Baroness Newlove (Con)
My Lords, I ask the Minister to listen to some of the views in your Lordships’ House in respect of the support for victims. As the Victims’ Commissioner for England and Wales, I welcome much of what is in the Bill and, as I mentioned at Second Reading, I look forward to working with the anti-slavery commissioner at an early stage to ensure consistent, co-ordinated and high-quality support for victims of trafficking. It seems that as it stands, the Bill considers the needs of victims to be mainly in securing successful prosecutions of the perpetrators. While I want to see the guilty convicted and punished, I want the Bill to go further for victims of trafficking by helping to ensure that they are helped to recover and supported in leading fulfilling and healthy lives.
We in your Lordships’ House have all been shocked to learn about the experiences of some of the victims of trafficking. We have heard about the physical, sexual and emotional abuse and about almost unimaginable cruelty, so we should understand that helping victims to recover cannot be achieved in a matter of weeks or months. It may take a number of years, or indeed a lifetime. Yet I have seen for myself that with the right support, victims can be helped on to a recovery journey and to get on as best they can. We must not stop the support for victims of trafficking when a court case is over; we must consider them as a traumatised human being, not simply as a means to secure a conviction. That is why I want to work with the anti-slavery commissioner; I want to ensure that the victims of these terrible crimes can access good-quality services for as long as they need them.
I had a very helpful meeting with my noble friend the Minister last week to discuss these issues and I would welcome meeting the anti-slavery commissioner soon. We considered a number of options which may come under the duty to co-operate in the Bill. We could have a memorandum of understanding to make sure that there is nothing specific between the victims’ commissioner and the anti-slavery commissioner. We could specify in more detail how the commissioners could work together regarding the commissioning and quality of services, and the provision of services for victims. We could also have the two commissioners co-operating by agreeing in letters to work together to make sure that we support the services of victims.
What matters to me most is not how this co-operation is achieved but that it is achieved. As victims’ commissioner, I want all victims to have a voice and for them to be helped to recover from their ordeal. The quality and duration of the help they need should be determined by their needs and not by the type of crime they have suffered. The criminal justice system should expect to fit around the victim instead of the victim fitting around the system, as is the case today. As I said at Second Reading, I look forward to meeting the anti-slavery commissioner to consider some of these options, but I ask the Minister to look at how the support of victims is going to be carried forward. We need this Bill and we welcome it but as victims’ commissioner I meet many victims and we have to support them through the lifetime of their journey to make them better people and to give them healthier lifestyles.
The Parliamentary Under-Secretary of State, Home Office (Lord Bates) (Con)
My Lords, it is a privilege to be able to respond to this extraordinarily high-quality debate. It is a large group of 26 amendments and there have been 15 excellent speeches. In the time permitted it will perhaps not be possible to go into every detail but I assure noble Lords we will—as we have done throughout—pay considerable attention to all the points made very powerfully and eloquently during this debate and seek to respond to them as we go through the remaining stages of the legislation in your Lordships’ House.
I will try to direct as many of my remarks as possible to addressing the many specific points that were made. The noble Lord, Lord Warner, began in good style by asking me to reflect on the previous legislation which had just secured its passage through your Lordships’ House, and invited me to think about whether we ought to be as accommodating of amendments. I want to put on record that the Government continue to amend and refine this piece of legislation in the light of our own experience and consultations but also in the light of the comments made and the concerns expressed by Members of your Lordships’ House and, indeed, the other place. As evidence of that I was just calculating that there are 16 government amendments in the Marshalled List today and there will be many more to come.
We have seen the Bill strengthened to include child trafficking advocates. There have been changes with regard to the victim’s personal circumstances, including their age. There is a statutory defence—which was a major change—and reparation orders to ensure that victims are actually compensated. Identification of victims has become part of the commissioner’s remit and the commissioner’s independence has been put in the Bill. We have had a new clause on supply chains, which was introduced in the other place. We have had a requirement on child trafficking advocates to act in the best interests of the child. We have introduced a statutory defence for victims. We have introduced an amendment so that a lack of consent is not required; it applies to all children. I do not mean to be tedious and to test the patience of your Lordships’ House but I put on record that the Government have engaged with people across the House, recognising that this is a landmark—or démarche as my noble friend Lord Deben put it—piece of legislation. We all want to make sure that we get it absolutely right.
As the starting point of an excellent contribution, the noble Lord, Lord Warner, referred to pre-legislation scrutiny in refining this legislation. It identified four elements—prevent, protect, prosecute and partnership. It is no coincidence that when the modern day slavery document was produced just before Committee in this place we identified four elements—prevent, protect, pursue and prepare. They broadly followed that line of alliteration highlighted in the previous Bill and in the previous consideration of this, so that is part of what we are trying to do.
The noble Lord, Lord Patel, said that he was very concerned about redaction, essentially. That is a key concern that a number of noble Lords have referred to. He wondered how this fitted in with other commissioners and whether it was going to be singled out and limit the effectiveness of the designated Independent Anti-slavery Commissioner. I draw noble Lords’ attention to Clause 41(6)(a), (b) and (c). That is not simply carte blanche to say that matters can be redacted from the report that may lead people out there to question its independence and authority. There are very specific instances that would be given where, for example, something,
“would be against the interests of national security, … might jeopardise the safety of any person in England and Wales, or … might prejudice the investigation or prosecution of an offence under the law of England and Wales”.
When I say England and Wales, I mean simply that the Bill goes on to reference Scotland and Northern Ireland after that.
I know that my noble friend Lady Hamwee asked whether this was required under the independent reviewer of terrorism legislation provision. That is the case; the Secretary of State must be satisfied that it will not prejudice criminal proceedings. Then there is the Independent Chief Inspector of Borders and Immigration. If the Secretary of State thinks the content is undesirable for reasons of national security or might jeopardise individual safety, then information can be redacted under those very narrow and specific circumstances. It was actually with regard to the latter case that we sought to draw the wording for this part of the Bill from the latest piece of legislation that we had. It has very specific elements in it.
With regard to the location of the commissioner, I am aware of the view that he should perhaps sit outside the Home Office; we had that debate, and a number of noble Lords said that. Physically, he sits outside the Home Office in Globe House, with the Independent Chief Inspector of Borders and Immigration. It was interesting to talk to Kevin Hyland last week. We went through the comments that had been made in Committee on Wednesday. He expressed the view that being attached to the Home Office, rather than standing alone, helped his case. He coined a phrase to me, which he gave me permission to use, that if he were on his own it would be a bit like being a corner shop trying to take on Tesco, although I suggested that we use the word “Sainsbury’s” just in case that was not appropriate. The point is that he would be a small, independent operator seeking to battle in the marketplace with a major government department. The fact that he carries the weight behind him of one of the major offices of state seems to him to help rather than hinder his case.
Those sentiments were backed up by the conversation that Kevin Hyland had with the noble and learned Baroness, Lady Butler-Sloss, at the meeting this morning of the European Commission, where he seemed to reiterate that he felt that he was given a degree of independence to operate as he saw fit. Linking back to the conversation we had on Wednesday in Committee, he also made the point that he felt he had freedom to appoint from outside the pool of the Home Office. I have since sought clarification of that and that is the case. I can inform your Lordships’ House that he is at liberty and not restricted to drawing from the Home Office. He might draw from there some of his more junior roles, but the request was that the senior roles should be ones that he appoints and that they should be people who he wants to head up particular elements. Therefore, I was heartened that some of the appointments he was discussing were at a senior level but from outside.
Lord Warner
When the Minister replies to my noble friend, could he say how what he said about Kevin Hyland’s views squares with Clause 40(4), which makes it very clear—if I understand the English in the Bill—that the Secretary of State is in the driving seat on the staff made available to the commissioner? If I may put this rather unkindly to the Minister, he may be dropping the commissioner who has been appointed somewhat in the cart, in that it may convey to your Lordships’ House that this man actually is a creature of the Home Office rather than the other way round.
Lord Bates
I certainly would not want to do that. I agree that there should be a meeting. I would be very happy to facilitate that meeting, perhaps between conclusion of Committee and Report. My reading of Clause 40(4) is that, as these appointments are within the Home Office and as the Home Secretary has made this a personal passion, then clearly from a procedural point of view there ought to be a sign-off from the Secretary of State to those positions. That would seem eminently sensible in the sense that they are accountable to your Lordships’ House, delivering on the strategy before us.
Lord Warner
I want to press this point with the Minister as we are in Committee. Is he saying then that other commissioners in the Home Office or outside, such as the Children’s Commissioner, get sign-off from the departmental Secretary of State before they appoint people?
Lord Bates
On that point, one of the things I was coming to in my rather conciliatory wind-up at the end—but I will bring it forward if I can—was to say that of course we are open to ensuring that, in the words of the noble and learned Baroness, Lady Butler-Sloss, the words match the deeds. If refinement is necessary to communicate what is happening—namely, that we have an Independent Anti-slavery Commissioner who is appointing his staff, in whom he has confidence, and setting up his operation in a way that he sees fit and will be held accountable for—then we will continue to look at that.
The noble Baroness, Lady Cox, reminded us of the global dimension. Again, that is extremely important and we are mindful that we need to look at ways in which that could be strengthened. In the strategy document—the noble Baroness referred to this element, as did the noble Baroness, Lady Kennedy of Cradley—we have strong sections on page 54, from section 6.9 on, which talk about country plans. I know the point was made that these country plans ought to cover all countries, all high commissions and all embassies. However, with limited resources, we want to make sure that at least those countries that we are all aware must be at the vanguard in stopping the trafficking and tackling the problem are the ones that we direct resources to. I am delighted to see on the Front Bench my noble friend Lady Anelay, who will confirm that we have a number of projects, though the FCO and DfID, working on tackling modern-day slavery in India, Bangladesh and west Africa under the Work in Freedom programme working in partnership with the ILO. Those projects are also working with girls and women in south Asia and in the Middle East in the domestic worker and garment manufacturing sectors. Therefore, those are specific projects that we are doing.
Does more need to be done? Yes. I recognise in particular the noble Baroness’s deep expertise in this area and long track record, as she very kindly gave me a copy of her latest book, This Immoral Trade. I was particularly struck by some of the chapters where she had taken direct verbatim evidence from people who had been victims in South Sudan and Uganda. There were some inspirational stories as well, such as the young man who had gone on to compete in the Olympics, despite having been trafficked as a young boy. Therefore, I am aware of the need for us to go further. I think that that will be something that can be included in the anti-slavery commissioner’s strategy and plan. In fact, we would like to see that enhanced and expanded.
We have also experienced over the past few days the major conference that took place at Lancaster House, addressed by the Home Secretary and the Independent Anti-slavery Commissioner designate. It was attended by 30 countries of the Santa Marta group—a group set up by the Home Secretary with other countries to try and get a more co-ordinated and robust international response. I hope that noble Lords will feel heartened by that. I can also advise noble Lords that, ahead of their next meeting next year, the group of 30 countries working hand in hand in this area, in partnership with the churches, including the Vatican and the Bishops’ Conference, have identified how this can be prosecuted further. They indentified four topics to work on: exploiting technology to tackle the problem; education and raising awareness among professionals, particularly with children; increased engagement with the diplomatic community and embassies; and the fact that new models of exploitation continue to emerge. That is the working task of the Santa Marta group. I would certainly be happy to facilitate a meeting and engagement between that working group of the Santa Marta group and noble Lords with an interest in that area.
Regarding the comments raised by the noble and learned Baroness, Lady Butler-Sloss, about the supply chain, I am getting briefing on that coming through to me, but it may well arrive in time for our next day in Committee on Wednesday, when we will look at the supply chain in more detail under Part 9.
The noble Baroness, Lady Royall, to whom I pay tribute for her long track record in this area, asked about, among other things, the operation of the interdepartmental ministerial group on modern slavery. I can confirm that the Home Office chairs that group and it works closely with the Foreign and Commonwealth Office and DfID, as would be expected. The Ministry of Justice, in which the Victims’ Commissioner my noble friend Lady Newlove is located, the Department for Education, where the Children’s Commissioner is represented, the Department of Health, the Department for Work and Pensions, the Attorney-General and the Department for Business, Innovation and Skills all take part in that cross-departmental group.
My noble friend Lady Hamwee asked for specific information on data sharing. Clause 41(3) sets out a non-exhaustive list, simply giving some examples of what the commissioner may do. The commissioner may already collect statistics if he feels it would be useful to him. Indeed, this is also covered by the express reference to research in Clause 41(3)(c). We are therefore not convinced that we should seek to insist that the commissioner focus on collecting statistics, given that the interdepartmental ministerial group on modern slavery is already formally tasked with reporting on trafficking statistics. Indeed, statistics are also a major element of the Review of the National Referral Mechanism for Victims of Human Trafficking, which has already been referred to. Section 9 highlights “Data and Intelligence” and the changes that should be made there. There are several recommendations on page 58 on data and intelligence gathering. The Home Secretary has already said that she accepts in principle all the recommendations.
The noble Lord, Lord Patel, asked whether the redaction of reports is different for the Children’s Commissioner. The Independent Anti-slavery Commissioner will be able to require law enforcement agencies to provide sensitive information concerning ongoing investigations into modern slavery offences. This may include information on law enforcement criminal investigation capabilities. The redaction powers are there to ensure that matters of important public interest are not inadvertently put at risk. We would not expect the Children’s Commissioner to request sensitive operational material, but this may be an important part of the anti-slavery commissioner’s role. We have therefore included the redaction power in the Bill.
My noble friend Lady Hamwee asked whether this works across the independent reviewer of terrorism legislation. I reassure my noble friend that the independent reviewer of terrorism legislation also has safeguards built into the legislation regarding reports. The Secretary of State must be satisfied that a report will not prejudice criminal proceedings, as set out in Section 36 of the Terrorism Act.
My noble friend also asked about introducing data-sharing protocols. The Home Secretary has agreed in principle all the recommendations in the national referral mechanism review. They included data-sharing protocols.
The noble Baroness, Lady Lister, was probably having another go at trying to get an answer, so I hope that this is a more satisfactory response. The focus of the commissioner is to drive improvements in the operational response to tackle modern slavery. On the ground, the Government expect that in pursuance of this objective there will be significant human rights benefits. However, the Government are confident that it is not necessary to create a national human rights institution like the Equality and Human Rights Commission in order to achieve this goal. I hope that goes somewhere. Perhaps when she reads it in Hansard, it might help. If not, then of course the opportunity to come back is there.
Lord Bates
My Lords, I thank the noble Lord, Lord Warner, and my noble friend Lady Hamwee for tabling their respective amendments. The provisions that we have put in the Bill enable the commissioner to produce strategic plans and to report in a way that will make a real difference to the fight against modern slavery. Those are important and necessary aspects of the role.
Amendment 72D would remove subsections (4) to (6) of Clause 42, which set out what the plan involves. Removing those subsections would weaken the effect and focus of the plan. It is important that the commissioner sets out a clear plan of action for the time period they specify. The commissioner will be best placed, in consultation with the Secretary of State, to determine what should be in the plan and the period of the plan. Removing those subsections would also seriously weaken the constructive and collaborative relationship we want to establish between the Secretary of State and the commissioner, because the amendment would also remove the provision which permits the Secretary of State to propose modifications to the plan for the commissioner’s agreement.
I fully understand the intention behind this amendment and the concern that the independence of the commissioner should be guaranteed. However, I should set out at the start of my contribution why the provisions in the Bill which relate to the plan take the right approach. If the Independent Anti-slavery Commissioner is to make a real difference on the ground, it is important that he should have a constructive relationship with the Secretary of State. In that way, even if the commissioner’s reports are highly independent and very critical, there is a good chance that they will be implemented and make a real difference, not only through the Secretary of State but through the interdepartmental ministerial group.
The provisions in relation to the commissioner’s strategic plan and reports reflect that. It is the commissioner who prepares the strategic plan. He defines his own role: setting out priorities, objectives, areas he will report on and other activities he will undertake. It is the commissioner who decides how long the plan should last, between one and three years. There is then an opportunity to ensure that there is effective collaboration with the Secretary of State and the devolved Administrations through the process set out for the Secretary of State to approve the plan after consultation with the devolved Administrations. That ensures that the commissioner’s work will properly cover the whole of the UK and that it respects devolution settlements. However, the Secretary of State cannot rewrite the plan. She can approve a plan only where any changes are made with the agreement of the commissioner, so the principle of the independence of the commissioner is respected at all times.
Amendment 73B is consequential on Amendment 72D and removes what the annual report must include. Although I appreciate why the noble Lord has tabled such an amendment, it would not help the commissioner to focus on his key priorities. It is important that the plan indicates what the commissioner will do and the report provides an assessment of how the commissioner has undertaken the activities proposed in the plan. That would mean that the report is not structured or focused on tackling the issues that have been collectively identified as priorities.
Amendment 72ZZA seeks to require the commissioner to prepare a three-year plan as soon as reasonably practicable after their appointment. The commissioner can already prepare a three-year plan under the existing provisions. However, the commissioner may wish to draft a plan for a shorter time period, particularly when first in the role, which is why the provisions enable the commissioner to produce a plan that is between one and three years in length. That gives the commissioner the flexibility to decide the period of any plan, based on what he proposes to deliver in that specified time period and having regard for any other relevant factors.
Amendment 73ZA in the name of my noble friend Lady Hamwee seeks to require the commissioner to report on the voluntary sector’s role in relation to providing protection and support for victims and to make recommendations. I have made it clear that the commissioner will set the strategic plan, in consultation with the Secretary of State, and that the plan will be focused on delivering the commissioner’s key aims; namely, to encourage good practice in the prevention, detection, investigation and prosecution of modern slavery offences and the identification of victims.
At this point I join my noble friend in paying tribute to the remarkable work that the charities and NGOs which operate in this area have done over very many years. In many ways this has come to the fore. It has been picked up as an issue by government and is now in the public square. However, long before it arrived there, many of the NGOs and charities to which my noble friend referred had been doing invaluable work in looking after the broken lives that are the result of these crimes.
I firmly believe that the commissioner in setting out his plan will have full regard to the voluntary sector. The noble and learned Baroness, Lady Butler-Sloss, referred to her conversation with Kevin Hyland, who talked about the importance of NGOs and said that he would perhaps draw someone into his senior team who has a significant and respected NGO background to underscore the importance of partnership in that work. I firmly believe that the commissioner should develop his plan first and I am not convinced that it would be helpful to his independence to dictate very specific areas that he should include at this stage.
Amendment 74ZA seeks to require the commissioner to report on the extent to which he has undertaken activity in providing information, education or training. Of course, that is exactly the type of information that we would expect the commissioner to include in any annual report, as well as the other things he may do in pursuance of his functions as set out in Clause 41(3). However, it is not necessary to specify that the commissioner must report on this particular aspect over and above the other things he may do. In addition, we should not stipulate to such an extent the things that the commissioner must report on. That is exactly the type of constraint we are seeking to avoid.
Finally, Amendments 74AA, 74CA and 74DA require the Secretary of State, the Department of Justice in Northern Ireland, and the Scottish Ministers to lay any strategic plan or annual report they receive from the commissioner as soon as reasonably practicable and no later than within one month of receiving it. Again, I fully accept the intention behind these amendments—to get the reports and plans laid quickly—but they are not needed. The pre-legislative scrutiny report raised this concern. The Government responded positively by altering the Bill so that the annual report has to be laid as soon as is reasonably practicable, as was the Government’s intention in any event. In addition, to support the laying of the strategic plans and annual reports produced by the commissioner, we will be developing a memorandum of understanding between the Secretary of State, the Department of Justice in Northern Ireland and Scottish Ministers to ensure that plans and annual reports are laid promptly and simultaneously, following receipt from the commissioner. This is an area on which all the Administrations agree so that Parliaments and legislatures can undertake scrutiny of them.
In responding, I should deal with the point raised by my noble friend Lady Hamwee about Section 36 of the Terrorism Act 2006. With regard to redaction under subsection (5):
“On receiving a report under this section, the Secretary of State must lay a copy of it before Parliament”
as soon as the Secretary of State is satisfied that doing so will not prejudice any criminal proceedings. That is the only element there.
With those comments and assurances, and in the spirit in which I dealt with the previous group of amendments—that we remain open to considering all the comments made—I ask the noble Lord to withdraw his amendment.
Lord Warner
My Lords, I accept the emollient way in which the noble Lord has responded. We seem to be making progress. When I tabled these amendments I recognised that they were makeweights to the rather wider, more sweeping amendments that were in the previous two groups. As the noble Lord goes away and reflects, he should look again at the evidence to the Joint Committee from the overseas rapporteurs. It shows a level of trust between the rapporteurs and Parliament and Government that does not require Government to specify in enormous detail, in primary legislation, how people are going to behave. If he looks at that, he will see why I tabled these amendments. In that spirit, I beg leave to withdraw the amendment.
Lord Bates
Lord Bates
“( ) The Lord Advocate may remove from an annual report any material whose publication the Lord Advocate thinks might prejudice the prosecution of an offence under the law of Scotland.”
Baroness Hamwee
My Lords, I have two short amendments in this group. I will come back, outside the Chamber, to just what Section 36 says. I am not taking issue with the substance, in any event.
Amendment 76A would delete Clause 43(4). The clause is about the duty to co-operate with the commissioner. It provides that complying,
“does not require or authorise any disclosure of information which contravenes any other restriction on the disclosure of information (however imposed)”.
Looking at Clause 43(4) alongside Clause 43(3), which provides that disclosure,
“does not breach any obligation of confidence”,
I would like to ask my noble friend why one is accepted by the legislation and the other is not. Why does data protection, as I assume it is, apply but not confidential—I am not sure about privileged—information?
My second amendment, Amendment 77A, is quite different, but it is to enable me to ask a question. Clause 43(6) refers to regulations being allowed to be exercised by Scottish Ministers and by the Department of Justice in Northern Ireland. I have suggested that the Welsh Assembly Government be added to the list in order to ask my noble friend about the question of health. Health, after all, is one of the issues to which we need to have regard when we are looking at the needs of people who have been trafficked or enslaved. This seems to me very relevant. I do not know whether it is intended that Wales should come under Clause 43(6)(c), as “any other public authority”—I think that they might be a bit insulted if that were the case—or whether I have got it wrong that health is not intended to be covered in all of this. I beg to move.
Lord Bates
My Lords, I am grateful to my noble friend for moving this amendment and I will try to deal with the questions of clarification that she raised.
The effect of Amendment 76A would be to permit public authorities to provide information to the commissioner where it would otherwise contravene restrictions on the disclosure of information, other than those as a result of an obligation of confidence under the common law. Therefore, public authorities would, for example, be obliged to disclose information to the commissioner where such a disclosure would otherwise be restricted by statute or order of the court. While we want to ensure that the commissioner is able to gain access to information from relevant authorities to improve the UK’s response to modern slavery, in doing so we must ensure that we are not requiring those authorities to provide information in breach of existing restrictions on information sharing or permit authorities to disregard court orders, although we recognise that a balance has to be struck.
For this reason the public authorities and officials have been given a certainty that they will not be breaching any obligation of confidence under the common law when providing information to the commissioner. We consider that this subsection ensures that we achieve the right balance between respecting existing information safeguards and ensuring that the commissioner has the necessary powers to carry out the role effectively.
My noble friend’s Amendment 77A seeks to create a power for the Welsh Government to specify which Welsh public authorities are required to co-operate with the commissioner. The Welsh Government play a key role in the UK’s effort to tackle modern slavery. They are active participants in the interdepartmental ministerial group on modern slavery, and we have worked innovatively and determinedly to raise awareness of modern slavery and improve the response in Wales. We have worked closely with the Welsh Government on the development of the Modern Slavery Bill.
The focus of the commissioner’s work, and indeed of this entire Bill, is to combat crime and protect its victims, which are non-devolved matters as regards Wales. Engagement with Welsh authorities by the commissioner would seek to deliver on these objectives and any infringement on those authorities’ devolved functions is entirely incidental to, or consequential on, this purpose. It is therefore wholly appropriate, and consistent with the devolution settlement for Wales, for the Home Secretary to specify that a Welsh public authority is required to co-operate with the commissioner without the need for regulations made by the Welsh Government.
The Welsh Government have been regularly consulted on the role of the commissioner and it is worth nothing that they have not requested the inclusion of a regulation-making power within this clause. We will, of course, consult fully with them before specifying Welsh public authorities in regulations. I pay tribute to the good co-operation which is already taking place between the Welsh Government and the UK Government in relation to modern slavery issues.
Given this explanation, I hope that my noble friend will feel able to withdraw her amendment.
Baroness Hamwee
My Lords, I will, of course, do so. I felt that the response to Amendment 76A was more about “the what”, which I think I understand, than “the why”. However, I do not want to comment further without having had the opportunity to read what my noble friend had to say.
I am not sure that I am persuaded about Wales but that is perhaps not a discussion for now: we may have other opportunities to do so. I will think about that further and perhaps have a word with my noble friend about it. I beg leave to withdraw the amendment.
Lord Bates
Baroness Royall of Blaisdon
My Lords, I rise to support Amendments 103 and 104 and to speak to Amendments 86 and 86H, to which I have put my name.
The noble Lord, Lord McColl, and the noble and learned Baroness, Lady Butler-Sloss, have been veritable champions of these young vulnerable people and it is thanks to them—I have to say, with our support—that the Government have got far as they have. Of course I welcome Clause 47 and the government amendment that was introduced in the other place—but, as so many have said, we have not quite got there yet, but I have no doubt that we will.
Throughout the passage of the Bill, my colleagues in the Commons, together with some other Members of the House of Commons, consistently argued that unless advocates are given legal powers they will not be able to act effectively in the child’s best interests and truly protect trafficked children. We have a great example before us tonight. It was mentioned by several noble Lords. I pay tribute to the noble Lord, Lord Browne, and to the noble Lord, Lord Morrow, who introduced the Bill in the Northern Ireland Assembly. I hope that our Government will ensure that the laws pertaining to trafficked children are the same throughout the United Kingdom. It is very important and I very much hope we will follow their excellent example.
If we are truly to deliver for these most vulnerable of children, we must ensure that advocates have legal authority to act for the child in cases where they lack the legal capacity to do so. We want guardians to be able to instruct solicitors on their behalf and represent the child’s best interests. Advocates must also have the power to compel local authorities to take action where a child is not receiving the services and support to which they are entitled, such as appropriate accommodation. We also want the UK to be brought into line with its obligations under the Council of Europe convention and, as has been said, under the anti-trafficking directive.
Evidence resulting from the work and experience of members of the Refugee Children’s Consortium and from research commissioned by the Home Office and conducted by the Children’s Society and the Refugee Council demonstrate that local authorities often fail to understand, prioritise and adequately respond to trafficked children’s needs. This too often results in these vulnerable children falling through the gaps, as has been said, being housed in inappropriate and unsafe accommodation, such as bed and breakfast, and receiving inadequate adult and financial support.
Those most closely involved also find that the only way to force local authorities to act is litigation, or the threat of it. A legal advocate with powers to compel the local authority to act is therefore vital if we are to ensure that these children are correctly assessed and get the services to which they are entitled. Evidence from the evaluation of the Scottish guardianship pilot found that because guardians did not have legal powers and were not on the same statutory footing as local authority staff, they sometimes struggled to ensure that local authorities provided trafficked children with the correct services, and that because the service had no statutory footing the guardians found themselves having to negotiate, and sometimes renegotiate, the position in order to assist the young people with whom they worked. We have that very fine example before us. We know that it did not work in Scotland, so please let us act now to ensure that it works when we introduce these advocates.
Giving advocates legal powers to instruct solicitors would not conflict with the local authority, which remains responsible for the welfare and safeguarding of the child. The Northern Ireland Assembly’s amendment to its Human Trafficking and Exploitation Bill 2014 puts child trafficking advocates on an equal footing with the local authority and states that local authorities must recognise and pay due regard to the functions of child trafficking advocates. That is another fine example to be followed. The Northern Ireland Bill even has the wording right.
I urge the Government to support this amendment, or something very similar, in order to ensure that advocates have legal powers and that trafficked children are entitled to the support and protection that they deserve, because they deserve no less.
Lord Bates
My Lords, on that last point, the remarks on Northern Ireland of the noble Baroness, Lady Royall, we are, I am sure, as one. We recognise that we are moving. The general consensus, if I may try to sum up the debate, is that progress has been made and we have come a long way, to quote the noble Lord, Lord Browne, and the noble and learned Baroness, Lady Butler-Sloss, but perhaps there is further to go. Well, we still have more stages in the consideration of this legislation.
I come to some general remarks. I join nearly all noble Lords in the debate on these amendments in paying tribute to my noble friend Lord McColl for his determined and—I am tempted to say, as a former member of the Government Whips’ Office—unyielding advocacy on behalf of children, going back to the Immigration Bill, but also his own Private Member’s Bill. It has been an example of how it is possible, from the Back Benches, to make significant, important changes to government legislation.
I urge my noble friend, in saying this, to recognise that we have in front of us something that is not timid or weak. Such terms have been used a few times during our discussion. I totally accept that that is how parliamentary discussion and scrutiny should work: the Government give a bit and then people say, yes, thank you—17 year-olds, legal aid—but can we have some more? I understand that, but there is an audience outside this place who needs to have some confidence that we have before us something that is robust and that they can act upon. Yes, okay, the Independent Anti-slavery Commissioner may not have everything spelt out to the last letter as far as your Lordships would like, but the fact is that he is there, he has a vital role to play, and others should work with him to ensure that victims are identified and perpetrators prosecuted. With child-trafficking advocates, again, we may not have everything spelt out to the letter in the Bill, but the reality is that we do have a provision there.
We have heard a lot about the “mays” in Clause 47, but there are some “musts” as well. For example:
“The Secretary of State must make such arrangements as the Secretary of State considers reasonable to enable persons (“child trafficking advocates”) to be available to represent and support children who there is reason to believe may be victims of human trafficking”.
In the next subsection,
“the Secretary of State must have regard to the principle that, so far as practicable, a child should be represented and supported by someone who is independent of any person who will be responsible for making decisions about the child”.
Also, of course, in Clause 47(6):
“The Secretary of State must, no later than 9 months after the day … report on the steps the Secretary of State proposes to take in relation to the powers conferred by this section”.
So there are “musts” there.
I shall deal with some specific points put before us. The issue of support and protection for victims of child trafficking is of the utmost importance across the Floor of both Houses of Parliament. I share the aim of providing a bespoke support system for this most vulnerable group of children. I am dedicated to ensuring that these children receive the support and protection they deserve after the nightmare of their traumatic experience of being trafficked and exploited.
Before I continue, I assure noble Lords that, although modern slavery is a devolved matter, we continue to work closely with the devolved Administrations on the issue. We are fully abreast of the similar provisions which the noble Lord, Lord Browne, in particular, referred to in respect of Northern Ireland, as well as the Scottish guardianship service, and we are learning from these. We continue to maintain our positive partnership with the Welsh Government on this matter. We have listened intently to the debate on the issue of child trafficking advocates. Amendment 86 seeks to extend the provision to child victims of slavery and sets out in detail the minimum responsibilities of child trafficking advocates.
In that context I will set out the Government’s approach to achieving the best result for child victims of trafficking. We are trialling child trafficking advocates. The trials are being delivered by Barnardo’s across 23 local authorities in England and are now well under way, having started in September, with a growing number of children receiving the services of a specialist advocate.
Lord Alton of Liverpool
My Lords, rather in parenthesis, a few moments ago the Minister introduced a new component into the debate when he talked about the financial implications that might be involved were we to support the amendment of the noble Lord, Lord McColl. Can he give us a figure? He has talked about the financial implications and must have some idea of what the cost might be. I was surprised to hear that argument being produced in your Lordships’ House. Does he have a figure that he can share?
Lord Bates
I think that what I am getting at there is self-evident. If you extend the service of child trafficking advocates, clearly there is a cost implication. I was not suggesting at any stage that that was in any way an argument for or against. I was simply saying that it ought to be taken into account before we embark on an extension of the scheme. I am happy to write and come back on that, with further information about the basis of our assessment.
On the points made by my noble friend Lord McColl, it is intended that the functions and role of advocates in any national scheme will be set out in regulations. This will give the advocates the desired legislative basis without forcing us to make decisions about their role prior to the outcome and evaluation of the ongoing trial. The Delegated Powers and Regulatory Reform Committee accepted our approach—a point I have already made. We accept that a different approach has been taken in Northern Ireland, where an advocates scheme has not been trialled prior to setting out details of it in the Bill. It is our position, however, that the detail of advocates’ roles covered in the Northern Ireland Bill can be covered in our regulations, should this be supported by the findings of the ongoing trial. This takes in the point made by the noble Baroness, Lady Royall, when she said that there was a description effectively set out in the Northern Ireland legislation; that could be taken into account. We know that the pre-legislative scrutiny committee acknowledges that there is no one-size-fits-all in terms of advocacy schemes.
This is worth underscoring briefly. We accept that this is not a homogeneous group. This is not a group of people who have had similar experiences or who have similar needs. They are a very heterogeneous group and have different needs that must be addressed. That ought to be taken into account. The report highlighted that the Scottish system, which works very well without any legislative basis, would not necessarily translate well into England and Wales because of the different circumstances regarding trafficked children in different areas.
While we are concerned about child victims of modern slavery, the current trial and the provision in the Bill are focused on a particularly vulnerable group—namely, trafficked children. We know that trafficked children need to receive consistent support and protection to avoid them going missing and being retrafficked. We agree with my noble friend that the Bill is not the appropriate place for measures to extend the provision of advocates to all unaccompanied children, given its specialist focus on modern slavery.
I have dealt with the points raised in particular by my noble friend Lord McColl. I am aware that other points were raised. As I said when we discussed previous amendments, we will reflect on those points very carefully. I am sure that my noble friend Lord McColl, who accurately anticipated my response to his amendment, will probably tell us that he wants to revisit this issue later in our proceedings—which of course is his right. Perhaps in the interim we could have more discussions about how we can ensure that these child trafficking advocates work in the best way possible. We might also be able to share some interim findings from the trial that started in September, which would help inform the debate. With those assurances, I ask the noble Lord to consider withdrawing his amendment.
Lord Patel
My Lords, I pay tribute to my friend, the noble Lord, Lord McColl, and to the noble and learned Baroness, Lady Butler-Sloss. I paid tribute to them at Second Reading but do so again. We all know how hard both of them, particularly the noble Lord, Lord McColl, have worked for years for this Bill.
I thank those who supported my amendment—namely, the noble Baronesses, Lady Lister of Burtersett and Lady Kennedy of The Shaws, and the noble Earl, Lord Listowel. I understand the difficulties of including all separated and unaccompanied children in the Bill. However, I was trying to emphasise that we have enough evidence to suggest that separated children are very much at risk and often end up being trafficked or becoming involved in modern slavery: for example, the example I gave of child T. It would be a great shame if a Bill on modern slavery ended up excluding this group of very vulnerable children, for whom we have to find a solution in due course. However, I recognise the complexity of involving all unaccompanied children.
As the Minister rightly said, the central amendment in this group is Amendment 86H under the lead name of the noble Lord, Lord McColl. My name was added to that amendment, but the vagaries of communication over the weekend and of the printing of the Marshalled List meant that it was not included.
In summing up, the Minister said it was likely that the noble Lord, Lord McColl, would wish to revisit the issue. I noted that the noble Lord nodded enthusiastically, so the Minister was left in no doubt that he and those who support the amendment, including me, will return to it at a later stage.
The vagaries of the House procedures do not allow the noble Lord, Lord McColl, to thank all those who supported him, but I do so on his behalf. With that, I beg leave to withdraw the amendment.
Lord Browne of Belmont
My Lords, I support Amendment 86M. The focus of the amendment is on improving the provision of support for victims of human trafficking and slavery, which I believe to be imperative if we are to appropriately respond to the impact of these crimes. The United Kingdom is a signatory to both the 2005 Council of Europe convention against trafficking in human beings and the 2011 EU directive on preventing and combating trafficking in human beings and protecting its victims, both of which are legally binding on the UK.
However, as we all know, signing up to a directive or a convention is only half the battle. The key issue is how a member state decides to implement the directive or convention in practice. In many areas the British Government and the devolved Administrations, who are responsible for criminal justice powers, have flexibility in deciding how they will implement these international instruments. A good example of this is seen in how we decide to design our human trafficking offences. Both the convention and the directive mandate that such offences are required, but the relevant legislatures in the UK can shape the offences as they choose.
However, Articles 11 and 14 of the directive and Article 12 of the convention set out the details of the practical assistance and support that states must provide to victims. Among these requirements are that assistance and support should be provided to victims before, during and—for an appropriate period of time—after the conclusion of criminal proceedings, and that the assistance and support should include at least standards of living capable of ensuring victims’ subsistence through measures such as the provision of appropriate and safe accommodation and material assistance, as well as necessary medical treatment, including psychological assistance, counselling, information and translation and interpretation services where appropriate.
The UK is obliged under international law to provide those measures of assistance and support; that is not in dispute. Now it is being argued that the obligation to provide such assistance and support does not need to be in statute, and that we can merely rely on guidance to fulfil the requirements. I do not believe that that is good enough. Indeed, as we have heard, the group of experts established by the Council of Europe convention, GRETA, has recommended that the UK put into statute this right to a reflection and recovery period during which the assistance is provided. To my mind, there is no logical reason why such obligations should not be outlined in statute with the details of delivery being set out in guidance. Amendment 86M would achieve such a goal.
I am afraid that, once again, I will take this opportunity to refer to the Northern Ireland Bill. Amendment 86 mirrors the requirements for assistance and support under the directive and convention, and unsurprisingly, therefore, it is similar to Clause 18 of the Northern Ireland Human Trafficking and Exploitation Bill introduced by my party colleague, my noble friend Lord Morrow. The Northern Ireland Assembly unanimously supported this clause when it was debated a few weeks ago. It sets out clearly in statute the range of assistance and support that adult victims of human trafficking will receive when they have been, or are about to be, referred to the national referral mechanism. Indeed, the Minister of Justice in Northern Ireland fully supports Clause 18 of the Northern Ireland Bill. He agreed with my noble friend Lord Morrow that such a move would be a positive one for the victims in Northern Ireland. The Minister of Justice and my noble friend co-operated very effectively to put forward an excellent clause that has been accepted by the Assembly.
I am very proud of the fact that Northern Ireland is leading the way within the United Kingdom through the Human Trafficking and Exploitation Bill. This Bill is superior to the Modern Slavery Bill in its proposals to assist and support victims of human trafficking. There is a risk—one that can be avoided but I fear will not be—that the support for victims will be superior in Northern Ireland to the rest of the United Kingdom. The setting out of the minimal level of assistance to victims in Clause 18 of the human trafficking and exploitation Bill is a model that the Modern Slavery Bill should follow for England and Wales. It is not more expensive, and it provides much greater clarity for victims and NGOs working with victims to as to what assistance and support they are entitled to. I urge your Lordships to consider carefully what is being done in Northern Ireland and to produce a similar measure in the Modern Slavery Bill. I commend Amendment 86M to the Committee.
Lord Bates
My Lords, I am struck in these amendments by how prescient contributors are of the arguments I am about to deploy. I was wondering how it could be that people were so aware of this. The reality is that we have had a rather open and extensive consultation period. Indeed, the officials working on the team are constantly meeting with outside groups and talking to people. Alongside that, my noble friend Lady Garden and I have been trying to do the same with your Lordships’ House. Therefore, I suppose that it is not too much of a surprise that respective positions are known—but that does not mean that they cannot be moved on either side.
I take slight issue with one of the caricatures put forward, perhaps unintentionally, by the noble Lord, Lord Browne, that somehow victims’ protection in the United Kingdom may not be of the same standard outside Northern Ireland. I do not accept that. Not least, of course, we are going to have an Independent Anti-slavery Commissioner, who will cover Northern Ireland. I am sure that that would be a key part.
The other point is that, as I have said before, we are open to looking at the legislation and experience in Northern Ireland and to sharing best practices with each other. The notion that somehow victims are just a passing shot in the Bill does not stack up to the discussions we are having or the legislation, where we talk about victim reparation orders, enhanced access to legal aid—which has been widely welcomed—special proceedings in court to encourage victims to come forward, presumptions about age, child trafficking advocates, and statutory defence if they are involved in committing a crime. All the way through, we all shared a commitment that those who have suffered most should be considered most. At the same time, we recognise that one of the best ways that one can serve victims is by ensuring that others are not added to their number by making prosecutions.
Those points made, I am not quite sure I will live up to the creative billing the noble Lord, Lord Alton, urged on me, but I shall respond as best I can to the points made. I am grateful for the tabling of Amendments 86J, 86K, 86L, 86M, 102B and 102C, which deal with crucial issues relating to identifying and supporting victims of modern slavery and to legal aid. This is why the Modern Slavery Bill includes a provision requiring the Secretary of State to issue guidance to ensure that front-line professionals understand how they might encounter and identify potential victims of modern slavery and how they can help them to access the support they need.
This guidance will focus on the effective identification of both child and adult victims of modern slavery and will provide information to front-line professionals and others on potential signs that someone may be a victim and on what to do. It will also set out the assistance and support on offer to victims through the government-funded adult victim care contract, currently operated by the Salvation Army, and local authority child welfare and safeguarding arrangements, including the presumption about age provisions in Clause 49. The Independent Anti-slavery Commissioner will also have a key role in ensuring that victims can be quickly identified by all front-line professionals. We are fully intending to consult on this guidance so that we can get it right, and therefore I do not believe that the amendment is necessary.
Amendment 86J seeks to require all victims to be psychologically assessed during the investigation of a modern slavery offence as set out in Clauses 1 or 2. While I appreciate my noble friend’s intention of ensuring that an assessment of victims’ needs is undertaken at an early opportunity and her awareness of the often deep psychological trauma these heinous crimes can inflict, I do not believe that this amendment is the right approach to achieve those laudable aims. The amendment may force victims to undergo a psychological assessment, even if they do not want one. I am sure that that is the last thing we should do. Added to that, all the way through this victim-focused legislation is the idea that victims have to consent to all the actions taken on their behalf. Instead, I offer the following reassurance. Adult victims who are referred to the national referral mechanism are entitled to receive psychological support through the national victim care contract currently run by the Salvation Army. Any such support would be provided following an appropriate assessment of an individual’s needs.
I now turn to Amendment 86L, tabled by my noble friend Lady Hamwee. I believe it is a probing amendment in relation to the intention of Clause 48(1)(c), which sets out that guidance should include,
“arrangements for determining whether a person is to be treated as a victim of slavery or human trafficking”.
The purpose of this paragraph is to ensure that such guidance covers the national referral mechanism decision-making process to determine whether a person is to be treated as a victim of slavery or human trafficking. The wording of the Bill reflects the terminology used in relation to the national referral mechanism. “Determination” is used to describe the reasonable and conclusive grounds decisions by the competent authority, whereas “identify” is used to refer to the initial identification of potential victims by first responders. I reassure my noble friend that the paragraph as presently drafted covers both these elements of the national referral mechanism process, and I trust that the intention of the amendment is not to limit the scope of the guidance in any way.
Amendment 86M seeks to put a referral mechanism into statute which ensures that victims get at least 90 days’ support which is not conditional on the willingness of the person to act as a witness in any criminal proceedings. Although administratively we provide potential victims with a minimum of 45 days to recover and reflect, in practice many victims are supported for a much longer period. As noble Lords may know, we are currently retendering the contract for adult victim care services and have reflected on the national referral mechanism review recommendations in building the requirements for the new contract. That includes consideration of how we might provide ongoing support to victims once they have received a decision confirming that they are a victim of modern slavery. Our aim is to help these individuals move on with their lives so that they are not revictimised through being retrafficked.
Finally, Amendments 102B and 102C will enable the commissioner to exercise functions in relation to individual cases until amendments are made via secondary legislation to legal aid provisions. The Government are strongly of the view that it is not the role of the commissioner to champion individual cases or to track victims who receive support. Their role is to strengthen our collective response to modern slavery, working closely with law enforcement agencies and other stakeholders, including civil society organisations, to identify more victims and prosecute more perpetrators. We recognise the importance of understanding the longer term outcomes of victims. That is why we are considering how we can work with the victim care contractor to best achieve this. Of course, information from individual cases may help inform the commissioner’s work in this regard, but it is not for the commissioner to advocate for individuals.
Potential victims of trafficking currently gain access to legal aid following a positive reasonable grounds decision of the national referral mechanism. Legal advice is not necessary for an NRM referral. The reasonable grounds decision is generally made within five working days after an individual has been referred to the NRM, and the decision has a low threshold. This test is an important gateway to avoid abuse of a system that provides access to a range of support, including legal aid. We recognise that there are concerns about the operation of the NRM. That is why we commissioned a full review of the system and will be piloting a new approach to the NRM in response to that review. We will ensure that any wider changes to the NRM are reflected in the provision of legal aid.
I thank noble Lords for tabling these amendments and allowing us to discuss some crucial issues. I hope that I have addressed noble Lords’ concerns and that—with the undertaking, as with previous groups, that we will continue reflecting on the detailed comments that have been made—they will take that reassurance and not press their amendments.
Baroness Hamwee
My Lords, I was looking to see if the noble Lord, Lord McColl, wanted to come in. I know that all noble Lords are very appreciative of the time and effort that Ministers and officials are putting in to meetings and discussions outside the Chamber. I hope that the teasing and the prescience does not deter them from continuing with that; I am grateful to the noble Lord, Lord Alton. My amendment about psychological assessment—I take the point about consent —is really not about the NRM or about support for victims and their recovery; that is obviously extremely important. I was seeking to pick up the role of psychological input into an investigation and prosecution. That is a different matter. It is clearly not appropriate now for me to expand on that any further, but if I can test the Minister’s patience, maybe this is something for outside the Chamber.
I note what the Minister said on my other two amendments—I am happy about those—and I beg leave to withdraw Amendment 86J.