if we proceed too far along that path, we could inadvertently create an artificial incentive for people to mislead the authorities and to feign co-operation or remorse. Of course, in another context, we see the dangers that are inherent in what I have described as superficial compliance with the authorities. There is a fine balance to be maintained, but I think that the Bill as presented maintains it in a way that is clear, that increases public confidence in the system and that makes it abundantly plain to those who are charged with the responsibility of assessing risk that, in the view of this House, this issue is of particular public interest and public importance when it comes to the assessment that is to be made.
I was dealing with the essence of the non-disclosure, and I would add that the Parole Board must in particular take account of what, in its view, are the reasons for the non-disclosure. This subjective approach will allow the board to distinguish between circumstances in which, for example, the non-disclosure is due to a prisoner’s mental illness, and cases in which a prisoner makes a deliberate decision not to say where a victim’s remains are located. This subjective approach is fundamental to the proper functioning of the Bill. It ensures that the non-disclosure and the reasons for it—in other words, the failure by the prisoner to say what they did with the victim’s remains—are fully taken into account by the board when it comes to decision making. It is then for the Parole Board, as an independent body, to decide what bearing such information has on the risk that a prisoner may present and whether that risk can be managed safely in their community. It reflects the established practice of the Parole Board, as included in its guidance to panel members in 2017, but it goes a step further in placing a legal duty to take a non-disclosure into account. This, as I have already mentioned, is part of our intention to provide a greater degree of reassurance to victims’ families by formally setting out the guidance in law.
I turn now to the second part of the Bill, which deals with the non-disclosure of different types of information by offenders. This has been prompted by the horrific case of Vanessa George. I am glad to see the hon. Member for Plymouth, Sutton and Devonport (Luke Pollard) in his place. Vanessa George was recently released by the Parole Board after serving 10 years in prison, following conviction for multiple counts of sexual abuse against children at the Plymouth nursery where she worked. She also photographed the abuse of those children in her care and sent the images to other paedophiles. This was a horrific case, which those of us who had young children at the time, me included, remember all too graphically. Vanessa George’s crimes have caused widespread revulsion. Her abuse of the trust placed in her by the families of the children she was meant to care for and protect is shocking. Their pain has been compounded by the fact that the children she photographed cannot be identified from the images, and that she has refused to disclose their identities to the authorities. All the families involved have been left in a truly terrible limbo, not knowing whether their child has been a victim.
Again, we are seeking to respond by stipulating in law that such appalling circumstances must be fully taken into account by the Parole Board when making any decisions on the release of such an offender. Clause 2 of the Bill will amend the release provisions that apply to an extended determinate sentence that has been imposed for the offence of taking or making indecent photographs of children and, as in clause 1, we will place a statutory obligation on the Parole Board to consider the non-disclosure of information about the identity of a child or children featured in such images when the board makes a public protection decision, including one to release the prisoner. The provision will apply when the Parole Board does not know the identity of the child or children in such an image but believes that the prisoner is in a position to disclose it and has chosen not to do so. It is this non-disclosure and the reasons for it, in the view of the Parole Board, that must be taken into account before any release decision is made.
Alex Chalk (Cheltenham) (Con)
I heartily applaud the Government for taking this important step. Does the Secretary of State agree that we also need to reassure people that when such an individual comes to be sentenced in the first place, if they have not at that stage disclosed where the body is or the identity of the victims of their crime, the judge should be able to take that into account in setting the minimum period that they should serve? In other words, will my right hon. and learned Friend ensure that the impact does not simply crystallise at the point of release?
Robert Buckland
My hon. Friend speaks with much experience as a counsel who has prosecuted and defended in cases involving serious offences. He is absolutely right to remind us that it is the function of sentencing either to reflect remorse and give credit for a plea of guilty, which is a mitigating factor, or to reflect an aggravating factor such as the complete non-co-operation that we sometimes see from offenders in this position. Indeed, he knows that that is properly reflected in the sentencing guidelines where applicable, and that in offences of this nature, the court uses schedule 21 as a starting point when it comes to the gradations of seriousness in the offence of murder. This allows judges to move up, as well as down, from that starting point.
Sir Robert Neill
My right hon. and learned Friend makes a fair point. Is not that reinforced by the fact that the sentencing judge in the Vanessa George case specifically referred to the gravity—“indecency”, I think his phrase was—of her non-disclosure? Is it not only logical that the Parole Board should be able to take equal regard when considering release?
Robert Buckland
My hon. Friend is quite right. Indeed, that was an aggravating factor that was specifically taken into account by the sentencing judge.
I was drawing a comparison with clause 1. As with clause 1, the provision is already standard Parole Board practice in that panels routinely take such circumstances into account as part of their decision making, but I believe that the issue of non-disclosure of vital information is of such importance—and causes such distress to families and victims—that it must be addressed in statute.
This is a narrow Bill, but it has wide implications. It ensures that a failure or refusal to disclose specific information on the whereabouts of a victim’s body or the identity of child victims of indecent images is always taken into account by the Parole Board. A murder such as that of Helen McCourt and the depraved crimes of Vanessa George are not things that people can easily move on from, but the ability to lay a loved one to rest or to find out for certain whether children were abused may offer the families and young victims themselves an opportunity to find at least some closure and to address the long-lasting effects of such horrific crimes. I very much hope that the Bill will attract support on both sides of the House and can enter the statute book as soon as possible. The acute distress that such cases cause cannot and should not be overlooked.
The Parliamentary Under-Secretary of State for Justice (Chris Philp)
We are standing here today because of two incredibly tragic cases: the tragic murder of a wonderful young women, Helen McCourt, 32 years ago at the age of just 22, in the prime of her life with everything to look forward to; and the terrible abuse committed by a nursery teacher, Vanessa George, who abused the trust that was placed in her by parents of tiny children. Yet from these tragic cases, today’s debate shows some good can come. I pay particular tribute to Marie McCourt, who I believe is in the House today, for her tireless and very brave campaigning. I can only imagine the grief and anguish she must have experienced every day that she has campaigned on this case, bringing back, as it must have done, the terrible memory of what happened to Helen. Yet she has persisted and she has persevered, because she has been determined that others will not suffer the terrible grief and anguish that she has. There can be few sacrifices for a parent more poignant than to go through this sort of experience, reliving terrible events, simply to help others avoid the same experience. As a parent myself, I thank her and pay tribute to her for the enormous sacrifice she has shown by campaigning in this way over so very many years. [Hon. Members: “Hear, hear.”] I would also like to thank the hon. Member for St Helens North (Conor McGinn), her constituency Member of Parliament, who has campaigned with energy, vigour and, I must say, a great deal of charm in making sure that this issue has not been forgotten, despite the political upheaval of the past few years. There may have been general elections, referendums, Dissolutions and Prorogations, but thanks to his hard work, persistence and perseverance this issue has not been forgotten. The Second Reading of the Bill today is testament to his hard work on this topic.
I might say the same thing about the hon. Member for Plymouth, Sutton and Devonport (Luke Pollard), who has campaigned for his constituents; parents who, for reasons he explained, have not wanted to come forward into the public gaze, not wanting to expose their children to the publicity that would have accompanied them stepping into the limelight. He has spoken for them: he has spoken for those parents and for those children. He has made sure that the Bill encompasses those particular circumstances as well. I thank him and pay tribute to him for the fantastic work he has done in making sure that those children are not forgotten by this House.
As hon. Members have said, the Bill is a testament to the House of Commons and our system at its best. We have worked together. We have co-operated. We have overcome obstacles where we have encountered them. I think everybody who has been involved in this process can be extremely proud of the part they have played in it. I thank the shadow Minister for the support he has shown today in backing the Bill.
I would like to pick up on one or two of the points raised by hon. Members in the debate. My hon. Friend the Member for Telford (Lucy Allan) reminded us that victims should be at the heart of the process. I entirely agree. The victims Minister, the Under-Secretary of State for Justice, my hon. Friend the Member for Aldridge-Brownhills (Wendy Morton), is on the Front Bench listening to the debate, together with the Lord Chancellor. It was only last September that the Government put more money into independent sexual violence advisers, who are there to help victims of sexual violence, and into rape centres. I very much hope there is more the Government can do in the weeks and months ahead.
My hon. Friend the Member for Telford also mentioned the fact that there is still an element of Parole Board discretion, as there has to be, for the reasons the Lord Chancellor clearly outlined in his opening speech. We are very mindful that the operation of the Parole Board does need careful consideration. A number of Members have made reference to that this afternoon. In addition to the review already under way, we will be conducting a root and branch review of the way the Parole Board operates to make sure the points raised by hon. Members are fully taken into account. That follows a relatively recent change whereby the Lord Chancellor can ask the Parole Board to reconsider a decision if he believes that it was not right the first time. That was introduced following the John Worboys case. I know that he has used that power a number of times and that it has, on some occasions, been successful. I take on board entirely the points that my hon. Friend the Member for Telford made.
The hon. Member for Plymouth, Sutton and Devonport asked some questions, one of which was: if there is a number of offences that somebody is serving a prison sentence for and only one of the sentences qualifies under clause 2, would the provisions still apply? The answer is that they would still apply, if the qualifying offence is one of a number of qualifying offences. He mentioned such things as video links for parents or families of victims to give evidence at Parole Board hearings, as well as contact details and opt-out, rather than opt-in communications, and those points were extremely well made. I hope that the root-and-branch review will look at them and I thank him for raising them.
The hon. Gentleman asked about recall. The provisions that we are debating apply to the first release that may occur. If a prisoner is released and then recalled, the statutory provisions that we are enacting will not apply, but the Parole Board guidance will, requiring it to take into account the non-disclosure—so the statutory provisions will not apply, but the Parole Board, under its guidelines, will have to account for those matters.
I turn to the questions that were raised by my hon. Friend the Member for Sevenoaks (Laura Trott), who I can see is showing an interest in these topics. Where there is a standard determinate sentence, the provisions of the Bill do not apply because there is no Parole Board decision—release is automatic. Whether a sentence is a standard determinate sentence is a matter for the trial judge at the point of sentencing and it depends on whether the trial judge decides that the offender is dangerous. Clearly, for murder cases, for example, a life sentence with a tariff is mandatory, but with some of the indecent image offences in clause 2, it is conceivable that if a judge did not find that the offender was dangerous, they might hand down a standard determinate sentence. However, that was not the case with Vanessa George—it was an extended determinate sentence—and the expectation is clearly that any serious offender who is dangerous will receive an extended determinate sentence, and therefore, the Bill’s provisions would apply to those offenders.
On standard determinate sentences and releases more generally, the House rightly passed a statutory instrument a week or two ago moving back the automatic release point from half-way to two thirds for longer sentences, of seven years and over. We intend to go further in the sentencing review and Bill later this year to make sure that the most serious offenders serve more of their sentence in prison, respecting the expectation of victims, which so many Members have spoken about this afternoon.
This law places on a statutory footing the fact that the non-disclosure of a victim’s whereabouts or the identity of child victims of indecent imagery must be considered by the Parole Board. That means that there is no discretion for the Parole Board to disregard these considerations—it has to take them into account—and there is no way that anybody, other than this House, can ever change this provision in future. This is a significant step forward for victims. It will make sure that non-disclosure is properly and fully considered by the Parole Board in all circumstances, and it sends a clear message to any prisoner who is currently serving one of these sentences that this House finds it unacceptable that they fail to disclose the whereabouts of a victim’s body or the identity of victims.
My hon. Friend the Member for South Basildon and East Thurrock (Stephen Metcalfe) talked about his constituent, Linda Jones, and her daughter, Danielle Jones, who was murdered by Stuart Campbell, who is currently serving a prison sentence. The message that Stuart Campbell and others like him should hear loud and clear, on this day, from this House, is that their failure to disclose is unacceptable and abhorrent and that they should make that disclosure straightaway. We are striking a blow today for the rights of victims and their families, who deserve to be able to move on with their lives following crimes of the most appalling kind. I pay tribute again to the bravery of Marie McCourt in bringing this matter forward over so many years. The Bill is a testament to her bravery and to her daughter, and it is right that we shall know it as Helen’s law.
Question put and agreed to.
Bill accordingly read a Second time.
PRISONERS (DISCLOSURE OF INFORMATION ABOUT VICTIMS) BILL (PROGRAMME)
Motion made, and Question put forthwith (Standing Order No. 83A(7))
That the following provisions shall apply to the Prisoners (Disclosure of Information About Victims) Bill:
Committal
1. The Bill shall be committed to a Committee of the whole House.
Proceedings in Committee, on Consideration and up to and including Third Reading
2. Proceedings in Committee, any proceedings on Consideration and any proceedings in legislative Grand Committee shall (so far as not previously concluded) be brought to a conclusion two hours after the commencement of proceedings in Committee of the whole House.
3. Proceedings on Third Reading shall (so far as not previously concluded) be brought to a conclusion three hours after the commencement of proceedings in Committee of the whole House.
4. Standing Order No. 83B (Programming committees) shall not apply to proceedings in Committee of the whole House, to any proceedings on Consideration or to other proceedings up to and including Third Reading.
Other proceedings
5. Any other proceedings on the Bill may be programmed.—(Maria Caufield.)
Question agreed to.
Prisoners (Disclosure of Information About Victims) Bill
(Limited Text - Ministerial Extracts only)
Read Full debateTuesday 3rd March 2020
(4 years, 9 months ago)
Commons ChamberPrisoners (Disclosure of Information About Victims) Act 2020 Read Hansard Text Amendment Paper: Committee of the whole House Amendments as at 3 March 2020 - large print version - (3 Mar 2020)
This text is a record of ministerial contributions to a debate held as part of the Prisoners (Disclosure of Information About Victims) Act 2020 passage through Parliament.
In 1993, the House of Lords Pepper vs. Hart decision provided that statements made by Government Ministers may be taken as illustrative of legislative intent as to the interpretation of law.
This extract highlights statements made by Government Ministers along with contextual remarks by other members. The full debate can be read here
This information is provided by Parallel Parliament and does not comprise part of the offical record
The Parliamentary Under-Secretary of State for Justice (Chris Philp)
I beg to move amendment 1, page 2, line 26, at end insert—
“28B Indecent images: prisoner’s non-disclosure of information
(1) The Parole Board must comply with this section when making a public protection decision about a life prisoner if—
(a) the prisoner’s life sentence was passed for—
(i) an offence of taking an indecent photograph of a child, or
(ii) a relevant offence of making an indecent pseudo-photograph of a child;
(b) the Parole Board does not know the identity of the child who is the subject of the relevant indecent image; and
(c) the Parole Board believes that the prisoner has information about the identity of the child who is the subject of the relevant indecent image which the prisoner has not disclosed to the Parole Board (“the prisoner’s non-disclosure”).
(2) When making the public protection decision about the prisoner, the Parole Board must take into account—
(a) the prisoner’s non-disclosure; and
(b) the reasons, in the Parole Board’s view, for the prisoner’s non-disclosure.
(3) This section does not limit the matters which the Parole Board must or may take into account when making a public protection decision.
(4) In subsection (1)(a), the reference to a life sentence includes a life sentence passed before the coming into force of section 1 of the Prisoners (Disclosure of Information About Victims) Act 2020.
(5) For the purposes of this section, an offence is an “offence of taking an indecent photograph of a child” if it is—
(a) an offence of taking an indecent photograph of a child under section 1(1)(a) of the Protection of Children Act 1978 (the “England and Wales offence”), or
(b) an offence of taking an indecent photograph of a child under the law of Scotland, Northern Ireland, any of the Channel Islands, the Isle of Man or any other country or territory that corresponds to the England and Wales offence.
(6) For the purposes of this section, an offence is a “relevant offence of making an indecent pseudo-photograph of a child” if—
(a) it is—
(i) an offence under section 1(1)(a) of the Protection of Children Act 1978 of making an indecent pseudo-photograph of a child (the “England and Wales offence”), or
(ii) an offence of making an indecent pseudo-photograph of a child under the law of Scotland, Northern Ireland, any of the Channel Islands, the Isle of Man or any other country or territory that corresponds to the England and Wales offence, and
(b) the Parole Board believes that an image of a real child was or may have been used in the making of the pseudo-photograph;
and in the application of this section to a relevant offence of making an indecent pseudo-photograph of a child, the references in subsection (1)(b) and (c) to the child who is the subject of the relevant indecent image are references to the real child.
(7) In this section,—
“public protection decision”, in relation to a prisoner, means the decision, made under section 28(6)(b) for the purposes of section 28(5), as to whether the Parole Board is satisfied that it is no longer necessary for the protection of the public that the prisoner should be confined;
“relevant indecent image” means—
(a) the photograph to which an offence of taking an indecent photograph of a child relates, or
(b) the pseudo-photograph to which a relevant offence of making an indecent pseudo-photograph of a child relates.”.
This amends the Crime (Sentences) Act 1997 to require the Parole Board to take account of non-disclosures by life prisoners serving sentences for offences relating to indecent photographs or pseudo-photographs of children.
The First Deputy Chairman of Ways and Means (Dame Rosie Winterton)
With this it will be convenient to discuss the following:
Government amendment 2.
Clauses 1 to 3 stand part.
Chris Philp
This Bill, which passed its Second Reading a short time ago, seeks to respond to two incredibly tragic cases—the tragic murder of Helen McCourt, which happened 32 years ago, and the terrible abuse committed by nursery teacher Vanessa George, who abused the trust placed in her by the parents of tiny children.
Stephen Metcalfe (South Basildon and East Thurrock) (Con)
Unfortunately I have to attend a Delegated Legislation Committee so I will not be able to take part in these proceedings. However, I thank the Minister and his team for introducing this Bill and I remind the House that it goes beyond the two names that he mentioned. My constituent Linda Jones lost her daughter, Danielle Jones, and the whereabouts of the body have never been revealed. While this Bill will help only a small cohort of people, it does go beyond the two names that the Minister mentioned. I welcome the action that the Government are taking and thank them for what they have done.
Chris Philp
I thank my hon. Friend for his intervention. I am very aware that the murderer of his constituent’s daughter, Stuart Campbell, is still in prison. It is to precisely that kind of person that the provisions of the Bill apply, because we want to make sure that when—
Jonathan Edwards (Carmarthen East and Dinefwr) (PC)
Can I add another name to the list? My constituent Michael O’Leary has been missing since January, suspected to have been murdered, and the individual charged with his murder is refusing to let the police know where the body has been hidden. For the families who are now living through this trauma, the fact that they cannot retrieve the body is hugely traumatic. They wanted me to put on the record today their support for what the Government intend to do.
Chris Philp
I am very grateful for the hon. Gentleman’s intervention. He powerfully expresses the importance for the families of victims of knowing where the body of their loved one is. When prisoners, including Stuart Campbell, refuse to disclose the whereabouts of a body, it simply adds to the anguish that the families suffer. In the case that the hon. Member for Carmarthen East and Dinefwr (Jonathan Edwards) mentioned, the individual has been charged but not yet convicted. If that individual is convicted and imprisoned, and the Parole Board comes to consider his release in the future, it will be bound by the provisions of this Bill to take into account the non-disclosure when deciding whether or not to release them.
Having met Marie McCourt, who is Helen McCourt’s mother, the Lord Chancellor and I have heard at first hand just how distressing it is when a prisoner refuses to disclose the whereabouts of the victim’s body. I would like once again to pay particular tribute to Marie McCourt for the campaigning that she has bravely undertaken over these past 32 years since the murder of her daughter Helen.
Related to this is the question of the non-disclosure of the identity of child victims of indecent imagery. I notice that the hon. Member for Plymouth, Sutton and Devonport (Luke Pollard) is in his place. He has been speaking out for his constituents whose children were victims of Vanessa George, the nursery school teacher who so cruelly abused the very young, very tiny children in her care, and then refused to disclose the identity of her young victims, thereby adding to the distress of the parents, the families and the victims themselves. I again pay tribute to him for the campaigning that he has undertaken on this topic.
Sir Desmond Swayne (New Forest West) (Con)
How often are the circumstances set out in amendment 1 under new subsection (1)(a)(i) and (ii) actually likely to occur? A life sentence for photographic offences—is that actually likely to happen often?
Chris Philp
I am delighted that my right hon. Friend the Member for New Forest West (Sir Desmond Swayne) has turned to the particulars of the Bill, because I would now like to address those.
There are two substantive clauses in this Bill. Clause 1 relates to life sentences handed down for murder, manslaughter or indecent images. It is worth mentioning, in response to my right hon. Friend’s intervention, that amendment 1 adds into the provisions of this Bill sentences of imprisonment for public protection, which can also be handed down for making indecent images. Clause 2 covers the slightly broader type of sentence—namely, extended determinate sentences, whether they are handed down for manslaughter or the failure to disclose the subject of an indecent image. He is quite right to point out that in cases where there has been a failure to disclose the victim of an indecent image, it is more likely that there will be an extended determinate sentence than a life sentence. Indeed, in the case of Vanessa George, the sentence handed down was an extended determinate sentence, so that would have been caught by clause 2 rather than by clause 1.[Official Report, 4 May 2020, Vol. 675, c. 6MC.]
The two clauses taken together cover the range of sentences that might be handed down—life sentences and imprisonment for public protection under amendment 1, and extended determinate sentences under clause 2. The substance of these two clauses ensures that when the Parole Board considers release and comes to make its decision about dangerousness and public protection, the requirement to take into account non-disclosure, and the reasons, in its view, for that non-disclosure is put on a statutory—a legal—footing. That is enshrined in new section 28A(1)(a) and (b) in clause 1(1) . This means that at no point in the future can the Parole Board ever decide to vary its guidelines to disregard these matters. It will also very much focus the mind of the Parole Board, and send a message to it, that this House—this Parliament—takes non-disclosure very, very seriously and expects that to be fully reflected in release decisions.
I notice that the hon. Member for St Helens North (Conor McGinn) is now in his place. I would like to repeat the tribute I paid earlier to his and his constituent Marie McCourt’s campaigning on this topic over very many years. It is a testament to his perseverance through what has been a turbulent period in British politics that this Bill is now here in Committee. Without his work, this would certainly not have happened.
Amendment 2 to clause 1 is a technical, consequential amendment—a subsequent provision just to make sure that amendment 1 works technically.
I hope that I have explained the operative provisions of this Bill, which will place on a statutory footing the obligation on the Parole Board to consider non-disclosure of victims’ whereabouts or non-disclosure of the identity of a child victim of indecent images. I think the whole House, and indeed all our constituents, will very strongly welcome that. I commend the amendments and the clauses to the Committee.
Luke Pollard (Plymouth, Sutton and Devonport) (Lab/Co-op)
I rise in support of the amendments that the Minister has just set out to this very important Bill.
The crimes that Vanessa George committed against the babies and toddlers in the constituency I represent at Little Ted’s nursery were simply disgusting. They will be abhorred by any right-minded person. It does not need a partisan label—a party political badge—to know that this is a good piece of natural justice: a law that should be supported by everyone of all parties.
I set out the particular case around Vanessa George on Second Reading, but on behalf of the families—those who were able to come forward—I want to thank the Minister and his ministerial colleagues for the way they have brought forward this campaign. It would be very easy for a Government to ignore a campaign by an Opposition MP, and I am grateful to Ministers for not doing that but instead looking at the victims and the severity of the crimes involved, and acting accordingly by doing what is right.
Vanessa George still shows no remorse for the crimes that she committed and no remorse for the fact that she still refuses to name the children she abused. We do not know how many children at Little Ted’s nursery she did abuse, because she has not told anyone. We know how many children were there, and we have a good idea about which children might have been exposed to her cruel and evil crimes. Those children are now fast-emerging young people who are coming to terms with their place in the world and the way that they feel. The crimes that were committed against them by Vanessa George as children will have long-lasting psychological, and in some cases physical, consequences for them in future. A child not knowing whether they were a victim themselves not only deprives the families of the peace of mind of knowing but deprives that child of the help and support they might otherwise have been able to access. Uncertainty is a prison that those children and their families will be in for quite some time.
The right hon. Member for New Forest West (Sir Desmond Swayne) raised an issue in relation to life sentences. The families do not mind what the sentence is. Anyone who declines to name the children they abuse should not be eligible for early release. In particular, on the question whether a life sentence is passed down for an offence of taking an indecent image of a child or a relevant offence of making an indecent pseudo image of a child, I would be grateful if the Minister could set out whether that also applies to contemporaneous charges. In many cases, it is very unlikely that a life sentence would be passed down just for taking those images, but it might be passed down for the indecent images and the acts of abuse themselves, so would that collection of charges fall under the description in amendment 1 under new subsection 28B (1)(a)(i) and (ii)?
Bambos Charalambous (Enfield, Southgate) (Lab)
As I stated on Second Reading, the Opposition will support the Bill. It rightly addresses the situation of prisoners who have been convicted of murder or manslaughter who then refuse to reveal the identity or the whereabouts of the body, and also the situation of those who have been convicted of taking or making indecent images of children and refuse to identify their victims. Under the Bill, the non-disclosure in both cases is to be formally considered by the Parole Board when someone is being considered for release on licence.
The Bill is the result, first, of Helen’s law, which was introduced by my hon. Friend the Member for St Helens North (Conor McGinn). My hon. Friend’s constituent Helen McCourt was murdered, and her mother has led the campaign for Helen’s law. To this day, Helen’s murderer refuses to disclose the whereabouts of her body. That compounds the family’s grief and denies them the right to lay their loved one to rest.
My hon. Friend the Member for Plymouth, Sutton and Devonport (Luke Pollard) has also campaigned for the provisions in the Bill. The shocking case of the nursery assistant Vanessa George shook the community in his constituency. Vanessa George took indecent images of children at the nursery where she worked and was subsequently convicted, but she still refuses to identify the children.
I cannot praise enough the determination and tenacity of Marie McCourt, the mother of Helen McCourt, who fought and lobbied so hard to get this Bill to become law, as it surely now will do, or the community in Plymouth, Sutton and Devonport, which also campaigned hard to get the Bill on the statute book in relation to the images of the children.
The Government have done a good job in drafting the Bill and placing the requirement in it on the Parole Board. The Parole Board rightly owes a duty to victims. Reliving the trauma and horror of a crime when giving a statement can sometimes be distressing and overwhelming for victims, and they should not have to go through that trauma. If the Parole Board was minded to release a prisoner because they were no longer regarded as a threat to the public, the only option open to victims to challenge that view would be to seek a reconsideration of the Parole Board decision. The Bill puts in an additional safeguard in these exceptional cases; we are not talking about a huge number of cases, and the changes will very likely impact only a handful of cases each year, but the suffering caused is immeasurable for the families and loved ones affected.
There cannot be many people who do not agree with the measures in the Bill. It is clear from the speeches on Second Reading and the comments made in this Committee stage that the Bill has cross-party support. To condemn the relatives of victims to further unnecessary anguish is truly appalling and should not go unpunished. This Bill is short—only three clauses—but by amending the Crime (Sentences) Act 1997 and the Criminal Justice Act 2003, it allows for non-disclosure to be formally considered when deciding whether to release a prisoner on licence. That helps to avoid the additional pain and suffering of having to draft a victim statement. The Minister eloquently gave the details of the two amendments the Government have tabled, so I will not repeat or explain them, but both have the support of the Opposition.
As the prevalence of image sharing increases, it will be much easier for the identities of child victims of indecent images to be hidden via various software, and there is a real possibility that there could be more cases of indecent images of unknown child victims. Sentencing guidelines must keep pace with new developments in technology and the regulation of associated offences that we are yet to identify. I therefore await with interest the Government’s White Paper on sentencing, which is due later this year.
I hope the Government will tighten up the victims code and think about introducing a victims law. For now, however, the Opposition are content to support the Bill and the two Government amendments and to help Helen’s law become an Act of Parliament.
Chris Philp
I thank the shadow Minister for the constructive tone in which he has engaged with the Bill in general and for his remarks a few moments ago. To pick up on his comments on the sentencing White Paper, we do indeed intend to bring it forward later this calendar year. Hopefully, we can look at a much wider range of issues connected with sentencing to make sure that the punishment always fits the crime. In relation to a victims Bill, it is our intention to legislate in that area later in the current Session.
I want to reassure the hon. Member for Plymouth, Sutton and Devonport (Luke Pollard) on both the points he raised. Where there is a collection of offences, some of which come within the scope of the Bill but others of which do not, this Bill will be engaged when release comes to be considered, even if only one of the offences falls within its scope. His constituents can be reassured that the Bill will apply in those circumstances.
All sentence types are covered. Clause 1, which amends section 28 of the Crime (Sentences) Act 1997, will cover life sentences and, as amended, sentences for imprisonment for public protection. Clause 2, which amends the Criminal Justice Act 2003, covers extended determinate sentences, so all sentence types are covered by this Bill, as amended. I can therefore give the hon. Gentleman the categorical assurance he requested.
In relation to the question raised by my hon. Friend the Member for Crewe and Nantwich (Dr Mullan), I expect the Parole Board to give significant weight to non-disclosure. The fact that Parliament has gone as far as legislating in this area will send an extremely clear message to the people taking these decisions, and I expect this to weigh heavily on the mind of Parole Board members when they take these decisions. A wider review into the operation of the Parole Board will commence in due course—the so-called root-and-branch review announced in the manifesto last December—and there will be an opportunity for my hon. Friend and all Members to contribute to that discussion.
Putting on the face of the Bill the requirement to take non-disclosure into account means that it can never be changed, other than by a subsequent Act of Parliament. It will also send a message to Parole Board members about how important these issues are for Members of this House, for the reasons described today. I commend the amendments and clauses to the House.
Amendment 1 agreed to.
Amendment made: 2, in clause 1, page 2, line 30, leave out “Section 28A contains” and insert “Sections 28A and 28B contain”.—(Chris Philp.)
This amendment is consequential on Amendment 1.
Clause 1, as amended, ordered to stand part of the Bill.
Clauses 2 and 3 ordered to stand part of the Bill.
The Deputy Speaker resumed the Chair.
Bill, as amended, reported.
Bill, as amended in the Committee, considered.
Madam Deputy Speaker (Dame Rosie Winterton)
There are no amendments on consideration.
As no non-Government amendments have been made to the Bill, I am signing a certificate on the basis of the provisional certificate issued with the selection list. As indicated in that provisional certificate, I certify that the Prisoners (Disclosure of Information About Victims) Bill relates exclusively to England and Wales on matters within devolved legislative competence, under Standing Order No. 83J.
Does the Minister intend to move a consent motion in the Legislative Grand Committee?
Chris Philp
indicated assent.
The House forthwith resolved itself into the Legislative Grand Committee (England and Wales) (Standing Order No. 83M).
[Dame Rosie Winterton in the Chair]
The Lord Chancellor and Secretary of State for Justice (Robert Buckland)
I beg to move, That the Bill be now read the Third time.
As Members know, the Bill ensures that the non-disclosure of information about a victim’s remains or their identity, and the reasons for that non-disclosure, are fully considered by the Parole Board when making a release decision. It is then for the Parole Board, which is an independent body, to decide what bearing such information has on the risk that a prisoner may present and whether that risk can be managed safely in their community. The Bill reflects the established practice of the Parole Board, as included in its guidance to panel members in 2017, but it goes an important step further in placing a legal duty to take the non-disclosure into account. This is part of the Government’s intention to provide a greater degree of reassurance to victims’ families by formally setting out that guidance in law.
This important Bill responds directly to real-life issues that we know have caused and continue to cause immense distress to families of victims of serious crimes. I see in the Chamber my hon. Friend the Member for St Helens North (Conor McGinn)—I will call him my hon. Friend on this occasion—who has assiduously campaigned with the McCourt family to ensure that today has become a reality. I pay tribute to him for that, as I did on Second Reading. I also see the hon. Member for Plymouth, Sutton and Devonport (Luke Pollard), who brought to bear his grave concerns relating to a case in his constituency, which resulted in the expansion of the Bill to encompass the horrendous circumstances in which many of his constituents tragically found themselves as a result of material non-co-operation. I pay tribute to them, and indeed to all hon. Members who over the past few years have campaigned hard to make sure that this Bill was introduced.
It is imperative that we protect the public from potentially dangerous offenders. Those offenders who do not disclose the whereabouts of a victim’s remains or the identity of the victims in indecent images must be thoroughly assessed, and the non-disclosure must always be taken into account. We can all agree about the importance of stipulating in statute that appalling circumstances such as those addressed in this Bill must be fully taken into account by the Parole Board when making any decisions on the release of such an offender. It is clearly in the public interest that all elements of a prisoner’s release are given consideration, and in turn, it is in the interests of the Parole Board to be able to rely on statutory provision about always considering the relevant non-disclosure of information in its release assessments.
I extend my thanks to everybody who has helped to prepare this Bill, particularly the Under-Secretary, my hon. Friend the Member for Croydon South (Chris Philp), for his hard and detailed work, and the Bill team for their strenuous efforts. Most importantly, to all those families affected by despicable crimes such as these, I pay warm and heartfelt tribute. I hope they will be able to take some comfort from knowing that their dedication provides some hope for other families affected by the cruel and heartless actions of those who refuse to disclose vital information. On behalf of all those families and victims, I thank you. I appreciate the positive engagement with and cross-party support for the principles in this Bill, and the Department’s help with the progress that we have made. I commend this Bill to the House.
Prisoners (Disclosure of Information About Victims) Bill
(Limited Text - Ministerial Extracts only)
Read Full debateTuesday 28th April 2020
(4 years, 7 months ago)
Lords ChamberPrisoners (Disclosure of Information About Victims) Act 2020 Read Hansard Text Amendment Paper: Committee of the whole House Amendments as at 3 March 2020 - large print version - (3 Mar 2020)
This text is a record of ministerial contributions to a debate held as part of the Prisoners (Disclosure of Information About Victims) Act 2020 passage through Parliament.
In 1993, the House of Lords Pepper vs. Hart decision provided that statements made by Government Ministers may be taken as illustrative of legislative intent as to the interpretation of law.
This extract highlights statements made by Government Ministers along with contextual remarks by other members. The full debate can be read here
This information is provided by Parallel Parliament and does not comprise part of the offical record
The Advocate-General for Scotland (Lord Keen of Elie) (Con)
My Lords, this Bill will stipulate in statute an obligation on the Parole Board to ensure that the non-disclosure of information is always considered when making a release assessment. The Bill will put established practice on a statutory footing and respond directly to real-life issues that have caused immense pain to the families of victims of serious crimes.
The Bill, sometimes referred to as “Helen’s Law”, is a result of the work of Helen’s mother, Marie McCourt, who has campaigned tirelessly for this change. I take the opportunity to pay tribute to Mrs McCourt’s resolve. It is in large part thanks to her that we have reached this point.
Helen McCourt was a 22 year-old insurance clerk from the village of Billinge, near St Helens in Merseyside. On the evening of 9 February 1988, Helen disappeared while on her way home from work. The following year, Ian Simms was convicted of Helen’s murder and ordered to serve a minimum of 16 years in prison. Ian Simms has since been released but has never revealed where Helen’s body is and, despite extensive searches, her remains have never been found. This has compounded the unimaginable suffering of the McCourt family.
We will all appreciate the closure and comfort that can come from laying a loved one to rest. The McCourt family, and others like them, have been wilfully and cruelly denied this comfort. Mrs McCourt has campaigned for a change in the law to represent this, to acknowledge the added distress this causes for the families of victims, and there is wide public support for such a change.
I would like to take a moment to reflect on another case which has shaped the development of the Bill. In 2009, Vanessa George was convicted for multiple counts of sexual abuse against children at the Plymouth nursery where she worked. She did not stop at the abuse of the children but photographed these horrendous acts in order to share them with other depraved individuals. Her abuse of the trust placed in her by the families of the children she was meant to care for and protect is truly shocking.
The pain felt by the victims and their families has been compounded by the fact that the children she photographed cannot be identified from the images she produced, and she has hitherto refused to disclose their identities. Many families who placed their trust in Vanessa George do not know, and may never know, if their children fell victim to her cruelty. She was released by the Parole Board after serving 10 years in prison.
When considering the release of an offender like Vanessa George or Ian Simms, the Parole Board must always take into account this withholding of such significant information. That is why we are legislating, through this Bill, to directly address this current gap, and to seek to bring some small solace to victims and families.
Clause 1 will amend the release provisions that apply to life sentences for murder and manslaughter, and sentences of imprisonment for public protection for manslaughter and the offence of taking or making indecent images of children. This places a statutory obligation upon the Parole Board to consider a non-disclosure of information about a victim’s remains or the identity of a victim in an indecent image when making a public protection decision, being a decision to release, about such a prisoner.
Clause 2 of the Bill effectively replicates what Clause 1 achieves but in relation to the release provisions that apply to an extended determinate sentence which has been imposed for manslaughter or the offence of taking or making indecent photographs of children. Functioning in the same way as Clause 1, it will place a statutory obligation on the Parole Board to consider the non-disclosure of information about the location of a victim’s remains or the identities of a child or children featured in indecent images when making a public protection decision, including a decision to release.
In order for the Bill to apply, the Parole Board must not know the location of a victim’s remains or the identity of a victim in an indecent image but must believe that the prisoner has information about this that they have not disclosed to the board. This is the essence of the prisoner’s non-disclosure, and it is this that must be taken into account by the board when assessing whether a prisoner can safely be released on licence.
Furthermore, the Parole Board must particularly take account of what, in its view, are the reasons for this non-disclosure. This subjective approach will enable the board to differentiate between circumstances such as when, for example, the non-disclosure is due to a prisoner’s mental illness, and cases when a prisoner makes a deliberate decision not to say where a victim’s remains are located.
Subjectivity is fundamental to the proper functioning of the Bill. It is for the Parole Board, as an independent, court-like body, to decide what bearing such information has on the risk that a prisoner may present and whether that risk can be managed safely in the community. The Bill reflects the established practice of the Parole Board but goes a step further and puts a legal duty on the board to take the non-disclosure into account.
While, as I have set out, the measures in this Bill may seem relatively small or technical, I cannot stress enough the importance of this Bill and the support it has from victims and families. The crimes of the likes of Ian Simms and Vanessa George are harrowing, and families affected by these crimes deserve the peace of some element of closure, whether that is the opportunity to lay a loved one to rest, or the certainty of whether or not they were abused. This Bill offers families and victims a chance to achieve that.
I hope that the “Helen’s Law” Bill will attract support from all sides of the House and enter into the statute book as soon as possible. I beg to move.
Lord Keen of Elie
My Lords, I thank noble Lords for what has been a worthwhile debate on this important Bill. I hope that families and victims affected by the sort of circumstances referred to will have taken some comfort from the fact that the Bill has made this much progress and has received support from around the House, albeit some noble Lords may feel that it does not go far enough and some may feel that it should look to issues other than those addressed.
The noble Lord, Lord Ponsonby, whom I welcome to his place on the Front Bench, used the word “balance”, which is an important term in the present context. There has to be a balance of the number of issues and interests. I shall seek to address the points raised by noble Lords in as straightforward and clear a way as possible in the time allowed.
The noble Baroness, Lady Kennedy of Cradley, referred to the guidance to the Parole Board. Certain guidance exists at present, but we ensure that that guidance can never move away from the issue addressed by this Bill by enshrining it in statute. There is a question about the status of victims and their views in the context of the Parole Board hearings, and the whole question of how technology may be brought to bear to improve these hearings. The processes of the Parole Board are the subject of review at present, and no doubt these issues will be taken into account.
A number of noble Lords asked about the timescale for that review. In the present circumstances, I can go no further than to say that it will be brought forward in the course of time. I know that that is not terribly helpful in itself. However, I hope that noble Lords will appreciate that we are concerned to ensure that the review is brought forward as soon as reasonably possible, but that there are other pressures on government at present.
On the observations of the noble Baroness, Lady Bull, again, I concur with her observation that to move from a discretion in guidance to a statutory obligation is itself important. It ensures that there is a clear consideration mechanism to be brought in these cases. We are confident that the provisions of the Bill are sufficient and effective to apply in the contexts of non-disclosure, psychiatric conditions and mental illness. Again, the noble Baroness raised the question of review by the Parole Board, which I have sought to address.
My noble and learned friend Lord Garnier suggested that the Bill does not go far enough. I am reminded of the reference made by the noble Lord, Lord Ponsonby, to balance. I will make two observations. We agree that Parole Board decision-making should be transparent and as open as possible, particularly for victims and their families. However, there are good reasons why parole hearings are held in private. Deeply personal and sensitive issues are discussed regarding the offender, the nature of the offence, the victim and the arrangements for the possible release of an offender, including, for example, where they might or might not live, and the licence conditions that apply. Therefore, the parties must be able to speak candidly, and the prospect of information being made public that could compromise the integrity of evidence has to be borne in mind.
We have taken steps to improve the transparency of the parole process. In May 2018 we amended the rules to allow the board to provide summaries of its decisions, in order to provide victims with an indication of what the position had been. That has improved transparency. In July 2019, the new Parole Board rules were introduced. This created a reconsideration mechanism that can be employed by the Secretary of State, and which has been in one of the cases referred to here.
The second issue that my noble and learned friend Lord Garnier raised was a new offence of non-disclosure. We have to remind ourselves that in sentencing, one is concerned with two elements, punishment and prevention, and the Parole Board’s consideration is of course prevention. Where an offender’s main offence is murder, for which a life sentence is imposed, any additional sentence for a separate offence—for example, of non-disclosure—would have to be served concurrently to the life sentence, because it would be a sentence of immediate custody and could not be deferred to commence at the point the judge sets as the minimum tariff for the murder. Therefore, if a separate concurrent sentence were imposed at or shortly after the time of sentencing for the main offence, it would in all likelihood be completed well before the minimum tariff for the original sentence had been completed. In fact, there is no need for a statutory offence, because courts may consider the common law offence of preventing the lawful burial of a body, which is itself punishable by a maximum sentence of life imprisonment.
Therefore, provisions do exist, but in reality it is more reasonable for the sentencing judge to take account of the non-disclosure when deciding on the length of the tariff, and to increase the tariff accordingly when non-disclosure is seen as an aggravating feature of the crime. We can therefore accommodate this under current sentencing policy, and I do not consider it necessary to introduce a new statutory offence. However, clearly, we will keep the application of the Bill under review—a number of noble Lords raised that point. It would be usual for the implications of the legislation, once it has commenced, to be considered after a period of three years. That gives time for implementation by the Parole Board, for the results to be identified and for improvements, if any, to be contemplated; that will take place in this case as well. On the commencement of the Bill, it is certainly the intention that it should be brought into force as soon as reasonably possible after it receives Royal Assent, which would normally be a minimum of two months after Royal Assent. I do not anticipate that being deferred for any material period, and I am not aware of any reason why it would be, so we would hope to see the Bill in force reasonably swiftly.
I turn to the observations of the noble Lord, Lord Kennedy of Southwark, who asked about a short determinate sentence in the case of manslaughter. There, the person would never come before the Parole Board and the Bill, when it becomes an Act, would therefore not apply to them—so I seek to give him that reassurance.
There was also the question of when somebody maintains that they are not guilty, a point raised by other noble Lords as well. That matter clearly comes before the Parole Board. It has to make a judgment about the circumstances and come to a view about whether such conduct is deliberate. It may be a psychological problem or a mental health issue. That is why we cannot have an absolute rule of, “no body, no parole”, as has been suggested on some occasions. Quite apart from anything else such a rule, while it would not take account of somebody who is suffering a mental illness or who simply has a psychological commitment to denial at all costs, would also potentially be in breach of Article 5 of the European Convention on Human Rights. That allows for punishment and preventive elements in a sentence but would not allow for a non-co-operation element. So there are very real concerns that an absolute rule would be subject to successful legal challenge, which is one thing we do not want in this context. Indeed, if there were to be such a challenge it would merely heap further uncertainty on families and victims of crime in circumstances where we can, if we look forward, avoid that.
The noble Lord, Lord Hastings, raised a number of points on sentencing policy. I am not going to address sentencing as it is not the purpose of the Bill, so it is not appropriate to go there. He also raised release from prison during the Covid emergency and referred to the provision for releasing up to 4,000 prisoners—I stress “up to”—who would be due for release within two months. There have certainly been only limited releases under that provision. However, the whole purpose of that policy was to provide head room within the prison population; that is, to allow for capacity demands to be met within it. They have in part been met because, due to the closedown resulting from the Covid pandemic, courts have not been sitting, trials have not been taking place and people have not been committed to prison as a result of sentences. That has reduced the head room within the prison estate by about 2,500. So it is a question of balancing these issues. We must of course have the means to reduce the prison population if that is urgently required, but we are not going to do it as a matter of course. We do not seek to release 4,000 prisoners just because that figure was the upper limit set in the provisions that were referred to. It is there as head room and will be used if required. If it is not required, it will not be used.
Reference was made to the unfortunate administrative error that led to the release of six prisoners who should not have been released. I commend the prisoners in question, who all returned as soon as the administrative error had been identified. One was then re-released, as it were; the other five were not. But to that extent they co-operated.
The noble Lord, Lord Balfe, asked me a series of about 20 questions. I will seek to address some of them. He asked why we need guidance for the Parole Board. It is appropriate that the Parole Board, like any body of that kind, should work within the boundaries of guidance. It is not that we do not trust it or rely on it but, like any such body, it would like to have a rulebook so that it knows the boundaries within which it operates. As I say, we will bring forward the review when we can.
Will the provisions extend to Scotland and Northern Ireland? I believe that the noble Lord, Lord Naseby, also raised this point. These are devolved issues and it is not for us to legislate for Scotland or Northern Ireland in these areas. However, my understanding is that both those legislatures are addressing this issue and they may in turn bring forward their own legislation in these areas. I would add only this: if somebody was convicted in Scotland but then transferred into the English prison establishment and became subject to the Parole Board in England, the provisions of the Act would apply to them. That is the only exception. Otherwise, we would leave it to the devolved Administrations to discharge their provisions as they think fit.
The noble Lord, Lord Adonis, referred to the observations of the noble and learned Lord, Lord Garnier. I hope that I have addressed those to some extent. Clearly, there is the issue of the interests of victims being considered, and I anticipate that that will form part of the ongoing review into the operations of the Parole Board. I take the point that was made by a number of noble Lords about the introduction of technology to improve that whole process. As we see it accelerating in the courts, why should we not see it accelerating with other bodies? Those developments that just a few months ago people thought would take five to 50 years, are taking five to 50 days to implement, which shows what can be done when it is demanded.
The noble Baroness, Lady Finn, talked about a lack of transparency at the Parole Board; I hope I have addressed that to some extent. There is also the question of the Victim Contact Scheme. No doubt experience indicates that that can be improved, and we may have to look at whether it is an opt-in scheme or an opt-out scheme and how it can best be developed with modern technology to ensure that victims and their families are aware—not after the event but before the event—of these processes. I acknowledge the concern expressed on that point.
The noble Lord, Lord Mann, asked what happens when someone is committed to Broadmoor, for example. Their release would be determined under the provisions of the Mental Health Act and would go before the First-tier Tribunal for determination. If they were then referred back into the prison system, ultimately they would become subject to the parole process and to the Act; otherwise, their release from Broadmoor, or from another institution of that kind, would be under the Mental Health Act and not these provisions.
The noble Lord, Lord Naseby, raised a number of points that I hope I have addressed to some extent. In particular, he asked why we rejected the “no body, no release” point. I have sought to reassure him as to why it is appropriate that we should not accept that particular way forward. There is the question of incentivisation, and one of the purposes of the Bill is to make it very clear, not only to the Parole Board but to prisoners, that this is an issue they will have to face when they reach the preventive stage of their sentence and are seeking to be released into the community. But let us remember that there are evil and manipulative people out there, and they will not cease necessarily to be evil and they will not cease to be manipulative, no matter what legislation we seek to pass. We have to be realistic about that. It is unfortunate, but it is true.
The noble Baroness, Lady Barker, who I acknowledge took helpful and appropriate steps to engage with the McCourts after this Second Reading was deferred, raised the question of “no body, no release” as well, and I concur with the point that she made. She also asked how we would monitor the Bill. As I indicated, it is usual after a period of three years for us to look to review the workings of the Act once it is in force to ensure that it is achieving its necessary objectives.
Finally, the noble Lord, Lord Ponsonby, asked a number of questions. On a victims Bill, I cannot express a view as to how and when such a provision will come forward. On the operation of the Parole Board, we know that it will be the subject of further review, but I cannot fix a date for when that review will be available.
As I indicated at the outset, this is a short but fundamentally important Bill and I hope that I have dealt as far as I can with the specific questions raised by noble Lords, which can of course be taken forward for discussion in Committee.
Baroness Barker
Will the Minister please write to me about whether this legislation once passed can be used by the families of victims to consider judicial review of decisions to release that have already been made?
Lord Keen of Elie
I can answer that now. The Bill will be retrospective to the extent that it will apply to all those currently serving a sentence of imprisonment who are due to come before the Parole Board. If in those cases the Parole Board were to make an error of law by not applying the provisions of the Bill, that would leave it susceptible to administrative action by way of judicial review. But it will not allow families or victims to come forward and seek to judicially review a decision already implemented by the Parole Board for the release of an individual. I hope that makes clear the point the noble Baroness raised. I commend this Bill to the House.
Prisoners (Disclosure of Information About Victims) Bill
(Limited Text - Ministerial Extracts only)
Read Full debateWednesday 20th May 2020
(4 years, 7 months ago)
Lords ChamberPrisoners (Disclosure of Information About Victims) Act 2020 Read Hansard Text Amendment Paper: HL Bill 102-I Marshalled list for Virtual Committee - (15 May 2020)
This text is a record of ministerial contributions to a debate held as part of the Prisoners (Disclosure of Information About Victims) Act 2020 passage through Parliament.
In 1993, the House of Lords Pepper vs. Hart decision provided that statements made by Government Ministers may be taken as illustrative of legislative intent as to the interpretation of law.
This extract highlights statements made by Government Ministers along with contextual remarks by other members. The full debate can be read here
This information is provided by Parallel Parliament and does not comprise part of the offical record
Lord Ponsonby of Shulbrede (Lab)
My Lords, I am winding up for the Opposition on this short but very interesting debate. I want to open by addressing the point made by my noble friend Lord Blunkett. He concluded in his support for this amendment that we are asking the impossible of the Parole Board. Although I recognise his immense experience, I question whether that basic assumption is true, and I take up the point just made by the noble Baroness, Lady Barker, that we entrust the Parole Board with these extremely difficult decisions. All the members of the board who I have ever met are extremely responsible people. My understanding of this amendment is that it would require two medical opinions, after which the Parole Board would make its decision, and it is right that the Parole Board should have that responsibility.
My main objection to the amendment is that by making it inevitable in some way that people will find it impossible to get out of prison, they could be tempted to knowingly give wrong information and to do so as a form of torture, if you like, because they know that it will cause more distress to the parents involved. We should not give them that power. We should retain the responsibility and the subjective judgment of the Parole Board in making these difficult decisions.
I also listened to the noble and learned Lord, Lord Garnier, and the response to his points by the noble and learned Lord, Lord Mackay. They are both extremely experienced lawyers. I must admit that I was initially attracted to the solution proposed by the noble and learned Lord, Lord Garnier, but I listened with interest to the objections of the noble and learned Lord, Lord Mackay, and his method of solving the conundrum before us.
This amendment is not appropriate for the Bill, and I think we should pass the Bill as amended. While I acknowledge the point made by my noble friend Lord Adonis questioning whether the Bill is necessary, I think it is right that the practice of the Parole Board is put into statute, otherwise there may be other legal mechanisms of challenging the Parole Board’s decisions if it is adopting this practice but is not supported by proper legislation being in place. On that basis I would reject this amendment. We will consider the other amendments in due course, but largely speaking the Bill should pass unamended.
The Advocate-General for Scotland (Lord Keen of Elie) (Con)
I thank noble Lords and noble and learned Lords for their contributions to the debate in Committee —[Inaudible.]
The Deputy Chairman of Committees (Lord Faulkner of Worcester)
Could the noble and learned Lord, Lord Keen, please lean a little closer to the microphone?
Lord Keen of Elie
Yes, of course, although I do not think I could get much closer. Can you hear me?
Lord Keen of Elie
I am not sure what I can do about that. Can you hear me now?
Lord Keen of Elie
I believe the host has stopped the video. I will continue, if I may. Amendment 1, as indicated, would require certification by two—[Inaudible] —the application of the release provisions to the prisoner. Of course if the result of the assessment is that the prisoner is found to be suffering from irreversible memory loss, the Bill’s provisions would not apply to that prisoner. The amendment creates a requirement for medical certification in all cases where the board considered the provisions might apply before such provisions—[Inaudible]—as part of the release assessment. That of course contrasts with the Bill’s current approach, which is to allow the Parole Board as an independent—[Inaudible]—prisoner has not disclosed. So the amendment alters the subjective test that requires the board to— [Inaudible]—which they had not disclosed to, I think I quote, “reasonably suspect” that the prisoner has such information. Again, the replacement of “believe” with “reasonably suspect” would lower the threshold—[Inaudible.]
The Deputy Chairman of Committees
I am so sorry to the noble and learned Lord, Lord Keen, and I apologise to all noble Lords. We have to adjourn for 10 minutes while we try to sort out this technical problem. We will resume shortly after 3.25 pm.
The Deputy Chairman of Committees
My Lords, we will now resume the Committee stage of the Prisoners (Disclosure of Information About Victims) Bill, and I hope that we will hear from the noble and learned Lord, Lord Keen of Elie. Perhaps I may suggest that he starts his remarks from the top.
Lord Keen of Elie
I thank the Deputy Chairman of Committees and apologise to noble Lords for any inconvenience that has been caused. It is not clear what the problem was. [Inaudible.]
I was turning to look at Amendments 1 and 3, which, despite having separate effects on the Bill’s provisions, when taken together have the cumulative effect of preventing the Parole Board considering the release of any prisoner who has failed to disclose the relevant information, unless they have been certified as suffering from “irreversible memory loss”. [Inaudible.]
The Deputy Chairman of Committees
I apologise to the Minister but we cannot hear him properly. We will adjourn for five minutes in the hope that he will be able to dial in to speak in the debate. The Committee is adjourned until 3.34 pm.
Lord Keen of Elie
I thank noble Lords for their patience. I now turn to consider Amendments 1 and 3, tabled by my noble friend Lord Blencathra. Although they have separate effects on the Bill’s provisions, when taken together, the two amendments have the cumulative effect of preventing the Parole Board considering the release of any prisoner who has failed to disclose the relevant information, unless they have been certified as suffering from “irreversible memory loss”.
Amendment 1 creates a requirement for medical certification in all cases in which the board considers that the provisions might apply to a prisoner, before such provisions would apply as part of the release assessment. This contrasts with the Bill’s current approach which is to allow the Parole Board, as an independent expert body, to form its own belief as to whether a prisoner has the necessary information regarding a victim’s remains, which that prisoner has not disclosed.
In addition, the amendment alters the subjective test that requires the board to believe that a prisoner has information regarding a victim’s remains which they have not disclosed to a test that it “reasonably suspects” that the prisoner has such information. That would lower the threshold of the evidential standard required by the board to satisfy itself.
Of course, mental impairment, including irreversible memory loss, may well be a reason for such non-disclosure, and I fully expect the Parole Board to consider these issues after consultation with medical and other experts, as it does now. In these circumstances, I see no need for a prior medical assessment to take place, which may be unnecessary and which would unjustifiably fetter the board’s subsequent handling of such cases.
Furthermore, the reference to reasonableness here is, I suggest, unnecessary. As a public authority, the board is already obliged to act reasonably, and to prescribe this in the Bill may undermine these existing general law principles. I do not consider that to be the appropriate approach in this instance.
Turning briefly to Amendment 3, which would deny release to any prisoner who failed to disclose the information under consideration in this Bill, unless they were suffering from irretrievable memory loss, as set out in the preceding amendment, it raises very real difficulties. Parole Board consideration of the case would cease until the prisoner disclosed the relevant information or the medical evidence changed. Precluding release on such grounds may very well give rise to a challenge under Article 5 of the European Convention on Human Rights, as once a prisoner has served their minimum tariff, and is found no longer to pose a risk to the public, continuing detention would be regarded as arbitrary for the purposes of Article 5. I will come back to elaborate upon that in a moment.
In addition, as was touched upon by my noble and learned friend Lord Mackay of Clashfern, a failure to disclose relevant information may not be solely due to memory loss but, alternatively, may be due to mental impairment or mental ill-health, or could be a consequence of genuine changes, for example in geography, which meant the location of a body could no longer be identified. Furthermore, creating a blanket ban on release may even create an incentive for offenders to lie about the location of a body. In these circumstances, I encourage noble Lords to consider very carefully what the Bill currently enables the Board to do, which is to investigate these issues and to come to a subjective view in this context.
I will now touch upon a number of points raised. The noble Lord, Lord Blunkett, alluded to the question of the Home Secretary’s former power to block release. I just note that the Lord Chancellor and Justice Secretary does have the power now to review a decision of the Parole Board, and has exercised that power.
With regards to the points raised by the noble Lord, Lord Adonis, in the context of the sentences that we are looking at—that is, life sentences and certain extended sentences—there are two elements to the sentence: the punitive element and the preventive element. The punitive element is essentially the tariff which is set by the court at the time of sentencing, or the minimum period within the life sentence that the accused or convicted person is going to have to spend in custody. That will have regard to a number of factors including, for example, the non-disclosure of the whereabouts of a victim.
The preventive element is addressed by the Parole Board, and not by the court. As my noble and learned friend Lord Mackay of Clashfern observed, the test there is whether it is no longer necessary for the protection of the public that the prisoner should be detained. An element for consideration at that point is whether a failure to disclose the whereabouts of a victim or victims would indicate a continuing threat to the public in that context. To have an absolute bar on the prisoner being released, on the grounds of non-disclosure, would not fit with the appropriate test which has to be applied by the Parole Board at the preventive stage. I reiterate that this would take us into territory where the whole process could potentially be challenged under Article 5 of the convention. It would be extremely unwise for us to legislate on such an issue in circumstances where we left that legislation open to future challenge from the court. That is hardly going to bring any comfort to the families of victims and others.
In these circumstances, I do not consider that it would be appropriate to go down the road suggested by my noble friend Lord Blencathra. I would add only that I concur with the observations made by my noble and learned friend Lord Mackay on the matter of a further criminal offence of non-disclosure. As I indicated before, there is a common law offence of not disclosing the whereabouts of a body, but even if one was to be convicted of that, in the context of a life sentence having already been imposed, there would be another concurrent sentence and that could only lead to a degree of confusion. That is putting aside for the moment the very real difficulty that was identified by my noble and learned friend Lord Mackay of two juries coming to quite different conclusions on the evidence in related trials.
In all of these circumstances, I would invite my noble friend to withdraw the amendment.
The Deputy Chairman of Committees
I have had notification that the noble Lord, Lord Adonis, wishes to speak after the Minister.
Lord Ponsonby of Shulbrede
My Lords, as the noble Lord, Lord German, has just said, there are essentially two groups within this single group of amendments. The first was introduced by the noble Baroness, Lady Bull, on mental capacity and making sure that the Mental Capacity Act 2005 is properly taken into account in the Parole Board proceedings. I was persuaded by the argument of the noble Lord, Lord Thomas of Gresford, that while we should not do piecemeal reforms of the Parole Board system—I anticipate that the Minister will say there will be a larger-scale review of the Parole Board system—this aspect of the mental capacity of the offenders who come before the board should nevertheless be taken into account.
The noble Baroness, Lady Bull, was very persuasive in her speech. She alluded to my noble friend Lord Bradley’s report, in which he pointed out that it is unknown how many people in our prisons have mental disorders. As the noble Baroness, Lady Bull, said, it should be no surprise that quite a lot of prisoners’ mental capacity deteriorates because of their time in prison, for the reasons she gave in her speech. The other point she made was about dementia. We are often dealing with people on very long prison sentences, and dementia is becoming an ever more real issue. For those reasons, I support the amendments in the name of the noble Baroness, Lady Bull.
The amendments in the second part of this group were introduced by the noble Lord, Lord Thomas of Gresford, who spoke about Newton hearings as a possible way of resolving this conundrum. I have some experience of Newton hearings in a much lower capacity in magistrates’ courts. I regularly have Newton hearings, trying to resolve whatever the issue of the day is. My experience is that, in practice, it is quite difficult to narrow the issues and look just at the issue in dispute in a Newton hearing. It is very often the case that the wider events surrounding the events as a whole are brought into the case, even when one is trying to narrow the issue.
While I understand the suggestion and think it interesting, I am also mindful of the points made by the noble and learned Lords, Lord Mackay of Clashfern and Lord Thomas, that the sentencing judge will have heard the whole case in any event and can explain their view on the reason the offender has not disclosed the location of the body and make it quite explicit whether there is an uplift to the tariff because of the way the offender has behaved. I am open-minded on that point; I have just raised some questions that arise from my own experience in the lower courts.
Nevertheless, these amendments are interesting and constructive. I hope that, when he comes to reply, the Minister will treat them in that way.
Lord Keen of Elie
I thank noble Lords and noble and learned Lords for their contribution to the debate prompted by these amendments. I begin with a number of general remarks which may well be familiar to noble and learned Lords, but perhaps not to everyone.
I believe there was a reference at one stage of the proceedings to early release, and I emphasise that we are not dealing here with any issue of early release. As I mentioned in response to observations from the noble Lord, Lord Adonis, we are generally dealing with a life sentence or extended sentence, and when we come to look at that, we can identify two elements—in what I shall refer to as a life sentence. There is the punitive element, which is the tariff fixed by the court, and a preventive element, which is the issue addressed by the Parole Board in the context of public protection. The Parole Board’s role comes into play only at the end of the tariff—the punitive element of the sentence—at which point the Parole Board has to determine whether there should be a continuation of custody or a release under licence, having regard to the public protection test.
The noble and learned Lord, Lord Thomas, was quite right in observing that in most, if not all, of these cases, the judge will have made findings in fact that will address, among other things, whether there has been disclosure of a victim’s whereabouts. If that becomes an issue, there is scope for what is termed a Newton hearing. But generally, the trial judge—whether after plea or after trial—will be in a position to make findings in fact on that issue, and to then reflect those findings in fact in the tariff he imposes upon the individual in question when applying the punitive element of the sentence. I emphasise that because the noble and learned Lord, Lord Thomas, made the point that there should not be punishment again. That is quite right: it is not the role of the Parole Board to punish. The role of the Parole Board is to determine, by reference to the public protection test, whether at the expiry of the tariff it is appropriate for an individual to be released from custody, albeit under licence.
That takes me to an observation of the noble and learned Lord, Lord Hope, who asked whether the object of this legislation is to delay release as a punishment. The answer is clearly no. The issue being addressed is in the context of public protection, and whether the failure to disclose indicates to the Parole Board that there is a very real and material question about public protection, and whether someone should be retained in custody. Indeed, if the object of this legislation was to punish, it would potentially be in breach of both Article 5 and Article 7 of the European convention. I stress that this is not the object of this legislation at all.
I turn specifically to the amendments tabled—first, to those in the name of the noble Baroness, Lady Bull, which really have two limbs. The first is covered by Amendments 2, 7, 10, 13 and 16, and the second by Amendment 4 and subsequent amendments. The first limb would ensure that the Bill’s provisions apply only to prisoners who are “able” to disclose relevant information about the location of a victim’s remains but had not done so. The second limb would particularise a prisoner’s mental capacity as one of the possible reasons for non-disclosure.
The Bill in its current form affords the Parole Board a wide scope to subjectively consider the circumstances of a prisoner’s non-disclosure. The test is broadly drafted to give the Parole Board, an independent judicial body with experience of assessing risk and evidence, sufficient flexibility to take all circumstances into account when making a determination about non-disclosure, including the ability, whether mental or physical, of an offender to disclose.
The amendments as drafted would confine the operation of the provisions to prisoners deemed able to make such a disclosure but who had not done so. However, there may be cases where an offender has had ample opportunity to co-operate with the police or the authorities over many years to reveal a victim’s whereabouts but has refused to do so. If such an offender later became unable to disclose—by reason of age or mental illness, for example—the provision of these amendments would not apply to that offender and the board would be unable to consider a previous refusal to co-operate in its assessment of that prisoner’s risk, yet these previous persistent refusals may well be considered as reflecting quite materially on the risk that the prisoner posed to the public in the event of release on licence.
The current Bill avoids such difficulties by allowing the Parole Board to consider all possible reasons in its view to explain non-disclosure, including considering historical refusals. That flexible approach is underlined by Clause 1(3), which makes clear that the imposition of the statutory duty does not in any way limit other matters that the board must or may take into account when conducting such an assessment.
The existence of mental health difficulties or a lack of mental health capacity would doubtless be a relevant circumstance to be taken into account, but there would also be other relevant circumstances. By not specifically referring to particulars in the Bill, we are not giving some more significance than others; we are instead allowing the Parole Board to use its expertise in how it approaches such cases. It is therefore for the board itself to take a subjective view of what the reasons might be, and then it is for the board to decide what bearing that information may have on the subsequent assessment of suitability for release, which is the relevant test that the Parole Board has to address.
We have deliberately avoided any delineation in the Bill of what the reasons for non-disclosure may be, to preserve this flexible and subjective approach. Noble Lords have correctly identified that a prisoner’s mental state is likely to be a significant factor in assessing reasons for non-disclosure but there may also be other reasons, such as, as I mentioned, geographical change, mental impairment or issues of mental capacity that may not have occurred at an earlier point but will still be relevant to a current assessment. In these circumstances, I will be inviting the noble Baroness to withdraw this amendment.
I move on to the amendments tabled by the noble Lord, Lord Thomas of Gresford, which specify that where a Newton hearing has been carried out to ascertain certain disputed facts—generally where there has been a guilty plea, but it may take place after a trial—that should be considered by the Parole Board. The short point that I would make is that these are matters that it will be within the competence of the Parole Board to consider, and the board can call for all material pertaining to sentencing, including the terms of any Newton hearing that may have taken place. I apprehend that what the noble Lord may have in mind is perhaps to encourage judicial activity when sentencing in these cases to ensure that they address the non-disclosure of the whereabouts of a victim. However, as the noble Lord, Lord Thomas, observed, that is something that will invariably be taken into account by a trial judge in fixing a tariff for the sentence that he is going to impose.
Lord Thomas of Gresford
My Lords, I am very grateful to the Minister for his reply, but I think it is necessary to distinguish where there has been a plea of guilty and where there has been a plea of not guilty in a trial. Very often, when a person pleads guilty, he will, with the assistance of his legal team, put together a basis of plea, which is handed to the prosecution for consideration. If it accepts the basis of plea, there is no problem but, if there is an issue, a Newton hearing will be held to determine whether the prosecution which refuses to accept the basis of plea is correct or whether the defendant who is pleading guilty is correct. The judge will sentence accordingly.
That is one situation. Another is after a trial, when there has been a finding of guilt. Let us take a circumstance where a group of people have attacked an individual and one of the group says, “I didn’t take part”—indeed, I remember a case where precisely that happened; the defence was, “I was trying to discourage them so they’d go away”—but, at the end of the trial, the defendant is found guilty. At that point, the judge says, “I will sentence you on the basis that you are withholding information as to where the body was buried.” The defendant could then say, “I’ve been found guilty, but the others took the body away and I want to be heard on that, because I don’t know where they went and where the body was ultimately buried. You cannot sentence me on the basis of the facts the jury has found—that I was a party to a killing—when I don’t know where the body went.” That situation does not involve mental incapacity at all and such a situation should be investigated at the time and not 15 or 20 years later by the Parole Board doing its best, unassisted by medical evidence because it would not arise. It seems to me that issues of that nature should be determined prior to sentencing for the actual offence, whether there is a plea of guilty or a finding of guilt. That should involve a hearing of the sort that I have proposed.
Obviously, my amendment does not require the Parole Board to order a hearing. As the Minister anticipated, my purpose is to encourage the holding of Newton hearings where necessary. I do not believe that they are quite as rare or unusual as he suggests. In this particular instance, with proper directions being given generally to judges to hold Newton hearings where appropriate, they would be useful and helpful to the board’s ultimate determination. They would be of great significance concerning culpability.
Lord Keen of Elie
My Lords, I accept what the noble Lord, Lord Thomas, has observed. In cases of this kind, the judge will wish to take into account the disclosure or non-disclosure of the whereabouts of a victim and the circumstances in which the offender can or cannot make that disclosure. There may be circumstances in which that might necessitate a Newton hearing, and so be it. That would be done contemporaneously with the determination of the tariff in the sentence. When later on we get to the preventive element after the tariff has been served, the Parole Board will be able to call for all that material, whether it be a Newton hearing or otherwise.
I hear what the noble Lord, Lord Thomas, has to say about the importance of determining these issues at the time of trial and sentence; I do not disagree with him at all. It may be that some element of encouragement will be given if it is required, although I take from the observations of the former Lord Chief Justice—the noble and learned Lord, Lord Thomas—that there may be little requirement to encourage in a matter that is dealt with in this way day in and day out.
Lord Hope of Craighead
My Lords, I refer the Minister to his remarks about historic refusals. Reading proposed new subsection (1)(c), I do not get the impression that it is talking about historic refusals and I do not think that anything in the noble Baroness’s amendments would cut the ability of the board to look at them. What the opening words of the subsection are talking about is a situation where the board
“believes that the prisoner has information”—
talking about it in the present tense so that the board can consider it in a situation where it thinks that the prisoner is able to do something. That is where the words suggested by the noble Baroness would fit in very well.
Would the Minister like to reflect carefully on exactly what subsection (1)(c) is talking about and reconsider his point as to whether these amendments would cut out historic refusals, which would be highly undesirable, of course?
Lord Keen of Elie
It does appear that the amendment has that effect even it was unintended. I will give the matter further consideration, as invited to by the noble and learned Lord.
Baroness Bull
My Lords, I am grateful to the noble and learned Lord, Lord Keen of Elie, for his comments and I have listened carefully to his response. I also express my gratitude to all noble and noble and learned Lords who have spoken in support of my amendments. Aside from generously sharing his considerable expertise with me in advance of today’s debate, the noble and learned Lord, Lord Hope of Craighead, helpfully extended my arguments to include the possibility that the convicted prisoner is not in fact able to disclose the information because, despite the findings of the court at trial, they are innocent. One hopes that this is rarely the case, but of course history shows that it can indeed be so.
I am also grateful to the noble Baroness, Lady Barker, who sounded a useful warning about the general understanding of the Mental Capacity Act and concerns about the extent to which it is drawn on and applied within the prison environment. She raised an important question about training for practitioners in the criminal justice system, including members of the Parole Board, in applying the provisions of the Act. The Minister responded to a point about competence, but I am not sure that he responded to the point about training more broadly to enhance understanding of the Act within the criminal justice system. Perhaps he would write to us on that point.
The noble Baroness, Lady Watkins, spoke from her position of vast experience, including in Broadmoor, and reminded us that medical personnel are usually well able to distinguish between genuine mental disorders and what was referred to earlier as “guff”. Her views of course bear considerable weight here.
I am grateful to the Minister for addressing the two limbs of my amendments in so much detail. Like the noble and learned Lord, Lord Hope, I was confused by his point about previous refusals not being taken into account. I am grateful to him for agreeing to reflect further on that, in response to the noble and learned Lord’s further comments. He argued that state of mind and/or mental capacity are just one of several reasons why disclosure might not be possible. However, given what we have heard today from the noble Baroness, Lady Barker, about understanding the Mental Capacity Act as it is applied within the criminal justice system, and the potential for the infringement of human rights, I contend that there is justification for expressly including this reason in the Bill.
The noble Lord, Lord Kennedy of Southwark, set out very clearly the difficult balance between the rights of a grieving family, who have been by extension the victims of a heinous act, and the rights of a prisoner, convicted of that crime but who suffers a mental health disorder or who, for whatever reason, lacks the mental capacity at the time of the Parole Board hearing to disclose the information requested of him. I know that every noble Lord who has spoken today is acutely aware of this tension and of the importance of this Bill, not just in putting the needs of victims at the centre of the justice system and helping grieving families to achieve closure but as part of a wider and necessary process to increase the efficiency, transparency and accountability of the parole system.
My amendments do not seek to alter the intention of the Bill in any way. As the noble Lord, Lord German, pointed out, neither of the amendments takes away the subjective capacity of parole boards. They simply seek to add clarity through the insertion of the words “is able to, but”, and an explicit reference to consideration of mental capacity. I continue to believe that these simple amendments would support the Parole Board in the fulfilment of the new statutory duty that the Bill places on it by enshrining in law what government has already accepted: that parole boards need to take state of mind and mental capacity into account. This would empower them to do so with confidence and consistency.
I am very grateful to the noble and learned Lord for considering the amendments. I am disappointed that he has not been persuaded by my arguments and those of other noble, and noble and learned, Lords. However, for the time being, I beg leave to withdraw the amendment.
Lord Keen of Elie
My Lords, I thank noble Lords for their contributions to the debate on the amendment, and I thank the noble Baroness, Lady Barker, for her submissions on it. In the context of the Bill, we are dealing with particularly disturbing forms of crime and particularly disturbing consequences. However, we must have regard to all victims of crime, not just of these crimes, in determining the appropriate step to take in order properly to take account of their views, interests and concerns.
Processes are already in place, by virtue of the Parole Board rules, the victims’ code and the Domestic Violence, Crime and Victims Act 2004, that address the issues referred to in the amendment. Both the National Probation Service and the Parole Board communicate information to victims, and where a family member is affected by an offender’s action, they too, of course, will be victims and will be contacted. Where a victim wishes to receive information, this will be provided by their victim liaison officer. Victims can receive information regarding the date of a parole hearing and the outcome of a review. Indeed, they may request a summary of a Parole Board decision and can also provide a victim personal statement to the Parole Board to explain the impact of the crime upon them. They have the right to request that certain tailored licence conditions be applied.
Victims are also informed of the avenues for making a request for reconsideration of a decision. Such reconsideration will be carried out by the Secretary of State. Following a request for reconsideration, they will receive reasons why their request was or was not successful. Thereafter, a victim liaison officer will provide information regarding judicial review, if that is requested.
In recent times—I note the reference to the Worboys case—the National Probation Service has improved the way in which it communicates with victims, such as using email or telephone as opposed to letters, while being mindful of the victim’s preferred method of contact. We have also tightened processes to ensure that victims are informed of developments, such as being notified of the date of oral hearings, in a timely manner. We have expanded the criteria for victims who are eligible for contact under the National Probation Service Victim Contact Scheme. We are trialling a new process whereby all eligible victims are referred directly to probation to reduce the risk that they are not offered use of the victim contact scheme directly. Therefore, we have taken steps to improve the system. However, the Parole Board is an independent body and it requires a degree of flexibility in how it operates. To impose these statutory obligations on the Parole Board, and the Parole Board alone, would, I suggest, be going too far.
I hear what is said about the idea of an opt-out rather than an opt-in scheme for victims and what is said about the need to improve the involvement of victims, particularly those in the present category. I will be happy to discuss that at a meeting, as suggested by the noble Baroness, Lady Kennedy, before the next stage of the Bill. However, I also note that there is a proposal for a review of the Parole Board. I cannot give a precise date for that review but, again, I will be happy to take that up in discussions with the noble Baroness, Lady Kennedy. At this stage, however, I invite the noble Baroness, Lady Barker, to withdraw the amendment.
The Deputy Chairman of Committees
My Lords, no noble Lords have indicated a wish to speak after the Minister, so I now call the noble Baroness, Lady Barker.
Prisoners (Disclosure of Information About Victims) Bill
(Limited Text - Ministerial Extracts only)
Read Full debateWednesday 1st July 2020
(4 years, 5 months ago)
Lords ChamberPrisoners (Disclosure of Information About Victims) Act 2020 Read Hansard Text Amendment Paper: HL Bill 102-R-I Marshalled list for Report - (26 Jun 2020)
15:18 - Division conducted remotely on Amendment 3 - Ayes: 142 / Noes: 266 - Amendment 3 disagreed.
16:18 - Division conducted remotely on Amendment 17 - Ayes: 267 / Noes: 241 - Amendment 17 agreed.
This text is a record of ministerial contributions to a debate held as part of the Prisoners (Disclosure of Information About Victims) Act 2020 passage through Parliament.
In 1993, the House of Lords Pepper vs. Hart decision provided that statements made by Government Ministers may be taken as illustrative of legislative intent as to the interpretation of law.
This extract highlights statements made by Government Ministers along with contextual remarks by other members. The full debate can be read here
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Lord Ponsonby of Shulbrede (Lab) [V]
My Lords, I thank the noble Baroness, Lady Bull, very much for moving her amendment. In Committee, I supported the amendments. I also echo the support of the noble Lord, Lord Bradley, who contacted me personally to say that he very much wishes he could have been here to support the noble Baroness’s amendment.
It must be said that a number of extremely eminent lawyers have, in essence, spoken against the amendment moved by the noble Baroness, Lady Bull. My response to those eminent contributions was best articulated by the noble Baroness, Lady Barker. My experience is that many different parts of the criminal justice system do not understand mental capacity legislation properly and that, even if they do, it is often not used to its full extent. That is because such a large proportion of the people we deal with in the criminal justice system as a whole have mental capacity issues.
I support in principle what the noble Baroness, Lady Bull, has said; I understand that she will not press her amendments to a vote. I hope that the Minister will say something more constructive about addressing the perceived gap in the legislation regarding further review by the Parole Board and the practicality of a possible remedy through judicial review. These are all active issues which have been explored in our debate. The Minister should acknowledge that the concerns raised are real and explain to the House why it would not be necessary to meet them in the Bill.
The Advocate-General for Scotland (Lord Keen of Elie) (Con)
My Lords, I thank the noble Baroness, Lady Bull, and other noble Lords for their contributions to this debate. Perhaps I may reiterate the position of the Government, which is that we consider that the amendments would unnecessarily fetter the discretion of the Parole Board. I do not accept that there is a gap in the legislation, as suggested by the noble and learned Lord, Lord Hope of Craighead.
I shall initially address Amendment 1 and related Amendments 5, 8, 11 and 14, which would ensure that the Bill’s provisions applied only to prisoners who are, or have previously been, “able” to disclose relevant information but have not chosen not to do so.
The Bill affords the Parole Board wide scope subjectively to consider the circumstances of a prisoner’s non-disclosure. The test is broadly drafted to give the Parole Board, which is after all an independent judicial body with experience in assessing risk and evidence, sufficient flexibility to take all relevant circumstances into account when making a release assessment.
The board must be satisfied that the offender no longer poses a risk to the public, and this high bar can be met only after it considers all elements of an offender’s case. This already includes an offender’s current and past “ability”, whether mental or physical, to disclose such information. The Parole Board may already consider all possible reasons, in its own view, for any non-disclosure, including historic refusals.
There is some uncertainty as to the meaning of the term “able” in these circumstances, and it would be unclear what criteria the board would use to make their determination. In many cases, there are varying degrees of ability, or varying degrees of information, that the prisoner can disclose, and the interpretations of ability in each case will differ—a point made by a number of noble Lords. The Parole Board in its current practice uses a flexible approach to take into account all elements of a non-disclosure. To use “able” in a determinative and inflexible way would cause unnecessary confusion and potential inconsistencies in its application. That has the potential unfairly to prevent the board when applying the Bill’s provisions from considering a non-disclosure by an offender in many circumstances; for example, the case of an offender who had rendered themselves “unable” to disclose due to illicit drug use in prison. There are clearly other examples of how that difficulty could arise.
By specifically avoiding reference to particulars in the Bill, we are deliberately not limiting the board’s ability to use its expertise in how it approaches such cases. I say in response to a point made by the noble Baroness, Lady Bull, that the Parole Board is possessed of considerable expertise in these areas, including that of mental health.
That leads me on to Amendments 2, 6, 9, 12 and 15, which would explicitly direct the Parole Board to take into account one possible reason for non-disclosure; namely, whether the prisoner has or had the mental capacity to disclose information. The Bill places a broad statutory duty on the Parole Board to take into account non-disclosure on the part of a prisoner and, in doing so, it must consider all the reasons for such non-disclosure. It is therefore for the board itself, as now, to take a subjective view of what those reasons might be, and then it is for the board to decide what bearing this information may have on its subsequent assessment of suitability for release. I remind noble Lords of what is provided for in Clause 1(2)(b), which states:
“When making the public protection decision about the life prisoner, the Parole Board must take into account … the reasons, in the Parole Board’s view, for the prisoner’s nondisclosure.”
That wide remit clearly would embrace all the issues that have been touched on in the debate.
The noble Baroness correctly identified that a prisoner’s mental state is likely to be a significant factor in assessing reasons for non-disclosure. However, we do not believe that there is any material benefit in referring to this as a possible reason for non-disclosure in the Bill, as the Parole Board will take all relevant factors into account when assessing a prisoner’s suitability for release. If one factor were to be explicitly stated, it could be asked why other reasons for non-disclosure are not also placed on a statutory footing, such as a geographical change that prevents the location of a victim’s remains being identified or circumstances where mental impairment does not amount to “mental capacity”. As one noble Lord observed, there may be cases where people have simply forgotten or decided to blank matters out of their mind over a period of many years. Clearly, the noble Baroness does not wish to preclude any other relevant factors, but any delineation of what the reasons for non-disclosure may be in order to preserve a flexible approach takes away from the subjective approach that we invite the Parole Board to take. This approach is expressed in Clause 1(3), which states:
“This section does not limit the matters which the Parole Board must or may take into account when making a public protection decision.”
It is for the board to take these matters into account when conducting its assessment.
There are significant practical difficulties in attempting to give examples on the face of the statute, which could lead to unnecessary confusion. That is why a decision as to mental capacity is one of many that would have to be considered. However, the board is bound by public law principles to act reasonably in respect of all decisions it makes. A decision where a relevant mental capacity issue was not taken into account would clearly be amenable to challenge by judicial review. That is why we believe that the more sensible approach is to leave these matters to the considerable expertise and experience of the Parole Board and not to attempt to take one or two factors out of context and place them in the Bill.
I say in response to one or two points raised in debate that the Parole Board already has expertise available to it in dealing with matters of mental capacity. We are not moving away from the current guidelines; we are essentially expressing in statutory form that which can be found there already. The noble Lord, Lord Balfe, asked whether the matter would go to Strasbourg. I simply draw his attention to the certificate given by the Lord Chancellor and Secretary of State for Justice pursuant to Section 19(1)(a) of the Human Rights Act 1998 that, in his view, the provisions of the Bill are compatible with convention rights.
I acknowledge the concern expressed about mental capacity. I reiterate our view that that is well embraced by the broad terms of the Bill. I therefore invite the noble Baroness not to press her amendments.
Lord Ponsonby of Shulbrede [V]
My Lords, this is an interesting group of amendments, and my party will abstain if a vote is called. I listened carefully to the argument from the noble Lord, Lord Thomas of Gresford, and the noble and learned Lords who have spoken in this debate. The noble and learned Lord, Lord Thomas of Cwmgiedd, summarised the situation clearly from my perspective: Newton hearings are, in any event, the least common form of determining facts. The determining of facts is most often done by judges when summing up the case and, if there is a basis of plea, that would be the basis on which the sentence is made. If it is not accepted, there could be room for moving to a Newton hearing.
As the noble and learned Lord, Lord Mackay, said, Newton hearings occur throughout the whole of the English and Welsh system. As noble Lords may know, I sit as a magistrate in London and we occasionally do Newton hearings. They are used as a method of resolving the seriousness of the offence in some cases, but it seems we are talking about a very narrow set of circumstances here. In particular, the judge will have sat through the whole trial in the first place, and it will be for the lawyers on both sides to go through all the aggravating and mitigating factors, including the non-disclosure of a body. Of course, if the judge is not satisfied that that has been gone into sufficiently, they themselves can ask questions of clarification, if I can put it like that, of any witnesses giving evidence. It seems unlikely that this procedure would ever be used, and as such it should not be in the Bill.
A number of noble Lords spoke about calling witnesses again. It could be an extremely traumatic event for some people to have to be called twice to establish the facts of the case. Surely, it would be far better if all the facts—including the reason for the non-disclosure of the body or of the identity of children who have had sexual images made of them—were established in the trial itself, rather than elements of the trial being repeated in a Newton hearing. I will abstain on this amendment for the reasons I have given.
Lord Keen of Elie
I thank all noble Lords for their contributions to this debate. The Government remain of the view that these amendments would place too much emphasis on findings of mental capacity at a Newton hearing, particularly the findings made for the purposes of sentence.
In sentencing an offender, it is for the court to consider the punitive element of an offender’s sentence and, in doing so, to take into account the failure to disclose information in setting the tariff. By reflecting this in the sentencing remarks, victims can be assured that due consideration has been given to the non-disclosure. Tariffs must be served in their entirety and irrespective of any disclosure of information after a trial, so the tariff cannot be reduced because of subsequent disclosures. This is an entirely sensible approach, as I believe the noble Lord, Lord Thomas of Gresford, acknowledged when we discussed this matter in Committee. The trial judge is more able to determine the appropriate weighting with regard to non-disclosure when setting the tariff.
On the other hand, the Parole Board’s role is in relation to the preventive element of the sentence. The consideration that the Parole Board must make is whether there should be a continuation of custody or a release on licence if the offender’s risk can be safely managed in the community. The Bill places a statutory duty on the board, when making that wider assessment, to consider the non-disclosure of information by an offender and the possible reasons for it. The board will take a subjective view of what those reasons might be, and what bearing this information may have on the subsequent assessment of suitability for release. When it comes to consider these matters, it must of course take account of the judge’s sentencing remarks. Those, in turn, will be informed by such issues as non-disclosure. I am obliged to the noble and learned Lord, Lord Thomas of Cwmgiedd, for his detailed analysis of how the court approaches these matters in practice and why, in the context of the Bill, it would not be appropriate to simply import the notion of the Newton hearing for the purposes of the Parole Board’s determination.
The noble Lord, Lord Thomas of Gresford, has correctly identified that a prisoner’s mental state may be a significant reason for non-disclosure—a point made earlier by the noble Baroness, Lady Bull, when she spoke to her own amendments. But to limit this to the specific context of a Newton hearing, and to place that in the Bill, appears to us to be too narrow an approach. The Parole Board should be free to consider all reasons, including those that may arise as a result of a Newton hearing—unusual though they may be—and we should therefore avoid any specific delineation in the Bill.
As new subsection (3) in Clause 1 makes clear, the breadth of matters which the board may take into account is, essentially, as wide as possible. In addition, the board is bound by public law principles to act reasonably in all decisions, so a decision where a relevant Newton hearing or an issue of mental capacity was not taken into account could be subject to judicial review. I venture that this is not the Bill in which to approach the whole issue of sentencing guidelines or findings of fact for the purposes of those guidelines. That is already accommodated, and it is in these circumstances that I invite the noble Lord to withdraw his amendment.
Lord Thomas of Gresford [V]
My Lords, it is clear that the noble and learned Lord, Lord Mackay, does not like the system of Newton hearings, but the fact that the defendant has refused to disclose is not necessarily part of the offence. The reasons for his refusal to disclose the whereabouts of a body, or the identity of a child involved in indecent images, may not emerge in the course of a trial and may not be discussed before the jury. A jury listening to a case may not investigate the mental capacity of the defendant before them. If that is not an issue in the trial, examined on both sides, then the judge would have difficulty in forming a view of his own without hearing evidence.
The noble and learned Lord, Lord Thomas of Cwmgiedd, referred to the basis of plea as being the more usual way in which these matters are sorted out. I am completely familiar with the formation of the basis of plea, and the arguments that go on as to whether an agreement can be reached between the defence and the prosecution. However, if a person pleads guilty to murder or manslaughter and there is no trial, and there is a disagreement between prosecution and defence, how is the judge to come to a conclusion as to the degree to which the refusal to identify where a body is buried is to be part of his sentencing process—that it is an aggravating factor which he is to take into account? He has not heard any witnesses. He has just heard that the counsel disagree on what the basis of a plea would be.
Lord Ponsonby of Shulbrede [V]
My Lords, I support the amendment and I support my noble friend Lady Kennedy of Cradley. She set out very clearly the reasons for the amendment, and the majority of speakers have supported her. I found the speech of the noble Baroness, Lady Newlove, particularly moving. She spoke from the heart, as always, and, sadly, she spoke from bitter experience. It was particularly interesting that she talked about the practicalities of getting information from the Parole Board, even when you are very well known to the board as a victim.
My noble friend’s amendment would put in place an opt-out rather than an opt-in system, and the various elements of that are specified in the amendment. The arguments against the amendment made by the noble and learned Lord, Lord Mackay, and the noble Lord, Lord Naseby, was: that is all very well, but why are these victims different from the other victims within the whole of the criminal justice system? The noble Baroness, Lady Barker, made the point very clearly: the reason they are different is that they continue to be victims because of the non-disclosure of the information.
There are roughly only 100 such victims in the country. I hope that any review of the work of the Parole Board will look at making a much wider opt-out system available in the future, but, now, we have the chance to legislate to address the concerns of this very particular group. The Parole Board has a heavy weight of responsibility but this is an opportunity for the House to make a tangible difference to these victims’ lives, and it should seek to do so. I support my noble friend.
Lord Keen of Elie
My Lords, I thank all noble Lords for their contributions to this debate. I quite understand the concern that has been expressed about the victims of crime and the victims of these particular crimes.
Perhaps, first, I may make a number of rather technical points in relation to the scope of the amendment. Subsection (1) of the proposed new clause does not apply to those receiving a determinate sentence for the offences contained in the Bill. However, I am confident that the amendment was meant to apply to all sentence types, and I will proceed with my remarks on that basis. Additionally, “relevant persons”, as defined in proposed new subsection (5), would include offenders beyond the scope of the Bill—namely, all those convicted of murder or manslaughter—rather than being restricted to the circumstances set out in the Bill. Again, I will proceed with my remarks on the basis that this was intended to be confined to offenders to whom the Bill applies.
I turn to the substance of the amendment. First, it would require the Parole Board—I emphasise: the Parole Board—to create and maintain a database of victims’ family members in cases captured by the Bill. The board would have to remove a family member from the database if they did not wish to be included. Secondly, it would create an obligation on the Parole Board to provide information to certain groups of victims and, indeed, suspected victims and their families.
This amendment effectively replicates some elements of the victim contact scheme for a limited group of people, and places the duty on the Parole Board to administer it rather than the National Probation Service. With respect, the Parole Board is not equipped for such a function. There is already a well-established process delivered through the victim contact scheme to provide victims with information about the date and outcome of parole hearings, and they can request a summary of the Parole Board decision. This process also facilitates victims requesting the imposition of specific licence conditions for the offender’s release, such as exclusion zones, and assists them in submitting a victim personal statement which will be considered by the Parole Board panel. The Government see no justification for replicating the excellent service provided by the victim contact scheme for a particular group of victims’ families in a limited way.
Proposed new subsection (2) of the amendment proposes an unfettered right to
“information pertaining to the application”,
which may include confidential information relating to the offender, such as police intelligence, which may breach the offender’s confidentiality rights and put their safety at risk. The Parole Board must balance the rights of victims with the rights of the offender.
If there is any suggestion that the parole decision is legally or procedurally flawed, victims may ask the Lord Chancellor to consider making a reconsideration application on their behalf, and the Lord Chancellor can ask the Parole Board to look at the decision again. Victims will receive a detailed letter setting out the reasons why the request for reconsideration was successful or unsuccessful. The victim liaison officer will provide information regarding judicial review if requested.
There are significant practical difficulties in operating such a scheme on the opt-out basis suggested by this amendment. The Parole Board would need to ensure that the correct contact details for each victim are recorded; if a victim does not respond to the offer of contact, it would not be appropriate simply to send updates to a last known address, for example. This amendment would duplicate much of the work delivered under the victim contact scheme but could not replace it entirely. That means that victims would have to receive contacts from and share information with both the Parole Board and the victim contact scheme, which would in turn add to their distress at a potentially very difficult time.
We are currently trialling a new process whereby all eligible victims are referred directly to the National Probation Service, to ensure that they are all offered access to the victim contact scheme directly by it, thus ensuring that we reduce the risk of victims opting out before they are clear about the benefits of the scheme. The new process also incorporates a standard referral form that provides the service with the address, telephone number and email address of victims to allow for multiple methods of contact.
We recognise that receiving information about parole hearings is of great importance to many victims, and we endeavour to support them through the existing victim contact scheme. We consider that this support is far better delivered by the National Probation Service than by being placed on the shoulders of the independent Parole Board, which, as I indicated, is not equipped to carry out such a service.
The amendment also contains a requirement to review the database’s use within one year of its creation. However, as some noble Lords observed, cases such as those detailed in this Bill are extremely rare and it is unlikely that a review after one year could result in any significant, reliable findings.
I emphasise that we are concerned with the position of victims. They are provided with information under the victim contact scheme, which is administered by the National Probation Service. The victim liaison officer will provide information to those who wish to receive it. Where the Parole Board considers or reconsiders a case, victims will receive a detailed letter setting out the reasons why, for example, a request for reconsideration was successful or unsuccessful. We are ensuring that the victim’s personal statement comes before the Parole Board when it has a hearing. We plan to enshrine support for victims in a victims’ law, as we have indicated, but before we do this we will revise the victims’ code to give them more clarity on their rights around access to support and greater flexibility over when and how a victim personal statement can be made.
The noble Lord, Lord German, referred to engagement on this matter. I can indicate that my honourable friend Alex Chalk, the Minister with responsibility in this area, has been endeavouring to arrange a meeting with the noble Baronesses, Lady Kennedy and Lady Barker, to discuss this matter. I do not know whether they are aware of that, but I am advised that this is in train, if I may put it in those terms. In these circumstances and, in particular, having regard to the distinctive role of the Parole Board on the one hand and the National Probation Service on the other, with respect to the victim code, I invite the noble Baroness to withdraw this amendment.
Prisoners (Disclosure of Information About Victims) Bill
(Limited Text - Ministerial Extracts only)
Read Full debateTuesday 6th October 2020
(4 years, 2 months ago)
Commons ChamberPrisoners (Disclosure of Information About Victims) Act 2020 Read Hansard Text Amendment Paper: Commons Consideration of Lords Amendments as at 6 October 2020 - (6 Oct 2020)
This text is a record of ministerial contributions to a debate held as part of the Prisoners (Disclosure of Information About Victims) Act 2020 passage through Parliament.
In 1993, the House of Lords Pepper vs. Hart decision provided that statements made by Government Ministers may be taken as illustrative of legislative intent as to the interpretation of law.
This extract highlights statements made by Government Ministers along with contextual remarks by other members. The full debate can be read here
This information is provided by Parallel Parliament and does not comprise part of the offical record
The Parliamentary Under-Secretary of State for Justice (Chris Philp)
I beg to move, That this House disagrees with Lords amendment 1.
This Bill—Helen’s law, as we have come to know it—amends the release provisions that apply to offenders who do not disclose information relating to cases of murder, manslaughter, or taking or making indecent images of children. As Members are aware, it places existing Parole Board guidance on a statutory footing to ensure that parole board members must consider, when making release assessments, any non-disclosure of information relating to a victim’s remains if they were murdered, or the identity of the victims of child sexual abuse.
I once again pay tribute to the tremendous work done by the hon. Member for St Helens North (Conor McGinn) in campaigning for this Bill. He was inspired by his constituent Marie McCourt, whose daughter, Helen, was tragically murdered. I also pay tribute to the hon. Member for Plymouth, Sutton and Devonport (Luke Pollard), many of whose constituents were abused by Vanessa George. Without their tireless work, this Bill would not be progressing through Parliament. I extend to them, once again, my congratulations and thanks.
The Government agree entirely with the spirit and intent behind Baroness Kennedy’s amendment but have some issues with its practicality. Essentially, what it seeks to achieve is already achieved by other means. The first part of Baroness Kennedy’s amendment requires the Parole Board to take responsibility for contacting the victim, but there is of course already a victim contact service as part of the National Probation Service, which has responsibility for precisely that. We think it would create duplication and possibly confusion if two different bodies had the same responsibility for contacting victims.
Their lordships expressed some concern about the effectiveness of the current operation of the victim contact service. In particular, their amendment calls for communications with victims and their families to be done on an opt-out basis so that the family gets contacted automatically, and the contact desists only if the family or victim says, “No, we don’t want to hear anything further.” A pilot of doing exactly that has been running across many parts of the country, although—in response to an inquiry from the hon. Member for Plymouth, Sutton and Devonport—not currently in Devon and Cornwall.
I am pleased to tell the House that, subsequent to the House of Lords’ consideration of this matter, a decision has been taken to roll out that programme nationally as part of the new victims code, which we expect will come into operation in early 2021. We intend to lay before Parliament a negative statutory instrument before long to give effect to that. That is precisely what the other place called for in its amendment. Subsequent to their lordships’ debate, it has been decided to progress and do that, so that part of the amendment is being done already. Their lordships might take some credit for prompting us, but it was something that we had been trialling previously, and we intended to do that. I hope that assurance that it will be done gives Members on both sides of the House a great deal of reassurance, happiness and contentment.
Sir Robert Neill (Bromley and Chislehurst) (Con)
My hon. Friend will know that when the Justice Committee looked at these issues after a great deal of publicity and some court cases, our inquiry shared many of the concerns of the other House about the effectiveness of the victim contact scheme. Can he assure us that appropriate organisational changes, and additional resources where necessary, have been put in to ensure that the scheme can discharge these important duties adequately?
Chris Philp
I thank the Chairman of the Justice Committee for the work that he and his Committee have done in this area, which has been very thorough and useful. I think we do accept the point that he has made, as have the hon. Member for Plymouth, Sutton and Devonport and others, that the victim contact scheme can be improved.
I have had discussions with the Minister of State, my hon. and learned Friend the Member for South East Cambridgeshire (Lucy Frazer), who has responsibility for prisons and probation. She has asked me to pass on to the House her undertaking to meet and speak to the Victims’ Commissioner about improving the victim contact scheme. We will also be happy, either in the same meeting or a separate one, to Labour Front Benchers, including the hon. Member for Hove (Peter Kyle) and, if he wishes, the right hon. Member for Tottenham (Mr Lammy), as well as the hon. Members for Plymouth, Sutton and Devonport and for St Helens North and their constituents if they wish to join the meeting, to discuss any concerns they may have and any ideas they may have for further improvements to the victim contact scheme. I am happy to put that commitment by the Minister of State on the record this afternoon.
This Bill has progressed thus far with cross-party support. It has been worked on very constructively by those on the Government Front Bench and the Opposition Front Bench, as well as by those on the Back Benches. Indeed, it would not have got here without their work, as I said earlier. I hope we can continue in that spirit of cross-party unity on this topic.
Given that the victim contact scheme exists already and the opt-out changes will be made shortly, and given our commitment to work with the Victims’ Commissioner and others to further improve the victim contact scheme, I hope the House will join me in respectfully rebuffing—perhaps that is the word, or perhaps gently pushing back—the amendments that their lordships have sent in our direction.
Peter Kyle (Hove) (Lab)
May I start by thanking the Minister for his comments and the tone in which he has conducted this debate? It is much appreciated by those of us on the Opposition Benches, I can assure him.
I start by paying tribute to the tireless campaigning of victims’ families, and in particular the campaigning of Marie McCourt and the families of those abused by Vanessa George. They have begged successive Governments to time the release of serious offenders in a way that is more responsive to victim circumstance. Supported by my hon. Friends the Members for St Helens North (Conor McGinn) and for Plymouth, Sutton and Devonport (Luke Pollard), they have changed the law for the better.
Observers of this House from the outside may think it is quite normal for people to bring forward legislation from the Back Benches and get it all the way through both Houses, but it is very unusual. In fact, I think I am right in saying that both the Minister and I have attempted in the past to introduce legislation from the Back Benches. In his case, it was to tackle industrial relations in utility companies and in mine it was to extend the franchise to 16 and 17-year-olds, and both of us met with undignified failure. They have succeeded where we unfortunately failed.
Those families will make a significant difference to the lives of victims’ families for generations to come. They did so knowing that it would not materially impact their own situation. They did it to save others from the torment they have endured, and we are grateful to them.
As the House is aware, the first part of the Bill implements Helen’s law. Motivated by the case of Ian Simms, it forces the Parole Board to consider the non-disclosure of key information during the release decisions of people convicted of murder or manslaughter. The unwillingness of murderers to disclose such details is a source of merciless and unrelenting anguish. That is equally true of the young victims of Vanessa George, who was convicted of sexual assault and making and distributing indecent photographs of children. She was released from prison last year, despite never naming the children she abused. The second part of the Bill guarantees the same protections for victims in such cases.
It is unforgivable that our system has not better reflected the needs of those bereaved by such horrific crimes over previous decades. For far too long, victims and their families have been treated as an afterthought in the criminal justice system. They were described as such by the victims’ commissioner for London, Claire Waxman, in a recent interview. The Bill delivers two new key statutory rights to victims and their families. I hope the Government will continue with this direction of travel apace, because, despite repeated pledges, they have still failed to bring forward the long-promised victims law, which would offer a comprehensive set of rights and protections to the victims who so desperately need them. Such a law is desperately needed now more than ever, given the increasing rate of offences for which no one is ever brought to justice because of the victim and witnesses dropping out due to various different issues. We have pledges aplenty from the Government; we need more action.
There is far more left to do to address the systemic challenges facing victims in the criminal justice system. We on the Opposition Benches will continue to press the Government on this issue and work constructively with them when the opportunity arises, as we have done today. We will campaign unfailingly until comprehensive rights are guaranteed by law for those victims who need them the most. This Bill marks one very positive step forward, and the Opposition proudly support it on its convoluted pathway from the Back Benches to the Front Bench and through both Houses of Parliament. We now look forward to the difference it will make for victims and their families.
Lords amendment 1 was proposed in the other place by Baroness Kennedy of Cradley and seeks to address the asymmetry in offender and victim rights, wherein offenders receive regular communication from the authorities—a luxury that most victims will only ever dream of. This cannot continue, and Baroness Kennedy’s amendment represents an effort to tackle the injustice. However, we are happy to have agreed with the Minister, over the course of recent weeks, commitments regarding the future of the victim contact scheme. As a result, we will not seek to divide the House on the amendment.
I want to thank the Minister and put on the record the open-spirited way in which he has engaged with me and Members from all parties as we have approached today’s debate. First, we accept his argument that the creation of a victim database would replicate the work of the victim contact scheme. Victim liaison officers perform a vital role in keeping victims and their families up to date on the release process. That extends to those affected by the shocking crimes under discussion in respect of the Bill. There is scope to improve the scheme further, and the Government have pledged to review it as part of a broader reform of probation. It is vital that the tragic cases to which the Bill applies are given substantial consideration in any such review.
Secondly, we welcome the Government’s intention to introduce an opt-out system as part of the victim contact scheme. That will help to ensure that families of victims are empowered throughout the criminal justice process, extending support to more of those in need while protecting the right to withdraw from the contact process should that be desired.
Finally, we welcome the commitment to involving the Victims’ Commissioner in any review of the victim contact scheme. In her letter dated 7 August, the commissioner laid out her thoughts on how to make the scheme more responsive to victims’ needs, including by changing it from a transactional service into a package of end-to-end support and considering the benefits of co-location with victims’ services. The Government must work closely with the commissioner to consider the viability of her proposed changes.
I thank the Minister for inviting us on the Opposition Benches to contribute to any future review; it is generous of him and welcomed by us. We look forward to working with him on this issue and finding solutions to the challenges of how we ensure that families can easily update contact details over time. It is important that our political system, and those who work within it, come together when broad agreement can be found. Not only is this how politics can better reflect most people’s experiences in their daily lives, but it is a way that we in this House can demonstrate our respect for the suffering of victims and their families by coming together and putting their needs ahead of any others.
Wera Hobhouse (Bath) (LD)
I shall keep my remarks very short, but I want to say a few things in the cross-party spirit of the Bill. My remarks became even shorter after the Minister contacted me this morning and explained exactly the concessions that the Government are making. I am very grateful for that. I also pay tribute to the campaigners and Members of this House who have ensured that this important change in the law will hopefully come into force very soon, making life a lot better and more bearable for victims’ families, who have gone through traumatic experiences already.
The Liberal Democrats welcome the Bill, which will hopefully bring much needed justice for the families of victims. I sincerely hope that this legislation will mean that far fewer families find themselves in the awful position of not knowing what has happened after a loved one becomes a victim of a heinous crime.
The most important issue, which is at the core of the Bill, is improving communication, disclosure and open decision making. The parole function needs to make sure that the views of victims’ families are an essential part of that function. As we just heard, there are too many examples of a victim’s family finding out the result of a parole hearing only through media reports or online. I do not doubt that everyone in the House wants to ensure that our justice system does better to support victims. Parole Board cases are of great significance to victims’ families. They must have the right to know what is happening and to have their say—a meaningful say.
The issue we are debating, which arises from the Lords amendment—much of that has already been discussed—is effective communication with victims’ families. That is currently done through the probation service. The Lords amendment would require the Parole Board to provide the essential and meaningful communication with victims’ families. I understand that the Government are offering not to amend this essential part of the Bill, but to improve the probation service to a point where justice is done for the families of victims.
The Government do, however, agree with part of the Lords amendment and have already been running a pilot for opt-out systems so that families can have regular updates, and they intend to lay a statutory instrument under the negative resolution procedure at the beginning of the new year, in line with the new victims code. All that is very welcome. We have also heard that the Government are committing to more contact between the Prisons Minister and the Victims’ Commissioner. Again, that is very welcome.
The proof of those concessions, however, will be in their effectiveness, and we will need to see how effective the system is once it is up and running. My main request is for a proper review of whether the new arrangements have the required outcome of giving the families of victims of terrible crimes the justice that they deserve, and minimising the trauma that families go through.
Chris Philp
With the leave of the House, let me say a word or two in conclusion. I once again thank the hon. Members for St Helens North (Conor McGinn) and for Plymouth, Sutton and Devonport (Luke Pollard) for their campaigning on this topic, and I thank the Opposition Front Bench and the Liberal Democrat Front Bench for the constructive cross-party spirit in which they have approached it.
This is an example of Parliament working at its best on an issue of profound importance to victims whose lives have been destroyed by either murderers or child abusers who seek to further torment their victims, even after the offence and their trial and conviction, by intentionally and maliciously withholding information about the whereabouts of the body or the identities of the children who have been abused. It is wicked and unacceptable, and this House, in passing this legislation, sends a clear message to those people that their behaviour is abhorrent and unacceptable, and we stand united against it.
Lords amendment 1 disagreed to.
Ordered, That a Committee be appointed to draw up Reasons to be assigned to the Lords for disagreeing to their amendment 1;
That Chris Philp, Tom Pursglove, Neil O’Brien, Julie Marson, Bambos Charalambous and Peter Kyle be members of the Committee;
That Chris Philp be the Chair of the Committee;
That three be the quorum of the Committee.
That the Committee do withdraw immediately.—(Rebecca Harris.)
Committee to withdraw immediately; reasons to be reported and communicated to the Lords.