Facial Recognition and the Biometrics Strategy
(Limited Text - Ministerial Extracts only)
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The Minister for Policing and the Fire Service (Mr Nick Hurd)
It is a great pleasure to serve under your chairmanship, Sir Roger. It was a wrench to come out of the climate change debate in the Chamber, but the debate here has shown that what we are discussing is extremely important. Before I start, I recognise the presence of the Chair of the Science and Technology Committee, the right hon. Member for North Norfolk (Norman Lamb), who has joined us. I will of course take an intervention if he wishes to speak.
I congratulate the hon. Member for Bristol North West (Darren Jones) on securing the debate and on his excellent speech, which was rooted in genuine passion, deep expertise and a lawyer’s ability to present a case and fillet the evidence. It was really interesting. Of course, the context, which the hon. Gentleman was very good at laying out, is huge. We will talk about the police and the attitude of the security services, but ultimately this is a debate about how we protect our personal freedoms in the digital age, to use the hon. Gentleman’s language, and that is an enormous issue. Some hon. Members have already volunteered the opinion that the public are not yet fully engaged with the issue, and I support that from the experience of my constituency, but it is a huge issue.
The other context that we have alluded to and must not lose sight of is the backdrop of the extraordinary acceleration of the pace of change in what technology now enables for good and evil. Therefore, the debate about how far we go in supporting our police system and our security system—those who get up every morning thinking about how they can protect us—in using technology for the power of good is extremely important.
The hon. Gentleman mentioned a fundamental issue that underpins the debate. His primary charge against the Government, which was echoed by others, was that the regulatory framework, the legal framework, the oversight arrangements and the governance framework were not fit for purpose. He also said that a fundamental challenge for any Government of any colour is finding ways to keep pace with what is going on out there and make sure that the checks and balances and protections and regulations that are put in place are fit for purpose, against a landscape that is changing all the time.
Norman Lamb (North Norfolk) (LD)
I am grateful to the Minister for giving way and for indicating that he was willing to give way. He is making some really important points. When the Biometrics Commissioner gave evidence to our Committee, he gave a clear view that many in the police want a clear statutory framework that they can operate within. They do not want to be uncertain as to whether the next step they take will be subject to legal challenge. Surely it is in everyone’s interests to have a clear statutory framework and to do that now.
Mr Hurd
I understand that point. Although I technically do not lead on this area in the Home Office, in the context of another meeting with many of the chiefs directly involved, I have heard them talk a bit about it. They have not expressed that view directly to me, but that is not good enough. I will go back to them and get their direct view.
The hon. Member for Bristol North West spoke about his case and the legal framework for that. As that is about to be tested through a legal challenge in May, he will know there is a limit to what I can say. I am very up-front in saying that in reviewing the landscape, it is quite clear to me that some of the oversight and governance arrangements are not clear enough. A considerable amount of work is going on in the Home Office to try and improve that situation. That will become clearer over the summer, and I will talk on that.
The other context, if we come specifically to the work of the police—which is what we are basically talking about—is the use of biometrics and data to identify people, based on their personal characteristics. Those data are used by the private sector and the police and are very much part of our day-to-day life, as Members have said in relation to users of Facebook and Google and companies that basically make money out of their information about us. It is part of our day-to-day experience.
As the shadow Minister knows, biometrics have been an essential tool for the police for many years. If we consider that in one year alone, DNA linked more than 32,000 people to crimes, including 700 relating to murders and 700 to rapes, it sharpens the importance of this agenda for those trying to keep the peace and to protect us. For any Government of any colour who recognise that the security of the public will always be a priority, if not the priority, the question of our responsibility and how far we go to ensure that the police can continue to use biometrics and make use of the most up-to-date technologies will always be a priority.
Members have talked about the attitudes of the public, and I am sure they are right. The data I see, whether it comes from Lincolnshire’s police and crime commissioner or the Mayor’s Office for Policing And Crime, reinforces what Members have said. If members of the public are asked, “Should the police use these technologies to catch criminals?”, the answer tends to be yes, particularly in the context of the most serious crimes. We understand that, but that needs to be offset by a much more open and clear debate on the checks, balances and transparency around the use of these technologies. I absolutely understand that, but the pace of change and the opportunity are genuinely exciting for the police services. What is happening with new mobile fingerprint checkers, for example, is transformative in what they allow the police to do, including the pace with which they can work and the time that they can save by harnessing these technologies. Any Government would want to support their police system in making the best use of technology to protect the public and catch criminals, particularly those involved in the most difficult crimes.
Facial recognition is clearly a massively sensitive issue, and I welcome this debate. We have supported the principle of the pilots, and we can debate the degree to which the appropriate guidance and supervision have been in place for that. It is clear to the police and us that there are real opportunities to make use of facial matches. Generations of police officers have used photographs of people to identify suspects for a long time, and CCTV images have been a vital tool in investigation, but what is changing is our ability to match images with increasing confidence and speed. That is the major change in the technology. In a recent example, images taken by a member of the public in a Coventry nightclub where a murder took place were quickly matched on the police national database to a known individual who was arrested. They found the victim’s blood on his clothing and he is currently serving life imprisonment. We need to be clear about where the opportunity is in terms of matching suspect images on the national police database to wanted known individuals, ensuring that they cannot evade justice when they cross force boundaries.
It is understandable that the use of live facial recognition technology, which is the heart of the debate, raises extremely legitimate privacy concerns. Speaking not only as a Minister or a Member of Parliament but as a member of the public, I absolutely understand and share those concerns. A fundamental part of our democratic process is that those concerns are expressed here in the House or in the courts. The hon. Member for Bristol North West alluded to that. He wants us to go much further on transparency, accountability, governance and oversight, and I will try to set out the progress we hope to make on that, but the fact is that in many countries, these debates just would not take place. It is a strength of our system that we are sitting here in this debating chamber and the Minister is forced to come here and respond, that the Select Committee is able to do the work it does, and that the Government of the day show the Committee the respect it is due. That is our process, and it is not bad.
Norman Lamb
On the retention of images, the Government and successive Governments have been clear that DNA and fingerprints are not retained where someone is not prosecuted and is, in effect, an innocent person; yet with facial recognition, the facial images are retained. There is a mechanism for someone to apply to have their image deleted, but the indication is that people are not routinely told about that. What can possibly be the justification for having a very clear rule applying to DNA and fingerprints and a different rule applying to facial recognition? When are we going to get to the point where there can be automatic deletion of the images of innocent people?
Mr Hurd
I will come to that point, because I know it was a particular focus of the Committee, but first I want to conclude my remarks on facial recognition. The police have responsibilities and duties to prevent, detect and investigate crimes. The police have broad common law powers, as we are aware, that allow them to use relevant technologies, such as surveillance cameras in public places and live facial recognition, but it is clear that such use is not unfettered. The police have to exercise their powers in accordance with the law, including the Police and Criminal Evidence Act 1984, the Human Rights Act 1998 and data protection legislation.
As was alluded to, we also carry out data protection impact assessments before using a new biometric technology and before a new application of an existing technology. That includes inviting scrutiny from an independent ethics panel, regulators and commissioners. I was listening today to the chiefs of one of our largest police forces speaking exactly to that point, when he talked of the importance he attaches to the opinion of his local ethics panel. We will produce DPIAs for each element of the Home Office biometrics programme and the police will produce DPIAs for each use of live facial recognition.
When it comes to the use of surveillance cameras, the police are required to have regard to the surveillance camera code. To support them in using that technology, they can draw on the guidance of the Surveillance Camera Commissioner and the Information Commissioner. Recognising concerns around the use of the new biometrics, we have set up a new oversight board that includes the Biometrics Commissioner, the Information Commissioner and the Surveillance Camera Commissioner. It will oversee new pilots and is reviewing police operational guidance for live facial recognition. There is a recognition in the system of the issues raised by Members, and mechanisms are in place.
However, I have been clear that the current arrangements are complex for both users and the public. We are therefore keen to simplify and extend the governance and oversight arrangements for biometrics. As I have said, we will update Parliament in the summer on that work. There is a limit to what I can say at the moment, but I hope that Members can take comfort from the fact that we recognise that their concerns are valid, and that, as I said, there is an active stream of work to try to simplify and extend the governance and oversight arrangements for biometrics, against a background of rapid change in the landscape.
The policy on custody images was established in the 2017 review, and allows people who have been arrested but not convicted to ask the police to remove their custody images. There is a strong presumption in favour of removal. It is critical that people are aware of their rights, and debates such as today’s, as well as the work of non-governmental organisations, help to increase that awareness.
The policy is public and set out on gov.uk, and is covered in the management of police information and authorised professional practice guidance. However, we cannot rely on that, and we need to go further. The police will tell all those who go into custody about the policy through information that they hand out. We will also review the policy, and use a current police audit of requests to inform our conclusions. I undertake that the views of the House will also be taken into account.
The hon. Member for Bristol North West and the Chair of the Science and Technology Committee spoke about automatic deletion of data for people who are not convicted. The Committee Chair will be aware that Baroness Williams of Trafford, who leads on the issue in the Home Office, has written to the Committee to give a further explanation of, frankly, the complexity underlying the issue. There is no debate about where we want to get to: we want to move to a system that is automatic. Her letter to the Committee, which I will share with the shadow Minister out of courtesy, sets out some of the complexities in delivering the timeline for which Members are reasonably asking.
As I understand it, the fundamental issue is that, unlike the arrangements for DNA and fingerprints, there is no single national system for custody images, with a unique identifier for every record. Many records have the appropriate identifier, enabling them to be linked to arrest records. However, there are several million on the police national database that cannot be linked easily, or at all. They would have to be manually reviewed or deleted in bulk, entailing many thousands of hours of work.
There is therefore an issue surrounding the different ways in which police databases work, and a fragmented landscape of local police force systems and different practices. It is genuinely complicated work. There is no quick fix, but I am satisfied that there is a determination to get to the end objective that we all want. In the meantime, we will work with the police to improve their procedures to better comply with the agreed policies. I will press the system harder on that, because obviously the current system is not satisfactory, or acceptable to me.
I will leave a few minutes for the hon. Member for Bristol North West to wind up, but I stress that biometrics, as the shadow Minister knows, play a fundamental role in many aspects of modern life and a vital role in the work of police, and have done for an extremely long time. We have a duty, as a Government and a Parliament, to support the protectors of the peace by ensuring that they can make use of new technologies in the most appropriate way. However, we must do our duty by the public we serve by ensuring that there are the right checks and balances in the process.
Ultimately, the public we serve and protect have to trust the process and continue to trust the police. We know the importance of trust in the modern age. Strikingly, the public we serve and represent continue to have high levels of trust in the police, whereas it has plummeted for many other traditional institutions. Trust in the police remains high, and it is important to me, and to anyone who will do my role in the future, that we maintain it. The inappropriate use of technology, or a lack of trust concerning how technologies are used in the future, is therefore a core challenge that the Home Office, under any colour of Administration, needs to take extremely seriously.
As the Home Secretary has said, we are not a surveillance state and have no intention of becoming one. That means that we must use new technologies in ways that are sensitive to their impact on privacy, and ensure that their use is proportionate and maintains the public trust that is at the heart of our policing model.