Armed Forces Bill

Debate between Baroness Goldie and Lord Thomas of Gresford

Consideration of Commons amendments
Tuesday 14th December 2021 Lords Chamber

[Baroness Goldie (Con)]

I think the noble and learned Lord overlooks the tradition of the service justice system and why we have such a system. That has been one of its characteristics over decades: that is the character of the system. It exists to serve a particular purpose, which most people in this Chamber acknowledge, and that is why it has different characteristics from the civilian justice system.

[Lord Thomas of Gresford (LD)]

My Lords, I thank everybody who has contributed to this debate. Many fine words have been said and two issues have really come forward. The first is the denial of the right to trial by jury to members of the Armed Forces—they sign away that right when they join up. This issue will not go away but will rumble on and on.

The second issue relates to victims and the problems so clearly delineated to Sarah Atherton’s committee. She had representations from more than 4,000 women serving in the Armed Forces, all going the same way. Indeed, one person from an NGO which helps them said she was looking after 600 servicewomen, none of whom wanted trial by court martial; all wanted their right to have a trial in the ordinary courts so that the alleged transgressors could be brought to justice in the ordinary way.

This is absolutely fundamental to the constitution of this country. Regarding what the noble and learned Lord, Lord Morris, said a moment ago, in his press release today Mr Raab talked about the Magna Carta, the Bill of Rights, the Slave Trade Act and so on, calling them to his aid in supporting the right to trial by jury. It is a simple point.

I am very conscious that there are good things in this Bill that I have worked for for ages, such as majority verdicts in courts martial. I do not want to see this Bill fail, nor do I want the military to be let loose at this particular time by this Bill falling for lack of time. Therefore, I do not propose to press my amendment, but I hope we will come back to this issue. I hope that that will not be in five years’ time with our next Armed Forces Bill but that, once statistics emerge and show us the true situation, the Government will have the guts to admit that they were wrong.

This is not a historic thing going back decades. Jurisdiction was given to courts martial to try murder, manslaughter and rape in 2006, so this is barely 15 years old. Consequently, it is not a great military tradition— if it is being presented in that way. Up until that time, the service justice system insisted that offences committed by servicemen in the United Kingdom, on the soil of this country, should be tried in the ordinary courts. I hope we get back to that very quickly. I will not press the matter and beg leave to withdraw Motion A1.

Armed Forces Bill

Debate between Baroness Goldie and Lord Thomas of Gresford

Consideration of Commons amendments
Wednesday 8th December 2021 Lords Chamber

[Lord Thomas of Gresford (LD)]

My Lords, I will start with a quotation. In the Ministry of Defence

“there is one individual who is refusing to back down from the alleyway he has found himself in.”—[Official Report, Commons, 6/12/21; col. 105.]

Those are the words of the former Defence Minister Johnny Mercer, speaking in the debate in the other place on Monday night, on the amendment that we sent. He had earlier said:

“Unfortunately, I was in the room when this decision was made. The evidence did not support the Secretary of State at the time and the evidence does not support the Secretary of State today. I cannot vote against the Lords amendment; it is not the right thing to do. Let me be clear: when the Secretary of State made that decision”—


the issue that we are discussing today—

“it was against the advice of the officials in the Department and against the advice of his Ministers.”—[Official Report, Commons, 6/12/21; col. 104.]

Unusually, the veil is lifted. Mr Mercer clearly identifies Mr Ben Wallace, the Secretary of State for Defence, as the man in the alleyway who, against the advice of his officials and his Ministers, persists in resisting this amendment. The Minister knows that I have always assumed that she would not, in her personal capacity, back the Government’s position—but now we have direct evidence from Mr Mercer, her former colleague.

I could leave it at that. I could await the storm of protest from victims whose cases are dismissed at court martial, who will come forward brandishing the Judge Lyons review and the recommendations, after considerable investigation, contained in Sarah Atherton’s report, published last July, to which I have referred at every stage—Sarah Atherton being the only Conservative Member of Parliament ever for Wrexham.

I doubt that the controversy when those protests are made will improve Mr Wallace’s or the Government’s standing with the public on the highly sensitive issue of sexual offences, but I have a deep concern that the reputation of the service justice system in the UK should not be sullied.

On Monday afternoon, I took part in an international forum organised by my friend Professor Eugene Fidell of Yale University, founder and former president of the National Institute of Military Justice in the United States. The forum meets regularly. On this occasion, we considered the way that sexual offences are dealt with in the Canadian military. This is a live issue in many jurisdictions. I had hoped that the United Kingdom would show the way, but I will remind the House of some of the UK statistics that were before the other place.

The Atherton committee interviewed many in search of evidence. Some 64% of the more than 4,000 service- women who submitted evidence to the committee stated that they had experienced sexual harassment, rape, bullying or discrimination while serving in the Armed Forces. Over the past five years, the average conviction rate for rape in civilian courts, from Ministry of Justice data, is 34%. Over the same five years, from using the data of the MoD, it is just 16%. The Minister told us that it was 15% for courts martial over the last six months. If you use Crown Prosecution Service data, the figures are even worse.

[Baroness Goldie (Con)]

I thank the noble Lord for taking this point of correction. The statistic I gave him for cases of rape prosecuted in courts martial in the last six months shows a conviction rate of just under 50%.

[Lord Thomas of Gresford (LD)]

Obviously, I misheard the noble Baroness. I will continue. As I said on Report, I am not aware of any murders committed in the UK by service personnel that have been tried by court martial. Of course, that could have happened only since 2006, when the novel change to concurrent jurisdiction was introduced. I have noted two cases of manslaughter arising from deaths at the Castlemartin range in west Wales, in live firing exercises, which involved the organisation of training activities, but I am not aware of any trials of sexual offences at court martial in the UK where the victim was a civilian. If there were any, I shudder to think of the effect on a civilian complainant of giving her evidence in intimate detail, against a serviceman, to a panel of uniformed officers, at a court martial.

Until now, the verdict of a court martial in such a case would have been by a simple majority, but I welcome the changes in this Bill that lead to a different situation. Imagine the difficulty of a junior service woman or man making a complaint of rape to her or his commanding officer, particularly if the alleged offender is senior to them in the chain of command, as is often the case. In addition to all the stresses and strains that already dissuade many women in civilian life from complaining, she, a servicewoman, has to face the effect on her career, an appearance before a board of senior officers, very low chances of conviction and the possibility that, in the event of an acquittal, the terms of her service will keep her in contact with her attacker. At least in a civilian court, the jury, to whom she would give her sensitive and difficult evidence, is 12 anonymous people drawn from the public. They will have no effect on her career and she is most unlikely ever to see them again—contrast that with giving evidence of sexual offences before a court martial.

Sir Robert Neill, with all his experience and wisdom, pointed out in the other place on Monday that the normal safeguards that apply in these cases in civilian courts are not yet available in the courts martial, in both the investigatory and procedural stages. Again, I draw the Minister’s attention to the effect upon the recruitment and retention of women in the Armed Forces. Would you expose your daughter to the probability that she will be subject to sexual harassment and worse, without the protection of a satisfactory service justice system?

I listened to the debate in the other place, and my amendment in lieu has changes. Objection was made to the role ascribed to the Attorney-General. The Minister has made a similar objection in this House, and I have to admit that I had assumed that the Ministry of Defence and the Members in another place appreciated the constitutional position of the Attorney-General. It is one of his functions to supervise the Director of Public Prosecutions and the Director of Service Prosecutions and to be answerable in Parliament for them and their decisions. Hence it was Judge Lyons’ recommendation that the AG’s consent should be sought for the trial by a court martial of murder, manslaughter, rape and serious sexual offences committed in the UK. I agreed with his position: it represents the correct status of the Attorney-General in this country.

However, if the consent of the Attorney-General is the problem, this amendment in lieu leaves decisions about trial venue in the hands of the Director of Public Prosecutions—but only after consultation with the Attorney-General. The DPP would naturally consult the DSP, but, as the Minister, Mr Leo Docherty, made clear on Monday evening, it is the DPP’s decision in the end.

I say to the Conservative Benches that, if they vote against my amendment, they would be voting merely for the stubborn man in the alleyway, in Johnny Mercer’s words. They would be voting against the views of the officials in the Ministry of Defence and the departmental Ministers at the time that this was first considered, against the leading recommendation—number 1—of Judge Lyons and, above all, against the passionate findings of the Conservative Member of Parliament and her cross-party committee. Sarah Atherton—the only women in history to have risen from the ranks of the Armed Forces to become a Member of the House of Commons—knows what she is talking about. I ask those opposite not to vote against this amendment. I beg to move.

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[Baroness Goldie (Con)]

My Lords, first, I thank your Lordships for, as ever, interesting and thoughtful contributions on both issues being debated this afternoon, particularly Motions A1 and B1. I will first address the comments made in relation to Motion A1. By way of preface, it is worth noting that this matter was debated and decided in the other place by an authoritative and substantial majority. Notwithstanding that, I will endeavour in my remarks to engage your Lordships and repeat why the Government hold to the position they do. I am grateful for the further comments made.

Perhaps I should clarify to the noble Lord, Lord Thomas, who seemed to doubt my commitment to the matters of the service justice system, that I and the Government are convinced of the wisdom of retaining unqualified concurrent jurisdiction for murder, manslaughter and rape—I want to make that crystal clear. I remind your Lordships that, contrary to what some contributions indicated, that view is supported by a distinguished former High Court judge, Sir Richard Henriques.

I was also interested to note that remarks from a number of your Lordships with very senior and impressive legal backgrounds seemed to be addressed exclusively to England and Wales. With all respect, the service justice system that we all admire and revere has to extend across the whole of the UK and must reflect the different systems within it. Military justice must be universal across the UK and the proposal in the Bill achieves that end in a way in which the noble Lord’s amendment does not.

[Lord Thomas of Gresford (LD)]

Perhaps I might challenge the Minister on that. If the civil jurisdiction is to be used for an offence committed in Scotland or Northern Ireland, court martials then become immaterial—so there is no problem, as the Minister seems to think. This point has not been raised at any stage of the Bill until today. There is no problem if the ordinary courts of Scotland and Northern Ireland are to deal with offences which occur within that jurisdiction. The question of whether a person is in the military or not is then irrelevant; the offences will be dealt with as usual.

[Baroness Goldie (Con)]

Yes, but with all respect, I say to the noble Lord that that is not the essence of the issue. The essence is instead how you create a service justice system which can operate across the United Kingdom and ensure that, when discussions take place with the appropriate civilian prosecutors, appropriate decisions are reached on the correct jurisdiction for the case. That might be, within the service justice system, convening in Scotland, but under the noble Lord’s amendment there is clearly a desire to bias the whole service justice system in respect of England and Wales to the civilian system, and I am saying that that introduces a disparity or fracture of the United Kingdom service justice system. That is what the Government find unacceptable.

The noble Lord, Lord Burnett, raised an important point—

--- Later in debate ---

[Baroness Goldie (Con)]

I have to say to the noble and learned Lord that I am afraid I do not have information available. I gave him the statistics provided to me, but I will undertake to ascertain that information and write to him.

[Lord Thomas of Gresford (LD)]

My Lords, I will pursue that for a moment. The number of cases heard in courts martial is probably fewer than 10 for sexual offences, or at least fewer than 20. I cannot imagine that in six months, we deal with more than four or five cases, but no doubt we will be told in due course. Over a five-year period, the figure is 16% for convictions, as opposed to the civil conviction rate of 34%—shocking as that conviction rate is in any event.

On the point about Scotland and Northern Ireland—never raised before Monday night in the course of this Bill, either here or in the other place—the principle that this amendment sets down is quite simple:

“Guidance … must provide that where offences of murder, manslaughter, domestic violence, child abuse, rape or sexual assault with penetration are alleged to have been committed in the United Kingdom, any charges brought against a person subject to service law shall normally be tried in a civilian court”—


it does not say “in the Crown Court” in this country—

“unless by reason of the circumstances … the Director of Public Prosecutions, after consultation with the Attorney General, directs trial by court martial.”

If it is necessary to cover that by putting “after consultation with the Lord Advocate in Scotland” or whoever is the chief authority in Northern Ireland, that can be done in 30 seconds—if you let me loose for that period of time.

No answer has been given, and we are faced with what Johnny Mercer said:

“there is one individual who is refusing to back down from the alleyway”.—[Official Report, Commons, 6/12/21; col. 105.]

This is not proper policy for the Conservative Party. It will face, as a party, the complaints of people who have been subjected to sexual violence but whose cases have not been upheld. It will arise, and it will be to the advantage of other parties. So, I plead that the amendment be supported in this case. I beg to move.

Armed Forces Bill

Debate between Baroness Goldie and Lord Thomas of Gresford

Committee stage
Tuesday 2nd November 2021 Grand Committee

[Lord Thomas of Gresford (LD)]

Perhaps I might draw to the Minister’s attention her amendment, which states in subsection (3)(b) of the proposed new clause:

“The Provost Marshal for serious crime has a duty, owed to the Defence Council, to seek to ensure that all investigations carried out by the tri-service serious crime unit are free from improper interference.”


Does she not agree that that is miles away from the formulation proposed by Sir Richard Henriques, as stated in Amendment 43, that the duty is to

“ensure all investigations are operationally independent from the military chain of command”?

I have tried to point out that we have got away from the military chain of command in the justice system and that justice comes first, before discipline, in that area—individual justice. Does the Minister not see the difference in the wording, and how much stronger is Sir Richard Henriques’ formulation?

[Baroness Goldie (Con)]

I say to the noble Lord—and I do not want to reprise everything that I have said—that we recognise the different characteristics within the service justice system that are not necessarily a part of the civilian system. We have to acknowledge that, as I indicated, it is not easy to just place things in silos. If something happens on an overseas operation, the chain of command may have to take action. That is why we talk about “improper interference”. I think that is an important distinction. What we are placing upon the provost marshal and the Defence Serious Crime Unit is the obligation to be independent and to seek to ensure the independence of the investigation.

However, we also have to acknowledge the reality of the environment in which these individuals are operating. That is why the Government have deliberately chosen the phrasing they have. I said earlier that there is nothing innovative about that phrasing; it deploys existing text from previous Acts. But I suggest to the noble and learned Lord that it would be unwise to place on the provost marshal obligations that are beyond the wit of the provost marshal to discharge. Equally, it would be wrong to condemn the chain of command for taking action in the early stages of an incident which the chain of command may have had no alternative but to take to protect personnel, to look after safety, to preserve evidence or whatever. That is why the Government prefer the phrasing they have adopted.

Armed Forces Bill

Debate between Baroness Goldie and Lord Thomas of Gresford

Committee stage
Wednesday 27th October 2021 Grand Committee

[The Minister of State, Ministry of Defence (Baroness Goldie) (Con)]

My Lords, it is a great pleasure to join you in Committee this afternoon to discuss amendments to the Armed Forces Bill. Without further delay, I shall speak to group 1, which comprises government Amendments 1, 2 and 4 as well as Amendment 3, tabled by the noble Lord, Lord Thomas of Gresford, and the noble and learned Lord, Lord Thomas of Cwmgiedd, dealing with the constitution of the court martial.

Clause 2 will fix the number of lay members on a court martial board at either three or six. The amendment will give judge advocates the power to direct that a fourth lay member be sworn in to what would normally be a three-member court martial board. The court martial rules will set out the circumstances in which such directions can be made. If a four-member board loses a member, it will be able to carry on with the remaining three members and reach a verdict.

We are making this amendment because the Covid pandemic showed the need for greater flexibility in the service courts as board members were taken ill or had to self-isolate, particularly following the “pingdemic” earlier this year. This measure is a practical arrangement that seeks to future-proof the service justice system against this type of situation, or any other unforeseen circumstances that may arise in future. It will introduce flexibility to the system and ensure that more trials are effective and that victims and witnesses are not subjected to delays in the system. If we do not make the amendment, when a panel member is lost from a three-member board, the only options open to the judge advocate would be either to adjourn the proceedings until that lay member is available again or to halt the trial altogether. This would introduce an unwelcome delay to the administration of justice, which would especially affect victims and witnesses, and in some cases could actually mean that a retrial was required.

The approach that we have taken is based on the current legislation for the court martial. When a trial is likely to last more than 10 days in the UK, or five days when overseas, there is an existing arrangement whereby the judge advocate is able to direct that there should be one or two more members than the current minimum number of lay members for a trial. Where a four member-board remains in place until the end of the trial, at least three members of a board of four must agree on a finding. If it is reduced to three members, at least two out of three must agree.

We have consulted the Judge Advocate-General on this amendment, and he supports it as a means to improve service justice system efficiency and provide flexibility to deal with unexpected events in future. I hope that your Lordships agree that this is a sensible measure that will allow the court martial to continue to operate in difficult times and prevent unnecessary delay for victims and witnesses of crime.

I turn Amendment 3, which would create a statutory requirement for the judge advocate to determine the appropriate sentence alone, having consulted the military lay members of the board. This would reverse the current position whereby the military members of the board and the judge advocate together discuss and vote on an appropriate sentence.

Interestingly, the change sought by noble Lords is not something that His Honour Shaun Lyons recommended in the service justice review. The Armed Forces community is different from the civilian community and it is important that we recognise that. It is obviously the one with which we are familiar, but it is a very different environment within the Armed Forces community.

The board votes on sentence because it is best placed to fully appreciate the context of the offending, the background of the offender and the deterrent effect of any sentence on the wider service. Moreover, some sentences, such as demotion or detention for corrective training, are specific to life in the services. The board has the expertise to judge whether they might be appropriate or effective.

It is worth emphasising that members of the military are governed by a more stringent set of rules and restrictions than those of us in civilian life. These rules are designed to maintain discipline and promote operational effectiveness so that they can get the job done. Many of these additional rules and restrictions to which service personnel are subject apply regardless of whether they are on or off duty. An in-depth understanding of these rules and the context in which they apply form a key part of reaching an appropriate sentence.

To give a simple example, a civilian turning up late for work in a supermarket does not have the same impact on operational effectiveness as the same situation with a marine engineer on a nuclear deterrent submarine that is about to leave port. Members of the Armed Forces will have a broader and deeper understanding of the implications of this type of behaviour.

I reassure noble Lords that the sentencing process is already subject to stringent legal controls and oversight. The court martial is required by law to have regard to the Sentencing Council’s sentencing guidelines, which must be followed by the civilian courts. It can depart from these guidelines only if this is justified by the service context.

The Judge Advocate-General also issues guidance and sentencing for the service courts. The judge advocate makes the decision on sentence with the board, so everyone involved is fully aware of the relevant legislation and guidelines. Judge advocates also regularly sit in the Crown Court and bring that experience and expertise to the deliberations of the court martial. Further judicial oversight is provided by the Court Martial Appeal Court, made up of judges who sit in the Criminal Division of the Court of Appeal.

The current system is both legally sound and ensures that sentences take account of the service context. This amendment would not add any significant legal safeguards to those that already exist. It would move the emphasis away from the court martial being a part of a service justice system in which discipline is maintained by and for the Armed Forces and service personnel. It also diminishes the importance of the service context in sentencing and places a barrier between the service person being sentenced and those with whom they serve.

I hope I have managed to explain fully why the Government have a reservation about this amendment. I therefore urge the noble Lord to withdraw it, and I beg to move the amendment standing in my name.

[Lord Thomas of Gresford (LD)]

My Lords, I thank the Minister for seeing me and my noble friend Lady Smith yesterday, when we had a full and fruitful discussion of these issues. I very much support the thrust of this Bill, in particular, bringing the service justice system up to date and having majority verdicts at the heart of it.

Sentencing is a difficult and technical business. I suspect that I am the only person in this Room who has actually seen the judge in a case in which I was appearing put on a black cap and sentence my client to death. That was in Hong Kong. He was not actually executed but it is a solemn moment. Sentencing in the old days used to follow the verdict but not anymore. In any serious case there is an adjournment for sentencing to enable the judge to consider the sentencing guidelines, the pre-sentence reports, the technicalities which he or she must say in the sentencing remarks, the statements of relatives and the public interest in the whole matter. A balancing exercise is carried out.

Importantly, the guidelines may give the recommended range of the sentence, but the judge has to consider the aggravating and mitigating features of the case, which will increase or decrease the recommended sentence in the sentencing guidelines. If I can give an illustration, because it is apposite for next Saturday when Wales play the All Blacks, in rugby, a referee, with his touch judges or assistant referees and the television match official, will discuss something that might have happened. They talk together and they have the advantage of a replay of an incident from various angles so that they can actually see what happened, which does not happen in a court. But it is the referee who takes the decision, not the people who assist him in his decision.

In the court martial system, it is the panel that takes the decision on the sentence with the judge participating and advising. It is only if the board are equally divided that the judge has the casting vote. To take another example, in the magistrates’ court it is the decision of the magistrates, as advised by the clerk, who may or may not be legally qualified. The judge advocate is not a clerk advising; he is central to a trial. He controls the proceedings. He gives directions to the board and rulings, including dismissing the charges altogether, as happened in the 3 Para case in Colchester in 2005. There is an anomaly as well: if the defendant is a civilian subject to service discipline and thereby liable to court martial, the judge advocate sentences alone.

Of course, the panel could and should advise on any particular military facet of the case, but from my experience it should not be assumed that the members of the panel have any direct front-line operational experience comparable to that of the defendant before them. They might have, but there are many units and many roles in which modern British forces are involved. Very frequently, the officers on a court martial do not have anything like the same experience as the defendant and the pressures he has been under. On the other hand, the judge, who sits regularly as judge advocate in a military court, has considerable experience of the operational conditions from the cases that come before him.

Under the current system, an officer or warrant officer is summoned to be a member of the board, probably with no or limited experience of courts martial, save for the president. He might never have been near a court or a court martial, but he becomes a judge with very considerable powers. He will be given the responsibility of determining sentence in a difficult case. That is a power that has never been given to civilian juries in the history of the common law. But it can be only history which retains this unique power for the board in courts martial. Perhaps it is a throwback to when there were no civilian professional judges, but, as I said in opening in my remarks, we have advanced so far. The civilian judge advocate is so important to the system.

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[Baroness Goldie (Con)]

I certainly undertake to look at Hansard and endeavour to frame a response to the noble and learned Lord.

[Lord Thomas of Gresford (LD)]

I am grateful to the Minister for the very careful and thorough way she addressed these amendments. I feel that she slightly misrepresents the nature of Amendment 5. I am not suggesting that in every case the Attorney-General be woken up by the telephone in the middle of the night and come to a decision in her pyjamas. That is not quite what I have in mind, which is that serious offences such as murder, manslaughter and domestic violence should normally be tried in the civil court. There is no question of protocols: that is the normal way you go about it. But in the event that there is some very specific naval or military complexity involved—I had in mind, for example, the working of a gun in a tank that causes another person to be killed on Salisbury Plain—one could imagine that there might be a case for the authorities to say, “This has a bit of a military tang to it. Therefore, we will see whether the Attorney-General will agree, in this very unusual case, that a trial by court martial would be more appropriate, because the panel might be more used to that sort of thing.”

We are talking about murder, rape, manslaughter, domestic violence, and child abuse by serving soldiers or servicepeople in the United Kingdom. It is important that that should be realised. Normally they would be tried in the Crown Court by a jury in the ordinary way.

The noble Lord, Lord Coaker, the noble Baroness, Lady Bennett, and the noble and learned Lord, Lord Thomas of Cwmgiedd, raised the issue of confidence. That is what this is about: public confidence in the system of service courts. That is what is needed. I repeat what the noble Lord, Lord Coaker, said: people will not come forward. If you have a situation where servicepeople who complain of rape find that only 16% of the complaints result in convictions, that means that 84% of victims will have gone to the court, given their evidence and found that the defendant has been found not guilty of the offence against them. Does that give confidence, not just to the victim but to the family? They will leave the service; this is the sort of situation in which a person says, “I’m not going to stand for this. I’ve gone before a court martial; they don’t believe me.”

This is an extensive problem in the United States. Four or five years ago I gave evidence to a congressional committee in Washington on what the British system was because they were considering sexual assaults in the military over there. I was in the unlikely company of Senator Gillibrand of New York, a Democrat, and Senator Ted Cruz of Texas, who is known to have certain right-wing views. They were all on the same side. Nothing happened. President Biden has within the first six months of his Administration set up a commission to deal with sexual offences in the military. This is a very important point and it is very necessary that we deal with it properly.

The noble and learned Lord, Lord Thomas of Cwmgiedd, pointed out to the judicial review that took place in the Blackman case that our protocols for overseas jurisdiction have not worked. His proposal that parliamentary approval of any protocol should underpin that protocol is entirely correct, sensible, right and common sense, because it would prevent the bringing of judicial review against whoever is in charge—the Director of Service Prosecutions or the director of prosecutions in another jurisdiction—as the protocol would have parliamentary approval.

I support the noble and learned Lord in that. The fact that it does not exist at the moment is neither here nor there; what we are concerned about is having something that does not give rise to parades and demonstrations in Parliament Square, as happened in the Blackman case. That is an important point, and I am sure that the noble and learned Lord, Lord Thomas of Cwmgiedd, will pursue it.

Overseas Operations (Service Personnel and Veterans) Bill

Debate between Baroness Goldie and Lord Thomas of Gresford

Report stage
Tuesday 13th April 2021 Lords Chamber

[Baroness Goldie (Con)]

My Lords, I am grateful for the opportunity to make a contribution which I hope may assist the progress of the debate on this amendment. I am very conscious that I have been unable to radiate much cheer this afternoon, so I will try to do better. As the noble and learned Lord has stated, Article 15 of the European Convention on Human Rights provides that, subject to certain conditions, states may derogate from—that is, temporarily suspend—relevant human rights obligations. Clause 12 would require any Government in future to consider whether to make a derogation under Article 15 in relation to significant overseas operations.

I am very grateful to the noble and learned Lord, Lord Hope, for his analytical clarity in addressing the issue surrounding Clause 12. He has been persistent in his focus on this issue and I thank him for that close attention. He is correct that the ability under Article 15 to derogate in appropriate circumstances would remain and would not be affected by the removal of Clause 12 from the Bill. It is also the case that the removal of Clause 12 would not prevent the Government from making a conscious decision when committing the Armed Forces to significant overseas operations as to whether it is necessary to avail themselves of the suspension mechanism created by Article 15 of the ECHR. It is important to recall that, if the UK did decide to so derogate in relation to a specific future overseas military operation, it would not prevent Armed Forces personnel or the MoD from being held to account.

Having listened closely to the issues raised about the way in which the Government have presented this clause—as I promised the noble and learned Lord in Committee I would do—and, although the Government consider that there was a place for originally including the clause in the Bill, I have detected that the House is sympathetic to the representations of the noble and learned Lord, and that there is a general consensus across the House for the removal of this clause. I am therefore pleased to confirm that the Government will accept the noble and learned Lord’s amendment to remove Clause 12 from the Bill.

[Lord Thomas of Gresford (LD) [V]]

My Lords, I am relieved to hear the Minister’s statement concerning Clause12 and its removal. The noble and learned Lord, Lord Hope, asked who the message was to be sent to. The proposal to give notice to a potential enemy that British forces would not be bound by the restraints of the European Convention on Human Rights was truly alarming. It would have exposed our troops in the field to reciprocal treatment.

I followed the noble and learned Lord, Lord Hope, in Committee in pointing out the utter uselessness of this clause anyway, in that it could not deal with those most pertinent and significant rights in the covenant from which no derogation is possible. It did not even try to mirror the circumstances of war or national emergency contained in Article 15, which permit derogation only in very strict circumstances. I do not propose to repeat that analysis.

The Government have thought again on the desirability of this clause. I urge them to think again on the desirability of the whole Bill. I urge them to pull the whole Bill and bring it back in the next Session after proper consultation. I do not say this from any party-political position but wearing the hat of the chair of the Association of Military Court Advocates. I cannot say that I am speaking for that association because no meetings have been possible during the pandemic, but you will appreciate that its members’ primary concern is with defending the ordinary service man or woman in courts martial, many of which relate to overseas operations.

For the reasons which I gave in relation to Amendments 1 and 6 and will not repeat at this stage, this Bill does not protect our service men and women. The only body protected by the Bill is the Ministry of Defence, probably for the ignoble reason given in Committee by the noble Lord, Lord Hendy: to save a bob or two. It is badly thought out, with many omissions and with repercussions that were not understood, not least in its failure to carry out the manifesto commitment of the Government to give statutory force to the military covenant—a matter which we shall shortly discuss. So, they should pull it now, and by all means bring it back in the next Session in a form which will be of use to and protect serving seamen, soldiers and airmen, without the ill thought-out provisions which expose them to danger. I say to the Government: pull the Bill.

Overseas Operations (Service Personnel and Veterans) Bill

Debate between Baroness Goldie and Lord Thomas of Gresford

Committee stage
Thursday 11th March 2021 Lords Chamber

[Lord Thomas of Gresford (LD) [V]]

My Lords, this is a very important amendment and I support it thoroughly. I should declare to your Lordships that I am still chairman of the Association of Military Court Advocates. Although I am not in receipt of legal aid in respect of any case at the moment, I have received legal aid on many occasions in the past. In my experience, the legal aid authority was excellent, probably ahead of its civil counterparts in supporting counsel and solicitors who were defending servicemen, whether in this country or abroad.

There are particular circumstances that apply in this field which do not apply in ordinary civil practice. First, there are a limited number of military court advocates, mostly people who have some experience of the service. Secondly, the courts are at a distance. Catterick and Bulford—or occasionally Colchester—are at opposite ends of the country. There is also a very experienced military lawyer in Northern Ireland who deals with issues that derive there. In addition to court appearances, it is necessary to give protection to soldiers facing charges and to Air Force and Navy personnel. It is necessary to be in at the beginning, which requires driving long miles to various bases to be present at interviews, to be present when a person is charged and to give advice. There are particular exigencies in this type of practice. Full support from legal aid, which in my experience has been given in the past, is essential for the system to work well. As in every part of the justice system where people are properly represented, a fair result is likely to be arrived at.

[Baroness Goldie (Con)]

My Lords, again I thank the noble Lord, Lord Tunnicliffe, for raising this issue. I have looked at his proposed new clause in Amendment 30, which would indeed require the Government to commission and publish an independent evaluation of legal aid for service personnel and veterans in relation to the criminal legal proceedings covered by the Bill. I repeat the assertion to which the noble Lord himself referred: the MoD has a long-standing policy that, where a serviceperson or veteran faces criminal allegations in relation to incidents arising from his or her duty on operations, the MoD may fund their legal support and provide pastoral support for as long as necessary. We offer this because it is right that we look after our Armed Forces, both in the battlefield, where they face the traditional risk of death or injury, as well as in the courts, particularly if they face the risk of a conviction and a possible prison sentence. Because of the risks our service personnel and veterans face, our legal support offer is very thorough. I will set out some of its provisions.

The legal aid provided by the Armed Forces legal aid scheme provides publicly funded financial assistance for some or all of the costs of legal representation for defendants and appellants who, first, appeal against findings and/or punishment following summary hearings at unit level, including applications for extensions of the appeal period by the Summary Appeal Court, for leave to appeal out of time. Secondly, it covers those who have a case referred to the Director of Service Prosecutions for a decision on whether the charges will result in a prosecution. This includes offences under Schedule 2 to the Armed Forces Act 2006 referred directly to the Director of Service Prosecutions by the service police, as well as matters referred to the Director of Service Prosecutions by the commanding officer. Thirdly, it covers those who are to be tried in the court martial of the Service Civilian Court; fourthly, those who wish to appeal in the court martial against the finding and/or sentence after trial in the Service Civilian Court; and, fifthly, those to be tried in a criminal court outside the UK.

If I have not responded to all the questions asked by the noble Lord, I apologise, and I shall look at Hansard and attempt to respond further. I will explain that the legal aid scheme applies equally to all members of the Armed Forces, including the Reserve Forces when they are subject to service law, as well as to civilians who are or were subject to service discipline at the time of an alleged incident. Importantly, this system is based upon the same basic principles as the civilian criminal legal aid scheme in England and Wales. The Armed Forces scheme is designed to mirror the civilian scheme while making necessary adjustments to take into account the specific circumstances and needs of defendants and appellants in the service justice system.

As a result of that system, I am confident we already ensure service personnel and veterans are properly supported when they are affected by criminal legal proceedings. A review of legal aid, as proposed by the amendment, is unnecessary, given how comprehensive our legal support package is. In these circumstances, I urge the noble Lord, Lord Tunnicliffe, to withdraw his amendment.

Overseas Operations (Service Personnel and Veterans) Bill

Debate between Baroness Goldie and Lord Thomas of Gresford

Committee stage & Lords Hansard
Tuesday 9th March 2021 Lords Chamber

[Lord Thomas of Gresford (LD) [V]]

My Lords, the problem of investigations—as well as of late and inadequate investigations—should be addressed and the process sharpened up. The noble and gallant Lord, Lord Boyce, told us this a moment ago and I thoroughly agree with him. The problems have been very clearly outlined by the noble and learned Lord, Lord Falconer of Thoroton. I echo the noble and learned Lord, Lord Thomas of Cwmgiedd, who emphasised that justice must be done based on thorough and prompt investigation. The noble Lord, Lord Lancaster of Kimbolton, is sure that investigations have improved in recent years; I hope that that is true.

I stress first of all the inherent difficulties of investigations into alleged conduct arising out of overseas operations. The noble Lord, Lord Browne of Ladyton, believes that they should be timely and of quality—of course they should. In the United Kingdom, most crimes are investigated by one or more of the 45 or so police forces within their area of operations. Local police forces can readily pull in extra investigatory resources, including scientific investigations, if they need them.

By contrast, investigations by the military police may occur anywhere in the world. Co-operation by the civilian population or even the civilian police cannot be guaranteed. There are usually significant linguistic and cultural problems in the collection of statements from witnesses. It may be that a complainant—a foreign national—has his own axe to grind. The noble Lord, Lord Anderson, reminded me, with the Baha Mousa case, of another problem, where the judge said in his closing remarks that there had been a closing of ranks; that is a problem with the natural desire of soldiers to support each other.

There can be security problems. When in 2005 it was decided that an inspection of a dusty Iraq village was desirable, a whole company or more of 200 soldiers was deployed to provide protection for the dozen or so sheepish lawyers who attended. I was not one of them: the MoD was not prepared to insure the silks in the case. There is no immediate access to the support that a civilian police force in this country might expect. It follows that delays are inherent and inevitable, but they are not desirable. Yet we can read the whole of this Bill and find nothing which deals with the essential preliminary to any prosecution: a thorough, prompt investigation.

This group of amendments suggests various pathways to ensuring that the length and efficiency of an investigation is controlled. Amendment 17, in my name and that of my noble friend Lady Smith, sets out a practical route for putting the investigation under the control of the Director of Service Prosecutions. An investigator must, within six months of the complaint, provide a preliminary report to the DSP of the progress of his investigation. As may well happen informally in any event, the DSP may give guidance on the lines of inquiry which would be appropriate.

In my amendment, if, on an assessment of all the papers, the DSP sees no future in the investigation, he would have the power to terminate it then and there. If he orders the investigation to continue, there would be regular reporting to him of the progress of the inquiry, again with the possibility of him calling a halt. I have discussed this with the former Judge Advocate-General, Judge Blackett. He is of the view that control of the investigation is highly desirable but that the power to stop an investigation should rest with a designated judge, not with the DSP. A moment ago, the noble Lord, Lord Anderson, suggested that this might not be satisfactory and that a more independent person should be involved in supervising an investigation. I am not really worried about what way one approaches it, but there should be control of an investigation to ensure that it is proceeding at a proper pace and in a proper direction. I think there was a modicum of support for that amendment even from the noble Lord, Lord Lancaster of Kimbolton. Since the DSP has the undoubted power to decide not to prosecute on the conclusion of an investigation, I do not see any problem with the DSP controlling the steps leading up to the final report.

I have also added my name to Amendment 3 on the basis that, at the very least, in deciding whether to prosecute, the DSP should have in the forefront of his mind whether a fair trial has been materially prejudiced by delay or by the quality of the investigation. I have in the past made submissions in court that a fair trial is impossible through delay, pre-trial publicity or matters of that sort, but never with success. The noble and learned Lord, Lord Hope, criticised Amendment 3 as too soft. I do not think so, if it is given a statutory formulation. It would be given weight as an important consideration for the DSP at the time of his decision whether to commence proceedings at all. I submitted earlier this afternoon that a presumption against prosecution is not the way forward. Whether a fair trial is possible should be an important consideration before the prosecution commences.

[Baroness Goldie (Con)]

My Lords, once again we have all been struck by the quality of the debate, which has penetrated issues that are legitimately at the heart of the Bill. Noble Lords who have raised issues related to the Bill are rightly seeking clarification and reassurance about what different components of the Bill mean, and particularly where the whole issue of investigations lies in relation to it.

I will begin with Amendment 3, moved by the noble and learned Lord, Lord Falconer of Thoroton. The Government’s intention with the measures that we have introduced in Part 1 of the Bill is to provide demonstrable reassurance to our service personnel and veterans. It is not only a worthy aspiration but a necessary one. It is a demonstrable reassurance in relation to the threat of legal proceedings arising from alleged events occurring many years earlier on operations overseas. This has meant balancing the need to introduce protective measures for service personnel and veterans and remaining compliant with our domestic and international obligations.

On the one hand, the measures set a high threshold for a prosecutor to determine that a case should be prosecuted, as well as ensuring that the adverse impact of overseas operations will be given particular weight in favour of the serviceperson or veteran; on the other hand, as I have previously said, the measures do not and cannot act as an amnesty or statute of limitations, do not fetter the prosecutor’s discretion in making a decision to prosecute, and are compliant with international law. I believe that we have achieved this balance, this equilibrium, in the combination of Clause 2, the presumption, and Clause 3, the matters to be given particular weight. We are providing the additional protection that our service personnel and veterans so greatly deserve, while ensuring that in exceptional circumstances individuals can still be prosecuted for alleged offences.

--- Later in debate ---

[Lord Thomas of Gresford (LD) [V]]

My Lords, I have little to say in respect of this amendment. I believe that summary offences should be dealt with summarily, and that is what this amendment seeks to achieve.

[Baroness Goldie (Con)]

My Lords, it is interesting that we conclude our consideration of Part 1 of the Bill with a genuinely interesting proposition from the noble and learned Lord, Lord Falconer of Thoroton, so neatly encapsulated by the noble Lord, Lord Thomas of Gresford.

The amendment seeks to introduce, via a new section to be inserted in the Armed Forces Act 2006, a six-month limitation period between an offence being committed or discovered and any proceedings being brought, where certain conditions are satisfied. As I understand the proposal, the amendment would create a six-month limitation period for all offences capable of being dealt with at a summary hearing under Section 53 of the Armed Forces Act 2006. It is worth observing that this category of offence includes a large number of matters that are specific to a military context.

Section 53 covers, for example, the offence of being absent without leave, under Section 9 of the Armed Forces Act 2006; the offence of disobedience to lawful commands, under Section 12; the offence of contravention of standing orders, under Section 13; and the offence of disclosure of information useful to an enemy, under Section 17. These, and many more offences like them, are vital to maintaining discipline and operational effectiveness in the Armed Forces. The amendment proposes that none of these should be capable of leading to punishment after six months. With the greatest respect to the noble and learned Lord, I think that that is unwise.

During any investigation, it is not always clear at the outset what the charge will be, but this is made harder for investigations on overseas operations, particularly where the injured person or witness is a local national. As I have already set out in response to other investigation-related amendments, investigations on overseas operations are subject to greater complexity than those conducted back in the UK, and delays can occur. However, placing what is actually quite a short time limit on investigations is unhelpful. In my view, we should not be seeking to do anything that would fetter the investigative decision-making of the service police. A time limit in these circumstances would do just that.

Even the most minor offences take on a greater significance in an operational environment and, if we reflect on some of the offences to which I have just referred, I think your Lordships would understand the import of that. A minor offence is not necessarily a simple matter that can be dealt with quickly by a commanding officer, and minor offences committed against local nationals can have a disproportionate effect in an operational setting.

I think that this amendment is modelled upon the provisions that exist in relation to summary-only matters in the Magistrates’ Courts Act 1980, which is why I find it problematic. The Magistrates’ Courts Act codifies the procedures applicable in the magistrates’ courts of England and Wales. This legislation is not written to accommodate the extraordinary demands made of a system operating in an operational context where, as I have already said, delays can sometimes occur as a result. Applying civilian timescales to an operational context is therefore not appropriate.

I appreciate that the amendment has been offered in good spirit by the noble and learned Lord. I thank him for the breadth of thought in investigating that aspect, but I urge him to withdraw the amendment.

Integrated Review: New Ships

Debate between Baroness Goldie and Lord Thomas of Gresford

Monday 25th January 2021 Lords Chamber

[Baroness Goldie (Con) [V]]

My Lords, in the timetabling of shipbuilding and the estimated dates for taking delivery and for vessels being in service, a close eye is kept on the need to maintain our key operational obligations. That eye is vigilant and I reassure the noble and gallant Lord that the issues to which he refers are very much at the forefront of MoD thinking. We consult our industrial partners frequently to ensure a smooth transition.

[Lord Thomas of Gresford (LD) [V]]

The Prime Minister said that he was breaking free from a vicious circle. He said that

“we ordered ever decreasing numbers of ever more expensive items of military hardware, squandering billions along the way”.—[Official Report, Commons, 19/11/20; col. 488.]

He now wants to spend an extra £16.5 billion in the “teeth of the pandemic”, as he put it. Given that the Conservative Party has been in control of defence spending for over 10 years, what “important steps”, to use the Minister’s words, have been made to date in procurement and auditing to avoid further squandering?

Armed Forces: Reduction

Debate between Baroness Goldie and Lord Thomas of Gresford

Thursday 22nd October 2020 Lords Chamber

[Baroness Goldie (Con)]

The noble Viscount identified two critical areas of activity. I agree with the importance that he attaches to them. As he is aware, we are positively responsive to these areas through our nuclear deterrent and our support for the Organisation for the Prohibition of Chemical Weapons. He will also be aware that the MoD is currently engaged in planning winter preparedness. We regularly review that, taking into account the possibility of our needing to be drawn on to meet MACA requests in respect of Covid. I reassure the noble Viscount that we are satisfied that we have the personnel and resources to respond to that.

[Lord Thomas of Gresford (LD) [V]]

The Service Prosecuting Authority is an independent organisation which receives its funding, in the region of £5 million annually, as part of the defence budget. Will the Minister assure the House that the Service Prosecuting Authority will remain fully manned and funded, in order to preserve its essential role in the pursuit of justice in the military?

[Baroness Goldie (Con)]

The noble Lord is correct. The Service Prosecuting Authority is essential, as part of the framework under which our Armed Forces operate. I could not envisage a situation where that would not continue to be an essential and necessary structure of our attention to law and order in respect of activity by members of the Armed Forces.