Rehabilitation of Offenders Act 1974 (Exceptions) Order 1975 (Amendment) (England and Wales) Order 2020
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Lord Keen of Elie
That the draft Order laid before the House on 9 July be approved.
The Advocate-General for Scotland (Lord Keen of Elie) (Con)
My Lords, I beg to move that the House considers the Rehabilitation of Offenders Act 1974 (Exceptions) Order 1975 (Amendment) (England and Wales) Order 2020 and the Police Act 1997 (Criminal Record Certificates: Relevant Matters) (Amendment) (England and Wales) Order 2020, which were laid in Parliament on 9 July.
These two orders relate to the process by which an individual may be required to self-disclose criminal records when applying for roles eligible for standard and enhanced criminal records certificates or have criminal convictions and cautions disclosed on a standard or enhanced criminal record certificate issued by the Disclosure and Barring Service.
As noble Lords are aware, the criminal records disclosure regime is designed to protect the public, in particular children and vulnerable adults. We want to ensure that criminal records disclosure is proportionate, balancing safeguarding with supporting people who have offended in the past into employment. Criminal records checks provided by the Disclosure and Barring Service form an important part of an employer’s broader approach to safeguarding. They support employers to make informed decisions about an individual’s suitability when they recruit for sensitive roles dealing with children and vulnerable adults.
As noble Lords are aware, the Supreme Court handed down its judgment on the case of P, G and W on 30 January 2019. That judgment determined that certain aspects of the current disclosure rules are incompatible with Article 8 of the European Convention on Human Rights, which is the right to a private life. The court found a rules-based disclosure regime for criminal records certificates is justifiable and in accordance with the law, but it found two areas of concern. First, the rule where all convictions are disclosed because an individual has more than one conviction, known as the multiple conviction rule, was found to be an unnecessary and disproportionate means of indicating a propensity to offend.
Secondly, the automatic disclosure of out-of-court disposals and youth reprimands and warnings administered to young offenders was found to be an error of principle given the instructive purpose of these disposals. The Supreme Court held that
“a warning or reprimand given to a young offender whose moral bearings are still in the course of formation, requires no consent and does not involve the determination of a criminal charge. Its purpose is wholly instructive, and its use as an alternative to prosecution is designed to avoid any deleterious effect on his subsequent life.”
These two orders are necessary to ensure that the disclosure of criminal records on standard and enhanced certificates is proportionate and fully complies with Article 8 of the convention. The two orders, read together, will have the effect that youth cautions and multiple convictions, unless affected by the other rules, no longer have to be disclosed when a person is asked about them and will no longer be subject to automatic disclosure on standard and enhanced criminal records certificates.
The Rehabilitation of Offenders Act 1974 affords offenders protection from having to disclose convictions and cautions once those convictions and cautions have become spent under the Act—the point at which the offender has become rehabilitated. The exceptions order lists activities or categories of jobs, where those protections are lifted. For these listed activities or jobs, applicants must, if asked, disclose their otherwise spent cautions and convictions, unless the exceptions order provides that they are protected. The primary rationale behind the exceptions order is that there are certain jobs, such as positions involving a high level of public trust—for example, unsupervised work with children—where more complete or relevant disclosure of an individual’s criminal record may be appropriate to mitigate risks to public safety.
Section 113A of the Police Act 1997 defines relevant matters which must be disclosed by the Disclosure and Barring Service in response to an application for a standard or an enhanced criminal record certificate. The two orders before us today work together to amend the criminal records disclosure system. First, the Rehabilitation of Offenders Act 1974 (Exceptions) Order 1975 (Amendment) (England and Wales) Order 2020 draft instrument amends Article 2(2) and (4) of the exceptions order to change the definition of a protected caution, being a spent caution not requiring self-disclosure, to include all those given where a person was under 18 at the time. It also amends Article 2(5) and (6) to change the definition of a protected conviction by removing the multiple conviction rule exemption from the scope of the definition. The effect of this order is that an individual with a youth reprimand, warning or caution, or those with more than one conviction, will no longer have to self-disclose their criminal record when applying for a role eligible for a standard or enhanced DBS check, unless one of the other disclosure rules is engaged. This amendment is necessary, as I say, to ensure that all aspects of the criminal records disclosure system are proportionate and compatible with the convention.
The Police Act 1997 (Criminal Record Certificates: Relevant Matters) (Amendment) (England and Wales) Order 2020 amends the definition of “relevant matter” by excluding the multiple conviction rule and youth cautions, including reprimands and warnings, from the scope of the definition of “relevant matter”. A relevant matter is a matter which must be disclosed by the Disclosure and Barring Service in response to an application for a standard or enhanced criminal record certificate.
The effect of this order is that youth reprimands, warnings and cautions and multiple convictions, where not affected by any other rule, will no longer be subject to automatic disclosure in criminal records certificates issued by the Disclosure and Barring Service. As criminal records disclosure is a devolved matter, these orders apply to England and Wales only.
Those with more than one conviction will no longer have to disclose them unless one of the other disclosure rules applies. Convictions and adult cautions will still be disclosed on certificates if they are recent, if they were received for a specified violent or sexual offence or if a custodial sentence was imposed. Youth reprimands, warnings and cautions will no longer be automatically disclosed through these rules.
Where an offence has been committed, we have a responsibility to ensure that the public are adequately safeguarded and that employers can make informed recruitment decisions through the disclosure of appropriate and relevant information, particularly for roles which involve close contact with children and vulnerable adults or a high level of public trust, but the rehabilitation of offenders is vital to enable long-term desistance for those who have offended in the past. By changing the disclosure rules, we are supporting those with childhood criminal records and those with old and minor convictions to move on with their lives, to be reintegrated into society and to take up employment and training opportunities. We are committed to increasing the employment rates of people who have offended in the past. The importance of employment in enabling those who have offended in the past to move forward with their lives cannot be overstated. We have an obligation to do what we can to make sure that people with convictions do not offend again, and employment is one of the most effective ways to do that.
These amendments to the exceptions order and the Police Act protect the privacy of an individual and represent a proportionate means of retaining the vital protections of relevant disclosure to employers, when they need them to make recruitment decisions for sensitive roles. I seek to reassure those who may be concerned that ceasing automatic disclosure of some criminal records presents a safeguarding risk. Other disclosure rules ensure that recent, sexual or serious violent convictions, adult cautions and any convictions that resulted in a custodial sentence will continue to be automatically disclosed on standard and enhanced DBS certificates. Furthermore, the statutory regime enables chief police officers to disclose any information they consider to be relevant to the purpose of a certificate and which, in the chief officer’s opinion, ought to be included in the certificate.
We intend to update the associated Home Office statutory guidance for the police alongside this legislative change to make it clear that information about convictions and cautions not automatically disclosed under the rules can, in principle, be included in a certificate in the same way as other police information reasonably believed to be relevant to the purpose for which the certificate is being sought.
In conclusion, we welcome the Supreme Court’s recognition of the important public interest in disclosing criminal records to protect children and vulnerable adults from harm, and we also acknowledge their judgment that two aspects of the regime are disproportionate. We are confident that these changes will still enable employers to make informed recruitment decisions to support safeguarding, but in a way that enables those who committed minor offences and who offended long ago to move away from their past. This will have particular benefit to those with childhood cautions. I invite noble Lords to support these two orders and I beg to move.
Lord Keen of Elie (Con)
My Lords, I am grateful for the contributions to this debate. I will touch briefly on a few points.
First, regarding the points made by the noble Lord, Lord Ponsonby, he is quite right to assume these matters will refer to both conditional cautions and cautions. I understand his point about having to address unemployment amongst those leaving imprisonment, and we are concerned to develop through-the-gate services.
More generally, we are not proposing a wider review at the time, but I believe that this legislation addresses the Supreme Court ruling in full. We are confident that the regime will help employers make informed recruitment decisions, particularly for roles involving children and vulnerable adults.
Touching on another point from the noble Lord, Lord Ponsonby, we feel it is for employers to make a subjective judgment as to the circumstances in which they feel they should make a DBS check. Clearly, we want to enable people affected by this legislation to move away from their past, particularly those who have been subject to childhood cautions. It is in these circumstances that I commend these draft instruments to the House.