Police, Crime, Sentencing and Courts Bill
(Limited Text - Ministerial Extracts only)
Read Full debateWednesday 15th December 2021
(3 years ago)
Lords ChamberPolice, Crime, Sentencing and Courts Act 2022 View all Police, Crime, Sentencing and Courts Act 2022 Debates Read Hansard Text Amendment Paper: HL Bill 72-III(a) Amendments for Report (Supplementary to the Third Marshalled List) - (14 Dec 2021)
22:16 - Division on Amendment 85 - Ayes: 30 / Noes: 79 - Amendment 85 disagreed.
Lord Ponsonby of Shulbrede (Lab)
My Lords, my first interest in criminal justice came about 20 years ago, before I became a magistrate, when I was a trustee of the Wandsworth Prison visitors’ centre. Like all those centres, it was set up on the recommendation of Judge Stephen Tumim, and we dealt with the needs of the families of prisoners. It was then that I first came across this problem—it is not new—and the fact that it is very much the management of small issues that is of central importance for the prisoners and their families.
We owe a debt of thanks to the noble Lord, Lord Hodgson. He has indeed gone into the detail of this problem and come up with a highly practical way of resolving it—tonight, potentially. This House should take advantage of that opportunity. In one sense, I will be intrigued to hear what reasons the noble and learned Lord the Advocate-General for Scotland might give for not pursuing this, but this really is an opportunity. The noble Lord, Lord Hodgson, has addressed the three original points made in Committee in his new amendment, and I really encourage the noble and learned Lord to take advantage of this opportunity.
The Advocate-General for Scotland (Lord Stewart of Dirleton) (Con)
My Lords, this amendment seeks to reduce releases on a Friday, or on days before bank holidays, including releases of persons whose release falls on a non-working day, by creating a power for the Minister to establish a pilot scheme via secondary legislation that would grant prison governors the discretion to release earlier in the week, where that would be helpful for the prisoner’s reintegration into society.
I thank all noble Lords who have participated, particularly my noble friend Lord Hodgson of Astley Abbotts and the noble Baroness, Lady Lister, for their constructive and entirely commendable approach to this. As my noble friend put it, rather than simply rehearsing the arguments made at an earlier stage, they have gone away, considered the matter and sought to refine them in answer to the points made by my noble friend Lord Wolfson of Tredegar.
The question posed ultimately by the noble Lord, Lord German, rehearsing the one posed by my noble friend, was: what is not to like? Regrettably, I cannot answer that with “Nothing”, which I suspect was the answer being fished for. I will endeavour to explain why.
The noble Baroness, Lady Lister, highlighted the existence of a discretionary scheme in Scotland, in terms of the Prisoners (Control of Release) (Scotland) Act 2015. We have engaged with the Scottish Government and looked at research carried out by the Scottish Prison Service, and we have seen that the uptake of this discretionary scheme since 2015 is extremely low: only 20 prisoners in that period have been granted early release. I submit that that gives us some indication of the complexities attendant upon the point. It is not as though we have in the neighbouring jurisdiction a solution to this matter which could be taken from the shelf and applied in England and Wales. We plan further engagement with the Scottish Government to look at the matter in more detail, and we will share the results of that engagement with the noble Baroness.
Baroness Lister of Burtersett (Lab)
I am sorry to interrupt, but the Minister seems to be using this as an argument for not accepting the amendment. I have two points. First, there is no reason why the pilot should follow the example of the Scottish procedures, which, to me, seemed very bureaucratic when I read the helpful letter sent by the noble Lord, Lord Wolfson. Surely the whole point of pilots is to think about other ways of doing something before the Government actually legislate.
Secondly, yes, a very small number has been helped. We do not know why that is. Certainly, the letter I was sent tells us the what but not the why. But even a small number being helped is better than no one being helped in the period until such legislation can be passed.
Earl Attlee (Con)
My Lords, if the Scottish experience shows that it is no good, why on earth was it put in the White Paper?
Lord Stewart of Dirleton (Con)
The point is not simply to equiparate the example of Scotland; the point is to emphasise the complexities which underlie the matter. I will expand upon that in the rest of my answer.
We recognise that a high number of releases take place on a Friday. We accept that this can create challenges in some cases when it comes to prisoners accessing services, support in the community and finding accommodation, especially if they have multiple complex needs or a long way to travel to their home address.
I echo the observations from my noble friend Lord Hodgson of Astley Abbotts. As the House now appreciates, our recently published Prisons Strategy White Paper is allowing us to consult on the issue of Friday release from prison. In the course of that consultation, we will invite views on allowing prisoners who are at risk of reoffending to be discharged one or two days earlier, at the discretion of the governor of the relevant institution, where a Friday release can be demonstrated to be detrimental to an individual’s resettlement.
However, it is important that we allow time to understand the views of stakeholders, including operational colleagues, prison staff and the third sector. We submit that it would be premature to provide in statute for the pilot of a new release scheme, regardless of whether a sunset clause is attached—as the promulgators of the amendment have proposed—because, as mentioned, we are in the process of consulting on whether a legislative approach is necessary and, if so, what form such a scheme should take and how it should operate. We want to see the outcome of this consultation before we bring forward proposals. We will issue a response to the White Paper consultation in April 2022, and we will set out our plans on Friday releases moving forward from there.
I would call into question the appropriateness of using a sunset clause in relation to a pilot scheme. Sunset clauses are used only for temporary situations where the provision is needed only for a specific period of time and is not designed to remain on the statute books—for example, in the recent coronavirus legislation. This, I submit, is not appropriate for a pilot, as its purpose is to test out a policy with a view to fully enacting that policy if the pilot is found to work. A sunset clause would not allow this, so that, if we decided the right approach was to pilot and it was effective, we would still be required to wait for the next legislative opportunity to be able to rule it out fully. Therefore, tying our hands to a pilot scheme would likely extend the timescales required to enact full rollout of a new release scheme, if that was decided to be the most appropriate approach.
Baroness Lister of Burtersett (Lab)
Is the noble and learned Lord in effect saying it will be at least two years until there can be legislation, because this only runs for two years?
Lord Stewart of Dirleton (Con)
More than once, even today, this House has emphasised the importance of moving forward on the basis of evidence. The Government’s view is that it is appropriate to complete the consultation proceedings, interrogate them and decide how best to move forward.
Baroness Lister of Burtersett (Lab)
My suggestion was to wait until the end of the consultation, which we are told will be next April, review the evidence, which surely should not take that long, and then run the pilot on the basis of what is found out in the consultation.
Earl Attlee (Con)
Surely the Minister could introduce at Third Reading an order-making power that would last indefinitely.
Lord Stewart of Dirleton (Con)
My Lords, notwithstanding the fact that we are in the season of Advent, approaching Christmas, I am not prepared to argue on the basis of what is naughty and what is nice, or what is nasty and what is nice.
Baroness Jones of Moulsecoomb (GP)
I am sorry, but I do not understand what the Minister means.
Lord Stewart of Dirleton (Con)
What I mean simply is that the noble Baroness, doubtless with the best possible intention, is using simplistic language to categorise the Government’s legislative approach, which language I do not accept.
On the subject of the holistic approach—if I may put it like that—which was urged upon us by the noble Lord, Lord German, and the noble Baroness, Lady Hamwee, it is indeed important that we acknowledge the funding the Government are making available to provide just such an approach. Our December Prisons Strategy White Paper set out plans to reduce reoffending and protect the public. We will spend £200 million a year by 2024-25 to improve prison leavers’ access to accommodation, employment support and substance misuse treatment, and for further measures for early intervention to tackle youth offending. We will make permanent the additional £155 million per year provided in the years 2019-20 for a new unified probation service to support rehabilitation and improve public protection, which will be a 15% increase on 2019-20 funding. This expands upon our Beating Crime Plan, which was published in July, setting out how we will cut crime and seek to bring criminals more swiftly to justice, reduce reoffending and protect the public. That included new commitments to recruit 1,000 prison leavers into the Civil Service by 2023, to expand our use of electronic monitoring and to trial the use of alcohol tags on prison leavers.
In addition, in January, a £50 million investment was made by the Ministry of Justice to enhance the department’s approved premises to provide temporary basic accommodation for prison leavers to keep them off the streets, and to test innovative new approaches to improve resettlement outcomes for prisoners before and after they were released. Then there is £20 million for a prison leavers’ project to test new ways to prepare offenders for life on the outside and ensure that they do not resume criminal lifestyles, and £80 million for the Department of Health and Social Care to expand drug treatment services in England to support prison leavers with substance misuse issues, divert offenders, make effective community sentences and reduce drug-related crime and deaths.
For the reasons I have outlined, including the overwhelming notion that these questions are not simplistic and we cannot simply move forward without the necessary evidence, as well as the assertion that an appropriate consultation is under way, I invite the noble Lord to withdraw his amendment.
Lord Hodgson of Astley Abbotts (Con)
My Lords, we have had an interesting debate. I thank all those who contributed to it. The noble Baroness, Lady Lister, is always sharp on these matters; she has been well up to her reputation tonight. As the noble Baroness, Lady Jones of Moulsecoomb, said, this is a small fix. As the noble Lord, Lord German, pointed out, it is not an expensive fix either; in fact, it may result in a net gain to the Government because, if we can stop some people reoffending, we will save more money than any cost—there is probably no cost here, or at least very little—and we could be better off as a result. I am grateful to those noble Lords and to the noble Baronesses, Lady Bakewell and Lady Hamwee. My noble friend Lord Attlee asked who is against the idea. I have not yet heard much about people who oppose it. I am grateful to the noble Lord, Lord Ponsonby, for his remarks and the fact that we are better than we were last night.
On my noble and learned friend the Minister’s comments, I do not think that the House buys the Scottish experiment as an example here. It is just not relevant. Nor do I buy the argument about the sunset clause being inappropriate; I think that is just the officials reaching for some reason to try to rubbish this amendment. I accept my noble friend’s point that we need time to understand and his commitment to a consultation finishing by April 2022. Most interesting is the possibility that legislation might not be needed and there might be other ways of achieving what we all wish.
So we have a sort of balance here. On the one hand, an immediate opportunity is being missed and progress seems glacial, to put it no more roughly than that; on the other, we have an encouraging set of statements in paragraph 139 of the White Paper. My judgment as to whether to divide the House on this amendment and possibly damage the concept is that we would really be dividing the House on whether we want to try to create a bridge and find a way to start some work on this project immediately. On balance, the Government have offered us half a loaf. I think we should probably take that half a loaf tonight; I therefore seek leave to withdraw the amendment.
Lord Wolfson of Tredegar
“(6) Regulations under this section are subject to—(a) the negative resolution procedure, where under subsection (1)(b) the regulations specify a period, and(b) the affirmative resolution procedure, in any other case.””Member’s explanatory statement
This amendment requires regulations under new section 395A of the Sentencing Code to be subject to the affirmative resolution procedure if they apply indefinitely.
“CHAPTER 3ASSAULTS ON THOSE PROVIDING A PUBLIC SERVICE ETCAssaults on those providing a public service etc
In the Sentencing Act 2020, after section 68 insert—
“68A Assaults on those providing a public service etc(1) This section applies where—(a) a court is considering the seriousness of an offence listed in subsection (3), and(b) the offence is not aggravated under section 67(2).(2) If the offence was committed against a person providing a public service, performing a public duty or providing services to the public, the court—(a) must treat that fact as an aggravating factor, and(b) must state in open court that the offence is so aggravated. (3) The offences referred to in subsection (1) are—(a) an offence of common assault or battery, except where section 1 of the Assaults on Emergency Workers (Offences) Act 2018 applies;(b) an offence under any of the following provisions of the Offences against the Person Act 1861—(i) section 16 (threats to kill);(ii) section 18 (wounding with intent to cause grievous bodily harm);(iii) section 20 (malicious wounding);(iv) section 47 (assault occasioning actual bodily harm);(c) an inchoate offence in relation to any of the preceding offences.(4) In this section—(a) a reference to providing services to the public includes a reference to providing goods or facilities to the public;(b) a reference to the public includes a reference to a section of the public.(5) Nothing in this section prevents a court from treating the fact that an offence was committed against a person providing a public service, performing a public duty or providing services to the public as an aggravating factor in relation to offences not listed in subsection (3).(6) This section has effect in relation to a person who is convicted of the offence on or after the date on which section (Assaults on those providing a public service etc) of the Police, Crime, Sentencing and Courts Act 2021 comes into force.””Member’s explanatory statement
This amendment would add three new aggravating factors to the consolidated sentencing code, where the person attacked is (i) providing a public service, (ii) performing a public duty, or (iii) providing services, goods or facilities to the public or a section of the public.
The Minister of State, Home Office (Baroness Williams of Trafford) (Con)
In moving the amendment in my name, I want also to address the related amendments tabled by the noble Lord, Lord Coaker, and my noble friend Lady Neville-Rolfe.
In truth, I do not believe that there is any great difference between noble Lords’ position and the Government’s. We all agree that it is entirely unacceptable that workers in public-facing roles should face verbal abuse and worse. That is why we have brought forward Amendment 84, to make it clear that such abuse will not be tolerated and to put in statute that the public-facing nature of the victim’s role will be an aggravating factor when it comes to sentencing.
I am grateful for the welcome the noble Lord, Lord Coaker, has given to the Government’s amendment. I know, too, that it has been welcomed by many of those who have campaigned on this important issue. I think they, rightly, regard this as a very welcome and significant step forward. In the debate in Committee, I gave your Lordships a firm commitment that the Government were in the process of considering, as a matter of urgency, how best to balance the many issues raised on this topic. Amendment 84 is the result of that consideration, and I would like to explain its purpose.
The amendment places in statute the aggravating factor applied by the courts in cases of assault where an offence is committed against those providing a public service, performing a public duty or providing a service to the public. The aggravating factor is set out in the Sentencing Council’s sentencing guidelines. The provision applies to offences listed in the sentencing guidelines, which are also specified under Section 67(3) of the Sentencing Act 2020, with the addition of common assault and battery. This provides consistency with the statutory aggravating factor applied to assaults against emergency workers, as set out under Section 67 of the Sentencing Act 2020. This includes assault occasioning actual bodily harm, wounding with intent to cause grievous bodily harm, malicious wounding and threats to kill, as well as an inchoate offence in relation to any of these offences. These are the assault offences most likely to be experienced by front-line workers. Importantly, the provision also allows the court to apply the aggravating factor to any other offence, where the court considers this factor relevant.
If the offence was committed against a person providing a public service or performing a public duty, the court will have a statutory duty to treat that fact as an aggravating factor, and must state in open court that the offence is so aggravated. This amendment will reinforce in statute the seriousness with which the courts should treat these offences. It will send a very strong signal to the public that assaults of this kind are totally unacceptable. The Government want to ensure that all those who serve the public can feel protected from abuse when working.
This legislative change recognises the very strong public and parliamentary feeling about assaults against public-facing workers. I understand the argument that retail workers are asked to enforce the statutory age restrictions and that many see this as a reason for increased protection. We have also heard concerns from the retail sector about the risk of increased abuse fuelled by the mandatory requirement to wear face masks in shops. However, I consider it is important to give the same protection to all workers who face a similar risk of assault. For retail workers, it builds on the important work already under way by the National Retail Crime Steering Group to ensure that assaults are not seen as part of a retail worker’s job. The steering group brings together the Government, retailers, unions and trade associations, the Association of Police and Crime Commissioners and the police-led National Business Crime Centre.
Lord Coaker (Lab)
My Lords, it is a great privilege to speak in this debate. I declare an interest as a member of USDAW and the Co-operative Party—I wanted to make sure that I did not forget to do that.
I know that it is quite late in the evening, but it is worth us spending a few minutes on something that impacts on millions of people across this country, in every single area of this country, from the smallest and most impoverished communities to the wealthiest. This directly impacts on all of them.
The Minister is quite right in saying that her amendment supersedes mine, and I welcome government Amendment 84. The noble Baroness, Lady Neville-Rolfe, will speak to her amendment, and we have heard from the noble Lord, Lord Dholakia. On my amendment, I thank my noble friend Lord Kennedy for pointing out that it is the first time in my life that my comrade has praised the Conservatives for tabling a better amendment than me. On this occasion, he is absolutely right; it is a far superior amendment to the one that I tabled. It is a great tribute to the Minister, who has listened.
We often say that Ministers should listen and need to take account of something. This Minister has actually acted on that and changed the legislation—she has talked to her civil servants. I say this as an example to other Ministers in both Houses: sometimes a Minister has to stand up and say, “This is what the public, the House and the Chamber demands, and this is what common sense says—so change the law and do what people think is right”. Millions of people across the country will see this as something that has taken years of campaigning by people such as the noble Baroness, Lady Neville-Rolfe, my noble friend Lord Kennedy and others. People on all sides have demanded this change.
One thing that we need to emphasise in the amendment that the noble Baroness has put before us is really important. Rightly, much of the emphasis has been on retail workers, and I want to emphasise some of the facts. We have emphasised the fact that the trade union and large retailers of all sorts have come together. But this amendment talks about assaults on those providing a public service; that is a huge expansion of the categories of worker that can be taken into account by those in court, using the aggravating factors before us. That is something that we should reflect on as a Chamber; it is a key change and a massive extension of the number of those workers who will be protected from abuse.
As we sit here in this Chamber at 9.23 pm, there will be people in the remotest part of Cornwall in a village shop, someone collecting tickets on a railway station in a different part of the country—a rural part of Northumberland, for example. There may be somebody on Walworth Road or in Manchester, who will at this time be facing the sort of abuse that we all deplore. We can say to those people that not only have we deplored and understand how horrific it is, we also recognise the responsibility that we have with the other place in legislating to do something about it.
The Minister was right to say that this sends a signal. Of course it does, and that is really important—but it also gives the magistrates and courts the power to say to people who think that they can act with impunity, whether it is in a village shop or a railway station or on a bus, “We are going to use that as an aggravating factor and you are going to receive a stiffer punishment than you otherwise would have done.” That should give people pause.
The noble Lord, Lord Dholakia, was quite right in some of the points he made. However, the important thing for us now—the Minister will know this, and I think the noble Baronesses, Lady Neville-Rolfe and Lady Bennett mentioned it—is how we ensure that we make this legislation work. How do we give the confidence to somebody, who is often on their own and sometimes not in the first flush of youth, to come forward and report that crime to the police so that those people get taken to court? Often those people will be their own witness. They have to go to the police to report that crime and say, “I’ll go to court” or whatever the process will be. As we move forward with this incredibly welcome piece of legislation, we need to understand how we build that confidence among people. That was one of the things that members of various trade unions as well as USDAW have raised with me. It is about building people’s confidence so that they come forward, are their own witness and report the crime. We must get to a point when the new powers that courts have can be used, because we understand the intimidation.
The Government could do with some good publicity at the moment. I would be ringing this out across the country, not to benefit a Conservative Government but to show that the Government of our country, responding to people across the Chamber, have turned around and said, “We are changing the law and we want people to be aware of the law.” Not only do we want those who act in a criminal way to understand that there is now a punishment that courts can use to deal with them, but, as I say, we want to give confidence to people to come forward.
Many other things could be said but it is important for all of us who have come together as we have to congratulate the noble Baroness, Lady Williams, and to say a big thank you to her again for the changes she and her colleagues have made and the way in which she put that meeting together. This is a strengthening of the law which reflects the seriousness with which the state views these assaults. We will not tolerate it, and the law is saying to people across this country, “We’re going to act, because these people deserve better protection than they’ve had so far.”
Baroness Williams of Trafford (Con)
My Lords, in my time as a Minister I have had a to-do list in my mind, and included on it was tackling assaults on retail workers and the historic disregards. I am very pleased that in the Bill we will be able to do both, so tonight is a very good night.
I thank the noble Lord, Lord Dholakia, for bringing back his amendment and for his obvious commitment to support business owners in areas affected by high crime rates, in particular business owners from diverse communities. In Committee my noble friend Lord Sharpe made it clear that shoplifting offences involving the theft of goods of up to £200 can and should be dealt with by the police as a criminal offence. Section 176 has no bearing on the ability of the Crown Prosecution Service to prosecute a person for theft from a shop or on the court’s powers to punish offenders.
My noble friend also spoke about a survey conducted by the National Business Crime Centre to ask police forces about the reporting of retail crime. I will repeat what he said, because it is important. He stated that the survey asked
“whether forces had a policy where the monetary value of shop theft determined whether the crime was investigated. Thirty-four out of 43 forces responded … the survey found that no forces used a £200 threshold for making decisions about responding to shoplifting offences.”—[Official Report, 3/11/21; col. 1272.]
I have heard what the noble Lord, Lord Dholakia, said today and I understand the concerns about the prevalence of shop theft. I understand in particular the concerns from owners of small businesses, such as small independent shops operating in areas with high crime rates. If the noble Lord is amenable, I would like to meet further with him to discuss it.
I thank the noble Lords, Lord Coaker and Lord Kennedy, for their fulsome support of the government amendment and for repeating the point that we are sending a very strong signal about how seriously we treat this issue. There is more that we are doing. As my noble friend Lady Neville-Rolfe said, prolific shoplifters often have a drug or alcohol dependency, and shoplifting funds this addiction. We need to have the right interventions in place, and the Government’s 10-year drugs strategy, published last week, sets out the Government’s intention to invest in substance misuse treatment, including clear referral pathways for offenders into treatment to reduce the risk of reoffending and help reduce acquisitive crime, including shop theft.
Baroness Neville-Rolfe (Con)
Before my noble friend sits down, perhaps she could get one final plaudit for her terrific performance in this area by agreeing that the Home Office, and indeed the other departments—the Ministry of Justice and the Attorney General’s Office—will look with favour on a discussion with the retail and indeed the wider sector on the impact of these changes, say, in a year’s time. I think she rightly said that what matters is the experience of retail and other workers in the light of the new law. I fear perhaps that not much progress might be made, so if we find that we need to review this in a year’s time, I hope she will look positively at that.
Baroness Williams of Trafford (Con)
I am more than happy to do that. In fact, I think it would be a very good idea to meet up, because the discussions have been positive and fruitful over the last period. So, yes, I am very happy to do that in support of my noble friend.
I welcome the support for the government amendment, as I have said. I think it makes a real, significant step forward. Let us keep it monitored, as my noble friend said.
Lord Kennedy of Southwark (Lab Co-op)
I am genuinely very grateful to the Minister. I think this is a good example for all Members of the House that when you have an issue, you should just keep raising it, because this House can maybe act in ways that the other place sometimes cannot. Sometimes people get into their trenches there, but we can do it a bit differently here. Certainly, by raising issues persistently, and with the Minister listening and bringing people together, we can actually get things right. I think that is one of the great things about this House.
Baroness Williams of Trafford (Con)
The noble Lord is absolutely right. I think we will call it the “Kennedy approach”, but then we have had the “Cashman approach” as well—and they have both worked. We have the bandwidth to look at things in a different way from the other place. On that note, I commend the amendment to the House.
Baroness Bennett of Manor Castle (GP)
Before the Minister sits down, I will just bounce off what the noble Baroness, Lady Neville-Rolfe, said. The Government are offering more protection to retail workers here. Does the Minister agree that this does not take responsibility off employers to make sure that they are also doing all they can to provide a safer working environment for their staff?
Lord Ponsonby of Shulbrede (Lab)
My Lords, I have also put my name to these amendments, so ably moved by the right reverend Prelate the Bishop of Gloucester, and I support them. I have to confess that, as she was speaking to each amendment, I was mentally going through the processes I go through as a sentencer. She introduced her comments by talking about probation reports. As I have mentioned, I became a magistrate about 14 years ago, when there were no oral reports, and fast-delivery reports were only just being introduced. Most of the time, we saw standard reports. There has been an evolution over the last 14 years. There are oral reports, fast-delivery reports and standard reports. In the youth court we have far more enhanced reports, which are 10 to 20 pages long, and in the domestic abuse courts we will be more informed of the family situation when sentencing somebody convicted of a domestic abuse-related offence.
I do support these amendments. The reports put in front of magistrates’ courts and Crown Courts need to be appropriate, and, of course, they need to include the family circumstances of the person being sentenced. The great dilemma, in any system, is to get enough information in a timely manner but not so much that it delays things. I remember that when oral reports were first introduced in magistrates’ courts, we very much appreciated that, because we had experienced probation officers who would interview the offender on the day and come to the court and tell us the various pros and cons of the sentencing options. We knew those probation officers and trusted them to give us a balanced view and guidance on the appropriateness of certain sentences.
That is a good example I have just given. There are, of course, less good examples where we may not have been made aware of the family responsibilities of the person we were sentencing, and there is an absolutely consistent dilemma, whenever one is sentencing, over whether one has a whole picture.
As I say, I support these amendments. This is all based on the data. It is about having appropriate data at the time and about recognising the domestic situation and whether there are responsibilities. Everyone here today has mentioned the position of children, but a lot of people I sentenced also had responsibilities for older parents or other caring responsibilities, and that needs to be taken account of as well.
While I support these amendments, I think more can be done. Reports need to be focused in the right way, and the probation service needs to build on its links with appropriate local social services, as it does when I sentence domestic abuse-related incidents. Much more needs to be done, and I will support the right reverend Prelate if she decides to press her amendments to a vote.
The Parliamentary Under-Secretary of State, Ministry of Justice (Lord Wolfson of Tredegar) (Con)
My Lords, this group of amendments relates to primary carers in the criminal justice system. We debated it at some length during previous stages, and, as I noted in Committee, the proposed new clauses have their origins in previous work by the Joint Committee on Human Rights. Let me just take a moment to echo the tribute paid by the noble Baroness, Lady Hamwee, to those who give evidence to that committee and the other committees of this House. While the Government support the principle behind these amendments and have listened carefully to the arguments in support of them, we are still not persuaded that they are necessary.
I will explain the Government’s reasoning regarding each of these proposed new clauses. Amendment 88 would require the Secretary of State to take reasonable steps to collect data centrally and publish it annually on how many people sentenced have parental responsibility for a child or children under the age of 18 or are pregnant. We have publicly acknowledged the gaps in our current data collection on primary carers in prison and believe that understanding the position in prison is where we should focus our improvement efforts regarding data. This will provide an evidence base to develop policy solutions to offer proper support to primary carers who are imprisoned, and their children.
I am sorry that progress has been so slow, but I am pleased to say that the necessary changes to the basic custody screening tool will be made during the first quarter of the coming year. From that point we will be able to collect data on primary carers in prison and the numbers of their children. An important caveat is that our data collection is necessarily dependent on prisoners declaring the information. Although we do our best to encourage people to provide information, there will always be some people who, for various reasons, do not disclose what the underlying position is. We continue to look at this issue to ensure that our data collection is as good as it can be. I heard the right reverend Prelate say that she would be keen to continue discussions on that point. She knows from previous issues that I am very happy to discuss this with her. I will keep her informed of our progress.
Amendment 88 also refers to collecting data on women who are pregnant when they are sentenced. The Government’s view is that the primary focus should be on those who are pregnant and sentenced to custody. We have already taken steps to acknowledge previous weaknesses in our data collection. We are now collecting and publishing data on the number of pregnant women in prison in the HMPPS annual digest, which contains a weekly average for self-declared pregnancies, and the total number of births to women held in custody over the year, in location categories.
On the closely linked topic of maternity services in prisons, this week I met the noble Baroness, Lady Burt, to discuss the breadth of work already completed and under way to address learning from the appalling “Baby A” case, as per the existing statutory obligations. I am grateful to her for the time that she spent discussing the matter with me. HMPPS has accepted and completed all the PPO recommendations. The PPO’s recommendations for health have either been completed or are in the process of being completed.
This work includes investment by NHS England and NHS Improvement of recurrent funding for an improved maternity service at HMP Bronzefield that will be delivered by Ashford and St Peter’s Hospitals NHS Foundation Trust. All the work that we have completed or are in the process of implementing is set out in a joint action plan that we have submitted to the PPO, and which is available publicly on its website. Nationally, as part of the jointly commissioned women’s estate health and social care review, a perinatal steering group has overseen the development of a pregnancy and post-pregnancy service specification for health and justice commissioners. Publication is anticipated for early next year.
Turning to Amendments 86, 87 and 105, which concern remand and sentencing decisions in cases involving primary carers and pregnant women, I will not repeat the points that I made in Committee, but we consider these amendments unnecessary, since a series of relevant and adequate considerations for courts making such decisions are set out in relevant case law and sentencing guidelines, and, as I dealt with on earlier groups today, ensure that custody is a last resort in all cases.
The case law and the sentencing guidelines, which the courts have to follow, are clear that courts should give full and proper consideration to the fact that someone is either a pregnant woman or a primary carer. However, without wishing to diminish the importance of their consideration, we have to acknowledge that courts have to consider various and often complex circumstances relating to the offence or the offender. Regrettably, there will be cases where the risks posed by the individual or the seriousness of the offending is such that, despite the existence of dependents, custody is deemed necessary.
I listened carefully to the points made by the noble Baroness, Lady Bennett of Manor Castle, and the noble Lord, Lord German, about recall. In the time that I have had to respond specifically to that point, I can tell them that in the three years from June 2018 to June 2021 there was an 18% decrease in the number of women recalled to custody while the comparable decrease for men was 4%. So I acknowledge that there is an issue on recall and I am happy to continue that conversation, but the position has got better.
However, we are clear that delivering public protection and confidence across the system is not just about the better use of custody. As set out in our female offender strategy, we want fewer women serving short sentences in custody and more being managed in the community. As part of that strategy, we have committed to piloting residential women’s centres, which will offer an intensive residential support package in the community for women at risk of short custodial sentences.
I turn to Amendment 85. As I set out in Committee, current legislation already requires the court to obtain a pre-sentence report in all cases unless the court deems it unnecessary on the facts of the case—for example, if the offender had been before the court three weeks earlier and a pre-sentence report was obtained then. This requirement is reflected in the sentencing guidelines, which courts have to follow. When sentencers request pre-sentence reports, guidance introduced in 2019 mandates probation practitioners to request an adjournment to allow time to prepare a comprehensive pre-sentence report in all cases involving primary carers and for those at risk of custody.
I am keen to reassure the right reverend Prelate that a key objective of this Government’s reforms is to improve both the quality and the prevalence of pre-sentence reports in the justice system. We heard first-hand experience from the noble Lord, Lord Ponsonby, about the quality of pre-sentence reports, which can be extremely good. We want to ensure that that quality is consistently good.
Lord Ponsonby of Shulbrede (Lab)
I think the point I made is that they are extremely variable.
Lord Wolfson of Tredegar (Con)
I am looking at the glass as half full. I acknowledge their variability but we want to improve their standard across the board. It is a little simplistic, if I may respectfully say so, always to assume that a written report is better than an oral report. I know the noble Lord was not making that point but I have heard it elsewhere. He was quite clear from his experience that a good oral report may be better than a written report.
Lord Wolfson of Tredegar (Con)
If appropriate, exactly; it all depends. The sentencers have experience of the nature of the reports that are appropriate in each case.
On that point, we acknowledged in our sentencing White Paper that pre-sentence reports have decreased over the last decade. We specify in the White Paper that, although we do not propose to alter current judicial discretion, we want to build the evidence base around pre-sentence reports. We therefore commenced a pilot scheme in 15 magistrates’ courts in May this year, in collaboration with the judiciary and HMCTS. It strategically targets female offenders, and some other cohorts, for fuller written pre-sentence reports. The process evaluation will be published in autumn next year and will give us the evidence base to drive improvements in pre-sentence reports and make future decisions. We want to preserve a balance between the current legislation and sentencing guidelines and the independence of judicial decision-making. We very much hope and expect that that pilot scheme, which takes into account operational considerations in the courts as well, will enable us to improve the position significantly.
I hope that what I have said—I hope not at too great a length—will persuade the right reverend Prelate and noble Lords that the Government share the concerns underpinning these amendments and, importantly, that existing law and practice, together with the action we are already taking, make these amendments unnecessary. I invite the right reverend Prelate to withdraw the amendment.
Baroness Blower (Lab)
My Lords, it is late, and I have very little to add to this debate, since it has already been extensively outlined by the noble Lord, Lord Dholakia, and other speakers, save this. I have extensive experience of working with educators from many jurisdictions, including all those mentioned by the noble Lord, Lord Dholakia, and many beyond. Some will have, as I have myself, worked with a small number of 10 year-olds who, for a variety of reasons usually to do with adverse childhood experiences, behave in ways that are exceedingly difficult to manage—and some can, under certain circumstances, become aggressive or violent. But what I know is that educators from all those jurisdictions, in general, understand that 10 is simply too young to be an age of criminal responsibility, and many from the countries mentioned by the noble Lord, Lord Dholakia, and many others are astounded it is 10 in England.
Ten year-olds, as my noble friend Lady Chakrabarti has said, need to be nurtured if they have hitherto had circumstances in their short lives that have damaged them seriously. In my own view, 12 is still too young to be an age of criminal responsibility, and had the noble and learned Baroness, Lady Butler-Sloss, been able to be in her place tonight, she would certainly, I am sure, have listed all the jurisdictions that have an age significantly above 12, as well as notably, as referenced by the noble Baroness, Lady Bennett, the UN Convention on the Rights of the Child. But it is the case that a move from 10 to 12 would be a move in the right direction, and I hope the Government will consider this seriously.
Lord Wolfson of Tredegar (Con)
My Lords, we have two amendments before us in the sense of concept. I will take Amendment 88A first and then Amendments 89 and 90 together—they raise quite discrete issues.
Amendment 88A is twofold. It requires the centralised monitoring of youth remand decisions made by the court and the laying of a report of findings before Parliament on an annual basis. On centralised monitoring, as I made clear in Committee, courts will now be required to provide the reasons for their decision in writing. This will be provided to the child, their legal representative and the youth offending team, and it goes beyond what courts already do at present. The record will therefore provide qualitative information, which is not currently readily available. That will enable us and partners in the criminal justice system to understand and better monitor the reasons given for the use of custodial remand.
However, those decisions are complex. We should not prescribe in law at this time how the information should be collected and processed. I am also mindful not to impose unrealistic burdens on operations. As I have indicated previously, HMCTS is also currently designing a new digital case management system, which will deliver better data capturing and reporting. We will consider the best way to collect, analyse and, if appropriate, publish that information.
On the second point, as I explained in Committee, my department already regularly publishes statistics on remand: youth justice statistics are published annually; youth custodial statistics are published monthly. I hope the noble Lord, Lord Ponsonby, will agree that our objectives are in fact aligned here, and understand the need for pragmatism at this time. I therefore urge him to withdraw Amendment 88A.
Amendments 89 and 90, spoken to by the noble Baroness, Lady Chakrabarti, would raise the age of criminal responsibility from 10 to 12 years and require a review of the age of criminal responsibility. As I have said before, the primary objective of the youth justice system is to prevent children offending in the first place. Where it occurs, we must provide the police and courts with effective tools to tackle offending. That is why we believe that setting the age of criminal responsibility at 10 is the correct response. It provides flexibility in dealing with children and allows for early intervention with the aim of preventing subsequent offending.
Importantly, having the age of criminal responsibility at 10 does not preclude other types of intervention where they would be a better and more proportionate response. This could include diversion from the criminal justice system in the first place. I can answer with a simple “yes” my noble friend Lord Attlee’s question about whether the age of the child is taken into account by the CPS as part of the public interest test. Diversion from the criminal justice system is happening in practice. There has been a dramatic fall since 2009 in the number of children aged between 10 and 12 years in the youth justice system. We want that downward trend to continue.
As I said in Committee, no 10 or 11 year-old has received a custodial sentence since 2010. The noble Lord, Lord Ponsonby, talked about never seeing a 10 or 11 year-old in court. In response to the specific point about criminal damage or arson, in 2020, 171 children were proceeded against for either criminal damage or arson. Of those, the number aged either 10 or 11 was zero. We discussed the appalling Bulger case in Committee. It is a rare case, but it is important that when awful cases such as that arise, we have the correct mechanisms to deal with them.
The fact is that there are a range of approaches across Europe—and the wider world—to the age of criminal responsibility. Other European countries also have an age of criminal responsibility set at 10. The noble Baroness, Lady Blower, said that she was astounded that we had the age of 10, but so does Switzerland—not a country one normally associates with human rights breaches—and I suggest that neither Switzerland nor the UK is in contravention of our international obligations.
Baroness Bennett of Manor Castle (GP)
The Minister referred to the diversion of young people who might end up in the criminal justice system but are sent down other paths. Can he tell me, either now or in the future—I understand that he may not have the figures to hand—whether the Government have statistics on the demographic characteristics of which children get diverted and which go into the criminal justice system? I am aware that I recited quite a few figures, but they show that there is a greatly increased percentage of children from certain backgrounds who seem to end up in the criminal justice system, which suggests that diversion is working for some but not for others.
Lord Wolfson of Tredegar (Con)
I am happy to respond in writing a little more fully, but I can say—with the caveat that I absolutely share concerns about ethnicity proportions in the youth justice system, and indeed through the criminal justice system generally—that the number of black, Asian and minority ethnic children entering the youth justice system for the first time fell in the decade between 2009 and 2019 by 76%. So there is progress but there is still work to be done. I will look at the Official Report and write with anything further.