The Parliamentary Under-Secretary of State for Justice (Chris Philp)
I beg to move,
That the draft Release of Prisoners (Alteration of Relevant Proportion of Sentence) Order 2019, which was laid before this House on 14 October 2019, in the last Session of Parliament, be approved.
Mr Deputy Speaker
With this we shall consider the following motion:
That the draft Criminal Justice and Courts Act 2015 (Consequential Amendment) Regulations 2019, which were laid before this House on 14 October 2019, in the last Session of Parliament, be approved.
Chris Philp
It has been 47 days since the general election, and these measures deliver on a crucial manifesto commitment. Taken together, they will ensure that the most serious violent and sexual offenders spend two thirds of their sentence in jail, rather than half their sentence, as is currently the case. By making this change, we both protect the public and ensure that justice is better done. We protect the public because while someone is in prison they cannot commit any further offences, and we will be increasing the length of time they spend in prison. Secondly, this change will build public confidence in the justice system in general and the sentencing regime in particular.
Sir Desmond Swayne (New Forest West) (Con)
Would the public’s confidence not be served if prisoners served the sentence that was delivered in court, rather than this fabrication whereby the sentence is announced and everybody works out on the back of a fag packet what it actually in means for the sentence that will be served? Why go for two thirds, up from a half—why not have the sentence that was delivered in court by a judge served?
Chris Philp
There are provisions, which I shall explain in a moment, to make sure that many of the most dangerous offenders serve all of their sentence in jail, but for many offenders the sentence has two parts: the part served in jail and the part supervised on licence following their release from jail. Together, those two parts make up the sentence. Moving the release point to two thirds for the category of offences we are talking about will make sure that more of an offender’s sentence is served in jail and less of it is supervised under licence. For certain categories of serious offender, as my right hon. Friend mentions, there is a legitimate public expectation that more than half the sentence will be served in prison, rather than automatic release happening at the halfway point. As the Minister responsible for sentencing, I get quite a lot of correspondence from the public and from victims of crime asking why some very serious violent and sexual offenders are released at the halfway point, which is what currently happens.
Let me be clear what this debate will not cover. The regulations do not cover serious terrorist offenders, who will be dealt with separately in a piece of primary legislation that we intend to bring forward shortly to honour a manifesto commitment. Nor will we cover the wider issues to do with sentencing, which we will consider via a sentencing White Paper and sentencing Bill later this year.
Tom Tugendhat (Tonbridge and Malling) (Con)
I am grateful to the Minister for setting out the timetable that he sees going forward. He knows that I have been campaigning hard for Tony’s law and longer sentences, in honour of Tony Hudgell, a child who was brutally attacked by both of his birth parents and left with severe injuries. When does the Minister think his legislative programme might get to that?
Chris Philp
Victims who feel that a sentence is unduly lenient currently have a 28-day period following sentencing to apply under the unduly lenient sentencing scheme to the Attorney General, who can then make a reference to the Court of Appeal. On a review of sentencing more generally, which may well include the tragic case to which my hon. Friend referred, the sentencing White Paper that will come forward a little later this year, followed by a sentencing Bill, will provide my hon. Friend and other colleagues with an opportunity to raise issues that go beyond the matters we are considering today. I will of course listen carefully to this debate, in which colleagues from all parties may raise issues that can feed into the sentencing White Paper.
One topic that the sentencing White Paper will certainly deal with, although we are not dealing with it today, is short custodial sentences, which are not particularly effective at stopping reoffending. The White Paper will address that, and in particular it will make proposals to do more to treat the causes of offending behaviour, particularly drug and alcohol addiction and mental health problems, which are often the cause of high-volume repeat offending. Short custodial sentences do not deal effectively with that cohort of offenders, but that is not the topic of the regulations; it is a matter we will come to in the forthcoming White Paper and sentencing Bill.
Dr Julian Lewis (New Forest East) (Con)
I am grateful to the Minister for giving way again. May I offer a refinement on the suggestion made by my constituency neighbour, my right hon. Friend the Member for New Forest West (Sir Desmond Swayne)? We understand why one wants to give prisoners who are serving a sentence an incentive to behave well in jail, but that could be achieved without this upset of the public perception that someone is getting a longer sentence than they are really getting. Prisoners could be given the sentence that they are going to serve, with the expectation that if they misbehave, it can be extended by a certain amount, rather than their being given a sentence that they can reduce by a certain amount if they behave themselves in prison. That would avoid the perception among the public that the Government are trying to con them into believing that the sentences being imposed are more severe than we all know them to be in reality.
Chris Philp
I thank my right hon. Friend for his intervention. I should make it clear—I will explain this in a bit more detail in a moment—that the standard determinate sentences under discussion today have an automatic release point. The current release point, at 50% of the sentence, is not contingent on good behaviour; it is automatic. We are proposing to remove that automatic release point to two thirds as a first step, but, of course, there are other things that we could do in the area that he has just mentioned. Examining and investigating the clarity of sentencing decisions and how the public understand them are certainly matters that the sentencing White Paper and sentencing Bill can properly look at, and I am very grateful to my right hon. Friend for raising that.
What today’s regulations do is to take a very specific area where we can act quickly and immediately, rather than waiting for the larger and wider piece of work to be done later in the year. Of course, as part of that piece of work, we might well choose to go further than is the case today, but here is an area where we can act quickly and decisively and deliver on a critical manifesto commitment just 47 days after the general election.
Huw Merriman (Bexhill and Battle) (Con)
During the election period, when I was delivering leaflets, a young lady caught up with me and talked to me about her experience at the hands of somebody who had treated her absolutely heinously. She was with her friend, who was a constituent of my hon. Friend the Member for Hastings and Rye (Sally-Ann Hart), and it was her father who was the perpetrator. He was given a sentence of 18 years for those heinous crimes. The two felt that justice had been done until they found out that he would serve only half of that sentence. They told me that that had contributed to them feeling that justice had not been done. The Minister wrote to me very sympathetically when I took up the case. I absolutely support these changes, but can we can have some solidarity in this place for people who do not feel that justice has been served because they have watched their perpetrator serve only half of their sentence?
Chris Philp
I thank my hon. Friend for raising that case once again. I completely agree with the sentiment that he expresses. When a perpetrator of a serious offence automatically gets released only halfway through their sentence, victims very often feel that justice has not been done. Today’s regulations are a small first step in addressing the wider problem to which he refers. We can and we will return to the wider question and see whether we can go further via the White Paper and sentencing Bill later this year. This is very much a first step in the direction that my hon. Friend and other hon. Members have mentioned.
Alex Chalk (Cheltenham) (Con)
I understand entirely the logic behind these proposals, but what analysis has been made of the impact on the prison population and how many further places, if any, will be required?
Chris Philp
I would expect nothing less from my hon. Friend than a forensic and detailed question. In fact, I do have those figures. Perhaps it would be worth going through the details of how this scheme will operate and the consequential impact on the prison population and other matters. In answering his question, let me start by defining exactly what offences are in the scope of today’s regulations. We are talking about the offences appearing in parts 1 and 2 of schedule 15 to the Criminal Justice Act 2003, which could attract a life sentence. They include offences such as rape and grievous bodily harm with intent. Currently, there are three types of sentence that might be handed down for those offences. The first, which is for the most serious offences, is a life sentence with a tariff—the tariff is the minimum amount the offender will serve, after which they are eligible for release by the Parole Board at its discretion. The second type of sentence—the next most serious—is for offenders deemed by the judge to be dangerous. That is called an extended determinate sentence. For those offences, the prisoner is eligible for release after two thirds of their sentence, subject to Parole Board discretion. After release and after their prison sentence, they are subject to an extended period on licence.
The third type of sentence—the type that we are going to talk about today—is a standard determinate sentence, for which somebody is eligible for automatic release at the halfway point, with no involvement from the Parole Board. Those are the sentences that most concern the Government, and on which we are acting today.
Let me turn to the numbers. In 2018, just under 6,000—5,862 to be precise—sentences were handed down that met the criteria I have just laid out. Some people online have suggested that, mostly, these are extended determinate sentences and that today’s regulations will therefore make very little difference. That is categorically untrue. Of those 5,862 sentences, only 90 were life sentences and 243 were extended determinate sentences, but 4,735—81% of those sentences—were standard determinate sentences with automatic release at the halfway point. The vast majority of those sentences for very serious crimes had automatic release after only half the sentence. Some 84% of rape convictions had a standard determinate sentence. That means that 84% of incarcerated rapists were eligible for automatic release at the halfway point. We take the view that that is simply not right.
Daisy Cooper (St Albans) (LD)
The Minister has outlined that this applies to rapists, and to those accused and found guilty of grievous bodily harm.
Daisy Cooper
Yes, GBH with intent—so we are talking about incredibly violent criminals. But the Government’s own assessment of these proposed laws says that they could increase prison overcrowding, introduce significant costs and lead to increased prisoner violence. The gravest risk, however, is that prisoners spend more of their sentence in prison and less time on release with a licence, which could actually lead to an increased risk of reoffending. Although we are all sympathetic to the victims of crime, who may feel like justice has not been done, we absolutely must not introduce an increased risk of violence and reoffending after offenders finish their term. Instead of talking tough on crime, will the Government follow the evidence and do what is necessary to prevent crime and reduce reoffending?
Chris Philp
Ensuring that this cohort of prisoners stays in prison for a bit longer does serve the public interest and public safety, because they cannot commit further offences while they are in prison. Under these measures, they will still spend a third of their sentence on licence. Of course, there is an opportunity for people to take part in rehabilitative activity while they are in prison. There will be an impact on the prison population, which I will outline in a moment, as my hon. Friend the Member for Cheltenham (Alex Chalk) asked the same question. We are making provisions to ensure that places are available so that meaningful rehabilitative work can take place, but this is about preventing crime by ensuring that serious offenders are in prison for a bit longer, and ensuring that victims’ rights are respected by making sure that the time served in prison better reflects the sentence handed down by the judge.
Gareth Johnson (Dartford) (Con)
The Minister is being generous in giving way. I welcome today’s announcement because it injects an element of honesty into our sentencing system, and reduces confusion and frustration among victims. Will he be absolutely categoric that this is part of a process and not an event in itself—that is, will we see further occasions where such measures will be rolled out so that there can be more justice for the victims of crime?
Chris Philp
My hon. Friend has been a tireless campaigner for victims’ rights and ensuring that justice is done. I can give him the assurance he is asking for. This is just a first step. The sentencing White Paper and Bill later this year will have the scope to go further and take wider action across the sentencing field. I look forward to working with him and other colleagues in this area.
Wera Hobhouse
I am grateful to the Minister.
It is important that victims get justice, and that it is seen that justice has been done, but the Liberal Democrats worry about the language that is being used, because there is not enough emphasis on rehabilitation. Will the Minister come forward to point out how effective rehabilitation is actually going to work—in addition to tougher sentences, if that has to be the case?
Chris Philp
The hon. Lady makes a fair point. Sentencing and more time in prison for serious offenders is very important, for the reasons that other Members have outlined, but rehabilitation is important as well. She will be aware that private community rehabilitation companies did some of that work, and that it is now being brought back in-house to be provided by the National Probation Service. She will be heartened to hear that the probation service and the Prison Service will be receiving significantly extra money in the next financial year, much of which will specifically address the matter of rehabilitation.
Let me outline in more detail exactly what this first step entails. I have defined a cohort of offenders and a cohort of offences. For standard determinate sentence offenders, we intend to apply the later release measure, in order to increase the amount of the sentence served from half to two thirds, where the sentence passed down is seven years or more. That applies to about one third of the 4,735 standard determinate sentences that I referred to earlier, so this measure will apply to 1,450 offenders per year, based on the 2018 figures. To be clear, of the 1,450 offenders affected directly by this measure, 30% were convicted of rape, and a further 30% were convicted of causing grievous bodily harm with intent—very serious assault. We will make sure that those rapists and serious violent offenders spend two thirds, not half, of their sentence in prison.
My hon. Friend the Member for Cheltenham asked about the prison population. These measures will start to bite in about three and a half years’ time, because any sentence in the categories that I have described handed down from 1 April this year onwards will have the later released provision applied, so it will take 50% of three and a half years, minus time on remand—just under three and a half years—for these measures to start affecting the prison population. The impact assessment, which I see that the hon. Member for St Albans (Daisy Cooper) has in her hand, shows that as a result of this measure, by March 2024, there will be an uplift in the prison population of 50, but by 2030, there will be 2,000 extra prisoners in the prison estate.
The Government are already taking action to increase the prison estate—action that will include accommodating the extra 2,000 prisoners that this measure will create. We are building 3,500 additional prison places at Glen Parva, Wellingborough and Stocken, and in the 2019 spending review, just a few months ago, the Government committed to building a further 10,000 new prison places. The Minister of State, Ministry of Justice, my hon. and learned Friend the Member for South East Cambridgeshire (Lucy Frazer), is working hard on planning for those extra 10,000 places. In fact—this is very timely—she is at this very moment arriving in the Chamber. She has clearly been busily working on those extra 10,000 places as we have been speaking.
Victoria Prentis (Banbury) (Con)
Of course, what really matters to victims is that there is not reoffending, and that we are able to rehabilitate prisoners while they are in prison. The Minister was talking about rapists. Can he assure me that Horizon and Kaizen, the new sex offender training programmes—although they are no longer called that—are actually effective, and that we will have sufficient numbers of staff to deliver them to the new prisoners who will be spending longer inside?
Chris Philp
As always, my hon. Friend raises an extremely pertinent point. I can confirm that these programmes will be a focus both for Her Majesty’s Prison and Probation Service and, of course, for Ministers at the Ministry of Justice. As I said, the Prison Service and the probation service will see significant increases in funding next year as a consequence of the 2019 spending review settlement, and material amounts of that funding will be applied to the programmes that we are providing.
In addition to the extra 10,000 prison places that my hon. Friend the Minister has been working on, we are spending an extra £100 million on prison security, and in the next financial year alone—the one due to start in a few months—we will spend an extra £156 million on prison maintenance. That is on top of the extra 4,581 prison officers who were recruited between October 2016 and September 2019. The Government are acutely conscious that the increase of 2,000 in the prison population needs to be catered for. Plans are in hand to do that, as well as to ensure that appropriate levels of resource are dedicated to rehabilitating those extra prisoners.
Kate Green (Stretford and Urmston) (Lab)
I apologise for coming in late, Mr Deputy Speaker; I was at another meeting. What assessment has been made of the likely rates of reoffending among the prisoners who will be released after longer custodial sentences? There is a quite widespread view among penal campaigners that longer custodial sentences will not be as effective at rehabilitation as rehabilitation in the community. In looking at the long-term need for prison places, what assessment have the Government made of reoffending rates among these particular individuals?
Chris Philp
Of course, the longer that is spent in prison, the more opportunity there is to deliver rehabilitative services. If we look at reoffending rates in general, they are worse for people serving short prison sentences, which is why I mentioned the importance of focusing on treatment of mental health and addiction problems as an alternative to short custodial sentences. We do not have precise reoffending figures for the cohort we are discussing today, but for broadly these kinds of offenders serving sentences of four to 10 years, that is the closest proxy I have been able to find. The one-year reoffending rate is about 20% at present, but of course we would like to do more work to reduce that.
The second statutory instrument before the House is a technical one, designed to ensure that consecutive sentences are dealt with in the same way as the non-consecutive sentences that I have described. These measures deliver a manifesto commitment in just 47 days and show that this is a Government who will act, not delay, and who will build public confidence in the justice system and protect the public. I commend these measures to the House.
Chris Philp
This has been a full and, at times, moving debate. I have been particularly grateful for the contributions by the many Members from the new 2019 intake. Their contributions have been impressive, well-informed and moving, and I look forward to hearing many more such contributions in the weeks, months and indeed years ahead.
I wish to touch briefly on some of the points that have been raised. The hon. Member for Bradford East (Imran Hussain) and my hon. Friend the Member for Bromley and Chislehurst (Sir Robert Neill) both drew attention to making sure that the resources are available so that the extra people in prison can be properly accommodated and rehabilitated. Let me repeat the assurance I gave that the extra investment, a total of £2.75 billion, is designed to do exactly that. We are talking about 10,000 extra prison places, over and above the 3,500 currently under construction, as well as extra money for prison refurbishment and prison security.
My hon. Friend the Member for Telford (Lucy Allan) made an extremely powerful point, as did the hon. Member for Rotherham (Sarah Champion), who is not in her place, about the importance of victims in this entire debate. We are doing this as much for victims as for anything else. They have suffered terribly at the hands of offenders and expect the perpetrator to spend more of their sentence in prison. My hon. Friend the Member for Bishop Auckland (Dehenna Davison) spoke movingly about her own tragic experience of a family member who was a victim of a very serious crime, and the terrible circumstance she described is exactly why we are bringing forward this statutory instrument. My hon. Friend the Member for Watford (Dean Russell) made a similar point about the importance of victims in this whole debate. Opposition Members asked, “Why are you bringing this forward? What is the rationale?” The speeches we have heard this afternoon about the impact that early release has on the victims of these terrible crimes—often crimes of rape and, in some cases, even manslaughter—powerfully make the case for this statutory instrument. However, as I said and as many Members have mentioned, it is only the first step. The White Paper we will be publishing, followed by a sentencing Bill, provides an opportunity to go further and broader.
My hon. Friend the Member for Bury North (James Daly), who clearly has a lot of experience in this area, touched on tackling the causes of some kinds of offending. I very much want to see us do more to treat issues such as drug addiction, alcohol addiction and mental health problems, which are often the causes of some kinds of low-level repeat offending. As an alternative to short prison sentences, treatment is essential.
My hon. Friend the Member for Sevenoaks (Laura Trott) made an interesting and important point about whether extended determinate sentences should be more widely applied. The figures I gave earlier showed that few serious offences currently attract EDSs—for example, 84% of rapes get a standard determinate sentence with an automatic release point—so that is exactly the kind of question we should consider as part of the sentencing White Paper and the debate that will follow. I strongly urge my hon. Friend to take that point forward. I have listened to it, but I urge her to make it again and to make representations during the White Paper process.
My hon. Friends the Members for Hitchin and Harpenden (Bim Afolami) and for Ashfield (Lee Anderson) made some important points about prevention. My hon. Friend the Member for East Surrey (Claire Coutinho) made some equally important points about the importance of preventing criminal offences by incarcerating serious criminals for a little longer.
My hon. Friend the Member for Redditch (Rachel Maclean) made a critical overarching point: that by fulfilling this manifesto commitment so quickly, after just 47 days, we are demonstrating that we are on the side of law-abiding citizens and believe in keeping our promises.
Finally, my hon. Friend the Member for Ipswich (Tom Hunt) made an intervention about a manslaughter case in which a 14-year sentence was handed down. If I have understood the case history correctly, the case that he described—a 14-year sentence for manslaughter with an automatic release at halfway—is exactly within the scope of this statutory instrument. By passing this SI, we can ensure that the terrible circumstances that he so eloquently and powerfully described will not happen again.
We have heard some extremely compelling speeches this afternoon. Members have spoken on behalf of victims, whose voice it is so important that we hear in the House. The measures that we are about to pass are simply the first step in part of a wider process to make sure that we not only protect the public but respect the rights and concerns of victims. I strongly commend the order and regulations to the House.
Question put and agreed to.
Resolved,
That the draft Release of Prisoners (Alteration of Relevant Proportion of Sentence) Order 2019, which was laid before this House on 14 October 2019, in the last Session of Parliament, be approved.
Resolved,
That the draft Criminal Justice and Courts Act 2015 (Consequential Amendment) Regulations 2019, which were laid before this House on 14 October 2019, in the last Session of Parliament, be approved.—(Tom Pursglove.)