Public Order Bill (First sitting)

(Limited Text - Ministerial Extracts only)

Committee stage
Thursday 9th June 2022 Public Bill Committees

[The Chair]

Thank you, Mr Noble. If, at any time, you have any difficulty in hearing the questions, please indicate and we will make the necessary technical adjustments.

[The Minister for Crime and Policing (Kit Malthouse)]

Q Good morning, chief. Thank you very much for joining us. At the outset, can you outline the current protest situation, and changes in protesters’ tactics over the past three or four years, from your experience? The Bill is responding to those changes in tactics, so it would be helpful for the Committee if you could outline what they are. Also, can you talk about your experience of the disruption caused and the challenges faced on safety grounds, and say what the cost to policing has been over the last couple of years?

Chris Noble: Thank you, Minister. There is a lot, in terms of looking back. There have been a number of trends. We have seen global causes land on our shores very quickly and having significant impacts. Black Lives Matter is a good example. We have seen causes overlapping, both in terms of membership and tactics. There have been some very novel—without giving them any credit—and highly disruptive tactics; that is reflected on the contents page of the Bill. If we look across the breadth of protest organisations and groups, we see that they are very aware of some of the legal gaps, inadequacies and shortcomings; that is very clear from their engagement with police, as well as their tactics. There is a focus, albeit not exclusively, around what we would call non-violent direct action, which is slightly different from previous protest phases, where violence was maybe more commonplace. That said, it is not completely exclusively non-violent.

Most protests are still relatively non-contentious. However, in terms of complexity, intensity and tactics, there has been a step up, and the assessment going forward is very clear that we will still see those challenges around complexity and the co-ordination and the adapting of protests, and we have significant gaps around our information and intelligence. Even though we will have our own, home-grown causes that people will wish to protest against, I anticipate that a lot of protest will potentially be generated from outside these shores. That is a little bit of the picture on what has been, and what may well be to come.

On impacts, there are safety challenges across the board, including safety risks to some of the protestors, challenges to members of the community on our roads or, indeed, in their communities, and challenges for police officers and private contractors in dealing safely with tactics that we will perhaps talk about. Also, there may be increasing cost as we try to deal with more complex issues—costs either to communities, the businesses impacted, or indeed the police, be it financial or opportunity cost, in terms of officers not being able to work in neighbourhoods, or in serious and organised crime, or in the other roles on which they clearly want to be focused. Those are real challenges, but still, the backdrop is that the vast majority of protest activity is relatively non-contentious. However, there is a hard core, a small element, that I do not see going away any time soon.

[Kit Malthouse]

Q One form of protest that we have seen recently is locking on—people glue themselves to motorways or fuel depots and fuel gantries. Could you illustrate some of the dangers that that may present, particularly in a fuel environment? What steps do officers have to take to deal with that kind of protest?

Chris Noble: In Staffordshire, we have a very experienced protest removal team, and on occasion they have dealt with individuals glued to the top of fuel tankers by cutting them loose, using cutting equipment. There are obvious risks in that. Equally, if you go on to a busy motorway and glue yourself to it, there is a raft of risks from traffic, and risk to police officers. Understandably, we have seen members of the public, through sheer frustration, look to take matters into their own hands. You can translate that to power stations and other vulnerable sites. Although this may be attention-grabbing and headline-grabbing, the risks to the protestors, the police and members of the public are becoming ever more significant.

[Kit Malthouse]

Q Under current legislation, one of the challenges that you obviously face in looking after protest is balancing the right to protest against the right of others to go about their business. Could you explain to us the training that a police officer has to go through in order to appreciate those balances, and how the judgments are made? What training is there around the danger presented to protesters, officers or the general public in protest situations? Does that colour the picture, when it comes to the conditions that may be put on a protest?

Chris Noble: There is quite a disciplined training regime. The training is licensed through the College of Policing. You have command training at what we call gold, silver and bronze levels. The strategists—those who develop a plan—are at the silver level; those who carry it out on the ground are at the bronze level. There is not only initial very intense and comprehensive training for those individuals, but annual continual professional development, which is annotated and logged. There is also re-accreditation to ensure that people are still fit for operation. There are also annual inputs on what has changed—training on new legislation, new powers, learning from court cases, different protest tactics and emerging risks—so there is a continual learning cycle, as well as a very detailed pass-or-fail approach to training.

This week, we had an early morning dial-in with the vast majority of gold commanders across the country to break out some peer learning around Just Stop Oil. It was about what we could do differently, and how we could learn. There are specialist teams in policing that share information and liaise with the Health and Safety Executive and other bodies on how we do our very best to minimise danger to protesters, the wider public and police officers.

The challenge for policing is that training is at one point in time, and tactics and intentions are constantly moving. There is a constant challenge in making police training fit for purpose. The one thing that stays consistent—you alluded to this—is the police commitment to striking the balance between our positive and negative obligations to protest, and our ongoing responsibility to those impacted by protest.

[Kit Malthouse]

Q Obviously, a significant amount of effort and capacity goes into this work. A final question from me: do you think the police would benefit from more pre-emptive powers to prevent some of these more dangerous protests and get ahead of them? As you know, the Bill allows the police to do that.

Chris Noble: In short, yes, we would. You have already partly qualified that. For us, the more intrusive our tactics, the more they need to be focused on the harm being caused. In our approach, there has to be a constant test of what is proportionate, and that is subject to significant internal and external scrutiny.

We can see greater risk of harm to communities and protesters if things are left to run. An example was the G7 operation. I was speaking to one of the senior commanders recently, and they described a lack of powers around stop and search for people with items that could only have be used for generating a lock-on device. They had to intervene later in the day, with more significant powers, on a wider group of protesters, therefore interfering with more people’s rights. As long as early intervention and prevention are subject to proportionality tests, and are applied precisely, they are preferable to some of the risks that protesters place themselves under, and some of the significant disruption that they cause to other individuals.

--- Later in debate ---

[Sarah Jones]

Q You obviously have these hardcore people who are persistent: who are being arrested, being charged, and then coming back again. To what extent do you think a new offence of locking on, or whatever it might be, will change their mindset in that sense? Obviously, there are criminal charges that can lead to legal action, and injunctions that can lead to a more stable situation but are costly. What, in terms of more and different charges in the Bill or generally—calling them different things, but they are still criminal charges—would stop those repeat offenders who are intent on popping up on a motorway or blocking your building?

John Groves: We have recorded 1,600 incidents against HS2 since the end of 2017. All of that is unlawful activity—trespass, violence against staff, criminal damage. Not all of those offences will lead to an arrest or any legal action. So, for us, this legislation is about the deterrent effect—absolutely. The extent to which it will cause a behavioural change in those who are participating is, I guess, the open question, but I would certainly see that tougher sentences and more police action would help—absolutely.

[Kit Malthouse]

Q Mr Groves, may I start with you? Could you just give us a picture of what you have had to put up with over the last few years? Obviously, in your written evidence you outline the cost—the very significant cost—there has been to HS2. However, I was very struck that in your evidence you alluded to some of the conduct that your staff and contractors have had to put up with. Could you give us some examples of the kind of treatment that they have had at the hands of these so-called protesters?

John Groves: Absolutely. It is probably everything and anything. We have seen violence against both staff and against those who are building the railway—so it is not just security staff who engage with them. These are protests that are taking place not just on the ground, but in tunnels. I am sure that you will all remember what happened at Euston; there was a 25-tunnel network under Euston. When we went in there to remove the protesters, the protesters were using lock-on devices sub-surface. There was violence against staff in there.

We have seen large-scale trespass. In Buckinghamshire, we did an operation to remove protesters from a site. We secured the venue, but they came back with about 100 people. They shone lasers in the eyes of staff members, they threw human waste around—I mean, it is the full panoply. What is different between what you see against HS2 as compared with other locations is that it is probably quite invisible to most of the public. Again, we have got an operation live at the moment. I have four protesters in a tunnel at the moment and they have been there since 10 May, and that is costing the taxpayer a huge amount of money. The safety risk to them, not just to the people who are working on the surface to support them, is significant. As you say, up until the end of March, £126 million of taxpayers’ money has had to go into protester removal or the cost to HS2 of the delay that these illegal protesters are causing us.

[Kit Malthouse]

Q Just to be clear—obviously, we all understand this, but just to be clear—the birth of HS2 followed a democratic decision in this House, following significant public debate and indeed protest and all the rest of it, and a decision was made, I think on a cross-party basis. Is that right?

John Groves: Indeed, yes.

[Kit Malthouse]

Q Right. You do not quite say it in your written evidence, I do not think, but your view would be that these protesters are effectively trying to frustrate a democratic decision of this House.

John Groves: Yes. I mean, if you consider the definition of “protest”, you have people protesting in Swynnerton, Staffordshire—they are not particularly visible to the public. Other than probably at Euston, that is what we have seen consistently right across the piece. I would say that nearly every day there is something—there is an incident, an unlawful act against HS2.

[Kit Malthouse]

Q On persistent offenders, obviously, you have got what sounds like a hardcore group who come back again and again and again. Do you believe that the powers in this Bill to place controls on them would have a significant impact on your ability to complete the project?

John Groves: I hope so. I mean, it is about the deterrent. The overwhelming issue for us is tunnelling, because it is the thing that causes us the most significant cost and delay. We can, with the support of specialist contractors, move people off our land, but when there are tunnels involved, or high structures, which we also see quite regularly—they will build structures on the surface, at height, and underground. However, the tunnels are the most significant, for us, in terms of removal and, again, the safety risk is significant.

[Kit Malthouse]

Q Thanks very much. Ms Bell, I just wanted to ask you a little bit more about the injunction process, because it strikes me that there is a bit of confusion about the civil route versus the criminal route and what is possible between the two, which is being alluded to. I am sure that you will recall that the Labour party called for a nationwide injunction to deal with those protesters at the time. However, it is the case, as you say, that those injunctions are very difficult to get and although they require a lower standard of proof, they are a much more elongated process than necessarily a criminal charge.

Nicola Bell: Yes, absolutely. The thing is that I think a lot of people at the time thought that an injunction was the thing to go and do, but you must see it through; you must follow up with the committal proceedings, and it is that that then takes the time. We had to apply for a very urgent injunction, sometimes overnight, with things being prepared at pretty breakneck speed in order to try and protect what we were seeing. I am sure you are all aware of what we saw on the M25, with people either gluing themselves or sitting on the road. It is about the resource intensity that is needed to follow that up and follow that through. If I take the example of a day that they were protesting, on 8 October, by the time that got to court, that was at the end of November and by then Insulate Britain had called off its protests.

[Kit Malthouse]

Q Would it be fair to say that there is an asymmetry between what is available as a sentence under the injunction? I think it is up to two years.

Nicola Bell: Yes, two years.

[Kit Malthouse]

Q Two years with a judge and quite a significant fine, but at the discretion of the judge. However, it does not have a power of arrest. On the flip side, while there was a power of arrest on some of the offences that were committed, such as obstructing the highway, actually, the sentence that is available is low and nobody, I do not think, will be in prison under any of the charges that have been laid.

Nicola Bell: No. I think you heard from the chief constable earlier that the arrests being made on the day were being made for low-level criminal offence—I think they were the words the chief constable used—for obstruction of the highway. It was literally going to the police station, getting processed and, the very next day, often the same person going out to another part of the M25 to do the very same thing again.

[Kit Malthouse]

Q I think I am right in saying that obstruction of the highways carries a maximum level 3 fine, which is up to £1,000. Is that right?

Nicola Bell: Yes. I am a civil engineer not a lawyer, but—sorry.

[Kit Malthouse]

Q I thought you may have had to research it.

So in your view, would it be a sensible move to combine the best of both? Effectively having a power of arrest for an offence that attracts a not dissimilar level of sentencing, which might act as a deterrent, that you would get under an injunction.

Nicola Bell: I think the level of offence is a matter for the police. For me, it is the same as John has mentioned. It is about the deterrent and, for me, it is really about safety. Walking on to a 70-mph road is not wise. If you look on Insulate Britain’s website, you will see evidence of the day they blocked the M25 at junction 25, where four protestors came out and sat on the road. They did exactly the same on the opposite side of the carriageway and that footage clearly shows the police in danger, my traffic officers in danger and the protestors in danger as people are trying to swerve, brake and avoid them. What is included in the Bill, I hope, offers that deterrent. That is what I would like to see given that my job is about trying to keep the motorway network flowing as freely and as safely as possible. If something deters them in terms of the locking on or interfering with infrastructure—of course, we have talked a little bit about the serious disruption prevention orders that might be available—maybe that might mean that you do not have to apply for an injunction because, actually, those repeat offenders could be tackled through that means.

[Kit Malthouse]

Q Finally, from my point of view those protests cause a significant impact on the road network, which would have had an immediate impact on those individuals, but presumably, somewhere in your department or the Department for Transport, there is an economic impact that these things have. Have you been able to cost the economic impact of those kinds of delays?

Nicola Bell: I do not have the exact figure, but I will just give you a couple of examples. There is a day when they protested at Littlebrook interchange, just off junction 1A of the M25—maybe some of you will know it. Four protestors sat across our traffic signal control junction. You might have thought that was not going to cause too much impact because it is just a little bit off the M25. The impact was 4 km of slow-moving and queuing traffic over the Dartford crossing, and it took until lunchtime for the effects of that to disappear. The day they protested down at the port of Dover, they sat on the road, but two protestors climbed up the side of an oil tanker and glued themselves to the top of the oil tanker while we got rid of the people on the road. By mid-morning, the effects of that around the roads in Dover were felt until about half-past 5 in the evening. The economic impact of that alone, given the importance of road freight to the UK and goods coming in and out of Dover, probably speaks for itself.

[Kit Malthouse]

Thank you.

[Anne McLaughlin]

Q Good afternoon to both of you. My question is for John. In your written evidence, you stress several times that the protests that you face are often unlawful. If Nicola agrees, I am happy for her to answer as well. If they are unlawful, that means that the legislation already exists to prevent or stop these protests, otherwise they would not be considered unlawful. In your view, what is it that stops those existing laws being implemented, and what is it about this proposed legislation that will make it more likely to be implemented?

John Groves: I come back to the tunnel point I made earlier. I assume that those that participate in going on to land and trespassing on land and digging tunnels know that they are breaking the law. but they do not see the current law as a significant deterrent to stop them from doing that. The police will always seek the balance between lawful protest and the rights of the landowner or whoever. Invariably, that often means issues with access to sites.

Access to some of our sites has been delayed for about eight hours. We cannot do any work. We cannot move vehicles in or out of our sites, because protesters are sat down outside at the access point, sometimes locked on, sometimes not. The police are there but they will not take action because they are allowing the right to protest. Because the protestors are not on HS2 land, we cannot do anything about that. We cannot move them on—on the public highway, only the police can move them on.

My sense is that this Bill, if enacted, will provide a deterrent effect for the protestors. I come back to the safety point—I am sorry to keep going on about tunnelling. Four people in a tunnel is such a serious thing; I am concerned that we will have a fatality at some point in the future. We have been really lucky. We have had four or five tunnel incidents and we have yet to have any serious injury, but I suspect it will come one day, if it continues in the way it is going. If we look at our data, we are seeing protestors turning to tunnelling more readily. In the operation we have just run, there were four shafts on one piece of land; they moved on to another piece of land very quickly and they started to dig a tunnel. We were able to get in quickly and move them on. That is my principal concern.

--- Later in debate ---

[Kerry McCarthy]

Q In that case, again, if they are willing and wanting to be arrested and are not worried about the level of fines because payment will be crowdfunded, that suggests that it is not a deterrent. I am a Bristol MP, and we saw with the Colston statue and the Black Lives Matter protests that the jury acquitted four of the defendants of criminal damage. My concern is that the more unreasonable the legislation is seen to be, the more bases it covers and the more it cracks down on what many people view as legitimate public protest, the more likely we are to see jury acquittals. Do you share that concern?

John Groves: We want the legislation to work so that it provides that deterrent. I do not think I can say any more than that.

[Kit Malthouse]

Q I want to pursue that point a little further. Mr Groves, as you see it, the current level of fines is not proving to be a deterrent because they can be crowdfunded. As I understand it, your view is that if we were specific about the offences of locking on and tunnelling, and we added a term of imprisonment and a criminal charge against those, that would be a ramping up that might prove to be a significant deterrent—is that right?

John Groves: Absolutely.

[Kit Malthouse]

Q Ms Bell, obviously the impact of your injunctions on activity were delayed, but do you have a sense that, once protestors were going to prison under the injunctions, there was an element of deterrent there? Secondly, one of the things I know from my own experience is that when people realise that having a criminal record has implications, not least the fact that you cannot travel to the United States, that is in itself a deterrent as well. Did you get the sense that was having an impact?

Nicola Bell: To your first point, once people saw that injunctions were being followed through, committal proceedings were happening and people were going to prison, that did have a deterrent effect, because we have not seen a protest on the strategic road network since 2 November. Three of the injunctions, particularly covering the south-east—the M25, M25 feeder roads, and the roads down to Dover—still exist and are still in place. Certainly, the public mood was something that was different as the protest happened. By the time we saw things through in court the protests were finished. Nobody was seeing them every day, whereas the first time we went it was fresher in people’s memories. People were mostly peaceful but then realised the impact that it could have on their lives—that was clear.

[The Chair]

If there are no further questions from Members, I thank the witnesses for their evidence.

Ordered, That further consideration be now adjourned. —(Scott Mann.)