Terrorism Act 2000 (Code of Practice for Examining Officers and Review Officers) Order 2014
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Lord Taylor of Holbeach
That the Grand Committee do consider the Terrorism Act 2000 (Code of Practice for Examining Officers and Review Officers) Order 2014.
Relevant document: 4th Report from the Joint Committee on Statutory Instruments
The Parliamentary Under-Secretary of State, Home Office (Lord Taylor of Holbeach) (Con)
My Lords, as noble Lords will know, Schedule 7 to the Terrorism Act 2000 allows an examining officer to stop and question—and, when necessary, detain and search—individuals travelling through ports, airports, international rail stations or the border area to determine whether that person appears to be someone who is or has been concerned in the commission, preparation or instigation of acts of terrorism. Examining people at ports and the border area contributes on a daily basis to keeping the British public safe. Those engaged in terrorist-related activity travel to plan, finance, train for and commit their attacks. Most major international terrorist plots have involved individuals travelling through international borders to plan and prepare their attacks. Schedule 7 is an important part of the UK’s counterterrorism strategy and integral to the UK’s border security arrangements.
The Anti-social Behaviour, Crime and Policing Act, which received Royal Assent on 13 March 2014, made changes to Schedule 7—and to Schedule 8, which provides for the treatment of persons detained under Schedule 7 powers. These changes were made following extensive public consultation in 2012 and are intended to reduce the potential scope for Schedule 7 to be operated in ways that may interfere with individuals’ rights unnecessarily or disproportionately, while retaining operational effectiveness.
The changes made to Schedule 7 include: reducing the maximum period of examination from nine to six hours; extending to individuals detained at a port the statutory rights, already available to individuals detained under Schedule 7 at a police station, to have a person informed of their detention and to consult a solicitor privately; clarifying that the right to consult a solicitor includes consultation in person; ensuring that all individuals examined for more than one hour are formally detained and given their statutory rights; introducing statutory review of the need for continued detention; introducing a statutory requirement for training of examining and reviewing officers; establishing a statutory provision that undertaking strip-searches of persons detained under Schedule 7 powers requires reasonable grounds to suspect that the person is concealing something which may be evidence that they are involved in terrorism, and requires a supervising officer’s authority; repealing the unused power to seek intimate samples— for example, blood or semen; and making express provision that an examining officer may make and retain a copy of information obtained or found in the course of an examination.
Noble Lords will appreciate that our discussions are consequential on the full debates that we had when the Bill was before us. The existing code of practice must be revised to reflect the changes made to the powers by the Anti-social Behaviour, Crime and Policing Act and to make specific provision on training and reviews. I am grateful to noble Lords for attending this debate and beg to move.
Baroness Hamwee (LD)
My Lords, this is consequential on previous debates. It is amazing how much and how quickly all that agonising goes out of one’s head, and one has to remind oneself of the subject of it. I am glad that we have had the chance to consider the draft code of practice and the covering SI. What concerns me is the delay in the introduction of the review arrangements, which I assume is because it has simply not been possible to get the training in place quickly enough. I am not suggesting that the better provisions of the legislation, as they are after the work done on the then Anti-social Behaviour, Crime and Policing Bill, should be delayed. However, could my noble friend confirm that training is on track for the more senior officers, who will be detailed to undertake the reviews, and how supervision will be carried out in the mean time? I notice that the code says that it will be delayed until the relevant provisions come into force. However, in distinction, the paragraphs about audio recording say that there is no requirement to follow the code until next April. That is the time when the review provisions are to come into force, or so we are told. I do not know whether I am seeing a problem where there is none. Perhaps my noble friend has information, although he may not, about the proportion of officers who will be trained to undertake the more senior role.
I shall raise a point again that I raised during the passage of the Bill. Will training cover how officers should deal with the family or other accompanying passengers of the individual who is being held or detained? I think that I mentioned during the Bill’s passage that I had come across an example, which I hope was a rare one, of an individual being told that, if he insisted on waiting for a legal representative, it would be a problem for his elderly mother, with whom he was travelling. In other words, inappropriate pressure was put on him to forgo a right. I am also not clear what happens if, because of detention, passengers miss their flights. I hope that my noble friend can also confirm that the facilities for this work are satisfactory and appropriate. We have talked about short-term holding facilities a good deal, of course.
The code refers to legal privilege, where the restriction seems to be on copying, not on looking at it. You cannot erase something from your head although, obviously, there would be a restriction on using it—but what happens if a privileged document is copied when it should not be?
Paragraph 41 suggests that consultation with a solicitor is invariably not allowed. This is in the examination part of the code, not the detention part. I had thought that it was always allowed, but not necessarily with a solicitor of the individual’s choice. Is that only when the individual is actually detained?
Paragraph 42 states that an examining officer may grant a request that a named person is informed of the examination at his discretion and that:
“Where reasonably practicable, the request should be granted”.
Is it discretion or reasonable practicality?
Paragraph 45, which is where we get on to detention, states that the power may be exercised,
“where the examining officer considers it is appropriate to do so”.
The last bullet point of paragraph 46 states that:
“Detention is an option (during the first hour of examination)”.
Is that bullet point just about the first hour of detention? If I am asking too many questions, I have no doubt that my noble friend will ask to write to me.
However, I will raise a couple of matters which I hope he can confirm now. First, paragraph 7.2 of the Explanatory Memorandum reads:
“Examining people at ports and the border area contributes daily to plan, finance, train for, and commit their attacks”.
I shall not reread that, but when the Minister looks at it, he will realise that some words must be missing. I do not think you detain people in order to help them plan their attacks. I have had a word with the Minister’s officials, and I think they think it is a typo, but quite an important one.
My second question is on similar lines, but I think I am on dodgier ground. It is on annexe A to the code, which explains to the detainee that he is detained to determine essentially either whether he is involved in terrorism or whether he is entering or leaving Northern Ireland. I thought, or perhaps I had assumed without applying much thinking, that it should be “and” rather than “or”. Looking at Schedule 7, Northern Ireland is dealt with in a separate paragraph. Will my noble friend confirm that detention can be solely to establish whether somebody is going into Northern Ireland without any terrorism-related aspect? I am sorry to have slung that at my noble friend. I looked at this rather too close to the time of the debate to give him notice of the rather detailed points which I have just raised.
Lord Rosser (Lab)
I will be giving the Minister a somewhat easier time than he has just been given by the noble Baroness, Lady Hamwee.
I thank the Minister for the explanation of the purpose of this order, which brings into operation a code of practice for examining officers and review officers in respect of the exercise of the powers under Schedule 7 to the Terrorism Act 2000 and under Schedule 8 to that Act where the powers are exercised in connection with Schedule 7, as amended by Schedule 9 to the Anti-social Behaviour, Crime and Policing Act 2014. The code of practice revises the preceding code of practice to take account of amendments made to Schedules 7, 8 and 14 to the Terrorism Act 2000 by the Anti-social Behaviour, Crime and Policing Act 2014.
The Explanatory Memorandum refers to commencing the remaining provisions of Schedule 9 to the 2014 Act this month to coincide with the issue of the code of practice brought into operation by this instrument, with the exception of the provision to which the noble Baroness, Lady Hamwee, referred requiring review of the detention of persons detained under Schedule 7, which are being delayed until next April to allow sufficient time to develop, accredit and train all examining and review officers. I shall pursue some of the points she raised. Will the Minister say how many examining and review officers still require to be trained, how long the training of each officer takes and why the required training has not been completed by this month and has had to be delayed? The need for such training must have been known for some time. Could the Minister also spell out the impact of this delay, in practical terms, including any impact on the provisions of this instrument, which comes into force at the end of this month?
The Explanatory Memorandum also refers in paragraph 4.5 to consultation on this issue having taken place with “National Business Leads”. Perhaps the Minister could remind me who or what this organisation is or these people are.
As the Minister said, the Explanatory Memorandum states in paragraph 7.2 that:
“Schedule 7 is an important part of the UK’s counter-terrorism strategy and key to the UK’s border security”.
The memorandum goes on:
“The changes to Schedule 7 in the Anti-Social Behaviour, Crime and Policing Act are intended to reduce the potential scope for Schedule 7 powers to be operated in an unnecessary or disproportionate way, whilst still retaining their operational effectiveness”.
It then lists the changes made under the 2014 Act. They include ensuring access to legal advice for all individuals examined for more than one hour. In that regard, could the Minister clarify what legal entitlements people have when detained under Schedule 7? Will they have access to free legal advice?
The changes also include reducing the maximum period of examination from nine hours to six hours. The Government and others recently expressed concerns about the numbers going from this country to Syria apparently to be trained and engage in violence in the current conflict, and the possible consequences of that. In the light of concerns about what might happen if and when these people return to this country, with or without others, and what their intentions might then be, is it the Government’s view that all the changes made by the 2014 Act, including reducing the maximum period of examination from nine hours to six hours, actually enhance our ability to minimise the risk of those potential threats? Do the Government believe that the new code of practice provided for in this order—reflecting the amendments made to Schedule 7 to the 2000 Act by the 2014 Act—contribute to rather than potentially diminish our security in the present climate?
I simply conclude by commenting that the Explanatory Memorandum states that,
“the majority of consultation respondents agreed that the revised code clearly reflected the changes made to Schedule 7 powers in the”,
2014 Act. What it is not able to say is that the majority of respondents agreed that in today’s climate all those changes are still appropriate. We will not oppose this order, but I hope that the Minister will respond directly to the points and questions I raised, as well as those of the noble Baroness, Lady Hamwee.
Lord Taylor of Holbeach
My Lords, I thank both my noble friend Lady Hamwee and the noble Lord, Lord Rosser, for their contributions to our discussions on these issues. It is important that I try as best I can to answer the questions now. If there are things left unsaid at the end, I am obviously very happy to write. It was fortunate that there was a brief adjournment before we started because it gave my noble friend a chance to have a word with officials and give advance notice of the things that she was particularly concerned about. Perhaps I can deal with the details.
On paragraph 7.2, we can give an undertaking that we will correct the wording so that it reads as it should. It is perhaps not capable of being interpreted at the moment. As my noble friend admitted, she was on slightly weaker grounds when it came to annexe A because the wording is designed to ensure that the code of practice works equally well whether the person is stopped at a GB port or the person is stopped at the Irish border. That is why the wording is as it is. Perhaps my noble friend will tell me if she feels that that is not correct.
She asked whether training was on track. It is on track and is a nationwide programme. We are working out a training package and rolling it out nationally because we want to make sure that we operate to consistently higher standards. I know that the noble Lord, Lord Rosser, asked for quite a few details about the training programme, the time taken and what was involved. If he is happy for me to do so, I should be pleased to write to him with further details of what the training involves.
Lord Rosser
I am happy to await a letter from the Minister but can he cover in his reply why the training has been delayed? The word “delay” is used in the Explanatory Memorandum. I mentioned that the need for such training must surely have been known for some time. He could address that point in his letter, as well as the impact on the instrument of the delay referred to in the Explanatory Memorandum.
Lord Taylor of Holbeach
I am quite prepared to do so. I know off the top of my head that the problem is that standards are not equal across the country, but we are obviously now trying to make sure that officers’ roles under these powers are considerably enhanced and need to operate properly at every point. We are cutting down the hours, which is fine; there is no security risk by doing that as long as the process is properly managed and dealt with. That is part of the reason for the change.
My noble friend said that she thought there was perhaps already an opportunity for consultations. As I say, the interview depended on whether it involved those detained at a port or those detained in a police station. Those detained within a port were not necessarily supported with the same rigour as those detained within a police station. That will change under this new regime.
The noble Lord, Lord Rosser, asked which organisations we consulted. I do not have those names but I would again be happy to write to him. If I may, I will write both to the noble Lord, Lord Rosser, and to my noble friend Lady Hamwee together, so that they will also have the answers to each other’s questions. I know that they share an interest in those answers.
That more or less concludes my response, although I wish to mention a couple of other things. Review provisions will commence on 1 April 2015. Audio recording is delayed to allow facilities at ports to be provided; noble Lords will understand that facilities at ports are not as good as they may be elsewhere, but it is already a requirement to report interviews at police stations.
I hope that I have been able to deal with at least some of the questions. I remind everyone that only 1% of examinations result in detention, and 96% of those examined under Schedule 7 are held for less than an hour. We are dealing with those in detention, who are a relatively small number of individuals, but we must make sure that they are properly safeguarded and that we have processes in place to ensure that the security of the country is maintained.
Lord Rosser
My Lords, I do not know whether the noble Lord wishes to respond to me now or in a letter, but I referred to the reduction in the period for examination from nine hours to six hours, and to the concerns expressed very recently about what is happening with people going to Syria, then perhaps returning to this country, and what their intentions may be. I asked the Minister whether the Government feel that the provisions covered in the code of practice, and which arise as a result of the 2014 Act, are all still appropriate in the light of the security concerns being expressed by the Government and others in relation to Syria.
Lord Taylor of Holbeach
I can assure the noble Lord that they are appropriate. Indeed, the independent reviewer of terrorism legislation recorded in his report in 2012 that these particular interviews have been instrumental in securing evidence which has assisted in terrorist prosecutions, and that they are very important. The truth of the matter is that the number of people detained for over six hours is very small and usually confined to circumstances where the examination was more protracted than it needed to have been. We are now satisfied that we can do this within six hours, otherwise we would not be bringing this legislation forward.