Dangerous Driving: Unduly Lenient Sentence Scheme
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The Solicitor General (Michael Tomlinson)
I thank my hon. Friend the Member for North West Norfolk (James Wild) for securing this important debate. Dangerous driving, especially when it results in death or injury, is a most serious offence, which is rightly condemned by all in this House. I know how seriously my hon. Friend takes the issue, and I am grateful to him for his engagement in this matter. I thank him particularly for raising the case of his constituents Paul and Lisa Carter and Lisa’s daughter, Jade Mace. He set out his case very clearly, with passion and with compassion. I offer my sincere condolences and pay tribute to what is clearly a close-knit and loving family, and particularly to Summer, who lost her mother, sister and stepfather in this incident. Their pain and suffering are unimaginable. As the learned judge rightly said at the sentencing hearing:
“nothing I say [nor] any sentence I pass can make up for the loss of three lives or assuage the grief of their loved ones.”
I will turn to my hon. Friend’s specific points in a moment, but let me start by setting out some general principles of the scheme to which he rightly referred, the unduly lenient sentence scheme. In exercising my function of reviewing sentences under the ULS scheme, I act quasi-judicially. My role, and that of the Attorney General, is to act as a guardian of the public interest. I share my hon. Friend’s desire to ensure that those responsible for terrible crimes are properly punished, and it must be said that in the vast majority of cases, sentencing judges get it right. They deal with a range of cases that vary in complexity and severity, and I take this opportunity to commend them for their work.
Let me put that into context. Of more than 91,000 cases dealt with in the Crown court in 2022, more than 1,100 were referred to the Attorney General’s Office, of which 819 were eligible for the ULS scheme. Of those, 139 were referred to the Court of Appeal, which granted leave to refer in 77% of them. Those statistics have been published on the Attorney General’s website.
The ULS scheme promotes justice, fairness and consistency. It allows sentences which are unduly lenient to be increased, and it is there to correct an error when the judge gets it wrong. It is important to note, however, that it does not apply to sentences that are simply lenient. As the Court of Appeal has said repeatedly,
“sentencing is an art rather than a science…leniency is not in itself a vice. That mercy should season justice is a proposition as soundly based in law as it is in literature.”
The test of undue leniency is a high one. Parliament rightly intended that the Court of Appeal would grant permission to refer a sentence only in exceptional circumstances: for example, if the judge has passed a sentence that falls outside the range of sentences which a judge could properly consider appropriate, or if there has been some gross error in law or principle.
I turn now to the specific offence of causing death by dangerous driving. As my hon. Friend said, the Police, Crime, Sentencing and Courts Act 2022 came into force on 28 June that year, and I know he welcomed it. When it did, there were two significant changes to the law. The first was the increase in the maximum penalty from 14 years to life imprisonment and, as the hon. Member for Strangford (Jim Shannon) noted, this is not just for those under the influence of drink; it also for those under the influence of drugs. I am grateful to him for making that point. The second change relates to the minimum disqualification periods. The Government changed the law to increase both the maximum period of imprisonment and the minimum driver disqualification period for those who commit the most serious road traffic offences, ensuring that they are kept off our roads for a longer period.
My hon. Friend the Member for North West Norfolk mentioned the sentencing guidelines, and I shall turn specifically to that now. He is right to say that the revised sentencing guidelines came into force on 1 July 2023. Between 28 June 2022 and 1 July 2023, the courts were obliged to look to the old guidelines, but as a result of the Court of Appeal case in which I appeared in the Court of Appeal, the court provided judges with guidance on how to sentence those cases in the in-between period. Judges were encouraged to apply an uplift to the provisional sentence identified, to reflect the increase in the maximum penalty. I emphasise that that happened in this case and that the learned judge specifically referred to the Court of Appeal case of Waite and Balcazar Soto. I pay tribute to the work of the independent Sentencing Council for its development of the guidelines. I understand my hon. Friend’s point about timing. He is right that this has taken a long time, but it is inevitable that it will take time for guidelines to be produced following an appropriate consultation, as happened here. In the meantime, the Court of Appeal can give guidance, as also happened here.
On totality, my hon. Friend mentioned concurrent sentences. Judges must consider the totality of offending when sentencing for more than one offence. The totality guidelines have also been revised, and the revised guidelines came into force on 1 July 2023. The overriding principle of totality is that the overall sentence should reflect all the offending behaviour and that it should be just and proportionate. In relation to the sentence for the offence of causing death by dangerous driving, the starting points and category ranges relate to a single offence resulting in a single death. Where more than one person is killed, that will of course aggravate the seriousness of the offence because of the increase in harm. However, where more than one death is caused and they are charged on separate counts, concurrent sentences reflecting the overall criminality are appropriate where the offending or the harm arises out of a single incident, but there will be an increase in the sentence to reflect the increased harm. I note the points that my hon. Friend has made.
Let me turn to my hon. Friend’s other points on life sentences. Causing death by dangerous driving is a specified offence for the purposes of sentencing. This means that a judge can impose a discretionary life sentence, or an extended sentence if they determine that the offender is what is known as a dangerous offender. A dangerous offender is someone who poses a significant risk of causing serious harm to members of the public. An extended sentence consists of a custodial term that reflects the seriousness of the offending, followed by an extended licence period, which is determined on the basis of what the court considers necessary for the purpose of protecting members of the public. This means that, unlike under a determinate sentence, the offender is not automatically released at the halfway or two-thirds point of the sentence. It means that they can apply for parole after they have served two thirds of their sentence, and will be released only if the Parole Board determines that they are no longer a danger to the public. They must of course be released at the end of the custodial period, but they will remain on licence until the expiry of the extended period. The learned judge in this case explained that very process in her sentencing remarks.
I offer my sincere apologies to the family for the fact that my letter to them referred to the judge incorrectly. My hon. Friend is absolutely right to raise that point. It was an error, it was my error, and I apologise. However, the case was carefully considered. They all are, but perhaps especially those involving such tragic consequences, and especially so given that my hon. Friend specifically brought this case to my attention.
I am grateful to my hon. Friend for securing this debate. The ULS scheme is not a mystery, and neither should it be, but it is not often that we have the opportunity to debate the scheme in detail, as we have this evening. I am grateful to him for providing that opportunity. He specifically requested that I meet him and the family and, yes, of course I will.
I close by commending the family once more for their bravery in raising this case and for their determination to ensure that other families do not suffer as they have.
Question put and agreed to.