Baroness Northover
May I remind noble Lords we are in a time-limited debate with a couple more debates to follow.
The Minister of State, Home Office (Lord Henley)
My Lords, the first question I should like to answer was put to me by my noble friend Lady Williams of Crosby, who asked whether I would make sure that all UKBA staff read a copy of this debate. I do not think that I can ensure that that happens but I will certainly make sure that a copy goes from my office to Rob Whiteman, the head of UKBA. It will be up to him to decide on the most appropriate method by which he can disseminate the various words of wisdom that have appeared in this debate throughout the entire United Kingdom Border Agency.
Lord Henley
Perhaps I may say to my noble kinsman Lord Avebury, who introduced this debate and asked a very large number of questions—they were coming out at the rate of four or five a minute at one stage and I am not sure that I got them all down or that I will be able to respond to all of them—that we accept that scrutiny of all government agencies is crucial to ensuring that they deliver the appropriate government policy and offer appropriate value for money. Reports on the work of the border agency have shown the Government that, as in all organisations, there is—how can I put it?—some room for improvement.
I stress that today’s debate is about the role and performance of the United Kingdom Border Agency. However, I will say a little about policy, which is a matter for the Government, because obviously it is important in this area. I think that it would be useful if I start by clarifying the roles of the United Kingdom Border Agency, which this debate is about, and the UK Border Force, which this debate is not about. In March 2012, the border force was split from the United Kingdom Border Agency. There are now two completely separate organisations which work together to provide border and migration control. The UK Border Agency is responsible for actions before people get to the border, and once they are beyond the border and in the UK. The UK Border Force is responsible for protecting the border itself through entry control and customs functions at the border.
Outside the United Kingdom, the UK Border Agency is responsible for the visa system and an intelligence network that checks people travelling to the UK before they arrive and ensures that those who have no right to enter the UK do not come here. In the UK, the UK Border Agency carries out immigration casework—for example, asylum applications, which we will come to in due course, and applications for people to settle in the UK—as well as ensuring those who have no right to be here leave, whether by helping them to return voluntarily or by enforcing their removal. Again, I will say a bit about that later.
I have to say that questions relating to the border force go somewhat wide of the scope of the debate. I appreciate that my noble kinsman, my noble friends Lord Marlesford and Lord Alderdice, the noble Lord, Lord Birt, and most recently, the noble Lord, Lord Rosser, all raised serious questions about the border force. But in light of the debate and the number of questions I will have to come to, those issues will have to wait for another day. I shall deal with just some of the concerns that have been raised by noble Lords in this debate before I say a word or two about policy and where we wish to be. I appreciate that a large range of questions were asked and I imagine that in the end, as always, I will deal with only a mere tithe of them in this wind-up. I hope that I can write to noble Lords about some of their other concerns in due course.
One of the first questions put to me by my noble kinsman Lord Avebury was about bonuses within UKBA and his regret that they were being paid when there were failures within UKBA. As he probably knows, only the top performers who have consistently worked to a very high standard are recognised through bonuses. We have significantly reduced the value and the number of payments made to senior managers. I think that only a quarter of all staff—the overwhelming majority of whom are front-line officers—were awarded an average of around £500 last year and, I should make clear, only after meeting very strict criteria.
My noble kinsman was worried about the number of appeals allowed, and suggested that 36% was an all-time record. In 2010-11 the Courts and Tribunals Service statistics recorded that some 36% of appeals were allowed, which was not an all-time record. Over the past two years, the figure for allowed appeals, based on the same statistic from HM Courts and Tribunals, has decreased both in percentage terms and volume. I think that in 2009-10 it was 41%, and 38% the year before. If I have got those figures wrong I will write to my noble friend. He seemed to say that it suggested that the decision-making criteria were too hard.
Appeals are allowed for a variety of reasons, including evidence being submitted at the hearing that was previously not seen in the decision-making process. He will know about that in relation to the changes we are making in the Crime and Courts Bill. Consequently the allowed appeal rate is not always indicative of whether the original decision was of poor quality or too harsh. Certainly the Border Agency works hard to analyse the reasons for allowed appeals, in order to identify trends and implement improvements.
My noble kinsman also asked about removal of overstayers, and whether that was a priority of the agency. As he knows well, enforcement is a vital part of the agency’s operations, and it relies on intelligence to identify and take action against those with no right to be here. The Government are certainly determined to crack down on any illegal immigrants who are here without any right to be, and anyone found living or working here is liable to be detained or removed. We believe that illegal immigration, as we have made clear on all occasions, puts undue pressure on public services, local communities and legitimate businesses. This summer we have launched a UK-wide operation to remove overstayers, and have already seen some 2,000 removals since the campaign started. In addition, local immigration teams across the country continue to deal with migration refusal cases. That brings me to the important question of how we deal with the removals, and whether we are doing them in the right manner.
The right reverend Prelate the Bishop of Newcastle talked about dawn raids on families, and whether they were appropriate. We would always like people who are here illegally—whether families or others—to leave voluntarily. It is only our last resort to use an enforced return. To reduce the risk of families who will not remove themselves voluntarily absconding, it is sometimes necessary to visit them early in the morning when they are most likely to be at home. However, I can assure the right reverend Prelate that that process is overseen by the Independent Family Returns Panel to ensure that the welfare of children is taken properly into account.
My noble kinsman Lord Avebury, the right reverend Prelate the Bishop of Newcastle and others talked about the legacy cases and the problem of clearing the archive. We are dealing with a controlled archive of legacy, asylum and migration cases. These are cases that have not been traced or concluded but continue to be reviewed and checked. We are confident that we will close the controlled archive by the end of December this year. By that point, having checked cases a number of times across multiple databases, including against financial records, the benefits system and HMRC’s systems, as well as our own, we should be satisfied that those individuals are no longer in the country.
The noble Lord, Lord Hylton, also asked about ELAP, the early legal advice project. As he will be well aware, we want to ensure the provision of high-quality advice, including legal advice to asylum seekers—whether it comes from lawyers or others. He will be aware that ELAP is a very important opportunity to improve our understanding of what works. The project has run since November 2010 and has been extended until March next year. By then we will be in receipt of a final report so that we can make informed decisions about the next steps, based on a fair and thorough evaluation of front-loading legal advice services. Given that the evaluation postdates the next round of legal aid contracts, any decision on a national rollout may not be possible straight away; it will take time to work out the detail of funding mechanisms. The United Kingdom Border Agency will work with partners and the Ministry of Justice to do so as quickly and practically as possible.
My noble friend Lady Hooper raised questions relating to Mexico and asked whether we were meeting criteria for how we should be performing on visas in that country. I can say that visa performance in Mexico is currently good. Short-term visas in Mexico are turned around in an average of 10 days, which certainly matches the figure for other countries. It is something of which the border agency can be proud.
My noble kinsman Lord Avebury and the noble Lord, Lord Ramsbotham, raised the case of Mr Jimmy Mubenga. The agency deeply regrets the death of Mr Mubenga. We will very carefully consider any issues that were raised by the CPS investigation and we will certainly decide whether any further action is appropriate once the Prisons and Probation Ombudsman’s investigation and the coroner’s inquest have been completed. The noble Lord, Lord Ramsbotham, also asked whether certain letters relating to this case could be put in the Library. May I look at that issue, write to the noble Lord in due course and see whether a response is appropriate?
However, that brings me to the question of restraint and the use of force raised by the noble Lord. In the majority of cases, we believe that the use of force and restraint when undertaking removals is unnecessary. Home Office-approved control and restraint techniques, including the handcuffing of detainees, are only ever used in the removal process where they are deemed necessary to ensure the safety and security of detainees, escorting and airline staff, and other passengers. If handcuffs, for example, are used, they are always removed at the earliest appropriate opportunity, when it is considered safe to do so and when there is no risk to others on board. I hope that the noble Lord will accept that assurance.
I wanted first to deal with some of the points that had been made. I now want to say a little about government policy itself. The border agency obviously deals with the operation of our systems but, in the end, as my noble friend pointed out, it is we, Parliament and the Government, who are responsible for policy, and we should not blame the border agency for policy. That is a matter for the Government and I am here to speak for them. The Government’s overall aim is to rectify an out-of-control immigration system by bringing down net migration while still attracting to the United Kingdom those who we believe are the brightest and the best.
We believe that a comprehensive set of policy reforms on work, students, settlement and family have set the way to achieve that end. It is now for the border agency, which is building on those policy changes through operational change, to deliver the reductions in long-term immigration that the Government expect, while at the same time not preventing valuable and genuine visitors coming to the United Kingdom. The agency has recently implemented measures to control family migration and made significant changes to the visa routes for students, workers and those who wish to settle in the United Kingdom. Across the board the agency has tightened up the requirements for those who wish to come here, by increasing language requirements, salary thresholds and skills levels.
I turn first to students. I listened to what my noble friends Lady Williams, Lord Alderdice and Lady Hooper, and the noble Lord, Lord Judd, said about students and universities. I have some sympathy with the points that all of them put, but the arguments put forward by the noble Lord, Lord Judd, seemed to go somewhat too far at times. What was the remark I put to my noble friend sitting next to me? I think it was, “What planet is he on?”. He seemed to have gone so far away from what we are doing, and what we are trying to do. All we have done is to try to reform the student visa route. The measures we are taking are to ensure that students can be reassured that they are attending genuine institutions that have been properly inspected. That is good for the country, the education sector and the students themselves. The measures include: a tightening of the regime for licensing colleges that sponsor foreign students; restrictions on the entitlement of students, including the right to work; and the closure of the post-study work route from April 2012.
No student who has an offer from a genuine, proper university, and who can speak English, is going to suffer in any way at all. When the noble Lord looks, if he will, at the numbers of those coming from abroad to attend British universities, he will find the figures more or less as they have always been; the students are still coming in. What we have seen is a decline in the number of those coming into very spurious and dubious colleges that were really there just as a way of getting round the immigration system, and served no other purpose whatever.
I would give way, but I have only got two more minutes—
Lord Judd
I thank the Minister for replying so fully, but he asked me to look at the evidence of what was happening. Has he looked at the evidence of what has happened to the number of students coming from India? This is very grave in the context of our future relationship with India and the world.
Lord Henley
My Lords, I accept there has been a decline in the number of students coming from India. Will the noble Lord also look at the increase in the number of students coming from other parts of south-east Asia? He will find that it easily compensates for the decline from India. We are not seeing a decline in the overall number of students coming to universities. What we are seeing is a decline in the numbers of those who were coming here allegedly to study but using that as a way of getting round the immigration system. I think that what we did was quite right. I am proud of it, and there has been no damage to United Kingdom universities as a result.
I see that I am running out of time, so I will make my last few points. We want to see the border agency continue to move forward and to maintain its performance in removing foreign national offenders, in preventing others from coming in who should not be coming in, and in continuing to deal with the archive of legacy asylum cases that I mentioned earlier. As a result of its work, the agency will be a more streamlined and efficient organisation in future. For that reason, I am grateful for this debate. It will be a more efficient organisation in delivering its core objectives of a selective immigration system while also providing value for money for the taxpayer. The work of the agency is crucial in controlling migration and protecting national security. In this climate of change, we rightly expect the agency to continue to deliver.