Europol Regulation: European Union Opt-In
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The Parliamentary Under-Secretary of State, Home Office (Lord Taylor of Holbeach)
My Lords, I am grateful to the noble Lord, Lord Hannay, and the European Union Committee for calling this debate. I am pleased that we have had such a wide-ranging discussion, although some noble Lords have made a little bit of fun with expressions such as “hokey-cokey”. At bottom, the debate has been firmly rooted in the issues that the Government are having to consider and deliberate on. I think that noble Lords have taken their cue from the report and I am therefore extremely grateful to the noble Lord, Lord Hannay, and his committee for the clarity with which the report presents the issues before the Government.
I must say right now that the Government have not decided whether to opt in to the measure at this stage. The arguments are finely balanced. I do not feel that this decision has been overshadowed by any other decision which is also before the Government at this time. The point made in the committee’s report is that Europol and its future is an entirely separate issue. The noble Lords, Lord Judd and Lord Foulkes, referred to the importance of Europol in the fight against cross-border crime.
We also need to protect the independence of our own law enforcement agencies and there are elements in the draft measure which cause us concern. We therefore need to decide whether it would be better to opt in at this stage and use our vote in the negotiations to try to improve the proposal or to stay out for now and reconsider our position once the final text is agreed. Both options are open to us.
In saying that, I want to be clear that we strongly support Europol as it currently operates. As noble Lords have pointed out, we work very closely with it in tackling many serious offences, such as people smuggling and online child abuse. My noble friend Lord Sharkey gave some detailed examples of where Europol has been important in tackling cross-border crime affecting this country. Indeed, the noble Baroness, Lady Smith, also recognised that point of view. Europol provides real benefits to our law enforcement agencies. It is an effective and well run organisation with strong leadership. Indeed, as noble Lords have pointed out, with a Briton as its director, the UK plays an important part.
However, we are worried that some aspects of the new proposals may risk making our law enforcement agencies accountable to Europol, which would be a different thing. Policing is a core function of a sovereign country and must remain a member state responsibility. Perhaps I may illustrate this with an example. I refer to the proposals on police training. I am pleased that the European Union Committee shares our concerns about the proposed merger between the European Police College and Europol. The noble Lord, Lord Hannay, confirmed that in his opening speech. However, the Commission’s proposals go beyond the merger. They would give the Europol academy a much broader role than CEPOL currently has in police training, significantly expanding the EU’s responsibilities in an area that really should be left to member states.
We also have concerns about the stronger obligation to give Europol data, to which I shall perhaps return later in response to contributions. We accept of course that Europol needs good-quality intelligence from member states if it is to do its job properly. This country has a good record in that respect. But the new regulation goes far beyond specifying exactly what must be shared and in what circumstances. It does not allow us to withhold information that would threaten national security or harm an ongoing investigation. That worries us because it seems to undermine the control of member states over their law enforcement intelligence. Another factor we perhaps need to bear in mind is that it also risks overwhelming Europol with data provided by member states without regard to its quality simply to avoid being taken to the European Court of Justice.
Another concern is the provision that allows Europol to ask member states’ law enforcement agencies to carry out investigations. Europol already has some powers in this area but the new regulations strengthen them, which suggests a presumption that a member state will comply with Europol’s request. Any reason for not complying could be subject to challenge before the ECJ. Indeed, my noble friend Lord Sharkey acknowledged that this was a risk. We would have real concerns if that led to the European courts judging our policing priorities.
The committee has argued that we should opt into the text and negotiate out these provisions. That is an option, especially as opting in before 30 July would give us a vote in the negotiations. However, the proposal is subject to qualified majority voting, so if we did opt in we could still be out-voted. We would then be bound by the outcome even if we did not get the changes we were seeking.
It is right to bear in mind that the decision to stay out at this stage will not necessarily exclude us from Europol for ever. We would remain involved in the negotiations and would have another chance to take part once the measure had been adopted. That would give us the advantage of knowing exactly what the regulation would require of us before we signed up to it but with the offset of having no vote in the negotiations.
Lord Foulkes of Cumnock
My Lords, while the Minister is going through these arguments, perhaps he could explain why he has had no support from his own Back-Benchers and why none of the people who gave evidence to the sub-committee supported his point of view? Why has he not been able to persuade anyone inside or outside this House?
Lord Judd
I am rather confused by what the Minister is saying. Do the Government agree that we best look to our interests on international crime and terrorism by being in an arrangement which ensures maximum European operational effectiveness? If they do agree that that is the case, how will we make sure that the regulation is what it should be if we sit on the sidelines, wait until others have decided and then make up our minds as to whether or not we want to join?
Lord Taylor of Holbeach
I have clearly said that we are not determining whether we will be in the negotiations or sitting and observing them. We are not likely to be passive—this Government are not inclined to be passive—and we shall certainly not be passive on an issue in which this country plays an important part, such as the future of Europol.
I am trying to be even handed on the issue. The Government have not made up their mind. We recognise that there are differences. That is why I have made clear that there are advantages in being a party to the negotiations having opted in, but I also pointed out the disadvantages that we might not achieve what we want to achieve through those negotiations and we would not have the freedom to negotiate from outside if we did not opt in. That is a reasonable position to present and I hope that noble Lords will accept it. There are strong arguments either way and the Government have not yet decided which option they will take.
Let me now deal with some of the points raised by the committee in its report. We agree that the data protection provisions in the regulation should take full account of the draft data protection directive and regulation. We also support appropriate scrutiny of Europol by the European Parliament and national Parliaments, a point made by the noble Lord, Lord Hannay. However, we would need to know how the proposals to disclose classified information to the European Parliament might work.
The noble Lord, Lord Hannay, said that US information is higher than other member states. I can confirm that the UK is currently in the top three countries that provide data. As I have indicated to noble Lords, whether or not we opt in, we will fully participate in negotiations and work closely with member states to seek the necessary amendments to these draft proposals. In response to the question put by the noble Lord, Lord Hannay, on retaining CEPOL, following the announcement of the closure of the Bramshill site, the Government’s priority is now to relocate the College of Policing so that it will be put on as strong a footing as possible to support policing in the UK. Other member states have expressed an interest in accommodating CEPOL, and there seems little point in insisting that it should stay in the UK just for the sake of it. We expect that the new proposal will repeal and replace the existing Europol Council decisions, although this does remain subject to negotiation. No final decisions have been made as to whether the Government will seek to rejoin as part of the wider 2014 opt-out decision. That decision has not been determined.
The noble Lord also asked why the debate scheduled for 3 July in another place was postponed and whether it will be reinstated. In truth, the debate was postponed to give the Government more time to consider the important voice of the opt-in and to reach a final view on it. The noble Lord will be aware that opt-in debates in another place are held on a Motion setting out the Government’s position. As I said earlier, we have not yet reached a decision on what that position will be. However, the Government are clear about their intention to hold a debate on this matter in another place, and such a debate will take place.
Baroness Smith of Basildon
My Lords, I apologise to the noble Lord because he has been generous in giving way. He has said that time will be made for the other place to debate this issue once the government decision has been made. The decision has to be taken by 30 July, which is the last sitting day in your Lordships’ House before the Summer Recess. However, the other place will finish around two weeks earlier. Can I have an assurance that, if the decision is taken between the other place rising and 30 July when this House rises, the noble Lord will make an Oral Statement so that we can debate the issue on the basis of the decision that is made, not the theory of the decision?
Lord Taylor of Holbeach
I imagine that I will be able to tell noble Lords that it is highly probable that a decision will be made before the other place rises, rather than before 30 July. The business of this House is a matter for the usual channels and I place myself in their hands. However, I would want to communicate any decision of this importance to the House and, indeed, to Parliament. I am sure that that will be acknowledged by my noble friends who occupy the usual channels.
My noble friend Lord Sharkey is correct to say that there are numerous examples of good co-operation. He illustrated the virtues of Europol and why, notwithstanding the discussions on whether to opt in or to let it run and then negotiate, it is such an important institution and we support it. I am aware that we share common ground with other member states on some issues, but there are no guarantees. The issues are subject to qualified majority voting and there have not been any detailed negotiations that have allowed us to gain a clear idea of how much support we have for our concerns. Should we not succeed in amending it, we would be bound by the final text, and that is a matter of concern to the Government.
Perhaps I may respond to the noble Lord, Lord Foulkes. I should like to highlight that there are two separate issues here: the block opt-out and the Europol negotiations. The two issues are not being confused and this debate is about the Europol regulation, not the opt-out.
Lord Taylor of Holbeach
If the noble Lord will forgive me, I am going to run out of time.
Lord Foulkes of Cumnock
My notice said that the House would rise at 10 pm, so we have an hour and a half. I wonder if the Minister will think again because the two issues are related. The recommendation I read out indicates that they are related. If you opt in and there is a block opt-out, and then you have to opt in again, there must be a relationship between the two.
The Minister and I know a little about another member state of the European Union, la belle France. The French are just as concerned about their national interest, their policing and the other concerns that he has expressed. Why does he think that they do not have the same anxiety that this Government seem to be expressing?
Lord Taylor of Holbeach
That is exactly the point that I have been trying to lay before the House and why the Government are deliberating carefully on this. It is a matter of common interest across European countries and of measuring that common interest. This is all a worthwhile endeavour but it requires the national interest to be taken into account. That is the background against which the Government are making this decision. Of course, there is a big issue about the general opt-out but this decision stands alone and is being considered by the committee and by the Government on its own merits. I have tried to demonstrate that this is an even-handed consideration of the issue.
I say to the noble Baroness that, whatever our decision, negotiations are important for us in ensuring the operational independence of law enforcement agencies and the security of our citizens. We expect there to be some common ground among member states, such as la belle France, if the noble Lord, Lord Foulkes, was referring to the interests that a number of noble Lords in the Chamber at the moment have. We are committed to ensuring the best possible outcome from these negotiations. We will need to consider the proposals in detail as the negotiations progress but we agree that strong data protection, for example, is important. The regulations here will need to reflect the data protection provisions being negotiated elsewhere. None is likely to change during the negotiating position. The noble Baroness asked how many other measures are awaiting an opt-in. I know of no others but will seek to find out and let her know if there are any.
This good-natured and deep-thinking debate, despite the hokey-cokey allusions, has considered the seriousness of this issue. As the noble Lord, Lord Judd, said, the security of the country requires us to make sure that law enforcement agencies have the co-operation they need from other European countries. I stress that the Government still have an open mind on the issue. We will of course consider the view of your Lordships’ House and the arguments made by noble Lords here tonight very carefully before we make our decision. I assure the House that the Government will ensure that this House, and Parliament are kept informed about that decision.
Lord Hannay of Chiswick
My Lords, this has been a relatively brief debate, and I hasten to assure those faithful few still here that I do not intend to apply Professor Parkinson’s law and use all the time available to wind it up. I think that the common point among all noble Lords who participated was the recognition that serious crime is an international problem now and that we need a great deal of co-operation to deal with it. That really was agreed by everyone. The noble Baroness, Lady Smith of Basildon, said that crime does not stop at Calais. I sometimes think that some of the Government’s supporters believe that crime starts at Calais, but we can leave that on one side. The fact is that it occurs on both sides of the Channel and the perpetrators are more and more imaginative about their use of technology and very rapid and easy travel, and all the other tricks of the trade, and that is why we need this sort of co-operation to deal with it.
I thank the faithful members of the sub-committee that I chair, the noble Lords, Lord Sharkey and Lord Judd, for having participated in this debate. The noble Lord, Lord Sharkey, very helpfully drew our attention to some of the practical consequences of Europol co-operation. Sometimes our debates must seem a bit theoretical, but he brought us firmly back to earth. The noble Lord, Lord Foulkes, who is on the EU Select Committee, was also very convincing.
Even I find this opt-in and opt-out business pretty confusing sometimes. We should remember, if we find it infuriatingly confusing, that it is entirely of our own making. No other member state goes through these agonies. This is an exercise in sadomasochism. I am not contesting it because I know how it came about. The various previous Governments who negotiated these rather complex arrangements were justified in doing so, in my view, but the complications are of our own making, so we should not get too irritated by them even though they are difficult to understand.
To answer a question asked by the noble Baroness, Lady Smith—the noble Lord did not answer it—first, there is the directive on the proceeds of crime, which your Lordships’ committee recommended the Government should opt into. The Government did not opt in, but they have not excluded opting in at the adoption stage. That is the position which the noble Lord described in relation to Europol. Rather more seriously, there is the European surveillance order, in which the Government do not have an opt-in or an opt-out; they have simply failed to implement a piece of European legislation which they agreed to. It came into force throughout the European Union in December last year.
The European surveillance order is actually rather important for British citizens because it provides the possibility for someone who is subject to a European arrest warrant to be bailed in their own country: that is, to stay in this country and avoid being taken to, say, some insalubrious jail in Greece where they are kept while awaiting trial. My own view, and that of everybody who participated last week in the very good seminar in which the noble Lord’s colleague, James Brokenshire, participated very positively, is that it is unconscionable that we have not opted into this. Apparently the reason is that the Government did not wish to pre-empt the view they were going to take on the European arrest warrant, but as a result of that decision there are British citizens who are not able to make use of the European surveillance order and be bailed in this country. That number will grow as the delay grows.
Turning to the purpose of the debate—the Europol regulation—I am most grateful to the noble Lord, Lord Taylor, for his habitually calm and friendly presentation of his position. I think I understand the complexities of the timing in the other place. The window of opportunity is rather modest, since the other place goes away on 18 July. It is the normal practice to give it one week’s notice of a government Motion, which takes us to 11 or 12 July, but after all that will be after 5 July, and we all know what is happening on 5 July in the other place on matters European.
I thank the noble Lord for his very helpful response about how he would keep the House informed of a decision by the Government. I am sure that it can be done in a light and easy way. Of course, there is no question of another debate of this sort, but if he could find a way of doing that, it would be really helpful, and I accept his undertakings on that with great thanks.