Justice and Security (Northern Ireland) Act 2007 (Code of Practice) Order 2013
(Limited Text - Ministerial Extracts only)
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Baroness Randerson
That the order laid before the House on 14 May be approved.
Relevant document: 1st Report from the Joint Committee on Statutory Instruments.
The Parliamentary Under-Secretary of State, Wales Office (Baroness Randerson)
My Lords, this order brings into force the code of practice for the exercise of powers in the Justice and Security (Northern Ireland) Act 2007. The 2007 Act provides a range of powers to the Police Service of Northern Ireland, including stop and question, stop and search for munitions and wireless apparatus, and entry of premises. It also gives the police the power to seize items found during searches of people, premises and vehicles. While a number of the powers in the 2007 Act are primarily for use by the PSNI, the Armed Forces also have powers under the Act which they can use in support of the police.
Amendments to the 2007 Act made by the Protection of Freedoms Act 2012 introduced an authorisation procedure for the exercise by the police of stop-and-search powers in relation to munitions and wireless transmitters. The purpose of this code is to set out how the powers at Sections 21, 23 and 24 and of Schedules 3 and 26 to the 2007 Act should be exercised by the Police Service of Northern Ireland. It also sets out the fundamental principles which underpin the use of the powers. The purpose of Annexe C of the code is to set out the general principles for the use of the powers at Sections 21 to 28 and Section 30 of the 2007 Act by the Armed Forces in the exceptional circumstances in which they may be exercised.
The code of practice has been developed to provide guidance on the use of these powers, particularly to ensure that they are used with regard to proportionality and necessity principles. Effective controls on police powers are essential if we are properly to protect civil liberties. Noble Lords will wish to note that there was no requirement to develop a code under the 2007 Act. The Act simply allowed the Secretary of State to make one and my right honourable friend the Secretary of State decided to do so following the changes to the powers made by the Protection of Freedoms Act 2012 to ensure that they were used proportionately, recognising that they are extremely valuable to the PSNI but that we must ensure that they are used properly. We believe that the amended powers and accompanying code of practice strike the right balance between enabling the police to protect the public while ensuring that there are robust safeguards to ensure that the powers are not abused or used excessively.
I recognise that some of these powers, such as the power to stop and search without reasonable suspicion, can be controversial. It is essential that the powers under the 2007 Act must be used only when it is proportionate and necessary to do so and this code of practice will assist police officers in ensuring that these powers are used appropriately.
This code applies to police powers in the 2007 Act, which are specific to Northern Ireland. It does not cover any other police powers in UK-wide legislation or other legislation applicable to Northern Ireland only. It does not affect the operation of other codes of practice, including the Police and Criminal Evidence (Northern Ireland) Order 1989 codes and the Code of Practice (Northern Ireland) for the authorisation and exercise of stop-and-search powers relating to Sections 43, 43A and 47A of, and Schedule 6B to, the Terrorism Act 2000.
In December 2012 my right honourable friend the Secretary of State for Northern Ireland launched a 12-week public consultation seeking views on the code of practice. The consultation closed on 6 March and a total of four formal responses were received. All four broadly welcomed the introduction of the code of practice as drafted. The comments were carefully considered and amendments to the code were made. The draft code was close to being finalised when the Court of Appeal issued its judgment in a judicial review—the case of Canning, Fox and McNulty—that challenged the Police Service of Northern Ireland’s use of stop-and-question and stop-and-search powers in the 2007 Act.
Lord McAvoy
My Lords, I, too, thank the Minister for the clear exposition of the powers outlined in the code of practice. There is a very wide range of powers affecting the Police Service of Northern Ireland and the Armed Forces and it is right and proper that there should be a well thought out code of practice governing the exercise and use of those powers. We all know the situation in Northern Ireland, where the authorities, the police and the Armed Forces have to be seen to be absolutely foursquare in their application of those powers. This code of practice builds in safeguards for the use of the powers for all in the community.
Security in Northern Ireland is of the utmost importance to all noble Lords in this House and we are united in our commitment to ensuring that people in Northern Ireland are safe and secure. The men and women officers of the Police Service of Northern Ireland do their jobs with bravery and dedication. The measures in the Act play a hugely important role in combating terrorism and protecting communities in Northern Ireland and it is very important that they are overseen by rigorous, independent scrutiny. That is encompassed in the code of practice, which is vital to maintaining public confidence in Northern Ireland in the exercise of these powers. We on this side of the House are happy to lend our support, in the best traditions of bipartisanship, and understand the reasons for the urgent nature of the measure. I would like to place on record that Her Majesty’s Loyal Opposition give their full support to this order.
Baroness Randerson
I thank both noble Lords who have participated in this brief debate for their support and I will do my best to respond to the points raised. I thank the noble Lord, Lord Bew, for his broad support. He referred to paragraph 8.4 of the code and read an extract from it. I hope noble Lords will bear with me if I read some further extracts in response to illustrate my point.
The noble Lord referred to the balancing of the two rights. If you read the code as a whole you will see that it acknowledges the supreme importance of the right for one’s life to be protected and the obligation to protect life. There was a long consultation on this code and changes were made to it as a result, so it has been fairly thoroughly looked at. If you look further in the code, paragraph 8.6 says:
“Officers should exercise consideration when entering and searching premises. If entry is forced, officers should endeavour to cause as little damage as possible … officers must ensure the building is left secure”.
Paragraph 8.8 makes the point that:
“Where practicable, officers should seek the co-operation of any person in the dwelling”.
Paragraph 8.9 says:
“Officers should exercise their powers courteously and with respect for persons and property”.
So it goes on.
When the code deals with the need to enter premises—which may be a building but could be a field or vehicle—it acknowledges that you have to recognise that people, as well as having the right to have their life protected, also have a right to a private life. It goes on to explain that one right has to be exercised with a view to the other. I believe the code of practice enshrines the right balance.
I thank the noble Lord, Lord McAvoy, for his support. He referred to the importance of the code building on safeguards. He paid a very important tribute to the PSNI. The police service in Northern Ireland is a devolved issue, but the code was developed in very close collaboration with it, and my right honourable friend the Secretary of State for Northern Ireland keeps very close links with the PSNI. Its involvement in the drafting of this code is essential to its smooth operation in the months and years to come. Finally, the noble Lord referred to the importance of rigorous scrutiny and put his finger on the key point. A process of rigorous scrutiny provides the transparency that ensures the integrity of the process. I hope the noble Lords will feel able to support the order.