Voyeurism (Offences) (No. 2) Bill

(Limited Text - Ministerial Extracts only)

Second reading committee: House of Commons
Monday 2nd July 2018 General Committees

[The Parliamentary Under-Secretary of State for Justice (Lucy Frazer)]

I beg to move,

That the Committee recommends that the Voyeurism (Offences) (No. 2) Bill ought to be read a Second time.

It is a pleasure to serve under your chairmanship, Ms Buck.

In my short time as an MP, one thing has struck me most: the ability of an individual MP who cares deeply about an issue to have an impact on people’s lives for the better. I therefore start by acknowledging the work of the hon. Member for Bath in campaigning tirelessly to ensure that a Bill on upskirting, which is now the Bill this Committee is considering, becomes law. We are here because of her tenacity, and it is to her credit that such an inappropriate act will become illegal.

I also acknowledge the work of two incredible people, Gina Martin and her lawyer Ryan Whelan. As MPs, we have the levers and tools to make change, but for members of the public it is much more difficult, and I very much doubt that we would be discussing the Bill’s Second Reading today without the work of Gina and Ryan. I thank them for all their hard work in highlighting the issue.

I also thank Members in all parts of the House for the progress that has been made. The Labour party, Plaid Cymru and the Scottish National party have all been very supportive of the Bill and have helped to ensure that it has progressed swiftly through the House. I am grateful for the constructive way in which the hon. Members for Bolton South East and for Dwyfor Meirionnydd have approached the legislation. The Bill has only been possible because of cross-party support. We all entered Parliament to bring about positive change, and I am proud to be leading on a Bill that will protect women and that proceeds with the support of all parties. This is Parliament at its finest.

I shall set out briefly, first, what upskirting is; secondly, what measures there are to deal with it and why there is a gap in the law; thirdly, how we are bridging that gap and ensuring that there are the tools to punish offenders appropriately; and, finally, other important areas relating to sex offences that have been raised in wider public debate.

First, what is upskirting? It is the practice of taking a photograph up a person’s skirt or clothes without their consent. Unfortunately, people are undertaking such activity across the country, from the assistant headteacher who upskirted his own pupils at a convent school to the vice-president of a ticketing company who collected more than 50,000 upskirted images for his own sexual satisfaction. We have to acknowledge that upskirting is taking place—indeed, online guides instruct others how upskirting can be done quickly and easily—and people affected by upskirting have variously described their experiences as “scarring”, “an invasion”, and “embarrassing and humiliating”. One woman, who was on the tube with her parents when she was upskirted, said that it made her feel like she wanted to “peel off her skin” and “scrub it clean”.

Secondly, we are tackling upskirting because there is a gap in the law that needs to be filled and can be filled quite simply. At the moment people can be prosecuted for upskirting through two offences, and successful prosecutions have taken place. The first possible route is through the common law offence of outraging public decency. However, under review that approach was found to be problematic, because it does not capture all the circumstances in which upskirting can happen. Convictions under the common law offence of outraging public decency require an act such as upskirting to happen in public where there is a reasonable chance of at least two other people witnessing it. Conversely, the action can also be caught under the existing offence of voyeurism but, again, there are limitations, as that act is illegal only if it takes place somewhere where there is a reasonable expectation of privacy. In certain circumstances someone is in neither a public nor a private place, and it follows that therefore the action would not be caught by the law. Worryingly, those places might include schools or workplaces.

Thirdly, how will we ensure that the offence is dealt with appropriately? It will be done in a number of ways. The Bill makes it an offence for a person to operate equipment beneath someone’s clothing to observe, allow someone else to observe, or record an image of their genitals or buttocks, whether exposed or covered by underwear. We are ensuring that people carrying out the offence with different motivations will be caught by the Bill. There are different reasons for upskirting, and we have ensured that the Bill will capture that behaviour whether the motive is to obtain sexual gratification or to cause humiliation, distress or alarm to the victim.

[Mrs Maria Miller (Basingstoke) (Con)]

The Minister is outlining the importance of the offence in great detail, and has talked about reasons why an individual might engage in upskirting. Another reason why someone might take upskirting photographs is financial gain, but the Bill does not capture that and there is concern in Scotland about whether that is an omission from the Bill. Will the Minister comment on that?

--- Later in debate ---

[Lucy Frazer]

That is an important point, which some people have raised: should photographers who use such photographs for financial gain be caught by the offence in the Bill? It is possible that they, too, will be caught, because the Bill specifies two purposes for which an offence can be committed and only one is needed to satisfy the requirements of the Bill. Someone taking the action in question in the knowledge that it might cause distress, and with that intention in addition to financial gain, would be caught by the offence. It is also possible that photographers who sold photographs on to newspapers could be caught under the offence of outraging public decency, if the offence happened in a public place. They might be caught by section 4A of the Public Order Act 1986.

The Government want to ensure that we protect the public from future actions by those who commit the most serious sexual offences. Those who commit a sufficiently serious act for sexual gratification will be placed on the sex offenders register. That is right because it gives the police a tool for the management of sex offenders in the community, making it possible to put restrictions on their movements if they may pose a continued risk to others.

Importantly, those who engage in upskirting, but not for sexual gratification, and who are not the most serious sex offenders and do not need to be monitored by the police as posing a sexual risk to others, will not face the consequences of being on the register. Being on the sex offenders register has serious implications for a person’s life, so the Bill will not prejudice young people who undertake the act in question but not for sexual motives. We need to protect victims, but we should not stigmatise young offenders unnecessarily. We are ensuring that the punishment fits the severity of the crime. As with other sex offences, the punishment may include up to two years’ imprisonment, and there will be anonymity for victims.

We are bringing in the Bill with speed, to fill a gap in the law that needs to be rectified. However, I want to say a few words about other types of sexual wrongdoing, which have been raised in the House and among the public in the past few weeks. Undoubtedly, to keep the law up to date with the prevalence of such issues, and with technology, we should continue to keep other areas of the law under review. I am very sympathetic to many points raised about that by hon. Members on both sides of the House. Many fair points have been made, but often there are no universally accepted solutions, or the relevant issues are complex and not self-contained.

The Government continue to be alive to the fact that new technology may facilitate the carrying out of degrading acts, but we are determined to get the Bill on the statute book as quickly as possible.

We have identified a gap that needs to be filled, and I know colleagues on both sides of the House want to work together in that endeavour. I and other Ministers in my Department will be very happy to sit down with any Member of the House to discuss any similar matter, but I will urge the House to pass this Bill.

It is just 17 days since the private Member’s Bill in the name of the hon. Member for Bath failed to progress through the House. I commend the cross-party support and liaison that has allowed this Bill to be brought forward. I am grateful to the hon. Lady for her endeavour and commitment to get it on the statute book as soon as possible, and I commend the Bill to the Committee.

--- Later in debate ---

[Lucy Frazer]

With the leave of the Committee, I will answer a number of points that have been raised. First, the hon. Member for Bolton South East rightly mentioned some appropriate examples where there is a gap in the law. She mentioned that Scotland had acted more quickly. We must all remember that Scotland has different laws from us. The offence of outraging public decency, which has been available to some victims and under which some people have been successfully prosecuted here, is much narrower in Scotland so the gap was therefore significantly wider when they legislated.

The hon. Lady also suggested that there had been some delay in acting on our part. I am grateful for the intervention made by my hon. Friend the Member for Cheltenham, but I also draw the hon. Lady’s attention to the fact that the previous Lord Chancellor wrote to the Home Office and the Attorney General when these issues were raised. As a result, the Home Office has been working with the College of Policing to develop police guidance on existing powers, including those under the outraging public decency offence, to tackle some cases of upskirting. The Attorney General has also spoken with the Director of Public Prosecutions and the Crown Prosecution Service, making it clear that all cases involving upskirting need to be considered carefully.

The hon. Lady also asked about the two limbs. Charging decisions are matters for the CPS, which is very used to looking at the evidence to see what charge is most appropriate in the circumstances of the offence; the CPS will do the same here.

We had excellent speeches from my hon. Friend the Member for Cheltenham, who brought his experience of criminal law to identify the right balance on the decision about the sex offenders register, and from my hon. Friend the Member for Faversham and Mid Kent, who bravely described her experience when she was much younger.

[Wera Hobhouse]

We want the Act to be a deterrent, so that these vile practices are eradicated from our society. For that to happen, we just need some successful prosecutions. I think the debate is about how we can ensure that prosecutions are as tight and successful as possible. Then it will act as a deterrent and hopefully very few people will even go that way.

[Lucy Frazer]

The hon. Lady makes an important point. In fact, her campaign and that of Gina Martin have done a significant amount to ensure that this offence, and now its potential illegality, has been brought to the attention of individuals and that they know about it. Often it is the fear of prosecution rather than prosecution itself that protects potential victims of crime.

Before I turn to the wider issues raised in the debate, I will touch on some points that have been made by various Members about the remit and ambit of the Bill. We have thought very hard about how the Bill should be put together, what the motivation should be, and when people should go on the sex offenders register. Some Members thought that motive should disappear, because it is the act and the victims we should focus on, not the perpetrator. It has been suggested to me that we should not need to prove motive, but reasonable justification. The concern with that is that a general principle of our law, particularly our criminal law, is that someone is innocent until proven guilty. To suggest that the prosecution should not have to prove motive, only reasonable justification, would reverse the burden of proof, putting it on the defendant, who is meant to be innocent until proved by the prosecution to be guilty.

In our system of law, the prosecution has to prove every element of the offence, and we say that should remain the case for this offence, too. The offence is criminal and serious, and the punishment we are proposing is serious. It is two years, with the requirement that in some circumstances people will go on the sex offenders register. We think it is appropriate in these circumstances that, as with other offences under criminal law, motivation is identified and proved.

Some Members suggested we should take a wider role in relation to the sex offenders register. We are concerned that we should strike the right balance between protecting victims and, where there are young offenders, protecting offenders. We need to strike a balance in terms of stigmatising them and putting them on the sex offenders register. They might need to be identified to the police as potential criminals for future sexual offences. We should not just expand the sex offenders register. Ultimately, if there were too many people on it, that would make it meaningless.

[Alex Chalk]

On the point about considering proportionality, is it not important to remember that if those on the sex offenders register fail to comply with its conditions, they can be guilty of an imprisonable offence? To go on the register is a serious matter.

[Lucy Frazer]

My hon. Friend makes an important point. Going on the sex offenders register is a serious matter both with what it requires and if it is breached.

I want to touch on a number of points that my right hon. Friend the Member for Basingstoke made. She has done so much individually and through her Committee to champion a large number of issues and protect and help the lives of individuals, particularly women. Together with others, she has raised a number of issues that I would like to deal with. I reiterate that the Government continue to be alive to how new technologies are facilitating the degrading treatment of women and children on the internet, but we also need to be alive to the fact that some of the questions posed are difficult and not straightforward.

A question was asked about whether revenge porn should be a sexual offence, which would have two consequences: anonymity for the victim, and the perpetrator’s going on the sex offenders register. When the offence was first introduced, there was not universal support for it being a sexual offence. In informal consultations, victims did not universally ask for it to be a sexual offence. They often said that they just wanted images taken down. The Ministry of Justice took the views of more than 100 members of the public, many of whom had been victims of or knew victims of revenge porn. Very few suggested that they want it to be a sexual offence.

There are also unintended consequences and risks that would need to be considered. If we made such things a sexual offence, it would require notification. That gives rise to the point we are making about people being put on the sex offenders register when their intent was not sexual gratification, given all the consequences that come from being on the sex offenders register.

If we do not make these things a sexual offence, but instead just give anonymity to victims, we would be creating an inconsistency in the law. We would be extending automatic reporting restrictions—that is, putting people on the sex offenders register and giving people anonymity —to offences that are not sexual. How does that play out for other crimes where the same argument could be made that anonymity would be helpful for victims coming forward? For example, in cases of domestic violence, blackmail, or reckless transmission of HIV, more people might come forward if there was anonymity.

So, if we just say, “We’re creating an offence. We won’t make it a sex offence, because of the issue with the sex offenders register, but we will give you automatic anonymity”, the issue arises of whether we are making a special case of this offence, and whether the case should be the same for other offences that are also not sexual offences? Also, there can be reporting restrictions in any criminal case at the moment, even if someone does not have automatic anonymity.

The question of deepfake was raised. This is a real—

[Mrs Miller]

Before the Minister moves on, I just want to be really clear about something. Victims of upskirting will have anonymity, but she did not draw on the actions of the Government to give anonymity to victims of forced marriage or FGM. Why was it acceptable in those cases but not in the case of revenge pornography, for instance?

[Lucy Frazer]

My right hon. Friend makes an important point. The offence being considered today is a sex offence; it is an amendment to the voyeurism Act and is therefore a sex offence. She highlighted the FGM provision on anonymity. However, the point I am making is that we can create exceptions to a rule, but we must acknowledge that they are exceptions, and once we create one exception, or two, the general rule starts to break down and we have to ask ourselves more, and difficult, and complicated questions.

My point is that this is not a straightforward discrete decision. The Bill is discrete; it addresses a gap in the law that needs to be filled. Many other Members are raising interesting points, but those points are complicated —they are complex—and they have implications for other offences and other laws.

[Alex Chalk]

I am sure that it was just a slip of the tongue, but does my hon. and learned Friend agree that this Bill is in fact amending the Sexual Offences Act 2003, rather than the voyeurism Act, hence the point she was making about this offence being a sexual offence?

[Lucy Frazer]

I am always grateful for my learned junior’s assistance.

I will now move on to deepfake. Many Members have mentioned deepfake, which is a distressing act that can cause a victim to feel humiliated and can have significant consequences. Cases have been prosecuted in relation to deepfake. There is a case of a City worker who superimposed his colleague’s face on to porn websites and then told the woman’s boss in order to discredit her. He was convicted of harassment. Although there is not a specific offence in relation to deepfake, it is possible, if there is continued misconduct, for someone to be convicted under the law as it stands on harassment.

Other Members have mentioned the issue of sharing photographs and there are already—

[Mrs Miller]

My hon. and learned Friend says that an individual was convicted of harassment for superimposing a face on a pornographic image. I am not sure that she should be dissatisfied—I think she should be outraged and we should be doing something about it. This is not a problem in the future; it is a problem here and now. Should we not be acting?

[The Chair]

Before the Minister replies, I remind everyone that that is not the central topic of today’s debate, so, important though it might be, we should not devote too much time to remarks on that subject.

[Lucy Frazer]

Thank you, Ms Buck; I am very grateful. That is a key point that I want to reiterate: the Bill is about upskirting, where there is a clear gap in the law, and although there might be other serious issues whereby people feel victimised and humiliated, which we the Government take extremely seriously, there might be other offences—perhaps not specifically named appropriate offences for which one might be able to prosecute, but there are offences that exist—for which people can be prosecuted.

I was going to go on to the sharing of photographs, where there is some legislation, but given your point, Ms Buck, I will not go into that. I was also going to mention a few things, which my right hon. Friend the Member for Basingstoke quite rightly mentioned, about the importance of what we are doing in the non-legislative space. She was right to point out that DCMS is introducing compulsory religious education in primary schools, and sex and relationship education in secondary schools. The Government have provided £3 million for the Disrespect NoBody teenager relationship abuse campaign, which tries to educate teenagers about different types of abusive behaviour. As you have rightly mentioned, Ms Buck, this is not the time to go into the other issues.

The Government are supporting this Bill—I know it has cross-party support—because we want to fill a gap in the law. We are alive to how technology facilitates degrading acts, but we are determined here and now to get this Bill on to the statute book as quickly as possible. This has been an interesting and thought-provoking debate and I am grateful to everyone who has contributed. I think the consensus is that action should be taken to close this small but important gap in the law, so I commend the Bill to the Committee.

Question put and agreed to.

Resolved,

That the Committee recommends that the Voyeurism (Offences) (No. 2) Bill ought to be read a Second time.