Police Reform and Social Responsibility Bill
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The Chancellor of the Duchy of Lancaster (Lord Strathclyde)
My Lords, all those who are interested in this Bill will be aware that, last Wednesday, a short debate took place that, at certain times, became quite philosophical about how we should continue Committee stage. I thought that it would be entirely fair and appropriate for me to move this Motion and explain to the House where we are and why we are here in terms of process and procedure.
Last week, the Committee of the Whole House, to which the Bill has been committed, took an unusual decision. On the very first amendment, on the first day in Committee, the Committee decided to leave out from the Bill the very principle of elected police and crime commissioners, which was, as I think the House will know, the essence of the Government’s policy. As the Opposition Chief Whip said at the time,
“It makes a mockery of the discussion and debate on this part of the Bill if we continue as though this has not happened … Having ripped the guts out of a piece of legislation, I cannot see how we can intelligently proceed as though nothing has happened”.—[Official Report, 11/5/11; col. 961.]
He was right. Last week, through the usual channels, I put a proposal to the Opposition to secure a better process for scrutiny of Part 1. I suggested leaving it out of the Bill completely at this stage; I suggested facilitating discussions on the policy off the Floor of the House; and I suggested making time available for detailed consideration in Committee of Part 1 in whatever shape the Commons might send it back to us. The Opposition’s response was to reject that suggestion in favour of continuing with the Marshalled List in the usual way or, at most part, taking Part 1 in a few days’ time at the end of Committee stage. We thus find ourselves resuming Committee in the faintly unreal world where the Bill no longer reflects the principle of the policy which the Government and the House of Commons support. The Government remain in favour of elected individuals as police and crime commissioners. The Government cannot support any of the amendments on the Marshalled List which relate to those parts of the Bill affected by last Wednesday’s vote on Amendment 1. The Government cannot therefore support the scheme of Part 1.
The Committee will thus work its way through the Marshalled List. The Minister’s replies will be limited, but, as the House would expect, she will approach the debate as constructively as she can. But the House should understand that, by voting so early on the principle of the Bill, it has restricted its usual function of scrutiny and revision in respect of Part 1. That is the decision the Committee took, and the Opposition rejected our procedural alternative to where we find ourselves today. For the Government’s part, we will do our best to be constructive as we proceed through the Committee, but we do not accept the new principle of Part 1.
I hope that that explains sufficiently where we are and I therefore beg to move that the House do now again resolve itself into a Committee on the Bill.
Lord Hunt of Kings Heath
My Lords, I am sure that the whole House will welcome the presence of the Leader of the House and thank him for his words. We welcome the Government’s decision to be constructive. The noble Baroness the Minister will know that we very much welcome her and the approach that she has taken in this House since she was appointed a Minister in the Home Office.
The remarks of my noble friend the Opposition Chief Whip were related to the situation which appertained immediately after the defeat of the Government on Wednesday last when he suggested that it might be advisable to adjourn for the evening in order that all Members might consider the consequences. We believe it is best to carry on with the Marshalled List. I hear what the noble Lord says about the principle. He will be aware that consequential Amendment 31 in the name of the noble Baroness, Lady Harris, sets out a construct of a police commission with two elements: the first element is a police and crime commissioner; the second element is a police and crime panel. Many of the amendments to be debated apply as much to that situation and the relationship between a police and crime commissioner and the police and crime panel as they would between an elected police commissioner and a police and crime panel. They embrace issues such as whether there should be pilots, whether the operational independence of the chief constable should be enshrined in statute, and the role of the police and crime panel in being able to veto any decisions of the police and crime commissioner.
It will be worth while for the House to debate these matters. We look forward to the response of the noble Baroness and welcome the fact that she will be as constructive as possible—I never doubted that. I am grateful to the noble Lord, Lord Strathclyde, for allowing us to have this short debate before now moving into Committee.
The Minister of State, Home Office (Baroness Browning)
My Lords, I thank all noble Lords who have contributed to the debate. Perhaps I may begin by putting something on the record, because many noble Lords have mentioned the operational independence of the police. In particular, the noble Lord, Lord Bradshaw, drew attention, I believe, to the case of Madeleine McCann. I can assure your Lordships that there was no question of the Home Secretary directing the Commissioner of the Metropolitan Police to carry out this exercise. Due to the international expertise that exists in the Met, there were discussions between the Home Office and the Metropolitan Police. The commissioner took the operational decision to support the investigation on that basis. It was felt appropriate that funding should flow from the Home Office because of the additional costs associated with policing that case. I hope that that reassures people who have been concerned about that aspect of it.
For the benefit of noble Lords who were not here last week when we produced the protocol document, perhaps I should also repeat that the whole area of governance, and the relationship between a police and crime commissioner and the chief constable, is set out in a draft document that is still open to consultation. I hope in due course to have further discussions with Members across the House so that we might see how that document can be improved. Again, the governance and independence of the police are key to that document.
This is an unusual debate by any standards of what has taken place in the House previously, and I shall attempt to address as much of what has been said as I can, given the circumstances. I know that the noble Baroness, Lady Harris, is having difficulties with her voice at the moment, but if she is able formally to move her Amendment 31, which proposes a new model of governance, a police commission, perhaps we might then have a little more clarity in our proceedings, because the amendments in the group which we have been discussing are consequential to that amendment. None the less, I shall try to be as constructive as possible in relation to what has been said today.
I was asked about the role of the PCC in tackling crime; the noble Baroness, Lady Henig, referred to it in her opening remarks. Had the Bill not been amended as it was last Wednesday, the PCC would have been empowered to make grants to community safety partnerships within their force areas. It was envisaged that the PCC would determine local priorities for crime reduction and who was best placed to handle both the symptoms and, crucially, the causes of crime within their force area.
The amendments propose a new model whereby a police and crime commission will be created, consisting of a police and crime panel with the power to elect a police and crime commissioner. If you directly elect an individual, you have to be able to allow that individual to carry out the mandate on which they have been successfully elected. The elected individual needs strong and effective checks and balances—I am in total agreement with that. What is proposed, however, is not an effective check and balance but a slow and bureaucratic decision made by committee.
In the absence of any evidence to the contrary, I assume that the police and crime panel to which the amendments refer is the panel as set out in the Bill. This is fundamentally the same model as we have now with police forces accountable to police authorities—a model which, as was discussed last Wednesday, simply does not provide the public with a mechanism for holding their police service to account. The proposed model would fail to provide the democratic accountability that policing needs and the public demand. If anything, it turns the clock back. The noble Lord, Lord Hunt, mentioned the watch-committee style of policing governance which was abolished in 1964. The model proposed, as I understand it, would place politicians in control, with no direct accountability to the public, which is what the original provision sought to do. The watch-committee style of system, with politicians in control but with no direct accountability to the public, resulted in corruption and politicisation of the police. On the first day in Committee, the noble Baroness, Lady Hilton of Eggardon, and the noble and learned Baroness, Lady Butler-Sloss, respectively reminded your Lordships of the cases of Chief Constable Athelstan Popkess in Nottingham and of Councillor Bookbinder in Derbyshire. Surely we do not want to return to that.
Amendment 19, to which the noble Lord, Lord Laming, spoke, would add to the list of duties on which the police and crime commissioner should hold the chief constable to account. The noble Lord was concerned that it should mention duties imposed by any enactment, specifically those under the Human Rights Act 1998 and the Children Act 2004. All of us here want our police to comply with all their statutory duties. That is why Clause 1(7) already provides for the PCCs to hold the chief constable to account for the exercise of all their functions, which naturally include those legal obligations with which the chief constable must comply. The Government are happy to take this opportunity to reassure the Committee, because I know that views on this are widely held, that they take very seriously compliance with the Human Rights Act and the Children Act. However, the inclusion of the duties under those Acts, let alone every other enactment, would muddy the list of functions which are particularly important for PCCs. The Government do not consider it necessary to include the provisions of the Human Rights Act or the Children Act in Clause 1(8), much as the provisions of those statutes are of course recognised to be important.
However, given the strength of feeling that has been expressed today, we are willing to revisit this point and to ensure that the correct balance is struck between the general and specific duties of the chief constable. I make the offer of one-to-one discussions as the Bill progresses with noble Lords who have a particular interest in this area to make sure that we get that balance right.
Lord Laming
I thank the Minister most warmly for that. I gladly accept the opportunity to have a discussion.
Baroness Browning
I will be very pleased and willing to set up such a meeting.
The amendments of the noble Lords, Lord Hunt, Lord Rosser and Lord Stevenson of Balmacara, require the PCC to arrange public forums for a police area. Much has been said today about the need for public forums and interface with the general public. We expect PCCs to engage regularly with the public and with representatives of communities in the police area. However, we also expect PCCs to decide how best to go about that engagement. They would be democratically elected and held accountable to their electorate. We would also expect the police and crime panel to have an overview of how that function is carried out.
PCCs would have been accountable directly to the public. The noble Baroness, Lady Henig, queried this in her opening remarks but there would have been no doubt in the Bill that they would have been directly accountable to the public. That is why the Bill, as introduced, contains provisions in Clause 14 to ensure that the PCC is required to obtain the views of the community. Clause 34 also makes it a statutory requirement for police forces to have regular meetings within their neighbourhoods and to develop other innovative ways of engaging their communities to ensure that they talk to a representative and diverse group. I hope that assures noble Lords who have been concerned that the police would be divorced from the public by the proposed changes in the original drafting of the Bill; that is neither the intention nor the outcome of the original drafting. We believe that this is sufficient assurance to ensure that PCCs’ policing arrangements reflect the priorities of the community, which is most important.
Noble Lords have already made their intentions clear in respect of Amendment 31, which I shall refer to as “the new model”. We shall not object to that amendment if it is moved later in our proceedings. However, it is not necessary to make these changes as well and I ask the noble Baroness to withdraw her amendment and for noble Lords not to move theirs.
Lord Harris of Haringey
The Committee will be grateful to the Minister for the way in which she has addressed the issues raised in the debate and for the extent to which she is clearly prepared to engage with the House on them. However, I would be grateful for an indication of the Government’s intentions on this matter. Clearly it will go back to the House of Commons. At the moment we have the amendments approved by the House last week, and when in due course we get to Amendment 31 that will no doubt be approved by the House without further discussion. However, assuming that it does not magically become the desire of the Government to achieve what is contained in the amendments, no doubt they will come back with something not very dissimilar from what we started with.
I take from her tone that the Minister wants to engage with Members of this House in making the detail work. Presumably, therefore, she would wish to see amendments passed to the rest of the fabric of the Bill—the consequential matters contained in my noble friend’s amendments—so as to provide hooks on which she on behalf of the Government can respond to the concerns of Members of the House. Clearly if my noble friend withdraws the amendment today and we carry on not making further changes to the Bill, all that will go back to the House of Commons will be those five amendments the noble Baroness, Lady Harris of Richmond, spoke to last week. That will not provide enough space for the Government to respond constructively in the way in which I am sure the Minister would wish.
Baroness Browning
My Lords, I am grateful to the noble Lord for his remarks because we are in rather uncharted and new territory—not least myself. My approach to this is that before the Bill returns to another place—between now and then—I am willing to engage with noble Lords across the House in areas where we might seek negotiation and concession. In that way, when the Bill is presented before another place, it will reflect the views of noble Lords, even though because of the technical constraints now before us we may not have had the fullest debate that we might have had, had the amendment not been carried last Wednesday. I am genuinely keen to be constructive, as I pointed out last week in the discussion about the protocol. It is a draft document which contains some important points about the relationship between the police and crime commissioner and the chief constable, and the whole question of the governance and independence of the police. It has been consulted on very widely with the relevant authorities but there is still room for Members of the House to have an input into it.
On specific issues—for example, on police and crime panels—I am happy to sit down with noble Lords. I can make no promises off the top of my head about what changes might be made, but I am willing to explore where they may be made. If we can come to agreement, even if it is outside the Chamber, I hope that will be reflected when the Bill comes before another place.
However, I must be quite honest with the House: it has been already stated by the Home Secretary publicly that, following on from our debate last week and the result of the vote, it would be the Government’s intention —I am sure this comes as no surprise—to seek in another place to reinstate directly elected police and crime commissioners. However, outwith that, further discussions can take place to take account of genuinely held concerns in areas where many in the House have a great deal of expertise and experience and feel keenly about matters.
Lord Harris of Haringey
I am grateful to the noble Baroness—I am sorry to prolong this—for that extremely helpful statement. However, I am slightly confused procedurally. I do not suggest that the noble Baroness will be able to answer this tonight but I hope that within the course of the next few Committee days she will be able to give a definitive view. Presumably, at some stage before the Bill leaves this House, if it is possible to reach agreement on issues outwith the prime question on which I understand the Home Secretary has clearly expressed her views, that will mean amendments being brought forward, either on Report or Third Reading, which will put into place those areas where agreement has been reached.
Baroness Browning
I admit openly that I am probably just as confused as the noble Lord is about the procedural matters that will follow. I have to take advice on an almost hourly basis. A great deal will depend on how Part 1 of the Bill progresses. I will have to take legal advice on into which context we put amendments that have been debated or voted on. At the end of the day, noble Lords may well have to take my word that concessions that we have agreed to will appear not in subsequent stages in this House but in another place. It will depend on the technicalities, which are for those with more expertise than me—on whom I rely—to know. I am genuine in my desire to make progress and to be as constructive as possible, but we are constrained in what we can and cannot do now because of where we are.
Lord Harris of Haringey
I am grateful. I understand we are constrained; I am worried that we should not be even further constrained by the fact that when the Bill emerges from here at Third Reading, in whatever form it is, it is then not possible for the other place to look at those issues about which the Minister has given reassurances simply because there are no extant amendments to those clauses where a concession might be appropriate. I am not suggesting that the Minister should try to address that matter today—I realise that a lot of work will have to be done on it—but it is an important point.
Lord Hunt of Kings Heath
My Lords, the Minister may help me on the salary intended to be paid to the commissioner, but my understanding is that we are talking about a six-figure salary.
Baroness Browning
It is a matter that we believe the Senior Salaries Review Board should determine.
Lord Hunt of Kings Heath
I cannot anticipate what the board will decide, but I would have thought it inconceivable that anyone would be elected who said that they would treat this post as a part-time post. I think we have all been working on the assumption that this will be a full-time responsibility. I would much prefer it to be a non-executive appointment around a strong corporate governance structure. That would be most satisfactory. In the construct that the Government had in the original Bill, before noble Lords sought to improve it last week, it would inevitably have been a full-time job. My great fear is that to justify re-election, if the commissioner is to be elected, or reappointment, if the commissioner is to be appointed, the commissioner will spend day after day interfering in the work of the chief constable.
Lord Brooke of Sutton Mandeville
Since the noble Baroness, Lady Farrington, has taken this up with me, she and I know each other very well—we have worked together on matters relating to local government for the best part of 30 years—and I do not in the least mind being rebuked by her. However, I am trying to make the Bill work better by all of us attending to what might otherwise mislead.
Baroness Browning
My Lords, when the noble Lord, Lord Harris of Haringey, mentioned Flanders and Swann and a song, I thought that he was going to quote “The Bindweed and the Honeysuckle” because they both strove and ended up in the same place by climbing around each other and working together. I thought that perhaps he was going to draw the example of how closely the chief constable and the police and crime commissioner would work—in other words, there would be contact between them and a strong working relationship.
Before I respond specifically to the amendments, I would like to say that I stood for elected office at general elections on five occasions. Many in this House—most, in fact—will know what it is like to be part of a political party, to campaign and so on. It is all great fun and all very serious stuff, but for most people who aspire to and achieve elected office, once they are elected, the fact that they wear a party badge does not necessarily mean that that influences everything that they do in their working life, representing people who have not necessarily voted for them. So I have a much more open view when noble Lords describe elected police and crime commissioners being badged as Labour, Conservative, Liberal Democrat or whatever. I think that most people who are serious about elected office—of course many of them will come via a party route, but not all—try, having achieved that office, to do the job to the best of their ability for the good of the community that they serve, regardless of party politics. That has been my experience, having served in another place. I hope that noble Lords will take some encouragement from that; I do not share their concerns that police and crime commissioners will be seen as simply representing any one political party if they have stood on a party ticket or been known to be associated with a party.
My noble friends Lady Hamwee and Lord Shipley’s Amendments 16 and 52, allowing for the police and crime commissioner to act in conjunction with the chief constable when carrying out the PCC office core functions, appear to me to be a step too far in seeking to ensure that the PCC is legally bound to act in all respects in partnership with the chief constable. The duty that has been conferred on the police and crime commissioner by Clause 1(6), to which the amendment refers, simply lifts the current legal duty placed on each police authority today and places it firmly on the police and crime commissioner. It would be difficult for the police and crime commissioner of a force area to deliver the duty of the current police authority to maintain an efficient and effective force if they were bound to abide by that duty with the same chief constable that they are required to hold to account. This is not the case now, nor should it be in future.
Further amendments that were laid by the noble Lords, Lord Hunt, Lord Rosser and Lord Stevenson, seek to protect the operational independence of chief police officers—something to which the House returns with these amendments—while at the same time placing a specific prohibition against the police and crime commissioner doing anything that would lead to the chief constable breaching his or her oath of office as a constable. The noble Lord, Lord Hunt, raised that. Nothing in the Bill makes any changes to the office of constable or to those provisions in the Police Act 1996 that already establish the oath in law.
I draw your Lordships’ attention again to the draft protocol that has been submitted, which has been mentioned. There are areas about the protocol that we need to discuss collectively in this House. The Government have not yet determined whether the document should be placed on a statutory footing. That is an important aspect of the protocol, on which I would be interested to hear colleagues’ views from across the House.
The draft protocol goes beyond the proposed amendments that we are discussing to provide a suitable safeguard on matters related to command and control, and seeks to address the entire relationship between the PCC and the chief constable. I remind the House that, in drafting the protocol, the Government have taken great care to consult ACPO, the APA and the Association of Police Authority Chief Executives. We have committed to working with partners and with Members of this House to develop the draft into an effective tool that will set out the principles and the relationship and interaction between the parties that should follow.
I turn to Amendment 40A. The noble Lords’ drafting of the new clause is laudable. I do not believe that anyone in this House would disagree with the fundamental principles that are set out. However, I suggest that it is not necessary or desirable to set out these principles in the Bill. As I said, the Government have been working hard in partnership with others to produce the draft protocol, and within the protocol are enshrined the same principles as are outlined here. I am not going to go through each of them at the moment, because I am aware that we have spent quite lot of time on this amendment. However, they are important principles; all of them have merit in their own right and this is something that we need to come back to in the context of the protocol.
The noble Lord, Lord Hunt, said that he would not read out the oath, but it is worth remembering the attestation at this stage because it is important. A police constable swears:
“I ... do solemnly and sincerely declare and affirm that I will well and truly serve the Queen in the office of constable, with fairness, integrity, diligence and impartiality, upholding fundamental human rights and according equal respect to all people; and that I will, to the best of my power, cause the peace to be kept and preserved and prevent all offences against people and property; and that while I continue to hold the said office I will to the best of my skill and knowledge discharge all the duties thereof faithfully according to law”.
When a police constable swears that oath—it applies to all constables, however high up the career ladder they go—we as politicians should respect it in the context in which it will be kept. I am sure that we can trust chief constables particularly to keep that oath, knowing that they have made it and therefore are bound by it, and will not be forced to show partiality or depart from that oath on the basis that they might be leant on by anyone.