Police Reform and Social Responsibility Bill
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The Minister of State, Home Office (Baroness Neville-Jones)
My Lords, at its heart, the Police Reform and Social Responsibility Bill reflects the coalition's determination to transfer power away from Whitehall and return it to communities and professionals. Both parties of this coalition Government support the democratic reform of police authorities. Our chosen model of reform—to make the police more accountable through oversight by a directly elected individual who will be subject to strict checks and balances by locally elected representatives—was expressly set out in the coalition agreement. In taking forward this reform, we will swap bureaucratic control for democratic accountability, replacing police authorities with directly elected commissioners in all forces in England and Wales, save for the City of London, which is an exception.
Some have argued that there is a need to delay these reforms. We do not agree. These reforms cannot wait. We do not have the luxury of delaying change when HMIC, the inspectorate, concluded in its policing in austerity report that only four police authorities inspected by it were judged to have performed well in both setting strategic direction and ensuring value for money for their police force. Effective performance in both these functions is essential. Given the state of public finances in this country, it is also urgent. Moreover, the accountability of the police should be to the people and not, as it has increasingly become, towards Whitehall. I shall return to that later in my remarks.
The second fundamental principle to policing in this country is operational independence: freedom from political interference. I am aware that some in this House have been concerned that in altering the arrangements for the governance of the police, this principle, which the Government regard as sacrosanct, might be impaired. There is no necessary connection, but as this is a matter of such importance to us all in this House, I intend to deal with it straight away.
It is important to note that under the Police Act 1996, chief constables had direction and control over their forces and that they continue to do so under Clause 2. Moreover, under the Bill, they will be constituted as corporations sole and will have greater powers than now to appoint their immediate subordinates. To reassure those who remain anxious about the issue of operational independence, the Policing Minister undertook during debate in the other place to develop a protocol in consultation with ACPO, the Association of Police Authorities and the Association of Police Authority Chief Executives, setting out the distinct roles and powers of Ministers, chief constables, PCCs and other bodies in the new policing landscape. That work is well under way and the aim is to have the draft available for this House at Committee stage.
As noble Lords will be well aware, our reforms of the ways in which the police are held to account are the most comprehensive for 50 years. We have not made the changes lightly; nor, as I indicated, have we ignored feedback on ways in which our proposals could be improved. We are grateful for the input from ACPO, the Association of Police Authorities and the Association of Police Authority Chief Executives, as well as individual forces and all those who submitted evidence to the Bill Committee.
Our discussions with stakeholders have helped us better to ensure that the Bill achieves the commitment in the coalition agreement to have proper checks and balances in place. I should like to say a word on this aspect.
An argument has been put forward that police and crime panels do not offer real checks and balances in relation to police and crime commissioners and that they are toothless, but this is far from the case. We expect the relationship between the PCC and the PCP to be as constructive and cooperative as possible. However, we are giving the PCPs the means to ensure, in the event of disagreement, that police and crime commissioners exercise their democratic mandates in ways that are proportionate, effective and reasonable. Their scrutiny powers include a veto, by a three-quarters majority, over the police and crime commissioner’s proposed precept and his proposed candidate for chief constable; the ability to ask HMIC for a professional view when the police and crime commissioner intends to dismiss a chief constable; the right to review the draft police and crime plan and make reports and/or recommendations to the police and crime commissioner who must have regard to them; the ability to require the police and crime commissioners to attend the panel to answer questions; the duty to appoint an acting police and crime commissioner where the police and crime commissioner is incapacitated, resigns or is disqualified; and responsibility for all complaints about a police and crime commissioner, although serious issues must be passed to the IPCC.
Those are teeth, and they will be strong safeguards against the fears of some in the House that police and crime commissioners will act irresponsibly in office. The Government believe that the people of this country can be trusted to use the power of the ballot box wisely but we are nevertheless putting backstops in place. I should mention here that, elections apart, the running costs of police and crime commissioners will be cost-neutral. The elections themselves will cost no more than £50 million—not £100 million, and not £200 million, as has been put about. We have put all our costings on the web so that all can see how we have arrived at these figures.
I should like to spend a few minutes discussing each of the five areas in the Bill. The first is police and crime commissioners, about which there is little more to be said. Their introduction will focus policing on what local people want, not what national Governments think they want. Work has already begun to enhance accountability across communities in England and Wales through providing access to detailed street-level crime and antisocial behaviour data. This has generated extraordinary interest in the public and counters the argument that through PCCs we are assuming a level of public interest that is not there to drive the model. On the contrary, this shows that the interest is present and requires stimulation.
At the same time, there are key national and international responsibilities in policing to which the PCCs must make strong contributions. To ensure this the national Government, who will refocus their role away from micromanaging local policing towards exercising a better grip on key national issues, have a proper role to play.
The Bill provides for the Home Secretary to issue a strategic policing requirement that will inform the way in which police and crime commissioners work with their chief officers to deliver their forces’ national and international responsibilities. There will be strong duties on them to manage national threats, including through collaboration.
We are determined that when these reforms begin, the transition from the existing system to the new regime is as smooth and as painless as possible for police forces and communities. To this end the Policing Minister is personally chairing a transition board made up of all the relevant partners and charged with delivering a programme of 12 projects to ensure that there is an effective and seamless transition to the regime of police and crime commissioners.
Finally, I want to clarify the position in Wales. The Government have respected the will of the Assembly and amended the Bill to remove the police and crime panels from local government structures and establish them as free-standing bodies, but we have done so without sacrificing the public scrutiny powers and using locally elected representatives. In the Government’s view, it is not in the interests of the people of Wales to have a different governance and scrutiny structure for their forces when policing is reserved to Westminster and to the Home Secretary. There cannot be two tiers of governance for a police service whose officers and assets so regularly cross the regional boundary between England and Wales in pursuit of making our communities safer and tackling crime.
I turn now to alcohol licensing. As I have already said, the Bill will give power back to local communities in policing, and it will do the same for licensing decisions. Alcohol-fuelled crime and disorder is estimated to cost the taxpayer over £8 billion per year, and last year there were nearly 1 million alcohol-related violent crimes. That is a good deal too many. The Bill will address these issues. Last summer, we consulted on plans to overhaul the Licensing Act 2003. We received over 1,000 responses, which are reflected in these clauses of the Bill.
The Bill will allow early morning restriction orders to be extended to any time between midnight and 6 am. It will give licensing authorities the power to take swift action to tackle problem premises without having to wait for a relevant representation from a responsible authority, and it will lower the evidential hurdle for licensing authorities to make it easier for them to refuse or revoke licences held by irresponsible retailers. It will allow anyone, anywhere to make representations concerning a licensing decision, regardless of vicinity to a premises. It will double the maximum fine for underage sales of alcohol to £20,000. It will allow local councils to charge a late night levy on licensed premises that remain open after midnight to help pay for late night policing and other services such as taxi marshals and street wardens. But let me make it clear that premises that close before the levy takes effect will not have to pay.
Following an amendment in the other place, the Bill includes a provision to introduce locally set licensing fees so that the costs of licensing authorities, in discharging their duties under the Licensing Act, can be fully recovered. All of these measures show that we are committed to tackling alcohol-related crime and disorder by giving more powers to local areas.
The Government are clear that no one person or group of persons should take over Parliament Square to the detriment of others. The Bill contains a tough but proportionate package of measures to prevent encampments, to deal with disruptive activity and to give the police the necessary powers so that the space can be enjoyed by all. It will also restore the right to peaceful protest around Parliament by repealing Sections 132 to 138 of the Serious Organised Crime and Police Act 2005. It will thus deal with encampments not by restricting protest, but by prohibiting the erection and use of tents, structures, sleeping equipment and the unauthorised use of loudhailers in Parliament Square.
I turn now to drug abuse. The Bill provides powers to crack down on the damage caused by so-called “legal highs”. Many of us will be aware of the growing concern about the availability, use and potential harm that they pose. The existing arrangements for bringing a drug under control using the Misuse of Drugs Act 1971 remain our preferred approach. The power in the Bill to make year-long temporary class drug orders will allow us to take swift action temporarily to ban harmful substances which have been specifically developed to get round existing drugs legislation. There will be no possession offence for a temporary-class drug. We do not wish to criminalise anyone, particularly young people, while the harms of a drug are being fully assessed. We have listened to the representations of the Advisory Council on the Misuse of Drugs and those made in the other place and we have made an amendment to the Bill to consult the ACMD before invoking a temporary order on a statutory footing. The Bill also allows the Home Secretary to make an order on the recommendation of the advisory council since the council is able to provide advice of its own volition. This underlines the Government’s continued commitment to independent, expert, evidence-based advice.
Finally, the Bill makes reasonable changes to the procedures for obtaining an arrest warrant for universal jurisdiction offences. Universal jurisdiction is a key principle of international justice. It enables some of the gravest offences to be prosecuted in the UK, regardless of where they have been committed. The Government believe that the requirement to seek the agreement of the Director of Public Prosecutions that a case has a realistic chance of success is a fair and proportionate measure to ensure that arrest warrants are issued in a responsible fashion. The Bill is a package of measures, carefully balanced to tackle problems in our society through restoring power to communities and professionals where it belongs. I beg to move.
Baroness Neville-Jones
My Lords, I am grateful for the generally thoughtful tone of the debate this afternoon and evening, even if it was not especially supportive of the Government’s position. Like other noble Lords, I was struck by the fact that it was graced by three outstanding maiden speeches, from my noble friends Lady Berridge, Lady Newlove and Lord Blencathra. Listening to the speech of my noble friend Lady Newlove, in particular—I agree with those who said how moving it was; indeed, she told a tragic story—I was reminded that this Bill is also a social responsibility Bill. I am sure that the whole House hopes that when enacted it will reduce the likelihood of the sort of incident that she described occurring in the future.
As time is short, I should like to confine the greater part of my closing remarks to Part 1 of the Bill. I hope that the House will understand if I do not tackle all the points made, but I hope to touch on the key themes. Something else that struck me in the debate was the fact that many of the doubts expressed by Members of this House betrayed what I would regard as being a preference for expertise over visible leadership, reliance on robust democracy and indeed the good sense of the electorate—a prejudice that my noble friend Lord Howard warned us against at the beginning of the debate. Reliance on the people is not, as some noble Lords have suggested, naivety. It is actually healthy democracy. As against that, I particularly welcome the offer from those who have considerable experience in policing to work with us to engage constructively on making these reforms work. Of course, I accept that there are ways in which they can be improved.
The core of the Bill, however, is about accountability. It is not about operational policing matters. The Bill will support operational matters and will not, as has been suggested, somehow adversely affect them. That is why your Lordships did not hear from me this evening about many operational policing matters, on which Members on the opposition Benches have touched. I agree with those who have said that we have the best police service in the world, but we do not have the best governance of that police service. It is that aspect that the Bill is designed to improve.
There have been many queries as to why the reforms are needed and why they are needed now. Let me touch on this again; I spelt it out in my opening remarks, but it is worth repeating one or two of the points. A number of noble Lords suggested that the reforms are not needed. We disagree. It is clear, as I have indicated, that there are some philosophical differences between us, as well as, I suspect, differences in the assessment of the quality of the situation that we have at the moment. In our view, the case for change is clear. Police authorities are not sufficiently connected to the public. We know this because only 7 per cent of the public understand that they can approach their police authority if they are dissatisfied with policing. I reject the argument that anonymity does not matter. A typical police authority gets only about two letters a week from the public. When the Mayor of London took on the responsibility of policing in our city, the fact that there was a recognisable figure in charge prompted a significant rise in the amount of correspondence received from the public. The public care and, contrary to what has been suggested, they are not satisfied. At the moment, they simply do not know whom to call. We believe that some of the provisions, which have not received great attention in the debate, for greater transparency in all the proceedings that will take place between the police and crime commissioner, the chief constable and the PCPs, which lie at the core of the Bill, will help immensely in generating greater information about and confidence in the police.
The noble Baroness, Lady Harris, argued that no police authorities had failed their inspections. That is the case, but we do not think that not failing is good enough. As I mentioned, only four police authorities are performing well out of the 22 inspected by HMIC. I think that we all agree that HMIC must be respected in its judgments. We believe that we can do better than that and that the public have a right to expect better performance.
We also think that there is a democratic deficit between the authorities and the public whom they are meant to serve. Only 8 per cent of wards in England and Wales are represented on a police authority. We think that the system of governance, even if it is not broken, is not performing well enough and requires improvement, so we are going to make the changes. We also think that the change is needed now. As I indicated, the Government do not believe that piloting would be helpful. I have no doubt that I will have considerable opportunity in Committee to explain in greater detail why I think that that is the case, but I must inform the House that I will be resisting that idea vigorously.
The coalition parties support the direct democratic reform of police authorities. It is interesting that the Opposition also favour the democratic reform of police authorities. The only difference between the Opposition and the coalition Government is how, not whether, it should occur. That puts a point on some of the arguments that we have heard tonight. Right at the outset of the debate, the noble Lord, Lord Hunt, suggested that HMIC be asked to approve the Government’s reforms before they are instituted or that there should be a series of local referenda before they could take effect. If we think, as a House and as Parliament, that direct democracy in policing could be improved, it seems to me odd that we should suggest that HMIC should make a judgment on what is clearly a political matter. That is not what HMIC is there for. As for local referenda, the PCCs are a national policy, and a single system of governance is needed. Policing crosses force boundaries, just as criminals do, and we must have a degree of commonality in how it operates, so I do not think that we can go for local referenda.
In respect of the arguments made to the effect that these reforms will politicise policing—we have heard a great deal of that this evening—I want to be absolutely clear: that will not be the case. There is no reason why there should not be partnership between the PCC and the chief constable. Many of the Bill’s provisions are clearly designed as a failsafe in case there are problems but the whole premise of the Bill is that there should be partnership. We agree with those who say that there should be partnership, and we are confident that partnership will come about. Equally, it is important, as the whole House acknowledges—we certainly support this—that the operational independence of chief officers is not prejudiced. It will not change. Under the 1996 Act chiefs will continue to have direction and control of their staff. Operational independence is already protected, not just by measures in primary legislation but also in common law and the attestation of all constables on appointment, as has been said in debate. It is a cornerstone of British policing and nothing—nothing—in the Bill or any protocol that we produce will alter that, but we shall seek to make the principles of the relationship between the various parties clear in the protocol.
It has been well said that the police are answerable to the law. Indeed, we are all answerable to the law. But the Government see no contradiction between being answerable to the law and being accountable. These two things go hand in hand.
I have no doubt that in debate we will spend some time on the arrangements in London. I am not going to deal with those this evening, but I should like to make a comment on one point raised by the noble Lord, Lord Harris. He seemed to be suggesting—perhaps I have him wrong—that because the precise method of accountability of the chief constable had not been prescribed in the legislation, therefore it could be assumed that there was no such answerability. That is not the case. The PCC has the same statutory responsibility to hold the chief constable to account as he has at present to the police authority. Not everything has to be spelt out in detail in the legislation as if no one is capable—
Lord Harris of Haringey
My Lords, my point was not that there is not a clear accountability mechanism, because that is set out in the Bill; my point is—it applies not just in London but to all the PCCs—that the one-to-one relationship between the elected individual and the chief officer of police does not allow for the visible answerability of the chief officer of police, answering questions in public on matters that affect the locality. That is what will disappear in this Bill.
Baroness Neville-Jones
I do not think that that is the case, my Lords, because there is nothing to stop meetings taking place in public. Indeed, the records have to be put into the public domain, so I do not think that somehow this relationship will be conducted behind closed doors. On the contrary, I think that it will be extremely transparent. One other point I would like to make is that the police and crime commissioner can require a chief constable to report on a particular matter if he does not get co-operation from him, although I do not see why he should not. Both accountability and transparent accountability will be present in arrangements.
I should like to deal with some of the points where it was claimed that this new model would be costly and would introduce unnecessary bureaucracy, and to be clear about what the model involves. The PCP will not replace the police authority, so those costs are gone. The PCC replaces the police authority and indeed will need support staff but, unlike now, they will be held directly to account by the public, so we will require them to publish details of their expenditure and the public will expect them to deliver value for money. This creates a very strong incentive to drive costs down, an incentive which does not exist at present.
If the House is concerned about costs, I say that the alternative models that have been suggested—an elected chair of a police authority or indeed an elected police authority—are no less expensive than what we are proposing, and would probably be more expensive. We also think they would be less effective.
Finally, I should like to put these reforms into their proper context. Some noble Lords have asserted that PCCs will be concerned only with the local agenda, neglecting national issues and protective services. I had hoped that I had spelt that out adequately in my opening remarks, but let me repeat that that is not the case. The Bill starts to rebalance the system from the Government telling local areas what their priorities are to focusing on those issues that are of national importance such as organised crime and counterterrorism. To that end, we have included Clause 79, which gives powers to the Home Secretary, as I mentioned, to set out a strategic policing requirement. That is obviously an important document. The strategic policing requirement will describe the collective capabilities that police forces across England and Wales would need to have in place in order to protect the public from serious harm and maintain national security; that is, the contribution that they would be expected to be capable of making to these national issues. The police and crime commissioners will have to have regard to the strategic policing requirement, which means that they may not ignore it when setting out their police and crime plans. It cannot be the case that their focus can be wholly local.
I cannot see how a police and crime commissioner who wished to be regarded as effective would see his duties as not encompassing the things that he needs when it is quite obvious to the public that he needs to be charged with doing them effectively. When he is setting out his police and crime plans, they will include the discharge by that police force of its national or international functions, and chief officers will be held to account if in any respect they fail to come up to the operational standards that are required. Furthermore, all this will be underpinned by the new backstop powers which currently apply only to the Metropolitan Police Authority for the Home Secretary to enter into an agreement with any PCC or the Mayor of London on their national and international functions, where it is deemed necessary, to direct them to take action. We hope that that is not the kind of thing that is going to be necessary, but clearly the power will be in place if it has to be exercised. At a later time, as the House is aware, we will be introducing the new national crime agency, which will be a framework for the functions of national scope, and these will cover such things as organised crime.
I turn briefly to the points made on licensing, the first of which is the removal of the vicinity test. I know there is a fear that this proposal could lead to an increase in frivolous or vexatious representations, but I have to say that during our consultation a very large number of respondents welcomed greater community involvement in the licensing process, and they were clear that the activity related to licensed premises can have an effect well beyond the immediate vicinity. The objectors, of course, have to make a case which is related to the full purposes of licensing.
On the issue of health bodies becoming responsible authorities, I can confirm that the Government will ensure that in the future this role is compatible with the changes being made to PCTs, but in the short term the PCTs will be the relevant health bodies. As regards the maximum fine for underage sales of alcohol, by doubling it, the Government are sending to retailers a clear message that we will not tolerate the sale of alcohol to children. The noble Baroness, Lady Coussins, asked a number of detailed questions focusing on why the Government were not doing more in other areas, and no doubt we will take those in greater detail in Committee. The point of the Bill is to do something simple, obvious and straightforward, and which is capable of being actioned in a way that we hope will be effective. However, I quite appreciate that there are issues other than those set out in the Bill which add up to an effective challenge to the increasing abuse of alcohol.
As for the levy, it applies across the whole licensing authority area because that is the simplest and fairest way of ensuring that all premises that benefit from selling alcohol late at night contribute towards costs. We have to recognise, as I have just said, that there is a problem of alcohol abuse in this country and it has to be tackled. That is why the emphasis in this Bill is on increasing our ability to do just that.
I hope the House will be willing to forgo responses on the many points raised in relation to Parliament Square and universal jurisdiction. The noble Lord, Lord Marlesford, has promised us a lively debate in Committee on the first and I have no doubt that we shall debate the need for the intervention of the DPP on the second. The DPP has made it clear that he would be willing and would have the capacity to act rapidly in any case and that his intervention would not act as a delay or a bar on issuing a warrant.
The core of the debate has been on the PCCs and I want to make two last points. First, the noble Lord, Lord Boateng, made the point, which I am sure the whole House accepts, that we shall need to come together on this Bill to ensure its passage. Secondly, while I did not accept many of the points made by the noble Lord, Lord Harris, he said something with which I profoundly agree; namely, that trust is crucial to the preservation of our tradition of unarmed, impartial policing. In making the changes, the Government are determined to preserve this long-standing principle and great tradition. I commend the Bill to the House.