Criminal Justice System: Families Bereaved by Public Disasters
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The Parliamentary Under-Secretary of State for Justice (Alex Chalk)
Occasionally—very occasionally—a debate takes place in this House that has such searing force that it lodges forever in the memory because of the way in which it measures up to the gravity of the subject matter. This is one such debate. I thank the hon. Member for Garston and Halewood (Maria Eagle) for securing it, but even more for giving a speech that was of such exceptional clarity and force that I hope not just her constituents, but those more widely in the great city of Liverpool, will read it and, even better, listen to it.
I also thank my right hon. Friend the Member for Maidenhead (Mrs May), to whom I shall return in a moment; the hon. Member for Bootle (Peter Dowd)—what a joy it is to see him in his place—my hon. Friend the Member for Bromley and Chislehurst (Sir Robert Neill); the hon. Members for Liverpool, Wavertree (Paula Barker) and for Birkenhead (Mick Whitley); the hon. Member for Liverpool, West Derby (Ian Byrne), who also made an exceptional speech; and the hon. Members for Wirral West (Margaret Greenwood), for Liverpool, Riverside (Kim Johnson) and for Strangford (Jim Shannon).
I want to mention the former Prime Minister, my right hon. Friend the Member for Maidenhead, because it says an awful lot that, having acted as Home Secretary and as Prime Minister, she now acts as a Back Bencher. That can be encapsulated neatly, hon. Members may think, by the single word “duty”. She encapsulates duty, and Parliament is the richer for it.
The Government recognise the fundamental importance of placing the bereaved at the heart of any investigation that follows a major disaster. That, perhaps, is taken as read. We remain committed to ensuring that bereaved people are supported. That means that they are not just treated with the basic humanity and respect, which I am afraid was not the case in the past, but provided with—the hon. Member for Garston and Halewood used this word—agency, given a voice and thought of not as spectators but as participants. The way she put it—I think she was absolutely right—was that the bereaved cannot be considered a mere adjunct to proceedings. I cannot put it better than that.
Stepping back from inquests for a moment, I think that there is a new and welcome culture in that regard in criminal courts, as well as in inquests, in so far as I remember that when I began prosecuting as a barrister, witnesses and the bereaved were considered to be completely incidental. In fairness, because of reforms made when the Labour party was in power and while we have been in government, there has been a welcome trend to ensure that witnesses are spoken to by prosecuting barristers, shown round the court, given a copy of their statement and so on. However, we do need to go further.
Before I turn to the IPA proposals specifically, I want to take a moment to set out a bit of context. Just before I do that, however, let me reiterate that the apology that was made from this Dispatch Box by David Cameron for the double injustice that the hon. Lady referred to is as relevant today as it was then. It is worth spelling out what that double injustice was: the first injustice for the families was losing their loved ones, and the second was being traduced.
Let me turn to that context. In recent years, as the House has discussed, a forensic spotlight has been shone on the experience of the bereaved, and on bereaved people in general. First, there was the report by Dame Elish Angiolini into deaths and serious incidents in police custody. Then, most pertinent to today’s proceedings, there was the report by Bishop James Jones, commissioned by the former Prime Minister, to ensure that the pain and the suffering of the Hillsborough families would not be repeated. I want to take a moment just to focus a little on what was said in that report, a copy of which I have here and have had the opportunity to re-read.
In section 2 of the report, on the proper participation of bereaved families at inquests, Bishop James Jones talked about two things in particular: first, legal representation for bereaved families in appropriate cases; and, secondly, cultural change. Legal representation can be so important. It was, in fact, the former Home Secretary, my right hon. Friend the Member for Maidenhead, who ensured that in those second inquests the families did have legal representation. If one takes a moment to read what is in Bishop James Jones’s report, one can see that he included some of the testimony from the bereaved families. One said:
“The second inquest gave me my children back.”
The opportunity to lodge pen portraits, and to have those lawyers to speak to, was transformational in terms of providing the very agency to which the hon. Member for Garston and Halewood referred.
Bishop James Jones went on to talk about another matter as part of proper participation: cultural change. Here, I wish to pick up the point made by the former Home Secretary, my right hon. Friend the Member for Maidenhead. Bishop James Jones, in paragraph 2.95, said:
“I believe that ‘proper participation’ of bereaved families at an inquest is not just a question of funding, but also of cultural change.”
What he observed was the point that others have made:
“the highly adversarial behaviour of some lawyers employed by public bodies suggests that additional training may be required for solicitors and barristers working in the inquest system.”
He was not the first person to make that point. The Lord Chief Justice Lord Judge, in his judgment of 19 December 2012 which quashed the original inquests, described the original proceedings as having been “scarred” by having degenerated into “a kind of adversarial battle”. That is something we need to consider as well.
The current Chief Coroner, his honour Judge Teague QC, said publicly that it is “precisely the inquisitorial nature of the coroner’s investigation that is important to the centrality of the bereaved. Where proceedings take on a more adversarial character, the focus is liable to be diverted away from the bereaved where it properly belongs and channelled instead into some extraneous satellite dispute, with the risk that it ends up as yet another form of litigation.” I speak as a lawyer myself. I know that sometimes that can make the situation worse.
Sir George Howarth
Mr Deputy Speaker, I neglected to apologise earlier for not being here at the start of the debate. I was chairing Westminster Hall and it was therefore impossible for me to be here.
The Minister is making a very good point. I can remember an exchange between the right hon. Member for Maidenhead and myself when she was Home Secretary in which we talked about the stereotyping of people. Somewhere at the bottom of all this, the way in which the judiciary and some sections of the media dealt with it was all about a stereotype—a stereotype of football fans—which was convenient for them, but actually, in this case, bore no resemblance to the truth. Does he agree that stereotyping in any situation is wrong, but that in this one it has been absolutely appalling?
Alex Chalk
What an excellent point. The idea that all football fans are the same, behave the same way and think the same way is an absurdity. Perhaps we understand that better now than was the case 30 years ago.
To conclude the point about the context, what has happened since 2017 is a document that was referred to, but which I just want to take a moment to discuss—“A Guide to Coroner Services for Bereaved People”. I mention it because there is a welcome focus on bereaved people and it contains all the information that one would expect. I will not rehearse it in exhaustive detail, but I just want to pick up on one point made by the former Home Secretary and former Prime Minister, my right hon. Friend the Member for Maidenhead, which is that it is really important that there is never inequality of arms—in other words, in a situation where the state is potentially on trial or certainly under scrutiny, it acts towards the bereaved parties in a way that is defensive and unfair. So I was very pleased to see the annex to that document effectively has a code of conduct in those circumstances. It states:
“Where a Government department has interested person status to an inquest, the Government and the lawyers it instructs at inquests will adopt the following principles”.
I will not read them all out, but it includes, in paragraph 3:
“Communicate with the bereaved in a sensitive and empathetic way which acknowledges and respects their loss.”
Hon. Members would have thought that that is obvious, but it bears emphasis. The annex also includes:
“Keep in mind that the bereaved should…Be at the heart of the inquest process…Feel confident that the inquest will get to the facts of what happened…Feel properly involved throughout and listened to.”
That is part of a new code of conduct and it is absolutely right.
I want to make a final point in focusing on there not being a “closed door of the public sector” , which is the phrase that my right hon. Friend the former Prime Minister used. The Bar Standards Board published, I think as recently as this week, resources for those practising in the coroners’ courts, which includes instructions to:
“Adapt your style of communication and engagement to the unique purpose of inquests”—
and so on. That effectively says to representatives, “Remember bereaved people. They are not simply observers in this. They are participants. They are vulnerable people. They deserve to be treated with respect.”
Finally on context before I turn to the IPA, there have been very important changes made to the exceptional case funding scheme. I know that there are a lot of people in the House who greatly value legal aid, and we certainly do. The Government recognise that although legal aid is generally not available for inquests—by the way, that is as it should be, because the inquest is essentially a fact-finding process—there are some circumstances where legal representation may be required for bereaved families, as the former Prime Minister noted in respect of the second inquests, and that is provided through the ECF scheme.
We believe that where there should be legal aid for bereaved families, access to it should be as simple and easy as possible. That is why we have reviewed this process as part of our legal aid means test review. Following that work, I am delighted that we have made a commitment, in the Government’s response to the Justice Committee’s report of its inquiry into the coroner service, that ECF applications for representation at inquests will no longer be means-tested. That is a very important development. It will broaden the scope and access to legal advice and support.
Let me turn to the IPA and the Bill that the hon. Member for Garston and Halewood prepared, which I have read. As the House knows, in 2018, the Government consulted on proposals to establish an IPA, and the consultation looked at a range of issues about how best to support those bereaved following a public disaster. It asked a number of challenging questions because, as always, we know in this House that the devil is in the detail. We need to focus on issues such as: how exactly an IPA should interact with investigatory bodies, how one avoids duplication, whether the IPA should be involved only where fatalities occur, whether it ought to have a wider remit, and so on.
It is right to say that there was a mixed reaction from those who provided responses, including on the circumstances in which such an appointment should be triggered. There was also the issue of the name. As the consultation document noted, the Government do not see an IPA as providing legal advice and representation—of course not—and it is not an advocate in that sense. It also noted that such an IPA may be supporting a
“diverse group of people whose views may differ, perhaps strongly”.
Just as the right hon. Member for Knowsley (Sir George Howarth) made the point that it is absurd to put all football fans in one category, it is also very dangerous to put all the bereaved in one category, and we must be mindful of that. There was, however, more agreement on the importance of the IPA dovetailing with other support already provided. Plainly on that latter point, it will be important to consider the new and, we would suggest, significantly improved landscape, in terms of the culture and support that I referred to.
Since that consultation, there have been a number of significant events, such as a new Government, a general election and a pandemic, but perhaps most importantly, there has been a criminal trial, which has been referred to. Right hon. and hon. Members will be aware that that does mean that there are necessarily some things that cannot properly be discussed for fear of prejudicing, but that is now behind us, and I am pleased to announce today that we will be responding to the 2018 review by the end of this year, and I expect it to be rather earlier than that.
Quite apart from that, the Government are committed to continuing their engagement with the families bereaved by the Hillsborough disaster. Indeed, we have done so earlier in the summer and will continue to do so. It is critical that the lessons that can be learned from their awful experience are not lost. To that end, the Home Office has been working closely with its partners in the relevant Departments and organisations, and is now engaging with the Hillsborough families before publishing the Government’s overarching response.
The former Prime Minister made the point that we must make sure that other types of inquiry do not fall within the loophole that has been observed in criminal cases such as this. If an inquiry is not set up under the auspices of the Inquiries Act 2005, we need to ensure that we do not have a situation in which people can apparently avoid the consequences of their actions. We are considering very carefully a report from the Law Commission, which, as Members will know, is there to look at lacunae in the law and try to improve it. The commission came up with some recommendations in December last year, considering potential offences of corruption in public office and breach of duty in public office. Those are two potential offences that we are looking at with great care.
Ensuring that the bereaved are still at the heart of the investigatory process that follows a major disaster remains fundamentally important, and important steps have been taken. However, we are going to go further and, as we do so, we will continue to welcome the interest and, yes, the challenge—the proper challenge—from people standing up for their constituents, standing up for their city and standing up for accountability. I thank Members on both sides of the House for some measured, powerful and principled contributions today.