The Secretary of State for the Home Department (Yvette Cooper)

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I beg to move, That the Bill be now read a Second time.

The Bill has the wholehearted support of the Prime Minister, the Leader of the Opposition and, I hope, the whole House. Some of those who campaigned hardest for it have joined us in Parliament for this evening’s debate.

Seven and a half years ago, on the evening of 22 May 2017, thousands of people went to Manchester Arena for a music concert. Many of those in attendance were children and teenagers. They were there to see Ariana Grande, their favourite pop star, and to dance and sing along to her songs. They were there to soak up the atmosphere with friends and family. But as the event drew to a close and people started to leave, terror struck. Scenes of happiness gave way to shock and trauma, and what had been an enjoyable spring evening was transformed into a nightmare. More than 1,000 people were injured, and 22 of them never came home—nine of those were teenagers. Today, we remember them all. Their lives were brutally cut short in an act of pure evil.

We also think of the victims of other terrorist attacks. They will never be forgotten. Their families and friends, left to pick up the pieces and somehow go on, are in our hearts and prayers. We think also of all those who survived this and other similarly abhorrent acts, the survivors of all terror attacks, who live with the scars, whether physical or psychological. We think of the first responders who are on the frontline when the worst happens, bravely working to protect the public and to save lives, and we think of the police and security and intelligence agencies who work night and day to prevent attacks and keep us all safe. We give them our thanks.

In the aftermath of the Manchester Arena attack, our country did what it always does when confronted with terrorism: we came together. As the city grieved, we stood shoulder to shoulder with those affected and offered our friendship and support. In the darkness came rays of light—those who were determined to support each other and ensure that more was done to save young lives in future.

That spirit is embodied by Figen Murray, who is with us in the Public Gallery today. It is because of Figen that we are all here to talk about this legislation. Figen’s son, Martyn Hett, was among those killed in the attack. I cannot imagine Figen’s pain and I am in awe of her courage. To suffer such a horrendous loss and somehow find the strength to fight for changes that will help others is heroic. Despite her grief, she has campaigned, and when asked this morning why she does so, she said that she looks at her child’s ashes on the bookshelf and she does not want other families to have to face the same. Figen and campaigners have fought for this law. This Bill has been a long time coming, but she has never given up. I am sure the whole House will agree wheneb;normal;j I say to Figen, “You are a true inspiration. Officially, we are debating the Terrorism (Protection of Premises) Bill but in essence and in spirit, this is ‘Martyn’s law’.”

The first responsibility of any Government is to keep the public safe. That is, and will always be, our No. 1 priority. We will not let terrorists or extremists destroy or distort our way of life. That is why Labour committed in our manifesto to strengthening the security of public events and venues, why the Prime Minister made a commitment to Figen Murray and why we have moved at speed to introduce the Bill in a matter of weeks after the general election. Earlier work was done on the Bill under the last Government and I am glad to say that it has cross-party support—I hope that, when it comes to security matters, the House will always be prepared to come together.

The Manchester Arena inquiry made 169 public recommendations. Volume 1 focused on the security of the arena and set out the need for a protect duty in primary legislation. The chair, Sir John Saunders, whom I thank for all the work he did, concluded:

“Doing nothing is, in my view, not an option. Equally, the Protect Duty must not be so prescriptive as to prevent people enjoying a normal life.”

That encapsulates the purpose behind the Bill and behind so much of what we do when countering terrorism and extremism: ensuring that proper measures are taken to keep us safe; ensuring that people can get on with their lives and making it possible for people to keep enjoying all the things they do; and protection of life—protection of our way of life.

Since March 2017, MI5 and the police have together disrupted 43 late-stage plots and there have been 15 domestic terror attacks. We know from those incidents that the public can be targeted at a wide range of public venues and spaces. We know too that the terror threat has become less predictable and potential attacks harder to detect and investigate. That is why everyone needs to be part of the measures we take to keep people safe—including those who run premises and events, who need to know what they can do and what they should be doing to keep people safe.

Yvette Cooper

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The hon. Gentleman makes an important point, and I know there will be many detailed discussions on that in Committee. Since the original draft legislation was published, we have sought to ensure that there was extensive consultation with businesses, with premises and with venues of all sizes. That is why there is a different approach, which I will come on to, for different sizes of venue, ensuring that the response that premises need to make is proportionate and recognises the detailed individual circumstances, which will be very different from one venue and one organisation to another. I will come to that point and that detail.

The legislation requires for the first time that those responsible for certain premises and events consider terrorist risk and how they would respond to an attack. Larger premises and events will need to take steps to reduce their vulnerability to terrorist attacks. For premises to fall within the scope of the Bill, it must be reasonable to expect that there may be 200 or more individuals present on those premises at the same time. In addition, the premises must be used for one or more of the activities specified in the Bill—for example, entertainment or leisure. For those premises that are in scope, a tiered approach has been established, with requirements varying. Events and premises where it is reasonably expected that 800 or more people may be present at once will generally be in the enhanced tier, and any other premises—those where 200 to 800 people may be present—will be in the standard tier.

Those responsible for premises in the standard tier will be required to notify the regulator and have in place public protection procedures to reduce the risk of harm to individuals in the event of an act of terrorism. It is important that those procedures are designed to be very simple and low cost. There will be no requirement to put in place physical measures in the standard tier. There are four categories of procedure: evacuation, which relates to the process of getting people safely out of the premises; invacuation, for example where we need to keep people safe within premises; lockdown, if a premises needs to be kept secure from an attacker who is trying to get in; and communication—simply communicating to all those involved, including staff and the public who might be at risk.

In recognition of the potentially greater impact of an attack on larger premises, those in the enhanced tier will be subject to additional requirements or public protection measures: monitoring for risks and indicators; security measures for individuals, which might mean search and screening processes; physical safety measures, where relevant, such as safety glass; and securing information to make it harder for people to plan, prepare or execute acts of terrorism.

Yvette Cooper

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We are being clear that it is not for the Government to specify precise arrangements for every venue. I do not think it would be appropriate to do so. Arrangements will vary according to the event. We know that many large venues already have procedures to search bags or conduct those sorts of checks. We are clear that this needs to be done proportionately, and according to the size of the venue and the arrangements in place.

Yvette Cooper

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The right hon. Gentleman is right. That is why one of the things we would expect is that premises have proper search measures, and particularly to ensure that there are security measures around the movement of individuals, but as well as the searches that might take place at an event itself, safety measures may also involve having monitoring procedures in place—for example, if the same individual has been back, circling a venue several times, and is behaving in a suspicious or inappropriate way. Making sure that staff are trained to recognise those kinds of risks and indicators may be an important part of keeping the venue safe.

Yvette Cooper

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I will give way first to my hon. Friend and then I will come back to the right hon. Gentleman.

Yvette Cooper

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As my hon. Friend will know, the prevention of future deaths report from the London bridge and Borough market inquests called for clarity of responsibility for venue operators regarding protective security. Addressing that point is one reason that we are bringing forward this legislation. My hon. Friend is also right that, in practice, security and safety measures require people to work together and require partnerships among them, the venue, local councils and others. It is not for this legislation to set out the decisions for insurance companies; its whole purpose is to make venues safer and more resilient to the kinds of pressures and attacks they might face.

Yvette Cooper

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I said I would give way to the right hon. Member for South Holland and The Deepings (Sir John Hayes). I will then come to the hon. Member for Strangford (Jim Shannon).

Yvette Cooper

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The right hon. Member makes an important point and I thank him for his long-standing interest in the issue. Those responsible for premises and events in the enhanced tier will be required to provide the regulator with a document that sets out all the public protection measures and procedures they have, and how they expect those processes to reduce their vulnerability and risk of harm from terrorism. The first category is about monitoring for risks and indicators. That might include monitoring prevention measures—for example, if there has been some kind of security breach a week before or some days before—or assessing what the risks might be. The third measure is about physical safety, which might include the physical arrangements that can prevent somebody from being able to take action in advance of a major event to create that risk and threat. There are ways of having those checks in place.

The Bill ensures that there is a new regulator to oversee compliance through a new function of the Security Industry Authority. We expect the SIA’s primary role to be supporting and advising businesses to implement the legislation’s requirements. Even though the SIA will have a suite of powers and sanctions, including the power to issue fines for non-compliance or to shut down events in the enhanced tier, in fact those sanctions are primarily civil. I reassure the House that those responsible for premises and events will be given time to understand and that the SIA’s approach will be to support venues to adopt the new measures. A range of factors will be taken into account so that penalties will be used only to address the most serious or repeated failings.

Yvette Cooper

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The hon. Member is right that there has been considerable work by many venues and premises in Northern Ireland to respond to the kinds of threats and risks that, sadly, communities have faced through the years. He may also be interested to know that in Manchester a voluntary version of Martyn’s law was introduced after the appalling Manchester Arena attack; training and support were provided for venues and many businesses were keen to sign up. That has been very well supported and the view in Manchester is that it has been hugely successful.

The experience of the hon. Member for Strangford in Northern Ireland and the experience in Manchester is that, too often, there has been a tragic reason as to why organisations have responded in that way. We need to make sure those same lessons are learned right across the country. That is why we are setting out this comprehensive legislation, so we are not in a situation where the biggest venues only respond when something terrible happens—when it is too late and lives have been lost.

We are committed to working extensively with the business community during the passage and roll-out of the Bill. As well as the ongoing programme of direct engagement, we have also updated ProtectUK to make it easier for businesses and others to navigate and understand the supporting information on the Bill. We are acutely conscious in introducing this legislation of the need to get the proper balance and detail right. That is why, as hon. and right hon. Members will know, the Bill’s proposals have been subject to extensive development, and the draft version of the legislation was subject to pre-legislative scrutiny under the previous Government.

Most crucially, we have raised the threshold for being in scope from 100 to 200 individuals. We recognise the need for a location-specific approach because the procedures in one place may not apply to another. We have also ensured that in both tiers appropriate procedures and measures are required only

“so far as is reasonably practicable”.

Those words are crucial to recognising the importance of protecting life and our way of life.

With Figen here, we always keep in our minds that terrible day in Manchester seven and a half years ago. The youngest victim was an eight-year-old girl, Saffie-Rose Roussos. Her headteacher asked the question afterwards:

“How do you tell 276 children that their friend has been murdered”?

That is a question we all ask: how can we explain how anyone could have targeted the event that day, with young children enjoying their love of music and dancing? But that is the point. When terrorists want to cause maximum damage—when they want to destroy our way of life—of course they seek out crowds, but they also seek out innocence, happiness and joy. That is why our task is not just to take measures to keep people safe but to work tirelessly to ensure that people can get on and enjoy their lives, and that we never let terrorists, extremists and criminals win.

Let me finish by quoting Figen. She said:

“It’s time to get this done.”

I could not put it better. I commend the Bill to the House.

Yvette Cooper

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I thank the right hon. Member for her tributes to David Amess and Jo Cox, and I join her in those tributes. David’s family will be very much in our hearts as we remember him tomorrow, as will Jo and all of her family. The right hon. Member is right to pay tribute to them, and I thank her for doing so.

The Minister for Security (Dan Jarvis)

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It is a pleasure to follow the shadow Minister, and I would like to take the opportunity to thank all hon. and right hon. Members who have spoken in this debate. I will endeavour to address the themes of the arguments that have been put forth. Before doing so, I place on the record my thanks to the Home Affairs Committee for its scrutiny of the draft Bill in the last Session, and I thank the Opposition for the constructive approach they have taken to this Bill, for the support that they have given today and, indeed, for the work done by the previous Government.

As many hon. Members have rightly set out, keeping the country safe is the first duty of government. Just last week, the director general of MI5 set out in his threat update speech that the country is subject to the most interconnected threat environment that we have ever seen. The threat picture is complex, evolving and enduring, with terrorists choosing to attack a broad range of locations. It is not possible to predict where in the UK an attack might happen, or the type of premises or event that could be impacted, but engagement with business indicates that preparedness and protective security in the counter-terrorism space often falls behind areas where there are long-established legal requirements, such as health and safety.

In recent years, inquests and inquiries into terror attacks have set out the need for a legal requirement, including monitored recommendation 4 in volume 1 of the Manchester Arena inquiry. The police, the security services and other partners continue to do all they can to combat the terror threat, and we are immensely grateful to all those who work around the clock to counter threats and protect the safety of our country. The public are safer as a result of their efforts, and we owe them an enormous debt of gratitude.

Many businesses and organisations already do excellent work to improve their security and preparedness. However, the absence of legislative requirements means that there is no consistency or consideration of the outcomes. That is what this Bill—Martyn’s law—seeks to achieve. It will improve protective security and organisational preparedness across the UK, thereby making us safer. Through the Bill, qualifying premises and events should be better prepared to respond in the event of a terrorist attack. Those responsible for certain premises and events will be required to take steps to mitigate the impact of a terrorist attack and reduce harm in the event of a terrorist attack occurring. Additionally, certain larger premises and events will have to take steps to reduce their vulnerability to terrorist attacks. The public rightly deserve to feel safe when visiting public premises and attending events, and the Government see it as reasonable that, in many locations, appropriate and reasonably practical steps should be taken to protect staff and the public from the impact of terrorism.

Like other Members, I would like to take the opportunity to thank and pay tribute to Figen Murray, whose campaigning has been crucial in driving this Bill forward. Her tireless work is an inspiration to us all. To have suffered such a tremendous loss and still find the strength to campaign for change is extraordinary, and I know that I speak for all Members of this House in saying Figen, you are an inspiration.

I turn now to the main points raised during today’s debate. First, I should say that we were privileged to hear two truly excellent maiden speeches from the hon. Member for Tiverton and Minehead (Rachel Gilmour) and my hon. Friend the Member for Forest of Dean (Matt Bishop). Both spoke exceptionally well and did their constituents real credit, and I know that the House will look forward to hearing much more from them as they draw on the huge experience that they both bring to this place.

I should also say, as this legislation progresses, that we keep in our hearts all those who have lost their lives in terrorist attacks, including the late Sir David Amess and Jo Cox. They are gone but their memory endures, as does our commitment to supporting their loved ones and the survivors who live with the scars of being caught up in terrorism, whether physical or psychological. I firmly agree with the sentiments expressed by the right hon. Member for Witham (Priti Patel) in respect of the late James Brokenshire, who is much missed in this place.

Dan Jarvis

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I am grateful to the hon. Member for making that intervention, and yes, of course I join the hon. Member in that. I am sure that all Members will want to pay tribute to the late Ian Gow.

The shadow Home Secretary asked about implement-ation. Following Royal Assent, there will be time to understand and, where necessary, act upon the new requirements before they come into force. We expect the implementation period to be at least 24 months to allow for the set-up of the regulator, and we will continue to engage and communicate with industry and other stakeholders during this period, including in the live music sector, to ensure that there is sufficient time for those responsible for premises and events in scope to understand their new obligations, and to plan and prepare. A robust monitoring and evaluation plan is also in place to measure the Bill’s effectiveness following implementation, and the Government will keep the Bill’s measures under review and have the powers needed to adjust the regime if necessary.

Several Members asked about the proportionality of the standard tier. The Government are extremely mindful that many premises and events continue to face the challenge of rising costs. The Bill seeks to achieve public protection outcomes while avoiding an undue burden on businesses and other organisations. In the standard tier, the focus is on having procedures that are intended to be simple and low cost. There will be no requirement to put in place any physical measures.

Dan Jarvis

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I am grateful to my hon. Friend, a Greater Manchester MP, for making that important point. It is worth saying in response that the feedback from businesses in the Greater Manchester area has been incredibly positive. While we are mindful of the potential burdens on business, we have consulted and worked closely with the sector and we will continue to listen carefully to the concerns it may wish to raise.

Dan Jarvis

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I am going to make a bit of progress. I will come to the hon. Gentleman in a moment, but I am conscious that time is against me and that Madam Deputy Speaker is looking intently at me.

The right hon. Member for Witham made a number of important points, not least that the primary role of the Security Industry Authority will be to provide advice, guidance and support to those responsible, to enable them to meet their obligations. The Bill also gives the SIA the necessary enforcement and investigation powers. These are modelled on those of other similar inspection regimes, which will allow an inspector to enter premises, interview staff, gather the information they need and assess the level of compliance. In the most serious or persistent of instances, criminal sanctions will be available.

The right hon. Lady also asked for an update on our work to support the victims of terrorism, and she rightly referenced the good work of Travis Frain, whom I also have had the privilege of meeting to discuss important issues, including that of memorialisation. The right hon. Lady raised a number of important points, and I will commit to write to her specifically on this point but also on the other points that she raised. She should be assured, however, as should the whole House, of this Government’s commitment to supporting the victims of terrorism.

My hon. Friend the Member for Altrincham and Sale West (Mr Rand), another Greater Manchester MP, spoke powerfully about the impact of the Manchester attack. I fully agree with everything he said, as I did with the contribution made by my hon. Friend the Member for Bolton North East (Kirith Entwistle). The hon. Member for Hazel Grove (Lisa Smart) spoke movingly about Martyn Hett and eloquently paid tribute to the solidarity, resilience and resolve of the people of Greater Manchester. I can also assure her, and the House, that dedicated, easy-to-follow guidance and support will be provided for duty holders to ensure that those in scope have the required information on what to do and how best to do it. This will include local authorities and volunteers, as raised by the hon. Members for Solihull West and Shirley (Dr Shastri-Hurst) and for North Cornwall (Ben Maguire) respectively.

My hon. Friend the Member for Bermondsey and Old Southwark (Neil Coyle) asked about planning processes, and I have made a particular note of his point about bollards. I can assure him that we will consider, with the Ministry of Housing, Communities and Local Government and planning leads in the devolved Governments, how security considerations are referenced in and achieved through the planning regimes and guidance, in the light of the Bill’s provisions.

The hon. Member for Solihull West and Shirley made a number of important, pertinent points. He rightly said that the protection and safety of the public is paramount, but he raised a number of points around the impact on smaller premises and the changing nature of the threat. I can give him the assurances that he sought. My hon. Friend the Member for Dudley (Sonia Kumar) made a number of useful points, not least about seeking to strike the right balance between security and the impact on business.

The hon. Member for North Cornwall rightly reflected his own constituency experience and spoke about rural venues, smaller premises and penalties. I am also grateful to him for mentioning Brendan Cox. It is absolutely right to reference the significant contribution that Brendan Cox has made to this process. My hon. Friend the Member for Edinburgh East and Musselburgh (Chris Murray) made a really important point about Edinburgh. It is a great city that knows how to host events, and I am particularly pleased to hear that the city welcomes this legislation. Of course, we will want to work closely with colleagues in Scotland and elsewhere to ensure the successful implementation of this legislation.

The hon. Member for North Antrim (Jim Allister) made a number of important points, not least on ensuring that we work together to defeat terrorism. He also raised important points about smaller premises and the SIA. I am happy to discuss those points with him further, but I can say to him that the enhanced duty requirements will not apply to premises used for childcare or for primary, secondary and further education. My hon. Friend the Member for Middlesbrough South and East Cleveland (Luke Myer) also mentioned Travis Frain, and I am grateful to him for doing so. I join him in paying tribute to Travis’s work. He has been an inspirational campaigner and we will want to continue to work closely with him in the future.

The hon. Member for Strangford (Jim Shannon), as always, drew very sensibly on his experience of Northern Ireland from a terrorism perspective. His contribution is always appreciated. He raised a number of specific points and I will endeavour to come back to him by letter in order to give him clarity.

Dan Jarvis

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I am grateful to the hon. Gentleman for mentioning churches. All places of worship will be included in the standard tier. We recognise their unique and hugely important contribution, and we have looked very closely at how we can ensure that this legislation will provide them with appropriate protections. Again, I am happy to discuss this further, should the hon. Gentleman wish to do so.

The Bill’s provisions have been very carefully designed to strike the right balance between public protection and avoiding undue burdens on premises and events. These simple, common-sense steps will bolster the UK’s preparedness for and protection from terrorism.

I finish by reiterating the thanks of the whole House to Figen Murray. To have gone through what she has and still work so tirelessly for change is both humbling and inspiring. Figen has said that it is time to get this done, and she is right.

Security is the foundation upon which everything else is built, and nothing matters more to this Government. I commend this Bill to the House.

Question put and agreed to.

Bill accordingly read a Second time.

Terrorism (Protection of Premises) Bill: Programme

Motion made, and Question put forthwith (Standing Order No. 83A(7)),

That the following provisions shall apply to the Terrorism (Protection of Premises) Bill:

Committal

(1) The Bill shall be committed to a Public Bill Committee.

Proceedings in Public Bill Committee

(2) Proceedings in the Public Bill Committee shall (so far as not previously concluded) be brought to a conclusion on Tuesday 19 November 2024.

(3) The Public Bill Committee shall have leave to sit twice on the first day on which it meets.

Consideration and Third Reading

(4) Proceedings on Consideration shall (so far as not previously concluded) be brought to a conclusion one hour before the moment of interruption on the day on which those proceedings are commenced.

(5) Proceedings on Third Reading shall (so far as not previously concluded) be brought to a conclusion at the moment of interruption on that day.

(6) Standing Order No. 83B (Programming committees) shall not apply to proceedings on Consideration and Third Reading.

Other proceedings

(7) Any other proceedings on the Bill may be programmed.—(Anna Turley.)

Question agreed to.

Terrorism (Protection of Premises) Bill: Money

King’s recommendation signified.

Motion made, and Question put forthwith (Standing Order No. 52(1)(a)),

That, for the purposes of any Act resulting from the Terrorism (Protection of Premises) Bill, it is expedient to authorise:

(1) the payment out of money provided by Parliament of:

(a) any expenditure incurred under or by virtue of the Act by the Secretary of State, and

(b) any increase attributable to the Act in the sums payable under or by virtue of any other Act out of money so provided, and

(2) the payment of sums into the Consolidated Fund.—(Anna Turley.)

Question agreed to.

The Minister for Security (Dan Jarvis)

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I beg to move,

That—

1. the Committee shall (in addition to its first meeting at 9.25 am on Tuesday 29 October) meet—

(a) at 2.00 pm on Tuesday 29 October;

(b) at 11.30 am and 2.00 pm on Thursday 31 October;

(c) at 9.25 am and 2.00 pm on Tuesday 5 November;

(d) at 9.25 am and 2.00 pm on Tuesday 12 November;

(e) at 11.30 am and 2.00 pm on Thursday 14 November;

(f) at 9.25 am and 2.00 pm on Tuesday 19 November;

2. the Committee shall hear oral evidence in accordance with the following Table:

Dan Jarvis

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Q I extend a warm welcome to both witnesses, and I offer you the Committee’s thanks for your evidence this morning. I also take the opportunity to reiterate the tributes that I paid to you both on Second Reading. Your work has been incredibly impressive and inspiring and I know that the whole Committee and the wider House are hugely grateful for it. May I begin at the beginning and ask you both to say why you think we need this legislation and what its impact will be?

Figen Murray: I have taken the liberty of writing something down that I would like to read out, please, if that is okay. I hope that will address some of that.

I begin by thanking absolutely every person who has had any involvement in bringing Martyn’s law to this point. It has been a long five and a half years since the campaign started, and the kindness and support people have extended to us have been quite incredible.

As I sat in Parliament on 14 October for Second Reading, I realised that the relatively long journey that still lies ahead—given all the different steps the legislation must still undergo—will not be an easy one. On Second Reading, my name was mentioned many times and many lovely words were said, but I need people to understand that I would not have progressed much without my co-campaigners, the campaign team, and the incredible support of my husband and my remaining children.

Seven and a half years ago, our life as a family was destroyed forever. I want you to note the word “forever”, as there is no coming back from this. As a family, we are damaged goods. The day Martyn died, something died inside all of us. Do not get me wrong: as a family, we are very close. Individually, however, we all carry our separate emotional scars that are now an integral part of each of us. That will be the case for every family anywhere in the world who has been hit hard by terrorism. Our numbers are growing, sadly. Outwardly, I function at a high level day in, day out, but make no mistake that my heart is in shreds—yet it is my broken heart that drives me to try to stop others from ever having to feel this way.

Coming back to Second Reading, I was buoyed that every party said that they supported the Bill. If security cannot unite us, what can? I welcome the all-party support. On Second Reading, I also heard some concerns about getting the balance right and keeping the Bill proportionate. I agree with that. Right from the start, we said that one size does not fit all, and that the Bill needs to be proportionate. It has never been intended to be burdensome.

My worry is that the increase in the capacity threshold from 100 in the draft Bill to 200 now risks getting the balance wrong. It excludes too many venues. The cost to businesses for Martyn’s law is a drop in the ocean compared with the €43 billion that the Rand Corporation estimated that terrorism cost the UK between 2004 and 2016, or even the £100,000 lost by Mr Fred Foster, a market trader at Borough market, during the attack in 2017.

However, we need to be clear that the risk from terrorism is real. Our terrorism threat level stands at “substantial”, meaning that an attack is likely. Although there have not been any successful terror attacks, it is easy to let complacency creep in. We must not forget that attack methodologies have now changed. People get radicalised and go out an use vehicles, knives, and home-made IEDs—improvised explosive devices—to kill others.

There are currently about 800 active investigations and about 2,500 subjects of interest who are being watched by the authorities as they are linked to terrorism investigations—the aforementioned 800—but there are a further 30,000 individuals who have expressed extreme views that could lead to them committing acts of terrorism. Those figures have not changed over recent years. The geopolitical situation, sadly, also means that extremists exploit the conflicts in Ukraine and Gaza to recruit more people to follow their ideology. There is no sign of those figures reducing in the near future.

The director general of MI5, Ken McCallum, has also recently spoken about 43 near misses since 2017. Those are 43 planned attacks that were stopped just in time. Everyone in this room surely must appreciate that sooner or later an attack will not be stopped in time and people will yet again die or be injured or traumatised. There is no room for complacency. The threat is out there and it is real. Terrorists do not care who they kill. They aim to kill, shock and gain notoriety.

We have had attacks such as a planned knife attack on an LGBT community in Cumbria, a knife attack against an MP inside a church hall in Essex, a bomb outside Liverpool women’s hospital, another bomb at a hospital in Leeds, a knife attack in a park in Reading, a knife attack at a conference in London, a knife attack at a high street in London, a firebomb attack at an immigration centre in Dover, a letter bomb delivered to a Scottish university, a knife attack at a railway station in Manchester, and a vehicle attack at a mosque in London. If anyone thinks that where they live is too small or too rural to be targeted, they are wrong. Our experience in this country and around the world shows us that terrorists can strike anywhere.

A lot of venues are already busy preparing and implementing as much as they can. Manchester has trained over 2,500 people in free-of-charge face-to-face ACT training, and businesses and venues across Manchester are implementing the legislation as best as they can. Venues in Manchester are doing that voluntarily because the city was badly hit. People in Manchester understand the risk as they were directly affected, but we need this legislation on the statute books; without it, people will simply not take security seriously.

Security is often seen as low priority as people do not believe their venue is at risk from terrorism. A recent tabletop exercise in Manchester for the standard-tier venues resulted in most venues saying that the cost of implementing measures is either negligible or very low cost or effort, and that it enhanced customer experience as people felt safer.

At Second Reading, a few people worried about liability and the responsibility given to volunteers. Anybody who already has any responsibility for organising or managing community spaces and events already has liabilities under civil law. Martyn’s law will not create additional liabilities—they exist already. What Martyn’s law is more likely to do is to help communities know that they are discharging those responsibilities properly. Volunteers in various venues across the country already voluntarily take on responsibility for fire safety or health and safety, and this would be simply a small add-on. Martyn’s law is asking people at the standard tier to understand how to lock down, how to evacuate, how to invacuate or how to communicate with others. It is as simple as that on the standard tier.

Another concern was around churches and schools. Our children have the right to be protected from harm. Most schools already had lockdown procedures in place, anyway, long before Martyn’s law became a topic. Places of worship are places where people of all faiths should be able to worship freely and without fear. They need to be protected. We have seen attacks on places of worship in countries such as Sri Lanka, New Zealand—in Christchurch—and France. Since the Gaza conflict a lot of synagogues are currently on high alert as the threat is understood.

To sum up, Martyn’s law will save lives. Terrorism is here to stay. The public have a right to be kept as safe as possible when they are out and about enjoying the freedom our country offers. Martyn, Saffie, Nell, Sorrell, Eilidh, Megan, Olivia, Georgina, Courtney, Philip, Kelly, Elaine, Alison, Lisa, Michelle, Wendy, Jane, John, Angelika and Marcin, Chloe and Liam were all out enjoying a great evening that night and had every right to make it safely back home. I absolutely believe that had Martyn’s law been firmly established, they would still be alive now. Please consider what is the right thing to do. I will finish by saying once again that it is time to get this done. Thank you for listening.

Brendan Cox: I would add a couple of things to that; Figen has set it out incredibly powerfully.

As I mentioned in my introduction, I am part of something called Survivors Against Terror, which is a network of about 300 survivors of terror attacks: people that have been bereaved like myself and Figen and people who have themselves been injured in attacks. What draws that network together is a desire to reduce the likelihood of future terror attacks and to reduce the harm that they do. We do that by campaigning for the rights of families to things such as mental health support and compensation, by educating the public on the role they can play in the fight against terrorism, and by campaigning for effective laws that make terror attacks less likely in the future. That is how Figen and I first started working together, right at the start of this campaign.

I got involved for two reasons. First, frankly, I was inspired by Figen and her determination to make something good come out of something that was absolutely horrific, and to make sure that no other family unnecessarily goes through what her and her family have, but also, fundamentally, because the methodology of terrorism has changed, as Figen mentioned. The age of very complex attacks, often directed by people from outside the country and involving the need to assemble a device or to work out how detonators work, gave our security services lots of opportunities to intervene and disrupt terrorism plots. We are now in an age in which people are just using knives or cars, and the way in which we respond to that terror threat has not caught up.

It is impossible for our security services to keep our country safe with this new distributed methodology. We therefore have to have much more of a partnership approach: how can we all play a little role in making each other safer? I think this comes from our experience, but as the network of survivors supporting Figen and her campaign we do not want anybody’s sympathy, we want to make people safer so that these things and the impact they have had on our lives do not happen to anyone else. There is nobody more driven in wanting to defeat terrorism than those who have been directly affected by it.

There are two ways in which terrorists can win. One is by killing and maiming people. The other is by disrupting our way of life—making us live in fear and changing our way of engaging with each other. That is why, right from the start, proportionality has been central to our thinking. We do not want this to change our way of life. We do not want terrorists to win, either by injuring people or by changing our way of life, and that is why right at the heart of this proposal, from the beginning, has been proportionality. We want everybody to be empowered to play a small role in making us all safer. We do not want airport-style security outside village halls, as some of the papers might suggest we want.

The final thing I would say is that nobody wants to have a law named after their child. What we do want to do is to make sure no-one unnecessarily goes through what Figen and her family has. We want to make sure that there is a legislative response to the clamour of action that you have had in every inquiry post-2017, whether into the Manchester attacks or into the London attacks, to say that this is a loophole that has to be closed and now is the moment to close it.

Dan Jarvis

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Q Good morning, Andy. It is always very good to see you. As the Mayor—perhaps I should call you “Mr Mayor”—you are uniquely well placed not only to understand the impact of the Manchester Arena bombing but, as is often the case in Greater Manchester, to be a real trailblazer in looking at what the impact of Martyn’s law might be on business. Could you say something about what you think will be the impact of the Bill on businesses, based on your experiences in Greater Manchester?

Andy Burnham: Thank you very much, Minister. Before I get to the question, I will say a little more about my background, which has led me up to what I think. I was shadow Home Secretary at the time of the Paris attacks, and those at the Bataclan in particular. If that had happened here, this legislation would already be on the statute book. Obviously, as Figen said, we have lived through the terrible events of 22 May 2017, but in the seven and a half years since, the nature of the threat has changed. I do not think we could have imagined some of the incidents that we have seen since then, such as the terrible loss of a really loved colleague in Southend and the attack in Southport. We would not have expected that. I remember asking Theresa May at the time of the Paris attacks if we were prepared for an attack in an English city—even then we were thinking only of cities; we were not thinking outside of cities. I say that because all that has shaped my thinking over the years.

When Figen first came forward with the concept of this Bill, I took time to think it through with colleagues in our city region. We are part the Resilient Cities Network, which is a group of 100 cities around the world, and we are in the Strong Cities Network, so we are constantly sharing best practice with cities around the world, and it was our view that the lack of a clear set of standards for security in our venues was a real gap. We were conscious, though, that there may be an impact on venues, hence the measures that were brought forward had to be right but proportionate, and I think care has been taken over that.

As you have just heard, Manchester city council has done an exercise working with venues and surveying venues on some of the voluntary things that have already been done in our city region. As you heard a moment ago, the impact is negligible—it is low-cost—but venues also report that they think it has raised standards generally within the organisation and improved the visitor experience. The experience that people have when they visit—their sense of safety when they are in the city—matters a lot to us as a city region and we are working to raise it. We have gone ahead and, if anything, we want to keep going further and raising the bar.

I will finish by saying that my main message to the Committee this morning is that I ask all of you to please ensure that the Bill is not watered down any further—actually, I look to the Committee to strengthen it. Again, I believe that venues with a capacity of 100 to 200 should be covered by the Bill. I do not think it is right that there is no requirement for training within the standard tier; there should be a requirement for staff to take the free ACT training. The message from Greater Manchester is that we continue to support Figen and all the families who lost loved ones on that night. In one way, we support those measures for that emotional reason, and always will, but we also do so from a Resilient Cities perspective. We believe they will only strengthen people’s experience in our city. We think it is in the interest of parents whose kids come into our city to go to the many events that take place every weekend to understand that there is a basic level of security at all the venues across our city region.

Dan Jarvis

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Q Good morning to you both and thank you for giving evidence to the Committee.

My question is for Councillor Stevens. I know that you have had a long-standing interest in the process. As part of the pre-legislative scrutiny in the previous Parliament, I know that a number of concerns were raised around proportionality and thresholds, and also around the lack of clarity with regard to the regulator. I would be grateful for your view on the changes that have been made to the Bill since. Also, how receptive do you think local councillors will be to those changes?

Keith Stevens: Having heard what has gone before, as a parish councillor I was quite pleased when the threshold was lifted to 200 because that is proportionate. I will give the simple example of my own parish council. The village hall where we hold all our meetings has a capacity of, I think, 190. I have to be honest: we rarely get to 190 people at a parish council meeting. Normally, it is 20 people, including the councillors, as a maximum. That is why raising the threshold to 200 was welcomed by a lot of councils, because it meant that the rules were not quite as strict. However, I do not think that means that parish and town councils will not look at the security of any venue that any event is taking place in. Security is important and we always look at it.

Sorry, what was the second part of the question?

Dan Jarvis

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Q It was about the extent to which local councillors will be receptive to those changes.

Keith Stevens: I think they are receptive to the changes and I think that local councils and councillors are very supportive of Martyn’s law. They have all seen the things, and most parish councils have quite good relationships with the security services. In my own area, we have regular monthly meetings to talk about the situation; actually, the police often use parish councils almost as the pulse of what is going on in the village. When there were all the problems last year, the police were in contact asking us to let them know whether we had heard any rumours that got off the ground. So, yes—very supportive.

The Minister for Security (Dan Jarvis)

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It is a pleasure to serve under your chairship, Dame Siobhain. It is good to see the shadow Minister, the right hon. Member for Tonbridge, in his place. He and I have known each other for a very long time, and as this may be our final exchange—

Dan Jarvis

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Well, as it sounds as though it will be our final exchange, I take this opportunity to thank the right hon. Gentleman for his service and wish him well for the future.

The purpose of clause 1 is to aid the reader of the Bill to understand its content and structure, which I am sure will be a great relief to members of the Committee as we debate the Bill. As the clause provides an overview of the Bill, this seems an appropriate moment to set out a reminder of why we have sought to legislate.

The first responsibility of any Government is to keep the public safe; that is, and will always be, our No. 1 priority. Since the start of 2017, agencies and law enforcement have disrupted 43 late-stage plots, and there have been 15 domestic terror attacks. As the MI5 director general, Ken McCallum, set out last month, this country is today subject to

“the most complex and interconnected threat environment we’ve ever seen.”

As can sadly be seen from recent terrorism incidents, the public may be targeted at a wide range of public venues and spaces. We know, too, that the terror threat has become less predictable and potential attacks harder to detect and investigate. That is why those who run premises and events need to know what they can do, and what they should be doing, to keep the public safe. That view is supported by inquests and inquiries into terror attacks, which have recommended the introduction of legislation to improve the safety and security of public venues. That includes, but is not limited to, monitored recommendation 4 in volume 1 of the Manchester Arena inquiry.

The purpose of the Bill is to ensure that appropriate procedures are in place, or appropriate measures taken, to keep us safe. Wherever people are and whatever they are doing, they deserve to both be and feel safe, ensuring protection of life and of our way of life.

While we recognise that the risks posed by terrorism are already proactively considered for some premises and events, there is a lack of consistency, which needs addressing. The Terrorism (Protection of Premises) Bill—Martyn’s law—will remedy that inconsistency. The Bill’s proposals have been subject to extensive development, and a draft version of this legislation was subjected to pre-legislative scrutiny under the previous Government. Indeed, the shadow Minister gave evidence to the Home Affairs Committee on that matter.

The Bill that we have brought forward has been adjusted to strike an appropriate balance between protecting the public and avoiding an undue burden on premises. We recognise that a one-size-fits-all approach would not be suitable for all premises and events, which is why, for example, we have adapted the Bill’s requirements to include the “reasonably practicable” test. That will enable those responsible for qualifying premises or events to take into consideration what is within their control and the resources they have available to them, as well as what is suitable and appropriate for their venue.

I take this opportunity to pay tribute once again to Figen Murray, from whom we heard so movingly on Tuesday. She has without doubt been the driving force behind this Bill. I am sure that all Committee members will agree that Figen is an inspiration to us all. With that, I look forward to the exchanges to come in the course of proceedings in this Committee.

Dan Jarvis

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I am grateful for the contributions made by my hon. Friends the Members for Rochdale, for Dudley and for Macclesfield. I am also grateful for the contribution made by the hon. Member for North Cornwall; the Government appreciate the Liberal Democrat party’s support, and I am happy to work, and have further conversations, with him before Report on the important point that he raised about training.

Finally, I thank the shadow Minister for his comments. I completely agree with his point about responsibility, and he is right. He will know that this new Government take these matters incredibly seriously, and I can give him and the rest of the Committee an absolute assurance that we will not rest in seeking to address the points he made and the concerns he dealt with admirably when he was the Minister.

Question put and agreed to.

Clause 1 accordingly ordered to stand part of the Bill.

Clause 2

Qualifying premises

Dan Jarvis

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I am grateful to the right hon. Gentleman for tabling his amendments. Before I turn to them, I will briefly explain why clause 2, which sets out the criteria by which premises are determined to be qualifying premises that fall within scope, is so fundamental.

I recognise that the scope of the Bill—particularly the qualifying thresholds—is an important issue to discuss. Once more, I assure Committee members that the scope of the Bill, including the thresholds, has been developed following detailed discussion with those responsible for premises and with security experts within Government. That has involved hundreds of stakeholder engagement meetings, two public consultations and the important pre-legislative scrutiny process. As a result, the Government’s firm view is that the Bill strikes an appropriate balance between protecting the public and avoiding an undue burden on premises.

Let me turn to the detail of amendments 20 and 21, which were tabled by the right hon. Member. He will be well aware that the Government have increased the qualifying threshold in the Bill from 100 to 200. As he correctly set out, clause 32 provides for the Secretary of State to be able to increase or decrease that figure and the threshold for the enhanced tier. As a result, the number of premises in scope of the Bill, and therefore required to comply, may be increased or decreased.

I assure the right hon. Gentleman and the Committee that that power is narrow, and regulations made under it will be subject to the affirmative procedure before they are made, to ensure the appropriate level of scrutiny by parliamentarians. The power is also limited in that the Secretary of State may not amend the figure to less than 100 in respect of the standard tier or to less than 500 in respect of the enhanced tier. That provides a floor, or absolute minimum number, below which the qualifying threshold cannot go.

The Government’s intention, in having the power in clause 32, is to be equipped to respond to changes in the nature or level of the threat from terrorism. We envisage that the qualifying thresholds would be reduced to either floor in only very limited circumstances, such as the nature of the threat changing significantly. The power therefore provides a necessary lever that can be used, if needed, to ensure that the legislation remains fit for purpose and continues to strike an appropriate balance between protecting the public and avoiding placing an undue burden on premises. The Government do not therefore support the amendments.

Finally, I turn to amendment 22. As I set out during oral evidence, setting a threshold inevitably raises discussion as to whether it is the right figure, and what falls on either side of the threshold will inevitably be questioned. Indeed, the Committee heard a range of views from witnesses giving evidence on Tuesday, many of whom spoke to what they believe the appropriate threshold to be. The discussion included arguments for setting it higher or lower than 200.

Ultimately, the Government have to take a view about what the most appropriate threshold is. After careful consideration of the pre-legislative scrutiny findings and consultation responses, and after taking into account the views of stakeholders and security experts, the Government have decided that 200 is the right judgment.

The amendment changing the figure to 300 would significantly impact the outcomes of the Bill, and particularly what the standard tier seeks to achieve. Furthermore, as we will discuss when we debate clause 5, the standard tier requirements have been redesigned to be relatively simple and low-cost for responsible persons to take forward. They do not require premises to make physical changes.

The Government’s firm view is therefore that 200 represents the right threshold to bring premises into the scope of the Bill. That figure strikes an appropriate balance between protecting the public and imposing a burden on premises. The Government therefore do not support the right hon. Gentleman’s amendment.

Dan Jarvis

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I beg to move amendment 10, schedule 1, page 26, line 15, leave out paragraphs 3 and 4 and insert—

“Entertainment and leisure activities

3 Use (other than a use mentioned elsewhere in this Schedule) for the provision of entertainment, leisure or recreation activities of any description, where the activity is principally for the benefit of visiting members of the public.”

This amendment makes general provision about premises used by the public for entertainment, leisure or recreation activities and replaces references to specific types of such activities.

Dan Jarvis

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The amendments in this and the following group seek to ensure that the Bill will work as effectively as intended, including by clarifying and simplifying the definitions of certain uses of premises and certain terms. They are not intended to bring any new premises into scope or to inadvertently bring unintended premises within scope.

Government amendments 10 and 11 simplify schedule 1 by creating a new category of “Entertainment and leisure activities”, which brings together the premises previously captured by paragraphs 3, 4 and 6. That will help to ensure that the legislation and accompanying guidance are simpler to understand for persons potentially within scope of the Bill.

Amendment 10 agreed to.

Amendment made: 11, in schedule 1, page 27, line 10, leave out paragraph 6.—(Dan Jarvis.)

This amendment is consequential on amendment 10.

Dan Jarvis

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I beg to move amendment 12, in schedule 1, page 29, line 29, at end insert—

“(but see paragraph 4(a) of Schedule 2)”.

This amendment makes clear that paragraph 14 of Schedule 1 (aerodromes) is subject to the exception in paragraph 4(a) of Schedule 2 for premises covered by an aerodrome security plan under the Aviation Security Act 1982.

Dan Jarvis

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Government amendment 12 simply highlights that the term “aerodromes” does not include those covered by the exception in schedule 2 with an aerodrome security plan under the Aviation Security Act 1982.

Government amendment 13 is a technical amendment to ensure that Scottish further education establishments are more appropriately described and to reflect any future changes to relevant Scottish legislation.

Government amendment 14 is a change to clarify that agricultural colleges in Northern Ireland are captured, and Government amendment 15 is a technical change to improve the accuracy of the definition of higher education institutions as applied in Scotland.

Amendment 12 agreed to.

Amendments made: 13, in schedule 1, page 32, line 4, leave out from “listed” to “in” in line 6.

This is a drafting change.

Amendment 14, in schedule 1, page 32, line 13, at end insert—

“or established under section 5 of the Agriculture Act (Northern Ireland) 1949 (c. 2 (N.I.)).”

This amendment provides that paragraph 17 of Schedule 1 covers use of premises for the provision of further education at Northern Ireland agriculture colleges.

Amendment 15, in schedule 1, page 34, line 19, leave out from beginning to “the” in line 22 and insert—

“in Scotland, a higher education institution within the meaning of section 35(1) of”.—(Dan Jarvis.)

This is a drafting change.

Dan Jarvis

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I beg to move amendment 16, in schedule 1, page 34, line 37, after “to” insert “visiting”.

This amendment clarifies that the use of premises for the provision by a public authority of facilities or services is only relevant for the purposes of Part 1 of the Bill if members of the public visit the premises in connection with those facilities or services.

Dan Jarvis

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Government amendment 16 clarifies that premises used by public authorities for the provision of facilities or services are only in scope if the public visit the premises to use the facilities or receive those services.

Government amendment 17 clarifies that

“visiting members of the public”

includes members of the public who have paid to access, have invitations or passes allowing access to, or are members or guests of a club, association or other body. That more accurately captures the differing arrangements for public access that may be in place at premises in scope, such as private members’ clubs.

Amendment 16 agreed to.

Amendment made: 17, in schedule 1, page 34, line 42, at end insert—

“References to “visiting members of the public”

20 In determining for the purposes of this Schedule whether premises are used by “visiting members of the public”, it is irrelevant that access to the premises may be limited (at all times or particular times) to members of the public who—

(a) have paid to access the premises,

(b) have invitations or passes allowing access, or

(c) are members (or guests of members) of a club, association or other body.”—(Dan Jarvis.)

This amendment contains provision about the meaning of references in Schedule 1 to “visiting members of the public”.

Question proposed, That the schedule, as amended, be the First schedule to the Bill.

Dan Jarvis

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We have previously spoken at length about the purpose of schedule 1, so I trust that the Committee are suitably satisfied as to why it should stand part of the Bill.

Question put and agreed to.

Schedule 1, as amended, accordingly agreed to.

Schedule 2

Excluded premises and events

Question proposed, That the schedule be the Second schedule to the Bill.

Dan Jarvis

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Schedule 2 specifies certain types of premises that are excluded from the Bill’s scope, which is necessary where there are already similar legislative requirements or protective frameworks in place. This covers, in particular, certain transport premises and premises occupied by Parliament and the devolved legislatures.

Schedule 2 also defines a category of open-air premises that might fall in scope, but where it would be impractical or disproportionately difficult to deliver the requirements given the nature and operation of those premises. The category includes parks and premises used for grassroots sports, which generally do not have controlled access or defined physical boundaries. These premises are therefore excluded, except where they employ individuals to ensure that members of the public have paid to access the premises, or where they have invitations or passes to do so; in cases where entry and exit to the premises are controlled and payment is taken, it is considered that there is a greater capacity and capability to consider reasonably practical procedures and/or measures as required.

Schedule 2 also maintains the provisions in schedule 1 that places of worship and premises used for childcare or primary, secondary or further education fall within the standard tier, meaning that qualifying events cannot occur on those sites.

Question put and agreed to.

Schedule 2 accordingly agreed to.

Clause 3

Qualifying events

Amendments made: 1, in clause 3, page 2, line 38, leave out “all or part of”.

This amendment is consequential on amendment 4.

Amendment 2, in clause 3, page 2, line 41, after “time” insert

“in connection with their use for the event”.

This amendment clarifies that, for the purposes of determining whether Part 1 of the Bill applies to an event, the number of individuals present on premises in connection with the event must be considered.

Amendment 3, in clause 3, page 3, line 2, leave out “all or part of”.

This amendment is consequential on amendment 4.

Amendment 4, in clause 3, page 3, line 7, at end insert—

“(2) Where the condition in subsection (1)(e) applies only in relation to one or more parts of the premises at which an event is to be held, for the purposes of this Part treat what is to be held at each such part of the premises as a separate event (to be held at that part).”.—(Dan Jarvis.)

This amendment caters for cases where parts of the premises at which an event is to be held are open to the public generally and other parts are areas for which members of the public will need permission to enter.

Clause 3, as amended, ordered to stand part of the Bill.

Clause 4

Persons responsible for qualifying premises or events

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

Dan Jarvis

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Clause 4 defines who is responsible for qualifying premises or a qualifying event, and therefore who is responsible for meeting the relevant requirements. With regard to premises, paragraph (a) of subsection (1) provides that:

“a person is responsible for qualifying premises if the person has control of the premises in connection with their relevant Schedule 1 use”,

such as the operator of a hotel.

Subsection (2) sets out what is meant by “relevant Schedule 1 use”. If premises are used for one of the uses specified in schedule 1, that is the relevant use. That is the case even if premises are also used for other purposes not listed in schedule 1. Some premises will be used for more than one of the uses specified in schedule 1. In such cases, it is the person with control over the premises in connection with that principal use who will have to meet the relevant requirements.

Subsection (3) provides a regulation-making power that enables the Secretary of State to provide specific rules as to how the principal use is to be determined. We expect that the principal use will be readily apparent in the vast majority of cases, but the power will ensure that clarity can be provided if and when needed. Principal use is to be determined on a case-by-case basis. Guidance will set out the relevant factors that should be considered when making a determination—for example, taking account of the amount of time for which the premises are used for each type of activity. The regulation-making power can be used if further specific provision is necessary.

On qualifying events, subsection (1)(b) provides that the person responsible is the person who has

“control of the premises at which the event is to be held in connection with their use for the event”—

for example, the organiser of a music festival. The relevant circumstances of the event will need to be considered to determine who the responsible person is. For example, if a concert is to be held in a park, and a company putting on the event has control of an area of the park for the purposes of delivering the concert, that company will be the responsible person. Conversely, if the local authority that operates the park puts on the concert, it will be the responsible person. Where the local authority is not the responsible person, it will still have a duty under clause 8(5) to co-operate with that person to enable them to comply with their requirements.

Subsection (4) specifies that if there is more than one person responsible for qualifying premises, or a qualifying event, they are jointly responsible for ensuring compliance with the Bill’s requirements, and may act jointly in meeting their requirements. In addition, clause 8(2), which we will debate shortly, imposes obligations on the responsible persons to co-ordinate with each other in meeting the requirements. Such a situation will arise when each of the parties has control over parts of the premises in connection with the relevant schedule 1 use. It does not mean, for example, that the multiple tenants of a shopping centre are jointly responsible for the shopping centre as a whole; rather, each will be responsible for their respective premises.

Finally, schedule 1 includes some specific provisions to identify the responsible person for particular types of premises. For example, in the case of a primary or secondary school, paragraph 16 provides that the responsible person will either be the local authority or the governing body of the school. Clause 4(5) provides that those specific provisions apply instead of the general provisions of the clause.

Question put and agreed to.

Clause 4 accordingly ordered to stand part of the Bill.

Clause 5

Public protection procedures

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

Dan Jarvis

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Clause 5 places a requirement on those responsible for all qualifying premises and events to put public protection procedures in place, so far as is reasonably practical. This applies to both standard and enhanced duty premises and events. The intention of having such procedures in place is to reduce the risk of physical harm that could be caused to individuals present at qualifying premises and events if an act of terrorism were to occur.

The procedures will help to prepare people working at premises and events to take steps to reduce the risk of harm and move people away from danger. All qualifying premises and events will have to consider how to evacuate, move people to safety, lock down and communicate information. In practice, these procedures focus on simple, low-cost activities such as identifying safe exit routes and lockable doors. The Bill does not require standard duty premises to make physical changes to their sites. Premises must consider the procedures that are appropriate for them.

The procedures that the Bill requires are simple steps to reduce the physical risk to the public from acts of terrorism. They are similar to, but often with key differences from, other legislative procedures. For example, in developing evacuation procedures, those responsible may want to consider safe exit routes for full, partial or phased evacuations, and where they differ from evacuation procedures required by fire safety, such as how they are communicated and where people should congregate. With a focus on ensuring preparedness, security experts advise that these types of procedures are best placed to reduce the risk of physical harm. Qualifying premises will all be different. Further information on how the procedures would apply in practice is provided in the factsheets. Statutory guidance will support the development and implementation of appropriate procedures to allow premises and events to introduce procedures that are right for them, taking into account their circumstances and resources.

Dan Jarvis

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I thank the right hon. Gentleman for tabling this amendment. The Government consider that specifying further measures is an important power for the Secretary of State and must be available to ensure effective protection of the public through these measures.

Having the ability to specify further public protection measures through regulations means that the requirements of the enhanced duty can be amended to reflect changes in the terrorism threat, advances in technological solutions and our response to them. For example, there may be lessons learned from future incidents, further common types of attack may emerge, or best practice may evolve.

The right hon. Gentleman’s amendment would limit the Government’s ability to protect the public and safeguard them from harm. I understand that the intention behind it may relate to fears over the burden that future measures may create. However, the clause is drafted to constrain the power to be exercisable only where it is considered that the further measures will reduce vulnerability to, or the risk of physical harm from, an attack. It is intended to ensure that new requirements are limited to those necessary to protect the public, and remain in line with the overall objectives of the measures under the clause. Given the evolving nature of terrorism and the threat it poses, the Government consider it necessary to include this power, and therefore do not support the amendment.

On amendment 26, the Government consider it important to be able to remove or amend public protection measures from the list in subsection (3). For example, the Government might identify potential amendments to improve the measures through lessons learned and evolving best practice. This power is drafted so that the Secretary of State may remove or amend the types of measures only if they consider that doing so will not either increase the risk of physical harm to individuals or increase the vulnerability of the premises or event to the risk of acts of terrorism. That is in accordance with the overall objectives of the measures within this clause, as stated in subsection (2).

Were we to agree to the amendment, specified measures could be amended or removed without a requirement in the Bill for the Secretary of State to expressly consider how those public protection objectives would be effective in taking away or altering a measure in the list approved by Parliament. The Government do not consider that appropriate and therefore respectfully do not support the right hon. Gentleman’s amendments.

Dan Jarvis

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Clause 7 places a legislative requirement on those responsible for enhanced duty premises and events to prepare and maintain a document that records their compliance in relation to putting in place procedures, under clause 5, and measures, under clause 6. This is necessary to ensure that premises are able to more easily demonstrate compliance, and the Security Industry Authority is able to assess that against the Bill’s requirements. Many premises will already be documenting similar mitigations in regard to existing security plans for non-legislative purposes—fire safety and health and safety legislation, for example.

Documents should contain statements that relate to the public protection procedures and measures that are implemented, or proposed to be implemented, at their premises or event. Documents should also contain assessments to provide a rationale as to how the proposed procedures and measures will reduce both physical harm to individuals present and vulnerabilities of the premises or event if an attack were to occur.

When complete, the document should contain the totality of the procedures and measures deployed and sufficient detail to enable the authority to assess whether those responsible for premises and events are compliant with the Bill’s requirements. In the first instance, those responsible for enhanced duty premises and events are required to provide the document as soon as reasonably practicable after it is prepared and within 30 days of any subsequent revision.

Question put and agreed to.

Clause 7 accordingly ordered to stand part of the Bill.

Clause 8

Requirements to co-ordinate and co-operate

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

Dan Jarvis

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Clause 8 places a requirement upon certain duty holders to co-ordinate or co-operate with each other when complying with requirements. Subsections (1) and (2) deal with instances whereby there is more than one responsible person, requiring those persons to co-ordinate so far as is reasonably practicable with the requirements imposed upon them. An example of this may be a joint venture between two parties with equal control. The requirement applies to all premises and events within scope of the legislation. It will ensure organisation between mutually invested parties and encourage unified decision making in relation to the requirements placed upon them.

Subsections (3) and (4) concern where one qualifying premises forms part of another. The persons responsible for both premises must so far as is reasonably practicable co-ordinate with each other in complying with the relevant legislative requirements. The purpose of this provision is to ensure that responsible persons in such scenarios, such as a shopping centre, combine efforts or actions to reach mutually effective and compliant outcomes in relation to relevant requirements. That might, for example, entail the shopping centre operator liaising with different units in scope to ensure there is a co-ordinated and effective evacuation plan.

Subsections (5) and (6) concern where a person has some form of control of an enhanced duty premises or event, but is not the responsible person. Where that is the case, they must so far as is reasonably practicable co-operate with each other in complying with the relevant legislative requirements. Examples of persons in control but not the responsible person would be a building owner who has leased the premises to a separate operator, or a landowner who has given permission for a qualifying event to take place on their land. The purpose of this requirement is to assist the responsible person in ensuring that appropriate public protection measures are in place under clause 6. In instances where they require relevant permissions or support from other parties who have some control over the premises, there is a duty placed on such parties to co-operate so far as is reasonably practicable.

Subsection (7) specifies that a requirement under this section does not extend to a requirement imposed by a penalty notice. Those responsible may require co-ordination or co-operation from other duty holders in regards to meeting relevant requirements, including compliance and restriction notices, but this does not extend to penalty notices. If there is a dispute in relation to scenarios of co-ordination or co-operation, clause 11 enables interested persons to apply for certain determinations by a tribunal. The tribunal may be asked to determine whether a person is a responsible person, or the extent to which a person who is not a responsible person has control of the premises. In summary, placing a requirement upon relevant responsible persons and duty holders to co-ordinate or co-operate will further drive compliance with the Bill’s requirements and therefore better protect the public.

I turn briefly to clause 9, which requires those responsible for qualifying premises or events to notify the SIA when they become or cease to be responsible for premises or events. Those responsible for premises or an event must notify the SIA of that responsibility upon commencement of the legislation. If a person becomes responsible for premises or an event after the legislation has commenced, they too must notify the SIA of that. The requirements of the clause will assist the SIA in knowing which premises and events within scope of the legislation are actively demonstrating compliance and so identifying those who are not. The time limit within which notifications must be made will be specified by the Secretary of State in regulations. Clause 9 also sets out that the Secretary of State may, via regulations, specify the form and manner in which notifications must be sent and the information that is required to be included in a notification, such as information about the premises or event and contact details for the responsible person.

Clause 10 places a legislative requirement on those responsible for all enhanced duty premises and qualifying events to designate a senior individual where the responsible person is not an individual. Examples of responsible persons that are not individuals are bodies corporate, limited partnerships and unincorporated associations. The individual undertaking the role must be someone who is involved in the management of, or has some form of control within, the organisation—for example, a director or partner, rather than a lower-level employee. That will help ensure that the individual appointed has appropriate influence and seniority to drive forward compliance with the requirements. The senior individual may delegate actions that relate to the relevant legislative requirements to ensure they are complied with. However, they cannot delegate their overall responsibility for ensuring compliance.

Question put and agreed to.

Clause 8 accordingly ordered to stand part of the Bill.

Clauses 9 and 10 ordered to stand part of the Bill.

Ordered, That further consideration be now adjourned. —(Keir Mather.)

The Minister for Security (Dan Jarvis)

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It is a great pleasure to serve under your chairship, Sir Edward. Clause 11 will enable an interested person to apply to the tribunal for an independent determination on matters where disagreements may arise. An “interested person” can mean either the Security Industry Authority or a person who has—or, for an event, will have at some point—control of the premises or event to any extent. Interested parties may apply to the tribunal where there are disagreements or a need for clarity on whether a premises or an event are in scope and in which tier they fall, who is responsible for them, and whether a person is required to co-operate with the person responsible for them. A determination by the tribunal will be legally binding.

Question put and agreed to.

Clause 11 accordingly ordered to stand part of the Bill.

Clause 12

Role of the Security Industry Authority

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

Dan Jarvis

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Clause 12 will allow the SIA to effectively operate as the regulator for the Bill by setting out its responsibilities, powers and role. The primary role of the SIA will be to provide support and guidance. However, it is also important that it has the powers necessary to investigate and monitor compliance, so that the legislation can be enforced effectively. Schedule 3 therefore grants powers to authorised inspectors to investigate whether persons responsible for premises or events are contravening or have contravened requirements of the Bill. The schedule outlines their powers to gather information, the use of warrants, their ability to enter premises without a warrant, and supporting offences.

Under the schedule, inspectors will be able to serve information notices to gather relevant information for inspection purposes. The notice could require a person to provide written detail relating to an investigation or to attend an interview. Inspectors may enter premises without a warrant, subject to certain conditions in paragraph 4. However, schedule 3 also provides for inspectors to apply for warrants to enter premises, with paragraph 6 setting out the powers afforded to inspectors once a warrant is issued. The schedule also creates criminal offences for failing to comply with information notices, obstructing authorised inspectors and impersonating inspectors.

Under clause 12, the SIA must prepare guidance about how it will exercise its functions, which must be submitted to the Secretary of State for approval. Approved guidance must then be published and kept subject to review, and revised accordingly as needed. The SIA must also provide advice about the requirements of the Bill, as well as reviewing the effectiveness of the requirements in reducing the risk of harm and the vulnerability of premises and events in scope.

The clause also requires the SIA to comply with requests from the Secretary of State and provide an annual report, which is to be laid before Parliament. The SIA is the appropriate body to undertake this role, due to its years of experience in increasing security standards and ensuring public protection. I hope that the Committee will support clause 12 and schedule 3.

I turn now to new clause 2, tabled by the shadow Minister, the right Member for Tonbridge. Establishing the SIA as the new regulator for this legislation, which is the first of its kind, will take at least 24 months. That is in line with the timeframes taken to establish new regulatory functions in existing bodies over recent years. I am sure he will agree that it would not be possible or fair to judge a new regulator’s performance before the regime has been established. Once the SIA has taken on its new role, it will take time before there is robust data against which to evaluate its performance.

The legislation already establishes several checks and balances on the performance of the SIA, as is standard with arm’s length bodies. They include the production of an annual report on performance, enabling the Secretary of State to issue directions to the SIA, and ensuring that the Secretary of State has the power to appoint board members and approve statutory guidance for publication.

Further to this, I have confidence that the SIA is the right home for the regulator because it already plays an important role in safeguarding the public through its statutory and non-statutory work. With a wealth of experience in inspecting and enforcing legislation, it better protects the public. With the addition of its new function, the SIA will be able to raise security standards for both people and places.

The Home Office will maintain appropriate levels of oversight and accountability to ensure that the regulator is delivered as intended. Once operational, the Secretary of State will closely monitor the performance of the regulator to ensure that it carries out its functions under the Bill effectively. For the reasons that I have set out, the Government do not support the amendment.

Dan Jarvis

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A successful terrorist attack can have devastating consequences. It is vital to the effective operation of this legislation that the SIA can take action if it believes there is or has been a failure to fulfil the Bill’s requirements. Clauses 13 to 16 will enable it to do so. Clause 13 therefore gives the SIA the ability to issue a compliance notice.

A compliance notice requires the recipient to remedy non-compliance within a certain period and could require specific actions to be taken. For example, a notice could require the recipient to put in place an evacuation procedure within four weeks where no such procedure is already in place.

The SIA must allow a reasonable period for specified steps to be taken, and, before issuing the notice, must give an opportunity for representations to be made. Failure to comply with a compliance notice could lead to the SIA issuing a monetary penalty and, in relation to enhanced duty premises and qualifying events, would be a criminal offence. A person may appeal a compliance notice under clause 16. Due to the risk posed by terrorism, it is important that the SIA has the tools to address non- compliance where guidance and engagement fall short.

Clause 14 provides that the SIA may issue a restriction notice where it believes that appropriate public protection procedures or measures are not in place at an enhanced duty premises or event. The SIA may issue such a notice if it believes that the restrictions specified within it are necessary to protect people from the risk of harm if an attack occurred at or near a premises or event. To reiterate, a restriction notice cannot be issued for standard duty premises. For that reason, it is anticipated that it will be used in exceptional circumstances where immediate action is needed to mitigate the risk.

The notice can require the temporary closure of premises, prohibit an event from taking place, or impose certain restrictions on the premises or event. For example, it could limit the number of people who may attend an event at any one time. The restrictions would apply until appropriate measures are in place, or the notice expires or is withdrawn. A notice cannot last more than six months initially, but is subject to being extended for three months at a time.

I do not wish to pre-empt our debate on later clauses, but it is important to note that the SIA will be able to issue both non-compliance and daily penalties where a restriction notice has not been complied with. Where it is in the public interest, a person may ultimately be prosecuted for breach of a restriction notice, which is an offence under clause 24.

I turn now to clause 15. Once a compliance notice or restriction notice has been issued, it is important that the SIA has the flexibility to vary and withdraw it if needed to reflect positive steps taken by the recipients or to deal with their continuing non-compliance.

The clause also contains several safeguards. First, it specifies that a compliance notice or restriction notice cannot be made more onerous, in order to protect the recipient from changes that are more burdensome. It could therefore be used, for instance, to vary a notice to reduce the requirements in it or to extend the period for complying with it to allow the recipient more time to satisfy it.

The clause also includes the further safeguard that a restriction notice may be varied to extend the period for which it has effect by no more than three months at a time. That must happen before it expires, and only so long as there are reasonable grounds to believe that the reasons for the original notice still apply.

The SIA may also withdraw a compliance or restriction notice where it considers that the notice is no longer required. For example, a restriction notice may not be needed to protect the public from the risk of harm because non-compliance has been rectified or sufficiently reduced. That is what the clause seeks to achieve.

Finally, clause 16 provides a right of appeal against a compliance or restriction notice, or the variation of either notice. An appeal can be brought within 28 days of the notice being given, on the grounds that the decision to give or vary the notice was wholly or partly based on an error of fact, wrong in law, unfair or unreasonable, or for any other reason. Pending the outcome of an appeal, a compliance notice will have no effect unless the tribunal orders otherwise, but given the reasons for issuing a restriction notice, a restriction notice will ordinarily continue to apply.

The clause ensures that enforcement decisions of the SIA are subject to review by an independent judicial body. The tribunal may consider evidence that was not before the SIA at the time of its decision and, where it does not dismiss an appeal, the tribunal will vary or cancel a notice.

Question put and agreed to.

Clause 13 accordingly ordered to stand part of the Bill.

Clauses 14 to 16 ordered to stand part of the Bill.

Clause 17

Penalty notices

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

Dan Jarvis

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This group of clauses sets out the means by which the SIA will be able to issue civil penalties for non-compliance. Although it is intended that the SIA will rely mainly on advice and guidance in the first instance, a credible sanctions regime with suitable monetary penalties is necessary to ensure that the regulator can secure compliance where it identifies serious or persistent non-compliance.

Where a person fails to fulfil a requirement, it is important that the SIA has the ability to issue financial penalties that can reduce the financial benefit of non-compliance. Where a person fails to comply with a compliance notice, restriction notice or information notice, they may be prosecuted for a criminal offence if it is in the public interest. In most cases, however, penalties will likely be the appropriate way of dealing with non-compliance.

Clause 17 enables the SIA to issue a penalty notice if it is satisfied, on the balance of probabilities, that a person is contravening or has contravened a relevant requirement—for example, if the responsible person for an enhanced duty premises has failed to put in place appropriate public protection measures. A penalty notice will always specify a non-compliance penalty to be paid by the recipient.

The maximum amount of a non-compliance penalty to be imposed by way of a penalty notice is set out in clause 18, which sets the penalty amounts at a level to counter financial gain from non-compliance. The maximum penalty is higher for enhanced duty premises and qualifying events because of the potentially more impactful consequences of non-compliance in the event of an attack.

In most cases, it is anticipated that penalty notices will be used in the event of breach of a compliance or restriction notice, but the Bill allows for a penalty notice to be issued regardless of whether a compliance or restriction notice has been issued. That will provide a powerful deterrent to those who would seek to evade the requirements.

Clause 17 also includes particular provision to ensure that penalty notices are issued fairly. A penalty notice cannot be issued more than once for the same contravention, and payment cannot be required less than 28 days from the issue date.

Government amendments 5 to 8 update the clause in respect of the maximum penalty for failing to attend an interview. Paragraph 3(1)(b) of schedule 3 gives the SIA the power to issue notices to require a person to attend an interview. Notices can be issued to a broad range of individuals, including employees, who the SIA considers may hold relevant information.

Dan Jarvis

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As I have already said, the Bill gives the SIA powers to take a range of enforcement action, including issuing monetary penalties, to enable it to deal with non-compliance. Such action is anticipated to be the primary method of enforcement, allowing swifter resolution without resorting to criminalisation. However, where civil enforcement is not enough, the public will expect criminal consequences for cases of non-compliance, such as persistent and egregious failures.

Clause 24 makes it a criminal offence to fail to comply with a compliance or restriction notice that has been given in relation to enhanced duty premises or a qualifying event. It will be a defence for the accused in subsequent criminal proceedings to show that they took all reasonable steps to comply with the relevant compliance or restriction notice. The offences are triable either way and, if convicted on indictment, a person will be liable to a sentence of up to 2 years’ imprisonment and/or a fine.

Turning to clause 25, receipt of accurate information will be vital to the effective functioning of the SIA and to ensure that any public safety risks arising from non-compliance can be addressed. Although we expect information to be provided in good faith in the majority of cases, clause 25 makes it a criminal offence to provide false or misleading information where the person either knows that the information they are providing is false or misleading, or is reckless as to whether it is.

That might happen where the responsible person notifies the SIA that they are responsible for qualifying premises but knowingly misleads the SIA as to whether their premises are in the standard or enhanced tier. A person in receipt of an information notice might also give false information to the SIA in responding to that notice. The offence does not criminalise genuine or honest mistakes, such as where a person provides information that proves to be inaccurate but did so in good faith. The offence is triable either way and, if convicted, a person may be liable to a sentence of imprisonment for no more than 2 years and/or a fine. The offence will provide a deterrent and an appropriate punishment for those who purposely provide false or misleading information to the SIA to avoid complying with the requirements or to evade enforcement action.

Clause 26 provides that a person other than the body may also be liable in some cases for a criminal offence committed by the body. The person must be a relevant person in the body or a person purporting to act in that capacity for the body. A relevant person is involved in the management or control of the entity, such as a company director or partner. That ensures that those involved in senior management can be liable for offences committed by the body. Those offences relate to serious misconduct and persistent, egregious non-compliance by the body.

Specifically, a relevant person may be liable alongside the body for the offences of failing to comply with a compliance, restriction or information notice if the body committed the offence with their consent or connivance or as a result of their neglect. They may also be liable where they have consented to, or connived in, the body committing the offences of providing false or misleading information, obstructing an authorised inspector or pretending to be an inspector. The provision is necessary to deter serious non-compliance by ensuring managerial responsibility within bodies. Members of the Committee will no doubt have seen the importance of similar measures in other legislation.

Dan Jarvis

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Clause 27 will place a duty on the Secretary of State to publish dedicated guidance to assist those in scope of the Bill in understanding how best to fulfil the requirements placed on them. The guidance will be easy to follow, requiring no particular expertise. It will help in determining how many persons may be reasonably expected to be present on the premises, and whether premises or an event are in scope and, if so, in which tier. It will provide guidance around the requirements to be followed, such as what an appropriate evacuation procedure should include or understanding what public protection measures it might be reasonably practicable to have in place at enhanced duty premises.

The published guidance must be laid before Parliament. It must be kept under review and may be revised accordingly. The revised guidance must also be published and laid before Parliament. The guidance may be used by the SIA in providing advice to duty holders and, where the SIA has taken enforcement action, a person will, in proceedings such as an appeal, be able to rely on proof that they have acted in line with the guidance to show that they have not failed to comply with a requirement in the Bill. I should be crystal clear at this point that the Government do not endorse guidance or advice issued by third-party providers. We continue to refer people to the ProtectUK platform and we have factsheets on gov.uk for all guidance and Bill updates.

Clause 27 accordingly ordered to stand part of the Bill.

Clause 28

Disclosure of information

Dan Jarvis

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I beg to move amendment 9, in clause 28, page 20, line 1, at end insert—

“(A1) Any person may disclose information to the Security Industry Authority for the purposes of the exercise by the Security Industry Authority of any of its functions under this Part.

(A2) The Security Industry Authority may disclose information held in connection with the exercise of any of its functions under this Part to—

(a) any person for the purposes of the exercise by the Security Industry Authority of any of its functions under this Part;

(b) any person with functions of a public nature for the purposes of the exercise by that person of any of those functions.”

This amendment makes provision about the disclosure of information to, and by, the Security Industry Authority.

Dan Jarvis

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Clause 28 provides that any necessary disclosure of information under the Bill will not constitute a breach of obligations of confidence owed by the individual or body making the disclosure. At the same time, the Bill ensures that the disclosure of information under the Bill is in accordance with the requirements of the data protection legislation and any relevant prohibitions in the Investigatory Powers Act 2016. The clause provides assurance that disclosures required by the Bill should not contravene data protection and other relevant obligations.

Government amendment 9 ensures that the clause achieves the aims of the Bill. For the SIA to effectively carry out investigation and enforcement, it is vital that it can receive and use relevant information, especially that held by other regulatory and public bodies. Government amendment 9 therefore seeks to ensure that there is a clear and express information-sharing gateway for both the SIA and those who propose to share relevant information with it. The gateway is appropriately limited to either the SIA exchanging information with any person so long as it is for the purposes of the SIA exercising its functions under the Bill, or the SIA sharing information with other public bodies to exercise that body’s existing public functions. In relation to the latter, many of those bodies will derive their relevant functions from statute, but in some limited cases, the public functions will not be statutory, such as for sharing with central Government.

As clause 28 already provides, disclosures required or permitted by the Bill must be in accordance with the data protection legislation and the Investigatory Powers Act 2016. That ensures that there will be compliance with the requirements of the Data Protection Act 2018 and UK GDPR. I hope the Committee will support the amendment.

Dan Jarvis

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I very much thank my hon. Friend for her helpful contribution. I trust that hon. Members agree that these measures should stand part of the Bill.

Amendment 9 agreed to.

Clause 28, as amended, ordered to stand part of the Bill.

Clause 29

Means of giving notices

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

Dan Jarvis

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We have already debated clauses 12 to 14 and clause 17, and the compliance restriction penalty and information notices that the SIA will be able to issue to fulfil its investigative and enforcement functions. Clause 29 sets out the valid methods of service by which the SIA can give these notices and to whom. The methods specified are post, email, delivery by hand and leaving a notice at the person’s proper address. That will ensure that the SIA can reach people effectively.

Clause 29 also provides that notices issued to a body corporate, limited partnership and unincorporated association can be validly served on specified persons within those entities. For example, where the notice is issued to a body corporate, it can be served on an officer or member of that body. Such a person could include, but is not limited to, the designated senior individual under clause 10. Issuing notices to such persons will ensure that they are made aware and will reduce opportunities for avoidance or non-compliance.

Clause 30 allows the Secretary of State to make further provision about notices issued under part 1 of the Bill. That includes, in particular, their form and content, and the variation and withdrawal of notices. The relevant notices are compliance notices, restriction notices, penalty notices and information notices. The main provisions for these notices, which we have debated, set out the information that must be included in a valid notice, and how they may be varied or withdrawn. The power for the Secretary of State to make further provisions under clause 30 is considered necessary for adjustments to be made once the legislation is implemented.

Question put and agreed to.

Clause 29 accordingly ordered to stand part of the Bill.

Clause 30 ordered to stand part of the Bill.

Clause 31

Civil liability

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

Dan Jarvis

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The clause prevents a person from bringing a claim in private law against a person responsible for qualifying premises or events for a breach of statutory duty where they have failed to comply with requirements in the Bill. The Government consider it appropriate that means of redress for non-compliance with the new regime should be limited to enforcement by the SIA.

The SIA will have a range of enforcement actions, which are underpinned by some criminal offences, as has already been debated. It is not considered necessary to allow persons to bring private claims for simple non-compliance, such as seeking compensation for the responsible person failing to put in place public protection procedures. However, the inclusion of the clause does not preclude or otherwise affect any right of action that a person may have independently of the bail.

Clause 31 accordingly ordered to stand part of the Bill.

Clause 32

Powers to amend this Part

Dan Jarvis

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I again thank the right hon. Gentleman for tabling his amendment. He seeks to remove the provision in the clause that would allow the Secretary of State, via regulations, to make standard duty premises be treated as enhanced duty premises. It would have the effect of limiting the Secretary of State to only being able to provide that premises that would ordinarily be in the enhanced tier be treated as if standard duty premises. That is already the case in the Bill for certain premises, such as places of worship.

As I have explained, the nature and level of the threat from terrorism can evolve and change rapidly, with different behaviours, methods and tactics emerging. It is therefore important that the Government can respond quickly to protect the public if it becomes evident that there is a particular threat to certain types of premises and that the public protection measures in the enhanced tier should be in place there to reduce vulnerability and the risk of harm.

I again reassure the right hon. Gentleman and the Committee that regulations to make amendments to schedule 1 under this power would be subject to the affirmative procedure, requiring the express approval of both Houses of Parliament. For those reasons, the Government cannot support the amendment.

Dan Jarvis

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The clause is technical in nature, defining certain terms used throughout the Bill. For example, the clause provides that the meaning of “terrorism” in the Bill is the same as in the Terrorism Act 2000. The clause is necessary to provide the meaning of these terms for the purposes of the Bill.

Clause 33 accordingly ordered to stand part of the Bill.

Clause 34

Licensing: disclosure of plans of premises

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

Dan Jarvis

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Current licensing legislation in England, Wales and Scotland requires that detailed plans for all licensed premises are kept on a register and made available for inspection by the public. These plans include sensitive information, such as CCTV and emergency exit locations, and we know that this information could potentially be utilised for hostile reconnaissance.

To minimise the accessibility of such information to hostile actors, we are amending the Licensing Act 2003, which covers England and Wales, and the Licensing (Scotland) Act 2005 to enable the UK Government to make regulations on the form and content of plans that will be kept on a public licensing register. The regulations will restrict the public disclosure of sensitive information that is likely to be useful to persons committing or preparing acts of terrorism.

Specifically, the regulations will set out that new licence applicants will be required to supply—in addition to the standard detailed plan—a new high-level plan, which will be available for public inspection. This second plan will not include any sensitive information, but will still enable members of the public to see information about licensing applications that might affect them. The standard detailed plan will still be available to licensing authorities and other responsible authorities, including the police and fire authorities, to enable them to make informed licensing decisions.

Schedule 4 provides that plans compliant with clause 34 must accompany premises licence and club premises certificate applications, which will include any variations or amendments. In practice, once the regulations are in effect, this will mean that the two-plan approach will need to be adopted by businesses applying for these licences.

The schedule further sets out that businesses with pre-existing licences may, if they wish to, seek to replace the existing non-compliant plan with a compliant one. The compliant plan would then be placed on the register and thus be available to the public. For the avoidance of doubt, this will not be mandatory for businesses that already have a licence—we are clear that that would not be proportionate. Taken together, these provisions will better protect licensed premises across England, Wales and Scotland.

Question put and agreed to.

Clause 34 accordingly ordered to stand part of the Bill.

Schedule 4 agreed to.

Clause 35

Regulations

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

Dan Jarvis

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Briefly, clauses 35 and 36 are general provisions required for the operation of the Bill. Clause 35 sets out the parliamentary procedure accompanying the regulations. Clause 36 details the territorial extent of the Bill: parts 1 and 3 of the Bill extend to England, Wales, Scotland and Northern Ireland; part 2 of the Bill does not extend to Northern Ireland, with part 1 of schedule 4 extending to England and Wales and part 2 of schedule 4 extending to Scotland.

Question put and agreed to.

Clause 35 accordingly ordered to stand part of the Bill.

Clause 36 ordered to stand part of the Bill.

Clause 37

Commencement

Dan Jarvis

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Again, I thank the right hon. Gentleman for these amendments. While I completely understand the sentiment underpinning them, the Government do not support them. I would, however, like to assure the Committee that the Government are committed to learning the lessons from implementation, which is why a robust monitoring and evaluation plan to monitor the Bill’s effectiveness is in place. What is more, the Government have already committed to undertaking a thorough post-implementation review, which will assess whether the legislation is meeting its policy objectives, including analysing the costs and impacts on businesses and other premises in scope.

The Government have been clear that, following Royal Assent, we expect there to be an implementation period of at least 24 months, which will allow for the set-up of the regulator, while ensuring sufficient time for those responsible for premises and events in scope to understand their new obligations and to plan and prepare. Detailed guidance will be provided to assist those in scope to prepare for the requirements, as well as extensive communications and engagement with business and organisations.

Furthermore, as I have already set out, the Bill’s requirements in the standard tier are focused on straightforward procedures designed to increase preparedness and reduce the physical risk to the public from acts of terrorism. The procedures are intended to be simple and have no cost, other than staff time, to develop and implement, with no requirement to purchase or install any additional equipment beyond what they already have in place.

Dan Jarvis

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I turn finally to clauses 37 and 38, which are further general provisions. Clause 37 provides that the Bill’s provisions will be commenced via regulations made by the Secretary of State, save for the provisions contained within part 3 and the regulation-making powers in parts 1 and 2 of the Bill, which come into force on the day that the Bill is passed. Clause 38 details how the Bill should be referred to once it has become an Act.

Clause 37 accordingly ordered to stand part of the Bill.

Clause 38 ordered to stand part of the Bill.

Dan Jarvis

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With your leave, Sir Edward, I will take this opportunity to thank you for chairing this Committee and to thank all Members on both sides of the House for their contributions, not just today but in proceedings on Tuesday. I will also take the opportunity to say a particular thank you to all those members of my Department who have worked incredibly hard to draw this legislation together, in conjunction with the staff of this House. Their efforts have been very much appreciated. I am grateful for the cross-party nature of what we have achieved as we have progressed the Bill through the House.

The Minister for Security (Dan Jarvis)

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I pay tribute to Figen Murray and her campaign team. That she has somehow been able to channel personal grief into a fierce determination to change the law is beyond inspiring. We should be clear that we would not be here tonight without her campaigning efforts. The whole House owes her a debt of gratitude.

I thank all right hon. and hon. Members who have spoken today. As ever, I will endeavour to respond to the points that have been raised. I am particularly grateful for the constructive approach that has been taken to considering the Bill, today and at previous stages. I place on the record my thanks to the Opposition for the constructive way in which they have approached the Bill throughout its passage. It is time that this cross-party commitment to improving the safety and security of venues is delivered without further delay, and I am proud that we are moving one step closer tonight.

As hon. Members have heard during the passage of the Bill, the threat picture is complex, evolving and enduring. Since 2017, agencies and law enforcement have disrupted 43 late-stage plots, and there have been 15 domestic terror attacks. In October, we heard from the director general of MI5 that the country is subject to the most interconnected threat environment that we have ever seen. Sadly, terrorists can seek to target a variety of locations. The examples of terrorist attacks that have been raised during the passage of the Bill are a sombre reminder of that. I pay tribute again to all victims and survivors of past attacks, as well as their loved ones, and all those affected. I reiterate the Government’s commitment to supporting anyone affected by a terrorist attack.

Dan Jarvis

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My hon. Friend raises an important point. One of the most humbling parts of this job is meeting those who have been the victims of terrorism and their families. I think of people like Figen Murray, Brendan Cox, Travis Frain, Dr Cath Hill—all people I have spoken to recently. We are working across Government to progress this important work, and I intend to meet victims and survivors in the new year to hear more about their experiences and say more about what we will do as a Government to support them.

The Bill will improve protective security and organisational preparedness across the UK, making us safer. We heard about the excellent work that many businesses and organisations already do to improve their security and preparedness. However, without a legislative requirement, there is no consistency. The Bill seeks to address that gap and complement the outstanding work that the police, the security services and other partners continue to do to combat the terror threat. As a result, qualifying premises and events should be better prepared to respond and to reduce harm in the event of a terrorist attack. Additionally, certain larger premises and events will have to take steps to reduce their vulnerability to terrorist attacks.

The public have a right to feel safe, and that is what this legislation seeks to deliver. I am grateful for the considered way in which the hon. Member for Stockton West (Matt Vickers) approached the debate. It is clear that the focus of the Opposition’s amendments and concerns is on, among other things, the impact on business and smaller organisations. I assure him that that has been a central consideration for the Government, informed by extensive engagement, as well as pre-legislative scrutiny by the Home Affairs Committee and two public consultations under the previous Government. As a result, the version of the Bill that this Government have brought forward includes important changes to ensure that we can achieve public protection outcomes and that there are no undue burdens on businesses and other organisations.

The Government have, of course, raised the standard tier threshold from 100 to 200, which creates a more appropriate scope. We have also added a reasonably practicable standard of requirements for the procedures required under both tiers. That concept is in line with other regulatory regimes, such as health and safety, and is designed to allow procedures and measures to be tailored to the specific circumstances of a premises or event.

Dan Jarvis

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If the right hon. Gentleman bears with me for a moment, I intend to say more on the matter, but I assure him that if he is not satisfied, I will give way to him again.

We have introduced a fairer basis for calculating whether a premises or event is in scope. Replacing capacity with the “reasonable expectation” of the number of people who may be present will reflect the actual usage of premises or attendance at events. I am confident that this version of the Bill strikes precisely the right balance.

I turn to amendments 25 and 26 tabled by the hon. Member for Stockton West for the Opposition. Clause 32 will allow the Secretary of State to increase or decrease the qualifying threshold for either tier. We anticipate that the thresholds would be reduced to either floor only in very limited circumstances, such as if the nature of the threat from terrorism were to change significantly. That will enable the regime to maintain an appropriate balance between being able to protect the public and managing the burden on those responsible for premises and events. The amendments proposed would remove that ability.

Furthermore, the power is narrowly drafted, and regulations made under it will be subject to the affirmative procedure. In requiring the approval of both Houses before they are made, parliamentarians will be able to scrutinise any proposed changes. The Government therefore do not support the amendments.

I thank the hon. Member for amendment 27. I thought he made his points in a reasonable way, as he often does. While I understand the sentiment, the Government do not support the amendment, but let me explain why. It is intended that the Security Industry Authority will rely on advice and guidance in the first instance. However, a credible enforcement regime with suitable monetary penalties is necessary to ensure that the regulator can secure compliance, particularly where the regulator identifies serious or persistent non-compliance.

The maximum daily penalty amounts are set at a level to counter financial gain from non-compliance, recognising the breadth of organisations in scope as well as the potentially more serious consequences at larger venues. It is important that the Secretary of State has the power, by regulation, to change those maximum amounts, including to increase them if necessary—for example, if the amounts were to prove ineffective in ensuring compliance, or the figures needed updating to reflect changes in economic circumstances in the longer term.

Critically, when determining penalty amounts, the Bill requires the SIA to take into account a range of factors, including the seriousness of the contravention, any action taken to remedy or mitigate its effects, and an organisation’s ability to pay. That will ensure the penalties are effective but proportionate. I reassure Members that changes will be subject to the affirmative procedure, unless they are simply to reflect inflation.

The hon. Member raised concerns over the role of the SIA as the regulator, which I believe is the motivation for tabling new clause 1. There are several reasons why the Government do not support the new clause. The Government are confident that the SIA is the right delivery option for the Martyn’s law regulator, owing to its years of experience in increasing security standards and ensuring public protection. It already plays an important role in safeguarding the public through its work regulating the private security industry. The SIA has long-established inspection and enforcement functions that ensure compliance with its licensing regime, and it already works with security partners to promote best practice around counter-terrorism protective security.

Dan Jarvis

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If the hon. Member will bear with me, I am going to address some of the points he raised.

Furthermore, it will take at least 24 months following Royal Assent for the SIA to begin undertaking its enforcement duties. It would not be fair of us, nor indeed possible, to judge its performance before it has begun carrying out its new functions, which seems to be the effect of the new clause.

Dan Jarvis

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I will make a bit of progress.

I can also assure the House that the Bill already contains provisions to ensure the appropriate oversight of the SIA. Ultimately, the Bill gives the SIA the tools that it will need to deliver its new enforcement functions successfully. We are committed to exploring wider opportunities to strengthen the SIA so that it can carry out its public protection role and deliver the Government’s ambitious agenda.

I turn to the amendments on training provision tabled by the hon. Member for North Cornwall (Ben Maguire). I thank him again for his interest in that important issue. As he knows, the Bill has been developed to ensure that those working at premises and events are better prepared to respond quickly to evolving situations in the event of a terrorist attack occurring or being suspected. Those workers make rapid decisions and take actions that could save lives. There is no specific training requirement in the Bill, but it is essential that workers with responsibility for carrying out public protection procedures are adequately instructed—and, where appropriate, trained—to do so. Training and instruction will be tailored to the premises and events in question, and to the procedures that they have developed, rather than our using a one-size-fits-all approach.

Dan Jarvis

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I will make a bit more progress.

The Government think that the focus of premises and events should be on how to ensure that their people can effectively carry out their roles, rather than requiring the completion of generic modules or courses. We understand the importance of training, and so have committed to publishing free dedicated guidance and support. That guidance will ensure that those responsible for qualifying premises and events have the information required to understand and identify training needs. The Government also intend to signpost a range of training offers, including the significant support that we offer in the shape of access to expert advice and training on ProtectUK, which already includes free access to the “Action Counters Terrorism” and “See, Check and Notify” training packages. Furthermore, following Royal Assent, the Government intend for there to be an implementation period of at least 24 months before the legislation’s commencement. We are confident that that will allow sufficient time to understand the new obligations and to plan and prepare accordingly, including by training staff where necessary.

I am conscious of time, Madam Deputy Speaker, but I want to respond to points made by a number of hon. Members. My hon. Friend the Member for Macclesfield (Tim Roca) made important points about the threat of terrorism. He also rightly paid tribute to Manchester city council for its work with local businesses. What he said about proportionality should reassure any businesses that might have concerns.

As a former police officer, my hon. Friend the Member for Forest of Dean (Matt Bishop) speaks with great authority on these matters, and I pay tribute to him for his service. He rightly made the point that the Bill is not just about securing physical premises but has a wider value, and that protecting the public is not just a matter for Government; others also have an important responsibility in that area.

Let me turn to the hon. Member for Hamble Valley (Paul Holmes), who has been very patient. I have to say, I am a little mystified that he is not on the Opposition Front Bench. He seems an effective performer and responded well on Second Reading. [Interruption.] I am not sure that I am helping him, but I thought he made a strong contribution again tonight, and I found his words about Martyn’s legacy particularly moving. I am grateful for his constructive approach this evening and previously. He helpfully highlighted concerns about smaller venues, particularly small theatres. I assure him that there has been extensive consultation with smaller venues, although I am sorry that it did not include the constituency venue that he mentioned.

All hon. Members have village halls, churches and community halls in our constituencies, and we all recognise the hugely important role that volunteers play. The Government raised the standard tier threshold from 100 to 200 people specifically in response to the feedback, including from those operating smaller venues similar to ones that the hon. Member for Hamble Valley mentioned. We assess that that has resulted in a reduction in the proportion of village halls in scope of the Bill’s requirements from 56% under the original proposals to 13% now. I assure him that we will continue to work closely with smaller venues to ensure the easiest transition to the new arrangements.

My hon. Friend the Member for Edinburgh East and Musselburgh (Chris Murray) said that the nature of terrorism is constantly evolving, and that we need to plan to protect against it. He pointed out that the Bill contains straightforward measures—prompts, essentially—that are light touch and proportionate. He also very helpfully referenced the Edinburgh example. I hope that that provides positive evidence of the potential benefits to businesses of the measures.

The hon. Member for Strangford (Jim Shannon) was constructive, as he always is. He speaks with great experience and authority on matters relating to terrorism, so I always listen carefully to what he has to say, and often find it profoundly moving, as I have again tonight. He mentioned churches, which he has raised with me before. The Government acknowledge that places of worship have a unique and important role in communities right across the country, and have considered them very carefully in the context of this legislation. We have consulted extensively with churches and with places of worship more generally, and I can assure the hon. Gentleman that we will continue to work closely with them to ensure that they have the support and guidance they need. That is a commitment that I make to him.

Dan Jarvis

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I am conscious of time, so I will keep going, not least because I want to briefly reflect on the contribution of my hon. Friend the Member for Dover and Deal (Mike Tapp). He spoke with personal conviction and experience, and I know that he understands the importance of preparation and planning—I will not say the second bit of that phrase. He also rightly paid tribute to our intelligence services, and I echo that tribute.

The hon. Member for Broadland and Fakenham (Jerome Mayhew) spoke with authority, not just as a Member of this House but as a church warden, and made a really interesting point about critical challenge. I hope he will appreciate this point: the Bill is the result of two very extensive public consultations and pre-legislative scrutiny. It is forged from all that work. That is why I am confident that the measures in the Bill are proportionate and reasonable. However, I was grateful for the constructive challenge he offered.

The hon. Member for Kingswinford and South Staffordshire (Mike Wood) made a number of constructive points about thresholds. I hope the responses I have already given have provided him and the venue in his constituency with the reassurance they want. Finally, the right hon. Member for East Antrim (Sammy Wilson) spoke with passion, as he always does, and raised a number of entirely reasonable concerns. I am afraid that we will not agree on every aspect of them this evening, but I hope that he will at least acknowledge that the Government have worked incredibly hard to ensure that the Bill is proportionate and not unreasonable, given the nature of the threat we face.

I will touch briefly on the Government amendments, which make only very minor and technical changes to the Bill to ensure that its purpose and intent is clear. They include small drafting changes for consistency, to remove unnecessary text, and to clarify technical detail.

In closing, I again pay tribute to Figen Murray and her campaign team, and thank them. Their campaigning for this legislation has been an inspiration to us all. Figen’s son Martyn lost his life in the Manchester bombing. As the Home Secretary said on Second Reading,

“To suffer such a horrendous loss and somehow find the strength to fight for changes…is heroic.”—[Official Report, 14 October 2024; Vol. 754, c. 624.]

This is a vitally important Bill. The public deserve to feel safe when visiting public premises and attending events. It is therefore right that appropriate and reasonably practical steps be taken to protect staff and the public from the impact of terrorism. That is what the Bill seeks to achieve. Security will always be the foundation on which everything else is built, and for this Government, nothing will matter more. With that, I commend the Bill to the House.

Dan Jarvis

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I beg to move, That the Bill be now read the Third time.

I start by thanking everyone across the House who has contributed to the debates on the Bill for their incisive and necessary contributions and their considered scrutiny. I thank in particular my hon. Friend the Member for Selby (Keir Mather) who has done such an excellent job in whipping the Bill through. I also thank the right hon. Member for Tonbridge (Tom Tugendhat) and the hon. Member for Hamble Valley (Paul Holmes) for their work on the Opposition Front Bench during the earlier stages of the Bill and the hon. Member for Stockton West (Matt Vickers) for taking over so ably on Report. I look forward to continuing to work with him in his new role.

Hon. Members will be aware of the Bill’s history, coming as it does out of the tragic events of the Manchester Arena attack in May 2017. I take this opportunity once more to pay tribute to the 22 victims of the horrific Manchester Arena attack, and to Figen Murray, mother of one of the victims, Martyn Hett. Her campaigning has been crucial in driving the Bill forward. We would simply not be here debating this legislation without her.

During these debates, I have been particularly moved by the contributions of hon. Members who have spoken on behalf of constituents who have been affected by the attacks in Manchester, Borough Market and elsewhere, and the important reflections and lessons we can learn from recent history in Northern Ireland. The Bill is one part of our already extensive efforts across Government, including those of the police and security services, to combat the threat of terrorism. I take the opportunity to thank them for their vital work in keeping our country safe; we owe them a debt of gratitude.

As hon. Members have heard me say more than once in this place, the first responsibility of any Government is to keep the public safe. This cross-party commitment to improve the safety and security of venues in the wake of the Manchester Arena attack must be delivered without further delay. The Bill was a manifesto commitment, and I am proud that we have been able to introduce it so early in the Session. I thank colleagues from across the House for their support for the Bill, which has enabled it to progress through its stages in this place so smoothly. I am also grateful to the previous members of the Home Affairs Committee for their report; its recommendations have been crucial in shaping the Bill.

I also take the opportunity to say an enormous thank you to the following people: Ella Terry in my private office; the Bill team of Tom Ball, Chloe White, James Fair and Izzy Hancock; Michelle Chapman and the policy team; Kris Lee and his legal team; Joel Wolchover and Tim McAtackney at the Office of the Parliamentary Counsel; and Debbie Bartlett and Shaun Hipgrave, whose leadership over several years has been exemplary. I also thank all the many civil servants, including those in the Home Office analysis and insight and comms teams, who have worked on the Bill with great diligence and professionalism. Many of them have done so for several years. Finally, I thank the fantastic staff of this place for their work in supporting the Bill’s logistics, in particular the Doorkeepers and the parliamentary Clerks’ team.

I finish with a gentle word of encouragement to colleagues in the other place. It has been wonderful to have seen consensus on the Bill in this place. I hope that they will agree with us on the importance of the Bill and that this manifesto commitment can proceed as smoothly through the other place as it has done here. After several years, and as Figen has said, it is time to get this done.