Unauthorised Entry to Football Matches Bill
(Limited Text - Ministerial Extracts only)
Read Full debateWednesday 25th June 2025
(4 months, 3 weeks ago)
Public Bill CommitteesUnauthorised Entry to Football Matches Bill 2024-26 Read Hansard Text
This text is a record of ministerial contributions to a debate held as part of the Unauthorised Entry to Football Matches Bill 2024-26 passage through Parliament.
In 1993, the House of Lords Pepper vs. Hart decision provided that statements made by Government Ministers may be taken as illustrative of legislative intent as to the interpretation of law.
This extract highlights statements made by Government Ministers along with contextual remarks by other members. The full debate can be read here
This information is provided by Parallel Parliament and does not comprise part of the offical record
The Chair
Just before I call the Minister, I want to let Members know that the correct version of the Bill is available online, if anybody wants to double-check it.
The Minister for Policing and Crime Prevention (Dame Diana Johnson)
It is a pleasure to serve under your chairmanship this morning, Mr Vickers, on this lovely June day. I start by congratulating my hon. Friend the Member for Amber Valley for bringing forward this Bill. I was also interested to note the involvement of Lord Brennan; in the previous Parliament, he nearly got such a Bill on to the statue book, and I hope he will play a part in the other place, if the Bill concludes its passage through the Commons today.
I am very grateful to the other Members who have participated in this discussion, many of whom declared their allegiance to various football clubs, some more dubious than others. Clearly, a wide range of clubs is represented and supported here today, and Members are very clear that this is an important issue that needs to be addressed. There has been a high degree of consensus, and I am very pleased to say, right at the outset, that the Government support the Bill.
As my hon. Friend the Member for Amber Valley has set out, the Bill would create a new offence of unauthorised entry or attempted unauthorised entry to elite football matches that are covered by existing football-specific public order legislation in England and Wales. I want to reflect on the fact that we are very lucky to be in the capable hands of a former Crown prosecutor in navigating this new offence through Parliament.
I also heard questions from Members about whether the Bill should have a wider application, and I will of course reflect on the comments that have been made. On the issue of the dispersal of large crowds gathering outside football matches, that is obviously an operational matter for the place and I have seen at first hand the planning that goes into dealing with those kinds of issues, but I will certainly raise the concerns of the hon. Member for Harrow East with the police when I next speak to them, particularly the Metropolitan Police.
Amanda Martin
The hon. Member for Harrow East made a really good point; there have been some developments on that issue through things such as fan zones. Fans can buy a ticket for such a zone, which is an area outside the stadium, and that allows for dispersal. It also allows fans to watch the game, particularly if they are going to Wembley. Portsmouth went a number of times and could not have all the ticket allocation, so fans could instead buy a ticket for a fan zone outside. The hon. Member is right that it is down to both club logistics and the police, but there are really good ways of letting people who do not have a ticket come and watch the game, such as in an area slightly outside the stadium.
Dame Diana Johnson
There is obviously a great deal of knowledge on this Committee about how these things operate. As someone who is not necessarily a huge football fan, I am certainly learning a lot today about some of the measures that are being put in place to help fans enjoy the event in a safe way.
Bob Blackman
I thank the Minister for that reply to my point. The Bill quite rightly seeks to penalise those who try to gain admission to football grounds without tickets. However, it is silent on anyone who facilitates that entry, such as an individual who works for a club or stadium, or who is somehow in charge of a gate. I do not think it is reasonable for a private Member’s Bill to look at that issue, but could the Minister consider what else the Government need to do to ensure that those people are also penalised?
The Chair
Order. Just before the Minister comes back in, I want to advise Members that the new, amended copy of the Bill is now available, if anybody wants to have a closer look.
Dame Diana Johnson
Before I deal with that point, I have some information that might help the Committee. The police have dispersal powers under section 34 of the Anti-social Behaviour, Crime and Policing Act 2014, which can be used as appropriate. That is the operational side that I was referring to. The Bill, when enacted, would stop ticketless fans from testing the stadium security, and the police have powers and public order offences that can be used if there are threatening and abusive words or disorderly behaviour. In other words, there are powers already available to the police to deal with the dispersal of fans if there is a large group. The hon. Member for Harrow East mentioned those who may be employed by the stadium who facilitate and allow such behaviour. I will reflect on that important point. There are probably offences being committed there, which I may return to in a moment.
Unauthorised Entry to Football Matches Bill
(Limited Text - Ministerial Extracts only)
Read Full debateFriday 11th July 2025
(4 months ago)
Commons ChamberUnauthorised Entry to Football Matches Bill 2024-26 Read Hansard Text Watch Debate Amendment Paper: Consideration of Bill Amendments as at 11 July 2025 - (11 Jul 2025)
10:22 - The House divided: - Ayes: 0 / Noes: 47 - Question accordingly negatived.
This text is a record of ministerial contributions to a debate held as part of the Unauthorised Entry to Football Matches Bill 2024-26 passage through Parliament.
In 1993, the House of Lords Pepper vs. Hart decision provided that statements made by Government Ministers may be taken as illustrative of legislative intent as to the interpretation of law.
This extract highlights statements made by Government Ministers along with contextual remarks by other members. The full debate can be read here
This information is provided by Parallel Parliament and does not comprise part of the offical record
The Minister for Security (Dan Jarvis)
I thank the hon. Member for Christchurch (Sir Christopher Chope) for tabling these amendments, which propose two changes. First, amendments 1 to 5 would remove attempted unauthorised entry from the scope of the offence. Secondly, amendment 6 would bring the Act into force two months after it receives Royal Assent, rather than by commencement regulations made by statutory instrument.
It is absolutely essential that the Bill explicitly covers both attempted and successful unauthorised entry. We have seen widespread issues involving ticketless fans at football matches attempting to force entry and tailgate at high-profile matches, including the 2024 champions league final, premier league fixtures and at the Euro 2020 tournament. These forms of attempted entry place significant demands on stadium safety and security personnel and, at times, require police intervention. Maintaining provisions for attempted unauthorised entry ensures that law enforcement can act before a breach occurs and thus maintain safety and security at football matches across the country. It also enables the imposition of preventive football banning orders against persons involved in attempted entry. Banning orders are an effective deterrent against those who may seek to compromise public safety.
I turn to amendment 6. The Bill is designed to allow the measures to come into force by regulation on a date shortly before the start of the domestic football season. This approach will ensure that all organisations involved in safety and security operations are prepared to implement the new offence. A fixed date two months after Royal Assent may not coincide with the football calendar or allow sufficient time for training, communication and co-ordination. I therefore respectfully ask the hon. Member for Christchurch to withdraw his amendments.
Sir Christopher Chope
The Minister says that the Bill will come into force before the start of the football season. We heard from the hon. Member for Amber Valley (Linsey Farnsworth) that the season will start pretty soon, within four or five weeks. I assume that means the Bill will not be implemented until summer 2026—that is the clear implication of what the Minister said. If I am wrong in that interpretation, I hope he will intervene, because it is important to get it on the record that the Bill will not be in force until a year’s time.
On the issue of attempts, listening to my right hon. Friend the Member for Gainsborough (Sir Edward Leigh), I thought that I had under-egged the pudding a bit, because he adduced a whole lot of extra arguments that reinforce the case for removing attempts from the Bill. Apart from anything else, I fear that if we allow attempts to remain in the Bill, the people who are still outside the stadium and never got in will be the easy pickings—they will be the ones who get arrested and penalised, while the mass of offenders who got in without authority will get away with it—because in order for any of this to work, there has to be an arrest and a subsequent prosecution. I wish to test the will of the House in relation to amendment 1.
Question put, That the amendment be made.
Dan Jarvis
I warmly commend my hon. Friend the Member for Amber Valley (Linsey Farnsworth) for bringing forward this private Member’s Bill. As a lifelong football supporter, she has made a powerful case for her Bill, and I congratulate her on securing support for it from across the House.
I thank all hon. Members who have contributed today, in particular my hon. Friend the Member for Cumbernauld and Kirkintilloch (Katrina Murray), who spoke movingly about her experience of these matters. My hon. Friend the Member for Amber Valley spoke about the rich history of football.
The Bill addresses a clear and pressing issue: the growing problem of unauthorised access to football matches, particularly at high-profile fixtures. It does so by creating a new football-specific offence of unauthorised entry to designated matches. It captures a wide range of behaviours, from tailgating and forced entry to the use of forged documents or the impersonation of match-day staff. Crucially, it will also enable courts to impose football banning orders on conviction, providing a strong deterrent and a vital tool to prevent repeat offending and protect public safety. The Bill responds directly to the recommendations of Baroness Casey’s independent review into the serious disorder at the Euro 2020 final, where thousands of ticketless individuals gained access to Wembley stadium, many through mass forced entry or tailgating.
Let me be clear: this is a recurring problem. We saw further evidence of it at the 2024 UEFA champions league final, which was again at Wembley, where groups of ticketless fans made repeated attempts to breach security. Similar behaviour is seen at premier league matches, particularly if away allocations are limited. It is a wider pattern of behaviour that needs to be addressed. Such behaviour is not only selfish and dishonest, but fundamentally dangerous. It places enormous strain on stadium security, creates serious risks to public safety and undermines the experience of law-abiding fans. The Government are clear that it cannot and will not be allowed to continue. That is why we support the Bill.
Forced entry, tailgating and so-called jibbing are not victimless acts. Those involved are often aggressive, violent or threatening, and their actions can lead to overcrowding, blocked emergency exits and frightening conditions for innocent fans. In some cases, individuals have even attempted to bribe stewards or turnstile operators to gain access. That will be captured by the new offence. The offence will also apply to those who knowingly attempt to use a ticket, whether physical or digital, that has already been used.
Let me be clear: this is not about criminalising honest mistakes or punishing fans who have been misled. The Bill includes important safeguards to ensure that individuals with lawful authority, such as emergency workers or stadium staff, are not caught by the offence, and it will not apply to those who unwittingly purchase counterfeit tickets in good faith or breach the terms and conditions of a legitimate ticket. That was a point referred to by the Father of the House, the right hon. Member for Gainsborough (Sir Edward Leigh), and by the shadow Minister, the hon. Member for Weald of Kent (Katie Lam)—I agree with the points she made about enforcement.
This is a proportionate, targeted and necessary measure. It reflects the unique public order challenges associated with football, which are not seen to the same extent in other sports or events. It is also consistent with the broader framework of the Football (Offences) Act 1991 and the Football Spectators Act 1989. The Bill has enjoyed cross-party support throughout its passage, and rightly so. It is a fan-friendly measure that protects the vast majority of decent supporters from the actions of a disruptive minority, and it will help to ensure that football remains a safe and welcoming environment for all. I once again thank my hon. Friend the Member for Amber Valley for her excellent work on this Bill, and I commend it to the House.
Unauthorised Entry to Football Matches Bill
(Limited Text - Ministerial Extracts only)
Read Full debateFriday 24th October 2025
(3 weeks, 2 days ago)
Lords ChamberUnauthorised Entry to Football Matches Bill 2024-26 Read Hansard Text Amendment Paper: Consideration of Bill Amendments as at 11 July 2025 - (11 Jul 2025)
This text is a record of ministerial contributions to a debate held as part of the Unauthorised Entry to Football Matches Bill 2024-26 passage through Parliament.
In 1993, the House of Lords Pepper vs. Hart decision provided that statements made by Government Ministers may be taken as illustrative of legislative intent as to the interpretation of law.
This extract highlights statements made by Government Ministers along with contextual remarks by other members. The full debate can be read here
This information is provided by Parallel Parliament and does not comprise part of the offical record
Lord Mann (Lab)
My Lords, that shows the ingenuity that doubtless may have been attempted. I am considering when that could be used, before the Bill becomes law, to assist the noble Lord in accessing a certain match that he is keen to watch.
There are other points that need considering by the noble Lord, Lord Brennan, and the Committee. First, facial recognition is coming in. Serie A already has facial recognition; it is not in widespread use, but the technology is required in Italy. There are certainly two Premier League clubs that are bringing in facial recognition for part of their stadium at the moment. I do not say that the interesting question of facial recognition “coincides”, but it sits alongside this.
Secondly, there is the issue of political agitators, whose aim is to get on the pitch—they have attempted to do so—and the question of players’ safety in relation to that is a factor. I think the last recorded case was an environmental protester of some kind getting on a pitch, but that is a serious issue in relation to player safety, which has rightly been taken as more important in recent times. That would actually back up the crusade of the noble Lord, Lord Brennan, to have this legislation come into place.
Thirdly, on policing issues, the last time this was a major problem in English football was not the Euro final. It was on 30 November 2023 at Villa Park, the home of Aston Villa. In a UEFA fixture, a club called Legia Warsaw from Poland were playing. The police and the safety advisory group of Birmingham City Council had not banned Legia Warsaw fans; in fact, 1,002 tickets had been sold to them, and they came to the fixture. Their numbers had been restricted, but another 1,000 came and attempted to force entry into the stadium, causing huge safety issues and immediate action by the matchday commander from the police and Aston Villa Football Club, who then closed the turnstiles and created other disorder outside as fans, both with and without tickets, could not get entry. That issue was identifiable; Legia Warsaw has had 35 fines from UEFA for fan behaviour.
For anyone who wants to know about hooliganism in football, hooligans put their stuff online. There are now websites and social media that are openly available for everyone to see. If anyone wants to know who causes the most problems, who are the worst, the nature of those problems and when they are most likely to occur, there is publicly available information. Legia Warsaw is known for being in the highest category of ultra-fans, given the problems they cause. They are a significant group of hooligans, as that term is used. This Bill will complement that. There was no collusion with staff there. It was an attempt at a forced break-in at a stadium.
I note that there is inaccurate discussion in the media at the moment of that incident and about policing. I have a report in front of me, an official police report, which I would like to quote from a little, because it is about another set of football supporters who are characterised in it as fanatical. The report says:
“This is expressed, among other things, in the lighting of flares”,
but,
“according to UEFA … and our police, there is no animosity between”
them and the supporters of the team they were playing, and this was not a high-risk match. This was Maccabi Tel Aviv playing Ajax in Amsterdam in November last year.
The report goes on to say that there was
“a special context, because of the war in the Middle East”.
The fixture also coincided with the national Kristallnacht commemoration in Amsterdam. There was “a daily pro-Palestine demonstration” at the railway station. This is from the official report, and there were supporters from a third club present in the city at the time: Fenerbahçe supporters, from Alkmaar in the Netherlands.
I want to quote regarding a couple of incidents, because this has been put in the media wrongly, not factually. This is the official statement of facts—the feitenrelaas—from the Dutch chief crown prosecutor, or whatever the equivalent title is, and the chief of police for Amsterdam. It is something that could be considered in this Bill. Should there be a statement of facts every time there is an incident? It is a requirement in the Netherlands to have a statement of facts. The night before the fixture, on a street called the Rokin, the report says that
“Around midnight … 50 Maccabi supporters pull on a Palestine flag hanging on a facade”.
That flag was removed and the video footage of it is on hooligan websites. It was put on by a Maccabi ultra-fan, one of those 50. A taxi was attacked at the same time on the same street, and other taxis were damaged. The hooliganism then was an issue and a problem.
The following day, the football match took place. During the day—the match was on an evening—there was one arrest by the police for a disturbance of the public order. There were no clashes between the fans or with local people. The football match took place, though there had been a problem because pro-Palestine demonstrators had attempted to go to a square in Amsterdam called Anton de Komplein. The report says:
“Upon arrival, this group splits up into small groups in search of the confrontation at the Arena”.
That is the Amsterdam arena: the football stadium of Ajax. Those are the specifics and the police deployment was there.
Additionally, it says in the next paragraph that there were
“social media messages confirming that there are groups … looking for a confrontation with Maccabi supporters”.
The police handled that throughout the day without such confrontations. However, the report goes on:
“After midnight, the problems arise due to small groups of rioters spread through the city centre and adjacent neighbourhoods. These groups commit violent hit and run actions, targeting Israeli supporters and people going out. These incidents take place in various places in the city centre”,
and it lists the 14 streets where that happened. It says:
“The police follow up on all reports”,
and the police patrol intervenes,
“where threats are visible and manage to keep rioters at a distance from Israelis. The police can prevent many incidents in this way. Nevertheless, rioters manage to commit serious assaults, resulting in injuries among Maccabi supporters. It appears to be particularly difficult for the police to take action against such flashpoints. Rioters move in small groups, on foot, by scooter or car, briefly attack Maccabi supporters and then disappear again … Loose groups of Maccabi supporters are gathered”,
and the police basically say that this quickly dissipates over time as the number of rioters disappears.
Baroness in Waiting/Government Whip (Baroness Taylor of Stevenage) (Lab)
May I remind the noble Lord of the advisory speaking time in this debate, please?
Lord Mann (Lab)
I shall be brief, because this is the last point I want to make from the report. It says:
“Several people were injured, five of whom were treated in hospital”.
Those five, I can confirm, were Israelis. It continues:
“Twenty to thirty Israeli supporters with minor injuries were taken in by the Jewish community”.
Now that is from the report of the chief of police. It goes on to detail the people who were arrested and where they were from. There were 49 Dutch arrested and 10 Israelis during that period. There were more Dutch arrested in the consequential days. That is a statement of fact from René de Beukelaer, the chief prosecutor, and the police chief, Peter Holla.
Baroness Taylor of Stevenage (Lab)
I remind the noble Lord that he is now well over his time. Can he please bring his remarks to a close?
Lord Mann (Lab)
The relevance of this is that the purpose of the Bill is to ensure safety at football matches. The interaction between the Bill and the need for guidance and guidelines, including for the police, on how it would be best used is fundamental to its success. Otherwise, what happens is that people will put things on social media suggesting that they are the facts of what happened, but those facts are fundamentally inaccurate. Having the Dutch system of a statement of facts as a potential amendment to this Bill would make a big difference.