Legal Aid, Sentencing and Punishment of Offenders Bill

Debate between Baroness Gale and Lord McNally

Thursday 9th February 2012 Lords Chamber

[Baroness Gale]

My Lords, this amendment and Amendment 180B are tabled in the names of my noble friends Lady Royall of Blaisdon, Lord Bach and Lord Beecham.

I begin by paying tribute to Michael and Adam Brown. It is as a result of their campaign that we are here today and are debating this important issue in order that we can protect vulnerable women and men from the very small percentage of people who think that they have a right to hurt the partners they claim to love. In 2007 Michael’s daughter and Adam’s sister, Clare Wood, a resident of Salford, began a relationship with George Appleton, a man she had met through the social networking website Facebook. A year later she ended the relationship but became the target of a sustained campaign of violence and harassment from Appleton. Over the next six months Appleton stalked Clare, sexually assaulted her and threatened to kill her. Then in February 2009 he strangled her, killing her before setting her body on fire. After a six-day manhunt he fled to an abandoned pub in Salford and hanged himself.

Appleton had a long background of violence against women, including repeated allegations and convictions of harassment, threats to kill, and kidnapping one of his ex-girlfriends at knifepoint. Clare had no way of knowing this. Had she had that information, it could have saved her life. I think we would all agree that this is a horrifying story.

My right honourable friend Hazel Blears, MP for Salford, has advocated for this change of law and worked on this amendment, as Michael Brown is a constituent of hers. We need to change the law urgently to save lives.

At the inquest into Clare’s death, the coroner made the following recommendation:

“Subject to appropriate risk assessment and safeguard, I recommend that consideration should be given to the disclosure of such convictions and their circumstances to potential victims in order that they can make informed choices about matters affecting their safety and that of their children”.

Since Clare’s death, her father Michael Brown and brother Adam have campaigned for a change in the law to enact precisely the coroner’s recommendations to give women and men at risk of domestic violence the right to know of any threat that they face. The Respect & Protect: Clare’s Law campaign calls for women and men to be given the right to know. It has received cross-party support and has been backed by Fabulous magazine and Key 103 radio.

In 2009 a report commissioned by ACPO and compiled by Chief Constable Brian Moore of Wiltshire Police advocated the creation of a right to know, but by the creation of a positive duty on the police proactively to disclose information. This is not just a compassionate issue but one with serious public order, health and economic implications. Domestic violence represents 18 per cent of all violent incidents. The cost of domestic violence was calculated to be £15.7 billion in 2008 in public services, loss to the economy and victims. In 2009-10 in England and Wales, 21 men and 94 women were killed by a partner or ex-partner. Over the past 10 years, an average of between 111 and 146 people a year have been murdered by their partner or ex-partner. ACPO estimates that there are 25,000 serial perpetrators of domestic violence in the country. It has the highest rate of repeat victimisation of any crime, with 44 per cent of victims victimised more than once in the past 12 months. Therefore, if we act today we know that we will stop a significant number of repeat abusers and help a huge number of men and women to take control of their personal safety.

The public support this initiative. Polling conducted by Fabulous magazine in the summer of 2011 found that 91 per cent of women agree that they should be given the right to know whether their partner has a history of domestic violence; 84 per cent think that such a change in the law could save lives; and 77 per cent would consider leaving their partner if they found that he had history of abuse.

On 25 October 2011, the Home Office launched a consultation on the introduction of a domestic violence disclosure scheme. This followed a meeting between the Home Secretary, Theresa May, Michael Brown and my right honourable friend Hazel Blears. The consultation paper established the three following options: to continue current arrangements under the existing law; to create a “right to ask” national disclosure scheme; and to create a “right to know” national disclosure scheme. On 27 October 2011, Hazel Blears MP tabled a new clause to the Legal Aid, Sentencing and Punishment of Offenders Bill that would have introduced Clare’s law. The new clause was based on the legal framework established by Sarah’s law, which created a disclosure law for paedophiles living within a locality. Therefore, while the Home Secretary’s consultation on Clare’s law, which has just ended, is welcome, for the law to be changed, legislation surrounding crime and justice needs to be passed. The passage of the Bill through Parliament provides a legislative vehicle to which the change can be attached. At the moment, while there is some common law provision for disclosure, it is unclear and needs clarification. The Clare’s law proposal aims to empower men and women by giving them the right to request this information. A codification of the law will make it easier for men and women to make a request, and provide clearer guidance to the agencies on their roles and responsibilities.

The Hazel Blears clause represents the second option in the consultation. The first option does not offer a change to the current situation and the third creates obligations for the police that might be difficult for them to meet. The second option—a right to ask—gives men and women the opportunity to make a request without putting the police in the position of having to make a disclosure or risk negligence claims. Any change in the law needs a legislative vehicle. The passage of the Legal Aid, Sentencing and Punishment of Offenders Bill offers an opportunity to change the law. As this matter relates to crime and security, any change must be appended to a Bill that deals with either justice or crime prevention. With no other Bill to address these issues on the horizon, this offers the Government an easy way to change the law quickly, before more people are killed at the hands of serial domestic abusers.

Under the consultation put forward by the Government—the second option—a four-step process will take place. After an initial enquiry by A to the police, the police undertake an initial check on the police national database to identify whether any information is held on B. The police then meet A face-to-face to confirm their identity and that of B, to confirm the relationship between them, and to enable A to complete a formal application for disclosure. The police will then conduct full checks on the police database systems to inform a risk assessment for A. The police refer information about B to an appropriate multi-agency setting, probably a multi-agency risk assessment conference, which would then make a decision on whether to disclose the information to A. Such a decision would be informed by the risk assessment and whether appropriate safety measures could be put in place for the applicant. If disclosure was approved, it would be made by the police with an independent domestic violence adviser present to provide support to A, if required.

The introduction of the police national database in 2011 offers the opportunity easily to identify serial perpetrators of domestic violence. The PND gives police the ability to create national markers, such as a domestic abuse serial perpetrator marker, which could flag up prolific and dangerous subjects operating across England, Wales and Northern Ireland. This is a very important subject. I, Hazel Blears and, of course, Michael and Adam Brown, are thankful that we are able to debate this matter today. Debate was prevented in another place as, due to the timetabling on Report, this amendment was not reached.

When can the Government’s response to the consultation be expected? What was the weight of opinion in the replies? I trust the Minister can give an assurance that the Government will support this amendment to bring about Clare’s law. I can assure him that we would welcome further discussions with him, if required, to ensure a positive outcome which would do so much to provide a safety net for these people. I look forward to hearing a positive response from him on this matter. I beg to move.

[Lord McNally]

My Lords, earlier today we gave support to Jane’s law. The noble Baroness referred to Sarah’s law. Now we are discussing Clare’s law. Those all stem from tragedies that have befallen families. The measure may be viewed as a case of slamming the stable door but we are trying to learn lessons from those tragedies and to give the families concerned at least the comfort of knowing that the lessons we have learnt will save others in the future. Therefore, I assure the noble Baroness that we have great sympathy with this proposal. We pay tribute to the campaign that Hazel Blears, the Member for Salford and Eccles, has pursued in co-operation with Clare’s family, and her work in tabling this amendment in the other place.

As the noble Baroness explained, the amendment would place a duty on responsible authorities such as the police, probation and Prison Service to consider disclosing information held in their possession about the relevant previous convictions of any violent abuser to any person deemed by the responsible authority to be at risk. The amendment is born of the circumstances referred to by the noble Baroness, Lady Gale, of the tragic murder of Clare Wood by her ex-boyfriend. Noble Lords will know that the Government have been considering this issue very carefully. The Government are committed to ending violence against women and girls. The fact that approximately two people are killed by their current or former partner each week underlines how serious this issue is, and we are committed to looking at new ways of protecting victims.

Crime: Rape

Debate between Baroness Gale and Lord McNally

Tuesday 24th May 2011 Lords Chamber

[Lord McNally]

The case that the noble Baroness brings up is one that is best left to the good judgment—and it is the good judgment—of the authorities involved in those cases. It is extremely difficult to make broad-brush assumptions. I note what she says and, for our review of sentencing, I will take back the particular point that she has raised.

[Baroness Gale]

My Lords—

--- Later in debate ---

[Baroness Gale]

My Lords, all incidents of rape are serious and to indicate otherwise sends the wrong message to victims of rape. Will the Minister give an undertaking to ensure that there is a public awareness campaign about the laws on rape and consent so that we make it absolutely clear that non-consensual sex is a serious offence? I believe that this would clear up any misunderstandings that have happened over the past week.

[Lord McNally]

I do not think that there are misunderstandings from over the past week. There has been no doubt that this Government take rape very seriously, and the Secretary of State takes rape very seriously. The amount of money, even at a time of difficulty in overall spending, has been maintained and the number of rape advice centres has been extended. However, I agree with the noble Baroness that it is time to publicise the seriousness of rape, and I think that that could be started in the schools and by looking at some of the worrying things in advertising, in pop music and in some of the newspapers, which have been so quick in their editorial pages to condemn my right honourable friend. Some of those should look at where they put the position of women in society and whether they encourage young men to give women the respect that they should have. That might be a start.

Legal Services Act 2007 (Approved Regulators) Order 2011

Debate between Baroness Gale and Lord McNally

Tuesday 5th April 2011 Lords Chamber

[The Minister of State, Ministry of Justice (Lord McNally)]

My Lords, I presume that later in the consideration of the European Union Bill we will get on to the Schleswig-Holstein question. In the mean time, it is my responsibility to speak to the Motion to approve the Legal Services Act 2007 (Approved Regulators) Order 2011.

The power to make this order is in paragraph 17(1) of Schedule 4 to the Legal Services Act 2007. The order seeks to designate the Institute of Legal Executives—ILEX—so that it can allow its members to conduct litigation and regulate them in doing so. In practice, the extent to which ILEX will be able to deploy this right will be limited by its own regulatory framework, which will mean that the only ILEX members who can conduct litigation if this order is made will be associate prosecutors employed by the Crown Prosecution Service. The Legal Services Act classifies the conduct of litigation as a reserved legal activity that can be carried out only by a person who is either “authorised” or “exempted” by the Act. At present, associate prosecutors are exempted to carry out specific litigation.

ILEX has drafted specific rules that will set out the processes by which the work of associate prosecutors will be integrated into ILEX’s regulatory regime. Under these rules, associate prosecutors will be required to abide by ILEX’s code of conduct and undertake a specified amount of continuing professional development. In addition, ILEX will review and assess associate prosecutor training programmes. A memorandum of understanding has been agreed with the CPS that sets out the working arrangements for the regulation of associate prosecutors, including the handling of complaints, ILEX’s information requirements and a facility for ILEX to carry out its own inspections and reviews.

Both ILEX and the Legal Services Board have consulted on ILEX’s application for designation. The responses were broadly supportive, including those from other legal services regulators. In making its recommendation to the Lord Chancellor about this order, the Legal Services Board has satisfied itself that any issues arising from the consultation have been addressed.

In anticipation of this order, ILEX has applied to extend the scope of its regulatory framework so that it can grant a wider range of litigation rights to a wider range of its membership. It falls to the Legal Services Board to determine this application. Clearly, any extension to the range of ILEX practitioners who can conduct litigation independently could have a significant impact on the legal services market. The Legal Services Board has a statutory duty to promote competition within that market, so I would expect it to evaluate the potential impact carefully in considering ILEX’s wider application.

I commend this order to the House.

[Baroness Gale]

My Lords, I thank the Minister for bringing this order before us tonight. We are pleased to support the order, which naturally emerges from the Legal Services Act 2007. ILEX is already an approved regulator, but its powers as a regulator will now extend to regulating those who conduct litigation.

ILEX was recognised as an approved regulator as a result of the Legal Services Act 2007, the aim of which was to liberalise and modernise the regulation of the legal profession as well as to increase access to legal services. The Act moved away from self-regulation to independent regulation, which was a major step in improving consumer confidence in legal services. It was a very good piece of Labour legislation. At a time when we see daily restrictions on access to justice and the availability of legal services, there is a need to encourage the intention and practice of the Legal Services Act in broadening access where possible.

ILEX does an excellent job in regulating its part of the profession, and legal executives also do an excellent job in the services that they provide. Furthermore, this part of the profession draws from a wider social background than other parts of the profession—something that the strategy for social mobility, which was published today, could learn a lot from. This is a sensible proposal that will enable ILEX to regulate certain members who conduct litigation. I am sure that it will further improve the regulatory system.

It is right and proper that this measure is agreed to promptly and in time for implementation on 1 May. Once again, I am pleased to say that we fully support this measure tonight.

Freedom of Information (Time for Compliance with Request) Regulations 2010

Debate between Baroness Gale and Lord McNally

Monday 8th November 2010 Grand Committee

[Baroness Gale]

My Lords, first, I congratulate the Minister on making his debut on statutory instruments. It is good to be working with him again. As he may recall, in the late 1970s when I was working in the Labour Party office in Cardiff and the Minister was in No. 10, we often had little chats about what the Prime Minister would be doing when he came to Wales. It is good to be working with him again, although I do not think that at the time either of us thought that we would be working on opposite sides of the Chamber.

I thank the noble Lord for his remarks and for his explanation of the statutory instrument. My noble friend Lord Campbell-Savours has raised some very interesting points, to which I am sure the Minister will reply. However, I believe that the safeguards are there in that academy proprietors remain subject to the obligation to respond promptly. If a request can be answered in less than the maximum period allowed, they must do so, and the SI can be reviewed by the Information Commissioner if there is a significant increase in the number of complaints from requesters.

With those assurances, I am happy to say that we agree that the statutory instrument is very sensible. It will make the workings of this section of the Act clear and understandable to all concerned. As it is so straightforward, we therefore have no objection to it.

[Lord McNally]

Oh yes, I remember it well. It was a very happy period indeed and a clear demonstration that Governments can get through very difficult economic problems.

I am very grateful for the intervention of the noble Lord, Lord Campbell-Savours, which was made with his usual thoroughness. I am unable to comment on individual cases but I shall read very carefully the Hansard report of this debate and send it to the Information Commissioner. As one who was very much a supporter of the Freedom of Information Act, I want to see it work. I am therefore very grateful for the noble Lord’s contribution because it is important that the Information Commissioner has the capacity to enforce the power.

On the backlog, I saw the Information Commissioner recently and he was able to assure me that significant progress was being made. I think that there was a period when his office did not deal with matters quickly enough, but a real effort has been made to speed things up and I think that we are now well on track. In addition, in November and December the Department for Education and Skills is holding a training event for academy principals and chairs of governing bodies to acquaint them with their responsibilities under the Act. Written guidance on handling requests will also be provided to the academies. I am grateful for the support of the Opposition and for the contribution of the noble Lord, Lord Campbell-Savours.