Draft Legal Aid, Sentencing and Punishment of Offenders Act 2012 (Commencement No. 14) Order 2019
(Limited Text - Ministerial Extracts only)
Read Full debate
The Parliamentary Under-Secretary of State for Justice (Chris Philp)
I beg to move,
That the Committee has considered the draft Legal Aid, Sentencing and Punishment of Offenders Act 2012 (Commencement No. 14) Order 2019.
It is a pleasure to serve under your chairmanship, as always, Sir David.
The purpose of the draft instrument is to enable the Secretary of State to make alcohol abstinence and monitoring requirements available across England and Wales. The Legal Aid, Sentencing and Punishment of Offenders Act 2012 required that pilots be run before these measures were introduced across England and Wales. Those pilots have now been run in London and Humberside, so this statutory instrument provides for the roll-out across the country by bringing into force section 76 of the LASPO Act, which itself inserts section 212A into the Criminal Justice Act 2003.
This legislation will give courts a new tool to directly address alcohol-related offending. As part of a community sentence, judges and magistrates will be able to impose a ban on drinking alcohol for up to 120 days, using continuous electronic monitoring.
Alcohol-related crime places a huge strain on our society. The most recent figures published in the crime survey for England and Wales of 2018 estimated that 39% of violent incidents were connected with the influence of alcohol, so it is a serious issue. Through enforcing abstinence, AAMRs are designed to mitigate the offending behaviour driven by alcohol and to interrupt the consumption of alcohol that has caused a particular offender to behave as they have done.
As I mentioned, there have been two pilots, as required by the 2012 Act. The first was in London, initiated by the Prime Minister when he was Mayor of London, and the second took place in Humberside, Lincolnshire and North Yorkshire. Those pilots have been subject to five separate evaluations. It is worth saying that AAMRs are imposed on offenders who do not have treatment requirements imposed on them. Where someone has an alcohol problem that requires medical treatment, we do not use an AAMR—it is one or the other.
During the course of the pilot, about 1,500 AAMRs were—[Interruption.] We welcome support from all corners of the House. The hon. Member is extremely welcome; we are a very broad church these days. During the pilots, compliance with those 1,500 AAMRs was extremely high. There was a 94% compliance rate in terms of the process being completed, and the compliance rate with alcohol abstinence was 98% in the Mayor’s Office for Policing and Crime area—the London area—and 97% in Humberside and North Yorkshire. The evidence suggests that AAMRs are extremely effective at persuading the offender to abstain from drinking alcohol.
On the kinds of offences for which AAMRs were imposed, in London 45% of the orders were used for violent offenders, and in the Humberside pilot 31% were for offenders where there was a domestic abuse offence.
Sentencers have welcomed the use of these measures. It so happens that one of my parliamentary caseworkers is a magistrate at Croydon magistrates court in London, and anecdotally she has reported that she feels the orders work well. That has been reflected in the more formal feedback via the five studies.
The police also welcome these measures. The Humberside police and crime commissioner, Keith Hunter, said:
“The period in which the offender is tagged will give rehabilitation agencies a real opportunity to work with the individual and get them to recognise and change their behaviour, hopefully for good. I would like to see these orders available nationally as a standard feature of the Criminal Justice System.”
That is precisely what we are doing this afternoon. Moreover, Julia Mulligan, the North Yorkshire police, fire and crime commissioner, said:
“This has proved to be a successful pilot, with many lessons learned along the way. We know alcohol can play a key part in offending for some people, and this appears to have been a positive intervention—reducing offending markedly among those wearing tags.”
It is clear, Sir David, that this has been a successful pilot, and it is right that we activate section 76 of the LASPO Act and get on with making this provision available to magistrates and Crown courts across the entire jurisdiction. In the roll-out, we intend to follow a similar process to that used during the pilot, in that we will do it region by region, starting this year. We expect the full national roll-out to take about 12 months. Once fully rolled out nationally, we estimate that about 2,300 offenders per year will be subject to the orders, although that is a matter for judges, magistrates and the Crown court to decide when passing sentence.
We intend to publish a White Paper on sentencing later this year, which will look at toughening community sentences more generally. I am keen, as is the Lord Chancellor, to make sure that where someone has a substance or alcohol addiction problem, or a mental health problem, we do more to treat the underlying health causes rather than giving a short custodial sentence, which can be ineffective. We are not proposing to abolish short custodial sentences, but where treatment is appropriate we would like to make sure that people receive it to address the underlying causes of their behaviour. That is consistent with our general direction of travel.
In conclusion, the pilots have been successful, and judges and the police welcome the measure. I commend the statutory instrument to the House.
Chris Philp
I will respond briefly to some of the points raised by the shadow Minister. I thank him for his intention not to divide the Committee and for the constructive and thoughtful tone of his remarks.
The hon. Gentleman mentioned the domestic abuse Bill. It is not my policy area, but I believe that it is the intention to introduce it in the House in the extremely near future, so it will be taken forward. We have clearly had a somewhat disrupted 12 months or so, with various things impeding the passage of legislation, but the Bill is important, as he rightly says, and we are moving on with it at pace now that we have a more stable political environment.
The hon. Gentleman asked why the pilots took so long. When we are piloting a new criminal justice intervention, it is right that we do it thoughtfully, rather than in a hurry. There are examples of interventions that were rushed and not properly thought through. It is reasonable that, before we change the law, as we are doing today, we pilot a measure in a considered and thorough way. As I said, five evaluations have been conducted. He asked about the roll-out programme and, again, we do not want to rush it. We want to make sure that it is done properly in each region in turn. Getting it done in the space of 12 months or so is not an unreasonably long time.
The hon. Gentleman asked about the release of the evaluations. The evaluations are independent, and we believe that those done on behalf of MOPAC and on behalf of Humberside, Lincolnshire and North Yorkshire will be published publicly. He will be able to read them in due course.
There have in the past been serious problems with the tagging contracts, which the hon. Gentleman referred to. Of course, any private sector contract, particularly in the area in question, will be monitored carefully for all the reasons he mentioned.
The hon. Gentleman asked about breach. Clearly, if someone who is given an AAMR breaches the requirement by taking the tag off or drinking when they are not supposed to, that will in the first instance be a matter for the probation service. It could escalate the matter to, for example, a magistrate who would be able to take appropriate follow-up action. The magistrate’s range of options would include another community order, a fine or, in extreme cases, imprisonment.
I completely agree, on the question of treatment, that it is critical that if someone has a serious health problem—whether that is drug or alcohol addiction or a mental health problem—we seek to treat it. AAMRs are not about treating people with serious addiction. Alcohol treatment requirements are designed to do that. However, AAMRs have a role to play with people whose drinking is problematic but falls short of addiction meeting the medical threshold requiring treatment, for which separate ATRs are in place.
John Howell (Henley) (Con)
The Minister makes a distinction between the AAMR and medical treatment. Is he happy that that is a robust distinction that can be upheld in practice?
Chris Philp
Of course, it is always for the magistrate or Crown court to decide on which side of the line a particular patient falls, but, as I have said, we shall be returning to this area in the sentencing White Paper to be published later in the year. A critical part of that will look at ways to deepen and widen treatment for people who have addiction and mental health problems. The question that my hon. Friend raised will be addressed in the White Paper and I strongly encourage him, and others with expertise of the kind he has, to contribute to the thinking about that. It is exactly the sort of question that we shall address.
I hope that I have been able to respond, briefly, to some of the questions that were raised. I once again commend the instrument to the Committee.
Question put and agreed to.