The Parliamentary Under-Secretary of State, Home Office (Lord Sharpe of Epsom) (Con)
My Lords, I am grateful to all noble Lords for their contributions and very much congratulate my noble friend Lord Lexden as well on securing this important debate. I know that the topic has long been of interest to him, and a wide range of views have been expressed relating to the roles and responsibilities of police and crime commissioners this evening. I ought to remind the noble Lord, Lord Paddick, that the policy was introduced under the coalition Government. I do not believe that the model is broken, but I will come on to that in a second.
I also reassure my noble friend Lord Lexden that I am certainly not idle, but he may have noticed that I have had three bosses since he wrote his letter. I am still busily asking for the meeting that he requested. My predecessor asked for that meeting, which I am afraid was denied, but I will continue to persevere.
Before I get on to the bulk of the more general points, perhaps I may go into Operation Conifer to answer my noble friend Lord Lexden’s specific questions about that unfortunate case. Obviously I understand the strength of feeling on this matter. However, the Government have no plans to commission a review of either the conduct of the investigation into allegations made against Sir Edward Heath or the findings of that investigation. It is unfortunate, of course, that Operation Conifer was not able to resolve conclusively the position in respect of all the allegations made against Sir Edward Heath. I understand the desire of noble Lords to find a solution but the investigation has already been subject to considerable external scrutiny. I will go into that in a bit of detail.
There were three main bits of scrutiny. First, there was an independent scrutiny panel—I stress “independent”—to ensure proportionality. Secondly, there were two reviews by Operation Hydrant in September 2016 and May 2017, which concluded that the investigation was proportionate, legitimate and in accordance with national guidance. Thirdly, there was a review in January 2017 by Her Majesty’s Inspectorate of Constabulary as to whether resources assigned to the investigation by the Home Office were deployed in accordance with value-for-money principles; the review concluded that they were. Finally, the Wiltshire PCC then referred two matters regarding Mike Veale to the IOPC. That is a lot of external scrutiny, if we are being objective about this.
I am going to talk more generally about the police and crime commissioner model and try to answer all noble Lords’ specific points. We accept that policing is a unique public service, but like any public service—I think all noble Lords acknowledge this—it needs to be transparent and accountable to the public. The introduction of PCCs in 2012 has brought real local accountability to how chief constables and their forces perform, ensuring that the public have a stronger voice in policing.
I say to the noble Lord, Lord Bach, that I have no particular knowledge of his successor; I do not know him, and I do not know what he has been doing in Leicester. I would have thought that, given what the noble Lord has said about him tonight, he is very accountable to his public. If he has behaved as described, then he deserves what is coming to him. PCCs operate in the full gaze of the media and must justify their record via the ballot box. This is in stark contrast to the invisible and unaccountable police authorities that preceded them. I will go on a little bit until we get to the review, then I will talk a little about complaints.
We are approaching the 10-year anniversary of their introduction and we think it is important to recognise the vital role that PCCs play in the public safety landscape. They work with their communities to focus on local priorities, using their convening powers to drive crime-fighting efforts in their areas and advocate for victims across the criminal justice system. PCCs have a strong involvement in work to tackle some of the most significant issues facing our society, including county lines, anti-social behaviour and violence against women and girls. There are lots of examples of that. I will go back to one from my friend Katy Bourne, the PCC in Sussex. She points out that 10 years ago, for example, only 20% of police and crime plans referenced prevention and now it is included in all police and crime plans. That is a direct, positive feature of the introduction of police and crime commissioners.
I will go on to the review, which the noble and learned Lord, Lord Thomas of Cwmgiedd, the noble Baroness, Lady Jones, and the noble Lord, Lord Coaker, referred to. It is vital that PCCs continue to be strong and visible leaders in the fight against crime. That is why in July 2020 the Government announced a two-part review into PCCs to strengthen their role, to ensure that they are accountable to the public and that they have the tools and levers to carry out their role effectively. Recommendations from parts 1 and 2 were announced by Written Ministerial Statement in March 2021 and 2022 respectively.
These measures will sharpen local accountability and improve the consistency and quality of scrutiny by police and crime panels, as we were talking about earlier, and make it easier for the public to hold their PCC to account for their record on reducing crime. They will also ensure that PCCs have the necessary tools and levers to cut crime and will turn the dial on their involvement in the criminal justice system, giving PCCs a more defined role in relation to offender management and strengthening their role in key local partnerships. Of course, the proof will be in the pudding. That is why we have retained a relentless focus on delivery to realise the benefits of these important recommendations as quickly as possible. We have moved to multi-year violence reduction unit funding to facilitate long-term preventative strategies, better enabling PCCs to develop long-term strategies for reducing crime in their locality.
We have amended the specified information order to improve PCCs’ transparency by requiring them to provide a narrative on the Government’s crime outcomes, their force’s His Majesty’s Inspectorate of Constabulary and Fire and Rescue Services performance reports and further complaint-handling information. We have also strengthened the scrutiny of PCCs by publishing new guidance for police and crime panels, including a variety of training tools such as videos, good-practice guides and sharing best practice, as referred to by the noble Lord, Lord Coaker. Also under discussion, and which I probably should have mentioned earlier in Questions, are regional panels. These are being looked at in terms of the police and crime panels as a way of ensuring that best practice is shared.
I take the point that publicity around the role of PCCs could be improved. I am going to get to the subject of the relationship between PCCs and chief constables. It would be important to answer the right reverend Prelate’s concerns and the question of the noble Baroness, Lady Jones, about the breakdown in communication and trust between those two roles. For a PCC to deliver to the community they serve, they need to have a strong working relationship with their chief constable. That has to recognise the operational independence of policing but also the local mandate of the PCC to deliver on local priorities.
The right reverend Prelate referred to the situation with Dame Cressida Dick. During the debate on the review of the noble Baroness, Lady Casey, a week ago, I referred—at some length, I am afraid—to the mayor and MOPAC’s complex relationship with the Home Secretary in regard to this. I refer noble Lords to that in Hansard. On the point made by the noble Lord, Lord Paddick, I do not think that anyone is blaming anyone; it is a complex relationship, and the lines unfortunately crossed on a number of occasions.
Through the PCC review, we heard loud and clear the need for clarification of the working relationships between policing system partners. This is one of the primary reasons why we consulted on the Policing Protocol Order 2011—I note the point of the noble Baroness, Lady Jones—to ensure that we are able to support effective and constructive working relationships in the policing sector as well as possible. These responses are currently being considered, and we will update in due course.
We are also working with the sector to further develop the existing PCC and chief constable accountability guidance, which is designed to embed healthy working relationships between PCCs and chief constables, as well as outlining a framework for mediation for relationships that may be at risk of breaking down. We will also bring forward legislative amendments to make the chief constable suspension and dismissal process more rigorous and transparent, which in turn will make it fairer, ensuring that the chief constable has a voice.
I take the point about chief officer recruitment, which a number of noble Lords referred to. We want to ensure that there is a wide, well-rounded and diverse pool of candidates for appointment to chief officer ranks. We also want to ensure that there are consistent and high standards in selection processes. We welcome the College of Policing’s proposals for fundamental change to the current system, following a full independent review of progression and development to chief officer ranks. These measures will increase transparency and open up access to senior officer level development.
We continue to engage with local areas developing devolution deals to expand the mayoral PCC model, in line with the Government’s wider devolution and levelling-up agenda, and we have published our response to the consultation on giving PCCs greater powers of competence.
Time allows me to talk a little about the PCC complaints process, to which my noble friend Lord Lexden referred. Our announcement of the PCC review recommendations did not make specific recommendations on the PCC complaints system, and we are still committed to developing reforms in this area. This includes ensuring that there is clarity on what constitutes misconduct or a breach of expected standards by PCCs, deciding which body is best placed to handle certain types of complaints, ensuring that the system does not give rise to vexatious complaints and ensuring the effective handling of criminal allegations against PCCs.
Lord Lexden (Con)
What do the Government plan to do to prevent serious misconduct hearings being indefinitely delayed, as has happened in Cleveland? What will the Government do to get clear answers to public inquiries made to the offices of police and crime commissioners, instead of the hopeless and inadequate answers that I cited?
Lord Sharpe of Epsom (Con)
I am afraid I will disappoint my noble friend to some degree. As I said, we are committed to developing reforms in this area, and this will obviously need to look at the specific sets of circumstances to which he refers. I will make sure that my noble friend’s particular points are taken back and incorporated.
As I was saying, developing reforms include ensuring that there is clarity on what constitutes misconduct or a breach of expected standards by PCCs, deciding which body is best placed to handle certain types of complaints, ensuring that the system does not give rise to vexatious complaints and ensuring the effective handling of criminal allegations against PCCs. We acknowledge that we need a system that is open, transparent and fair for all parties when handling complaints. While we develop the reforms in this area, we have taken interim steps to assist. This includes publishing guidance to strengthen the quality and consistency of scrutiny by panels, more clearly explaining their roles and responsibilities—I note the point of the noble Lord, Lord Coaker—including in relation to their remit for handling PCC complaints.
The noble Lord, Lord Lexden, also asked what legal requirements exist to ensure that police and crime commissioners answer the inquiries made to them. The actions and decisions of PCCs are scrutinised by the panels, and the PCCs must provide information and answer questions raised by their PCP, where reasonable and appropriate, in line with their duties in the Police Reform and Social Responsibility Act 2011. Where necessary, PCCs must also respond to freedom of information requests from the public, in accordance with the Freedom of Information Act 2000.
We intend to legislate to deliver those recommendations from the PCC review, which require primary legislation, as soon as parliamentary time allows. We are also fully committed to delivering the remainder of our non-legislative recommendations in conjunction with the sector by the end of this calendar year, where possible.
I am afraid I do not have any time left, but I close by saying that we seem to have debated the instances—very bad instances; no one is denying that—of one or two particularly bad apples. The fact remains that there are 39 PCCs and three mayors with PCC responsibilities and, as has been recognised, we should all acknowledge that they are, in the main, doing a very good job. I take this opportunity to thank all our sector partners for their continued support.