Serious Crime Bill [HL]

Debate between Baroness Howarth of Breckland and Baroness Walmsley

Tuesday 15th July 2014 Lords Chamber

[Baroness Howarth of Breckland]

My Lords, I feel some trepidation in challenging some of the issues about mandatory reporting, although I think that we need to find different language. I do not think there is any difference between me and the noble Baroness, Lady Walmsley, and the right reverend Prelate in what we want to find at the end of the day. However, I want to caution them and the Government to ensure that they look at this in great depth—I know that they are doing so in other places—and that there are no unintended consequences from the action that is taken.

I do not have a prepared speech, but I would like to make three points. Of course, it is wrong for anyone in a position of authority or in a church or neighbourhood community to turn a blind eye to known abuse. If abuse is clearly there, then that must be reported. If we have to have a law that says that there are circumstances in which people abused their position and did not come forward, the Government should look at that.

In the work that I am doing, the helpline for the Lucy Faithfull Foundation, in the Stop it Now! programme, has hundreds of people telephoning who are not sure about what they are seeing. I have talked to social workers who have great professional expertise about their not being certain what they are seeing. It is quite clear that we need to continue the professional development of staff in local authorities who work with the police, and also the community programmes which I have mentioned earlier, where children’s services, parents and schools have all been involved in the local community in developing understanding of these issues and therefore are clearer about what action they may or may not take.

I do not have a speech because I spent the morning chairing a conference that included people from Australia and the chair of an international protection of children organisation, looking at eradicating child sexual abuse. There were a lot of experts there. The message that they asked me to bring was that we should not simply bring in this sort of reporting without looking carefully at it. The statistics across the world vary according to whom you listen to. I ask the Minister to talk to some of the people I know as well as to those whom the noble Baroness, Lady Walmsley, knows, because they have different views. Presumably, the Government have it within their powers to get the information pretty clearly from Governments in other parts of the world. I am not making any judgment about the outcome, except to say that people tell me that it has really interfered with good preventive work, because resources have been diverted into investigating hundreds of cases that turned out not to be prosecutable.

I understand why there is a wish, particularly in the church, to get this sort of prosecution. I say to the right reverend Prelate that I have probably talked to more victims than most in my 50 years, many of them children; I know the victims’ groups and I know the pain that they have experienced. But it is crucial that we base whatever we do in the future on what is happening now, and that we prevent children being abused in the present, and learn from those people in the future. They have a lot to offer but sometimes it can be clouded by pain, which I understand.

What we want to do, particularly in churches and similar organisations, is to develop a culture of openness. We know of a recent investigation into a particular area in the Church of England where misogyny was rife and women’s views—never mind children’s—were not tolerated. I am a member of the Church of England, so I say this in all good heart but that is one institution that really has to look at it itself—as I know it is doing because the right reverend Prelate is the chair of the committee looking at the issues within the church. There are other organisations that need to look at their culture because we are not going to change these issues by the law, although I think in some areas it will help. We need to get a cultural change in organisations and our nation.

The NSPCC has got itself in a bit of a twist, I think. Talking to some of the staff today, there is a very mixed view because they had always been against mandatory reporting—I think that is a very funny term. They run two helplines. They know the implications of blanket mandatory reporting. I have to say that I did not understand proposed new subsections (4) and (5) of the amendment. It just shows how complex this issue is because we are talking about people going for exemptions. I tend to think that you need an opt-in rather than opt-out situation here, and we need to be precise about those people who might come to be prosecuted if reporting is mandatory rather than having to exempt those people who are trying to be helpful.

I am usually briefer than this but your Lordships can see that I feel as passionately as most—

[Baroness Walmsley]

Perhaps I might provide some clarification. When giving the Secretary of State the opportunity to exempt certain groups, I very specifically had in mind exactly those groups that the noble Baroness is worried about. Childline and Stop it Now! need to be exempted because they will have disclosures made to them and we cannot expect them to go to every local authority-designated officer throughout the country. Children need to be able to disclose to them but when they encourage the child to disclose also to a trusted adult, as they often do, the child needs to know that that trusted adult will do something about it and report it to the right people. I hope that clarification helps.

[Baroness Howarth of Breckland]

I thank the noble Baroness but I think she knows that I know that pretty well. My point is that we need to be more precise the other way round and be clearer about those people who will be prosecuted rather than those who will be exempted. That is the way that I would rather see it because otherwise you are going to catch all sorts of groups. There are groups in the Catholic Church that listen. Without doubt, the helpline should be seeing a child through a referral. If they are going to have a referral, that helpline really should ensure—I know that the NSPCC does this with Childline—that at the end of the day someone takes action at that point.

The Lucy Faithfull helpline for Stop it Now! is more difficult because that is where men are coming forward about thoughts that they have had that they do not understand. I am very fearful that many of those men will not come forward if they think there is a likelihood that they are going to be reported even before they have committed an offence. Some people who have committed offences will come forward to us and we will help them to go to the next stage.

There could be a range of unintended consequences. However, I say what I said at the beginning, which is I think that we are all on the same page. What is important is that time is spent—not a lot of time; I know that the noble Baroness, Lady Walmsley, is impatient—ensuring that we have it right in detail and that we listen to all the parties who have got evidence, because there is a lot of evidence. There is also new evidence about what works and it is not always the old patterns of intervention that work. The Government might do well to listen to some of the people I listened to this morning.

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[Baroness Walmsley]

My Lords, I support both these amendments. I recently sat as a member of a Back-Bench inquiry into the legislation used to tackle sexual exploitation, which was supported very ably by Barnardo’s. We took oral evidence from a number of police forces. There was unanimous support for putting these child abduction notices on a statutory footing, which formed part of our recommendations. At present they form no more than an administrative procedure for the police—useful, I am told, for collecting evidence for the future, scaring perpetrators and letting them know that the police are watching them but, in and of themselves, pretty toothless.

Of course, there is existing legislation for child abduction offences. Sometimes, perpetrators who breach warning notices are prosecuted under this other legislation. But the current legislation is often not useful for cases of grooming, because it requires that the adult has taken or detained the child, implying physical control or restraint. We know that psychological and emotional manipulation are the main tools used by perpetrators to control and groom vulnerable children. The Crown Prosecution Service is therefore not always able to take prosecutions forward, due to the child seeming willingly to remain with the offender, when the offender makes no act physically to detain the child. Creating an offence of breaching a notice would address this issue and allow the police to intervene earlier, rather than having to wait for a more serious offence to occur when, of course, what we want is for them to be able to intervene early.

While the police find child abduction warning notices a valuable tool, their lack of a statutory basis leads to an unfortunate consequence. Police told the inquiry about occasions when they issued notices as a deterrent but were then unable to act once they were breached. If they are to have any power in these situations, all concerned need to know that the police will and can act when their instructions are clearly ignored. Instead, the current situation erodes victims’ confidence in the ability of the police to protect them— and they have told us that. Of course, perpetrators’ fear of consequences will diminish when they see police unable to act. So we need to put this on a statutory basis.

In relation to bringing the age into parity between children in and out of care, the point was made by the children who spoke to us that children’s vulnerability is not determined by their membership of a particular group or their legal status. There are many profoundly vulnerable children who are not in the care system and who need the protection of the law. We heard from some of those girls and boys. Indeed, there are many more victims of sexual exploitation who are not in care and have not been in care than there are within it. During the course of the inquiry, we met some children who have been through some appalling things who had never been in care. While it is too late for them, we need to make sure that other profoundly vulnerable young people who happen to be living with their parents have the same protection as those under the state’s care.

The Government have shown real engagement with the inquiry’s findings so far, and I am delighted that they have adopted one of the inquiry’s recommendations by tabling an amendment to the Criminal Justice and Courts Bill on the topic of grooming. It is clear that these amendments on abduction would be another strong step towards giving the police the tools that they need to prevent some truly vile behaviour.

[Baroness Howarth of Breckland]

My Lords, I was recently approached by a very senior ex-policeman with whom I had worked in the past, who was trying to help a number of children’s homes and hostels in the north of England. He found that there were men who came to the hostel and took older girls out, and the hostel was totally unable to do anything about it. They could simply go and fetch the girls back, but the girls were so emotionally engaged, as the noble and learned Baroness and the noble Baroness said, that they went out again. What the hostel desperately needed was the capacity to take stronger action against the men, and I believe that that is what would happen were we to accept the essence of these amendments.

Children and Families Bill

Debate between Baroness Howarth of Breckland and Baroness Walmsley

Tuesday 7th January 2014 Lords Chamber

[Baroness Howarth of Breckland]

My Lords, I shall be brief, as I usually am, but I want to say two things. One is that when I read these amendments my heart leapt. I thought that if only the home local authority could be made responsible for every young person in secure provision on this basis with a proper plan for seeing them through—as I remember, and as I am sure my noble friend Lord Laming will remember, was the case in children’s departments, where someone was responsible for a young person, with a plan, wherever they were—that would be absolutely wonderful. Of course, at that time there was much more focus on education in the institutions, as childcare establishments, than there is in some of the more penal establishments that exist today.

So I was utterly delighted and was going to congratulate the noble Lord, Lord Ramsbotham, whose tenacity of purpose has taken this through, until I realised, as he did, the key flaw in this piece of legislation. That flaw is that those who wish to take the plans through are not the people with the capacity to provide the resource in order for it to happen in the place it needs to happen. As I am always interested in implementation, I thought about how this would work. There has to be a further step somewhere, either in some sort of regulation or a change in the legislation, that ensures that these plans are formulated into the institution—because, remember, these are individual plans. In the institution they have to be put together into programmes for groups of young people; it is not as easy as simply saying that you can carry each plan through as it stands without extra provision being brought in, with all the problems with that in terms of financing.

I hope that the Minister will look at this, take heart that many of us have been very impressed with the way he listens, and take it forward. Many of us are very concerned about young people in detention who have been failed by everybody by the time they get to detention, particularly those with special educational needs who should not be in this form of provision at all. Surely they can get the right education through this legislation, but they certainly will not with this flaw.

[Baroness Walmsley (LD)]

My Lords, I have a suggestion following what the noble Baroness has just said about implementation, but first I must say how pleased I am to see that my noble friend Lord Nash has listened tremendously well and gone away and done something about it. This has been a great example of the way this House works so well behind the scenes. I am very pleased that the blanket statement that all the good stuff in the Bill should not apply to children in custody has been got rid of and that my noble friend the Minister has grasped the opportunity that the Bill gives to put something better in place. Let us see whether we can get it as perfect as we would like to see it.

It occurs to me that it is a very good thing that the responsibility moves back to the home local authority. What we want to see when young people come out of custody and go back to their home local authority is continuity of provision. I know that the Local Government Association has welcomed this provision, but the people actually delivering the services while the young people are in custody are a company, an organisation that has been contracted to deliver that service from outside. They are not the prison authorities. These education services are provided by external organisations under contract. Why should those contracts not always have a proviso within them that says that there is somebody within the organisation with the responsibility of liaising with the home authority to ensure that the EHC plan is delivered, or the assessment is made, whichever is appropriate, and that the services are provided while the young person is in custody? That should be a condition of the contract for delivering education services within the prison. They should be obliged, under their contract, to provide what EHC plans say should be provided. I see no reason why that should not be a condition of winning a contract for providing services within a prison.

My final point is that I am particularly pleased about the duty that is being put on health commissioners to provide services within an EHC plan. I am aware, and the noble Lord, Lord Ramsbotham, has emphasised it on many occasions, that speech and language therapy is much needed by a high percentage of young people in custody. Let us hope that those services will be provided better in future under these new provisions.

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[Baroness Walmsley]

My Lords, I, too, welcome this group of amendments. From these Benches in Committee we proposed a group of amendments about the voice of the child and the child’s involvement with decision-making. We have not got all that we wanted but there is certainly a step in the right direction here today and I very much welcome it. I echo the words of the noble Baroness, Lady Howe, when she said how important it is that children have the information they need to enable them to take part in decision-making about matters that relate to them. This is a right under the UN Convention on the Rights of the Child and I am very glad that the Government have taken one step further towards implementing it.

[Baroness Howarth of Breckland]

My Lords, very briefly, I would be remiss if I did not welcome this amendment. I was directly involved for many years with children and giving children information, both in voluntary organisations and in the Children and Family Court Advisory and Support Service. It was clear to me that they did not know what information you had given them unless it was in an appropriate form. I hope that the code will take the best from some of the practice that already exists in some local authorities and CAFCASS regarding the form of information and the method of delivery to children and young people. Young children in particular can be involved very easily in many complex areas of their lives and indeed in decision-making if it is explained to them in an appropriate way by an appropriate person. I welcome the amendment but I hope that the implementation will be looked at carefully as there is good practice out there that could be used.

Children and Families Bill

Debate between Baroness Howarth of Breckland and Baroness Walmsley

Monday 18th November 2013 Grand Committee

[Baroness Walmsley (LD)]

My Lords, I, too, have considerable concerns about Clause 76, and my noble friend Lady Tyler explained our concerns very well. I do not deny that there are problems with the Section 11 duty, and many local authorities want the Government to do something about it. In fact, the reports have become a bit of a monster and some local authorities do not regard them as terribly useful. However, to repeal the whole duty is taking a sledgehammer to crack a nut. My noble friend has suggested a sensible alternative and I support her view.

I, too, look forward to hearing what the Minister has to say. If the Government were to change their mind about this, and simply change the guidance, I agree with the noble Baroness, Lady Hughes, that it would make a lot of sense to have some kind of standard template so that different local authorities could be compared with each other. Both policymakers and those who disseminate best practice would find it very useful to be able to compare apples with apples and not apples with pears. I also look forward to hearing what the Minister has to say about the word “normally” in relation to inadequate nurseries. That, too, gives me some concern.

[Baroness Howarth of Breckland (CB)]

My Lords, although I had not intended to speak on this section, I would like to raise one particular concern. Before I do that, I will add my concerns to those of the noble Baronesses raising the issue of repeal under Clause 76. Earlier, before we began the Committee, the noble Lord, Lord McColl, talked to me about whether a particular group of children should be given priority and whether we could find a way of doing that. I said that, if you try that, you will find that almost every group of children that local authorities currently deal with are a priority, because those are the only groups that they deal with at the moment. It is very difficult for local authorities at the moment to move into preventive work or into other areas.

If we have one piece of legislation for adults, which has the duty, and another piece of legislation for children, which does not have it, my great concern is that children will slip down the priority list in this particular area. I am not saying that they will not be protected—that will be followed up—but proper assessment for under-five provision will slip down the priority level. It has to, because that is the only way that local authorities can manage their finances and priority ratings. I hope that the Minister and the Government will look again at this repeal. I think that the way forward is to look at the regulation and the framework and to get that into an accurate package, which would take us forward.

The other area that concerns me—this is a probing question—is those children who have additional needs and who need to be placed in under-five daycare so that their parents can work or develop skills. I am thinking in particular of children with, say, autism or similar developmental issues and am really trying to probe how this fits with the government amendment. At the moment, a local authority may provide funding for a place, but if the parent wishes to make additional payments for an extra quality of service, the local authority will not pay because that would be a mixture of private and statutory funding—even if the organisation providing that service is a voluntary, not-for-profit organisation.

I take some responsibility because I suspect that, in the past, I was one of the people who pressed for the principle of not mixing private and statutory funding, but I do not think I ever saw it coming to a position where, as a parent, you could not give added quality to children in need. The difficulty has arisen because some parents have objected to having to pay—one organisation I know in particular may have to close its doors because it cannot manage the quality of care that they need to provide for these difficult children. This is really a probing question: are the Government prepared to look at mixing or is it an absolutely sacred principle that private and public funding should not be put together? I also support the other the noble Baronesses who put the other arguments so clearly.

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[Baroness Walmsley]

I thank the Minister for her comprehensive reply to all noble Lords who have spoken in the debate. I think we have succeeded in highlighting the issue. On Amendment 243, I particularly thank the noble Baroness, Lady Howarth, and pay tribute to all her work on this subject.

It is quite clear that within the communities that are affected by witch branding, there are differences of opinion about what would and would not be helpful. None of us is saying that working with the communities and making them aware that this is child abuse is a bad thing. Of course it is a good thing. I just do not think it is quite enough for some people.

The noble Baroness, Lady Howarth, talked about the existing law, as did the Minister. She said it is quite enough to catch people who abuse children in this way. What I am talking about is early intervention, if you like. Although once a child is physically abused, all kinds of laws have been broken and people can be charged on that basis, what I would like to get absolutely clear from the Minister is an acceptance that telling a child that they are possessed by evil spirits is child abuse. It causes the child enormous mental trauma, and you just do not know how that will affect them over many years. The Minister said a great deal about that amendment, so I will go away and read Hansard very carefully to try to find out whether there was an acceptance that simply telling a child before you lay a hand on them that they are possessed is child abuse.

The Minister mentioned a number of laws under which somebody might be charged with child abuse for doing that sort of thing, but I wonder how many cases there have been. How many people have actually been charged and imprisoned for that? Do communities and parents really understand that simply telling a child that is enough to qualify as child abuse, and that it should be reported and the child should be given special protection? Will my noble friend write and tell me what sort of guidance there is for social workers on this particular issue?

I thank the noble Baroness, Lady Lister, and my noble friend Lord Storey and others who supported Amendment 246. My difficulty with what the Minister said is that you can charge and imprison somebody only when the case is reported. One of the major problems is the reluctance of parents to come forward and tell the authorities that the child is being abused, perhaps particularly if the abuse is happening in a place of faith instruction. The Under-Secretary of State for Children and Families, Edward Timpson, has been very open to discussions with me, as the Minister said. I am quite sure that he, like me, would like to iron out this sort of practice once and for all.

However, a voluntary code of conduct just will not do. Would a code of conduct do in the comprehensive school down the road? Would it do in the primary school round the corner? No, it would not. Parliament said a long time ago that a code of conduct for teachers was not good enough in those settings. I am afraid that it is not good enough in a place of part-time education, either. I shall undoubtedly keep on badgering Ministers about this until the law is implemented. A piece of legislation was passed, but it is no use if it is not implemented. It needs implementing in order to stop this. It is not going to be a magic bullet—I know that. Neither of my amendments would be a magic bullet, but they would contribute towards moving us to a completely different situation.

I will go back to Amendment 243. The noble Baroness, Lady Howarth, talked about Africa. I am not suggesting that, just because a number of African countries have changed the law, things are all wonderful. They absolutely are not; they are horrendous. The fact is that it is very early days in those countries for the laws that have been put in place. When you have a situation where these beliefs and activities are as entrenched as they are in some of these countries—much worse than they are here—it will take years for the change in the law to have any effect. I do not accept that point.

[Baroness Howarth of Breckland]

That is absolutely right, but it is not the law that will change what is happening; it is having a good childcare structure with basic legislation that protects children, and having people who understand that. That is why I think the law is not particularly helpful in Nigeria; it has been passed because it suits the Government’s purposes—perhaps I can say that here—but it will not protect children. We have a much better framework of protection here. If we have lists of children from different groups, and there are other groups we could name who need specific protection, it will take attention away from the others. We have to train people to look at all these very difficult areas—FGM is there, but it is a different issue and work is being done by the Trust for London on that—and understand the detail and how we train people across the board on these issues. I felt that I should say that I understand the African situation very well indeed.

[Baroness Walmsley]

I thank the noble Baroness for her additional comments. I am not saying that training is not a good thing; of course it is, but we need something additional. African countries that have changed the law need a much better child protection system—closer to what we have here—but we have a pretty good child protection system and we still have not succeeded in protecting these children. We need to make it absolutely clear that this is child abuse, that it comes under the law and that it will not be tolerated. I thank noble Lords for the passionate debate that we have had and beg leave to withdraw my amendment.

Children and Families Bill

Debate between Baroness Howarth of Breckland and Baroness Walmsley

Wednesday 6th November 2013 Grand Committee

[Baroness Howarth of Breckland]

The Minister lost me for a moment. I am trying to follow him carefully but if we have such good practice as the noble Earl is describing, and all this is now possible, why can we not simply accept the amendment and move on?

[Baroness Walmsley]

I may have misheard my noble friend but when he gave a list of all the different kinds of exams for which these assisted technologies are available, I do not recall hearing him mention apprenticeships.

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[Baroness Howarth of Breckland]

My Lords, I rise to speak to Amendment 214. My name is attached to it and I particularly wanted to speak to it because it is the continuation of an old story of detained young people missing out on all the privileges that other young people have. In particular, when they have been in care and then find themselves detained, the local authority no longer continues to look after them in the new institution in which they find themselves. In the past, we tried very hard to ensure that that care continued, but as the noble Lord, Lord Storey, has pointed out, that has not really been carried forward and certainly is not working at present.

We should remind ourselves that children who are detained are the most vulnerable in our society, particularly if they have a range of special needs resulting in an EHC plan. We all know the statistics for children who have been in care, so I will not repeat them, and those for the most troubled families and young people with mental health problems who find themselves in some kind of detention. Because there is a plan in place, and because of the difficulties faced by these young people, they are probably known to their local authority, and are likely to have a social worker and an existing programme to meet their needs. It is therefore absolutely essential that the plan is maintained and for the child or young person with special needs to have the services in that plan continued.

Anyone who has been to any of these institutions, or talked to any young people from care who have found themselves dropping out of the care system and into the offender system, will know that they lack that continuity and their education ceases. How much more difficult it is for children with special needs whose families have often struggled anyway to get them the services that they need so far. It seems perverse, therefore, that they are deprived of this continuity. Often they are detained due to behaviour that has stemmed from their learning difficulties: the fact they do not always comprehend what is going on around them; the fact that they cannot read instructions; or the fact that they are sometimes easily led because they do not have the same intellectual grasp of what is going on as others. Those young people who are seen as the offenders and the difficult young people in our society are not seen as “the deserving”.

I contend that the opposite should be true. Having already been failed by their family, often by their education and usually by social care, what these young people need most at the time of crisis is stability and continuity. They need a programme to take them through their detention and re-establish them in their community. If their programme is continued—and their education and health plans, as they often have complex health needs—then it is clear to me that they would have a much better chance of a new start.

I know that there are young people—I have run large institutions—who are detained for their own safety, so I am not suggesting that all young people are in this category. However, many—especially those with these learning needs and dyslexia and often undiagnosed conditions—may well have found themselves in trouble because of their lack of understanding. If the plan is to have any meaning, it should identify the areas of concern wherever the child is; it should have portability, particularly into custodial facilities. I am very pleased to support this amendment.

[Baroness Walmsley]

My Lords, my name is attached to Amendment 212. I will just make a couple of short points. I, too, am familiar with the work of Jackie Hewitt-Main and have read her very inspiring book. I am a great admirer of the work that she has done in prisons. One story that she told really struck me: some young people in custody were not getting the help they needed with their dyslexia for the following reason. When they went in, they were given a form to fill in to say what sort of educational provision they wanted. They could not read it—it is a simple thing, is it not?—so they did not get any help at all. They did not get any courses because they had not ticked any of the boxes because they could not read what it said next to them. It has to be said that some prisons are very good, but the majority fall by the wayside in a very bad way.

I absolutely agree with the noble Baroness, Lady Howarth, that very often the reason why those young people are there in the first place is because they cannot read. They could not get a job and they could not get a driving licence because they could not read the Highway Code. They were at a great disadvantage. In the current economic situation, we have to ensure that money is spent as wisely as possible. I can think of no more effective way of avoiding reoffending and the great expense that it puts on the public purse than spending money on addressing the special educational needs of young people in custody. There really is a very good investment to be made there and we ought to be making more of it.

Children and Families Bill

Debate between Baroness Howarth of Breckland and Baroness Walmsley

Monday 14th October 2013 Grand Committee

[Baroness Walmsley]

My Lords, I very much agree. As we have talked about the last three groups of amendments, it has occurred to me that we appear to be living in a parallel universe. Ministers stand up and, quite correctly, read out the situation as it should, theoretically, be. Although Ministers tell us in good faith what the situation is in theory, it is not happening.

The noble Baroness, Lady Hughes of Stretford, made a point which struck me as a little odd. She said that 60% of those siblings who are both in care and who are not together or seeing each other are in children’s homes. I understand that it might be quite difficult to get foster carers to take pairs of siblings because they might be prepared to take only one child, but it should not be that difficult to put sets of children together in children’s homes where there are multiple places. Might the Government consider doing some research to find out why that is? I would have thought that was the very place where you could keep groups of siblings. Could that be looked into?

[Baroness Howarth of Breckland]

My Lords, I support this very strongly. We should not have reached the position we have, but I have some understanding of how we have reached it.

I have talked to many young people over the years, and particularly remember two groups I saw, with the Children’s Rights Director, who talked about the way conflict in their families was relieved by the fact that they had siblings to share their sojourn and be a comfort when things were really grim. They were the people who were their in-group when all this was going on, so were even more important to them than their parents, who were often the enemy and doing the destructive things, while siblings were their protection. That is not always so: there are siblings who are damaging to each other. Professional decisions to separate siblings may be quite right, but they must be made properly, not by accident. I fear we have reached the position where it is by accident because of the way we arrange placements and the shortage of good ones. We have young people in adolescent groups because they are easier to manage with staff who can manage them and small units with small children, but many fewer family group homes than there were, so you do not have the mix of youngsters together. Managing a unit of very difficult young people is about training, and confidence.

I sincerely regret this, because I have heard heartfelt pleas, similar to the ones outlined by the noble and learned Baroness, Lady Butler-Sloss, from young people—particularly in court—saying, “Whatever happens do not separate me from my siblings”. It is the siblings, not the parents, who mean everything to them.

It is a serious practice issue. I am not sure how legislation would make it right, but this amendment might be a step towards it. I hope the Minister will assure us that Ofsted might look at this when they look at the organisation of residential care in various authorities and how families are planned for. I am a social worker so I know how easy it is, under pressure, to delude yourself that it is the best answer for the child when it is actually the best solution for you.

Protection of Freedoms Bill

Debate between Baroness Howarth of Breckland and Baroness Walmsley

Monday 6th February 2012 Lords Chamber

[Baroness Walmsley]

My Lords, the noble Lord, Lord Harris of Haringey, has made some very good points. He asked whether in future people will ask why Parliament was happy that these measures were passed. I can say to the House that I am not happy that they go through unamended. I agree with everything that the noble Lord, Lord Bichard, said. Given that the Safeguarding Vulnerable Groups Act has not been implemented, what is the evidence that the measures in it are, in fact, disproportionate? As the noble Lord, Lord Harris, suggested, there is evidence that this is not what parents want. There is no great clamour from parents to have these measures changed.

The main point made by the noble Lord, Lord Bichard, was that the measures in the Bill take no account of secondary access. Young people develop a relationship of trust with all kinds of adults in the various settings that are covered by this Bill. Very often young people have the closest friendships not with the most senior people—the teachers, the heads—but with the technicians. In fact, in the school where I used to teach, the technician in the laboratory was the person who was most friendly with the pupils. People like this may not be covered by the Bill as it stands, and yet they have a very good opportunity to build up a relationship of trust with the children. As the noble Lord, Lord Harris of Haringey, has just quite rightly said, they are unlikely to misbehave on the premises, but rather build on that relationship of trust, on which they will rely in some other situation where the child is vulnerable. That is a risk that we cannot take.

[Baroness Howarth of Breckland]

My Lords, I support the amendment moved by the noble Lord, Lord Bichard. I want to concentrate on the people who are likely to abuse. I declare an interest as the vice-chair of the Lucy Faithfull Foundation, of which I have been a trustee for some 20 years. It is the organisation that pioneered the work in grooming and understanding the nature of abusers.

As the noble Lord, Lord Bichard, said, there is no doubt that these individuals will see this as open season on children—and I choose my words carefully. I have probably been involved with more of these men than most—some women, but mostly men—and so I know just how deceitful, clever, manipulative and strategic they are. They have a long view. These individuals do not just move in, see a child and think they are going to abuse them; they plan their moves carefully. There has been talk about building trust, but when a teacher can systematically abuse a child in a classroom, as in a recent case, noble Lords should take that as an example of what these kind of individuals can do, and then recognise that there are others right across the country who are thinking at this moment, “Will there be another opening for me to reach a child?”.

I have also worked with victims of that abuse. Imagine it was your son or daughter who had been buggered or raped by one of these people, who had gained their trust. The child or young person involved believes that they are implicated—the trust means that they carry the guilt. This is why often these youngsters will not come forward early, but if you talk to rape crisis lines or the people who deal with adult abusers, time after time they will tell you how the guilt kept them from telling. Research may show that if you talk to young people there is less of it, but many youngsters will not say that it is happening to them because they have that guilt.

As far as supervised access is concerned, anyone who has recently been to any of the youth provision that is around will know how hectic it is—properly so, for young people enjoying themselves—and that “supervision” is a strange word. In fact, you are just about maintaining the peace in some of these organisations. It is very easy for these individuals to make contact with the young people. As has already been said, modern technology makes it even easier.

I can see the Minister sitting there thinking, “We have heard all this before; we have our position”. But I would say to him that if you really care about our nation’s children and what happens to them in their adulthood after these incidents have happened, when they are unable to make relationships, when their marriages break down, when they have problems with their own children, when they end up in mental hospitals or in prison—if you look at any of those cohorts you will find that a lot of these youngsters have been abused—then you will find a way to absolutely ensure that it is not as loose as this. Anyone who is likely to abuse a child must be able to be checked so that certainty can be held by a parent and indeed by the child—and in some ways by the individual themselves because the abuser’s life is destroyed as well if they are not helped to not go through all of this. I hope the Minister will do so.

Education Bill

Debate between Baroness Howarth of Breckland and Baroness Walmsley

Monday 24th October 2011 Lords Chamber

[Baroness Walmsley]

My Lords, I am most grateful to my noble friend for listening to our views and responding in the way that he has. It is quite rare in our proceedings to find a government amendment that has names from those on all other Benches attached to it. In this case the accolades and plaudits that the Minister will get from all noble Lords are well deserved.

In the letter to the noble Baroness, Lady Hughes, of 6 October, the Minister said:

“While we work through with interested parties as to how the proposals in the Green Paper on SEN and disability will promote better collaboration, we are happy that the duty to co-operate should remain”.

When the legislation comes before us, which will result from the SEN Green Paper undoubtedly—I assume that will be some time next year—can my noble friend assure us that the duty to co-operate will not be deleted in that legislation without consultation with those of us who have expressed the wish to keep it in this legislation?

[Baroness Howarth of Breckland]

The Minister knows how much I welcome the amendment. I have not been part of the formal consultation but have managed to speak to him on a number of occasions informally and impressed on him the importance of local authorities and schools working together, simply because in doing so they learn each other’s minds. One area that has always improved is the safeguarding element between them because of working together. I thank the Minister for what he has done and, like the noble Baroness, Lady Walmsley, I hope that he will maintain that co-operation in the legislation throughout our future debates.

Education Bill

Debate between Baroness Howarth of Breckland and Baroness Walmsley

Tuesday 18th October 2011 Lords Chamber

[Baroness Walmsley]

My Lords, I have some amendments in this group. Like my noble friend Lord Phillips of Sudbury, I welcome the Government’s amendments. I congratulate my noble friend Lord Phillips on his success in persuading the Government to improve this clause as far as they have. However, I join him in urging the Minister to consider whether he could go a little further. There is devastating logic in what my noble friend says. I am also aware of cases where the abusing teacher has been asked to go away quietly so that no more will be said about the matter. Speaking of logic, I have two amendments in this group which seek to follow government policy and prevent an unintended consequence of this section of the Bill.

Noble Lords may remember that in Committee, speaking to Clause 42 stand part, my noble friend Lady Brinton said on behalf of both of us:

“I would also like to ensure that, where there has been abuse, the subsequent inspection overtly inspects what action has been taken, and openly reports whether the failures that allowed the abuse to occur have been put right. … Parents expect it, and children deserve it”.—[Official Report, 12/9/11; col. GC 117.]

I hope that the Minister will agree with that because it was the 22nd recommendation of the report of Sir Roger Singleton of June 2009, which was agreed to by the then DCSF under the previous Government. Significantly, the DfE under this Government also confirmed adherence to that positive response given in June 2009. Indeed, I know that our honourable friend Mr Tim Loughton has been considering how he can implement this and other recommendations of the Singleton report. There was some news of that only this morning.

Of course, I am aware that Clause 13 only prevents a publication identifying a teacher who is the subject of an allegation. However, the difficulty sometimes arises where writing anything at all about an event might lead to readers having a very good idea of who it might have been. For example, if something occurred on a field trip and there had only been one field trip that year, then it would be possible to identify the alleged perpetrator. So my amendments seek to ensure that we do not fetter the ability of a regulator or a responsible Ofsted inspector to do their jobs properly and to write in their reports about what happened and how the school has, or has not, put measures in place to prevent a repetition. This is what Sir Roger Singleton recommended should happen and that wish has since been endorsed by the previous Government and the current one.

So I hope that the Minister will now see that, in tabling Amendments 50A and 50B, I am trying to avoid that unintended consequence. I believe that Clause 13 as currently written could prevent a regulator or inspector from producing an adequate school inspection report following a case of abuse; a report which stated what action the school has taken. Has my noble friend had time to consider these small, but, I hope, helpful amendments, since they seek to implement what I believe to be the intentions of the Government as well as of the previous Government; intentions which were so well set out by Sir Roger Singleton’s recommendations?

I support what my noble friend and the noble Baroness, Lady Hughes, have said about the research that has been circulated to us from York Consulting. I looked at that myself, quite independently of my noble friend and the noble Baroness, and it occurred to me too that there was not a single fact in there that supports the need for this legislation; not one fact that talked about hyped-up, unwarranted publication of the name of a teacher prior to charge. There were lots of statistics about the increase in the number of allegations, lots of statistics about how many of those were eventually found to be unwarranted, but not a thing about publicity. So I still have great reservations about this legislation, despite the fact that in Amendments 50A and 50B I am trying to improve it, because I just do not feel that the Government have yet disclosed to us the pressing need for it, despite what the teaching unions would perhaps like to see. I really would say to the teaching unions—and I have said to the teaching unions—give me the evidence. Where is the evidence about these large amounts of terrible publicity that have brought the Government to decide that they need this legislation? I simply have not seen it yet.

[Baroness Howarth of Breckland]

My Lords, despite the late hour I think that this debate should not be curtailed, because it is so important. I have to express my great disappointment in the Government for not listening to the arguments that were made so cogently in Committee and again by the noble Lord, Lord Phillips. I want to ask the Minister whether some of my experiences would not now be possible. For 13 years I was chief executive of Childline, the helpline for children in trouble and in danger, and this month that helpline is 25 years old. During the time it has been operating, it has cracked a large number of rings and groups and situations where teachers have been abusing children. Children have been able to telephone the helpline and describe what has been happening to them.

Let me tell your Lordships about two cases because they are crucial. We had a series of boys ringing independently from a particular school, all telling us about the same teacher and similar abuse. We were able to get those boys to talk to their parents, to get the parents to come together, and together to take that issue forward, which ended up in a very serious prosecution of that teacher who went to prison. The other situation was that of Crookham Court, a very famous case, where a group of teachers were preying, just as the noble Lord, Lord Phillips, described, on a group of children. We intervened in that situation by getting the proprietor out of the school and getting my chair, who happened to be Esther Rantzen, into the school to bring the whole situation into the open. That was again a very famous case when a series of people went to prison for a long time for serial abuse of children in a school.

I believe that those two cases could not happen under these arrangements. We would be prevented from encouraging people to share information that brings serial abusers to court. I do not think that the Government intend that to happen. I do not wish to believe that the Minister and his colleagues would wish that to happen. I do not like speaking at length as it is late and I, too, would like to go home, but the only other point I want to make is that if the Minister had worked for years, as I have, with young people who have to come to court and describe their abuse—the noble Lord, Lord Phillips, made this point—he would know that it is extraordinarily difficult for children and young people to make allegations because they know they have to say it again. Would noble Lords like to have to stand up and tell me about their recent sexual experience? We ask children to talk about extraordinarily painful sexual abuse in court, which they find extremely difficult. That is why I spent nine years of my life working towards children, as witnesses, not having to face the court but being able to give their evidence behind a screen. I am proud of that achievement.

If the Government take it through, we will condemn a large number of children and their parents to terrific pain. I ask the Minister to take it back to his masters and convey the message in the strongest possible terms, otherwise I predict there will be cause to rue the day.

Education Bill

Debate between Baroness Howarth of Breckland and Baroness Walmsley

Wednesday 20th July 2011 Grand Committee

[Baroness Walmsley]

My Lords, I support the amendment proposed by the noble Baroness, Lady Ritchie of Brompton. Governments, who are made up of democratically elected MPs, and most Ministers—although not those in your Lordships' House, of course—sometimes forget that local authorities are democratically elected as well. I wonder what the point is of having a consultation on the opening of an academy if the local authority is fettered in any way in responding to that consultation—if local parents say that they would prefer to have a local authority school, thank you very much. Anything that fetters the opportunity of the local authority to respond to its own local people is not a good idea, and I support what the noble Baroness has just said.

[Baroness Howarth of Breckland]

My Lords, I rise briefly to support the noble Baroness, Lady Ritchie, and the amendment of the noble Baroness, Lady Massey, which provides that a local authority may set up a school. I also read the Explanatory Notes and thought that my concern might be covered. However, I have listened to the debate and I think that, unless there is some forward planning, there may be a discussion about a variety of schools but none of them may meet the needs of a particular group of pupils who are coming up for education at that time. Therefore, it is absolutely crucial that there is some co-ordinated planning and that, if the proposal does not come forward, the local authority already has some plans to meet the requirements. Can the Minister tell me whether that is within the programme?

Education Bill

Debate between Baroness Howarth of Breckland and Baroness Walmsley

Wednesday 6th July 2011 Grand Committee

[Baroness Howarth of Breckland]

I had hoped to support the noble Lord, Lord Phillips of Sudbury, but I am not sure whether he is going to speak now or later. I shall add to what the noble Lord, Lord Knight, said because I, too, believe that this is a question of process rather than of principle. I have talked to the Minister about this before. If we could get the issues dealt with quickly, then we would be able to avoid having to have this kind of clause. I speak as someone who has not only dealt with many victims of abuse—I want to come on to that issue in a moment—but has also supported members of the social work profession who have been faced by unproven, unsubstantiated and quite serious allegations. Having been a director in a child abuse case, I understand all the shock and pain that brings when it happens. It is the same sort of emotion that you feel about not being responsible for what you are being accused of. It is a terrible time for the individual and their family, but if we can get this process speeded up, that pain will be lessened, and we can get on with it.

I agree with the noble Lord who pointed out that we should not deal with the principle in a different way because we have a process problem. The principle must surely be that when an allegation has been made, it must be transparently investigated. I say this because not only have I dealt with people who have been falsely accused, but I have dealt with more young people than most people in this room who have been abused and who have had to face the process themselves. It is a terrible time for the young people when there are delays because they are faced with having to keep their evidence in their mind, they are going to be cross-examined in disciplinary proceedings and if it goes further than that, they are going to find themselves in court. That is another reason for the process to be speeded up.

However, I think the legislation as it stands at the moment is unworkable. I say this because, particularly if you have a situation where there is residential care alongside education—and I declare an interest as a patron of Livability which has a number of schools with both on the premises—what if you have two people accused at the same time? Will one of them find themselves free from publicity and the other one be thrown to the wolves and to the press? Unless the Government think that through, we will have a series of totally untenable situations. I think it is especially difficult in the present climate to talk about not having transparency in these situations when the Government are allowing the press into the family justice system. There are very strong feelings among families that find themselves and their situation in the press, albeit anonymously, when they find that the teacher who they think has harmed their child is protected. We have all sorts of muddled principles developing.

If this legislation is passed, it will weaken safeguarding. One of the things I know from many situations involving young people is that when one speaks out, it gives a voice to others. We know that an individual child’s voice in a court or in disciplinary proceedings is a very small voice. We know that when other young people come forward because one person has been brave enough to do so, you have much more hope of getting your case together. Even then, those of us who work with young people before the court as victims know that you are very unlikely to get a conviction without a great deal of effort and support. You have much more hope of doing so if you have a number of young people. To those people who say that groups of children come forward to make these allegations, research will tell you that there are very few situations where a group of children comes forward and they all tell exactly the same story that cannot be seen through. The lawyers among us will know that. If you talk to children and young people, as I have done, if they are making up a fairy story, you get it in one. If they tell you the story is the true story, then it follows through.

Like the noble Lord, Lord Knight, I am concerned because it is very difficult for people who are faced with these allegations, but the unforeseen consequences of not making them transparent are huge, and I think we should continue to make sure that our children’s needs are paramount, not the adult’s needs.

[Baroness Walmsley]

My Lords, I normally find myself 100 per cent in agreement with the noble Baroness, Lady Howarth of Breckland. However, picking up the last point that she made, I am comforted by the fact that the legislation makes it possible for the police to apply to a court for the restriction to be set aside if they feel that publicising the name of the accused person will enable them better to make their case by encouraging other abused children to come forward. I trust the wisdom of the court in that situation.

As regards school staff, my noble friend Lord Storey has just pointed out to me that certain highly-qualified teaching support staff are allowed to be fully in charge of a class without a teacher being present for up to two days, so they are in exactly the same position as teachers. All these issues make it all the more important that the Government consider our Amendment 75A, which asks them to have another look at this measure a couple of years after it has been introduced to ensure that it is not protecting abusers or allowing the names of innocent people who have had allegations made against them to be dragged through the dirt in the press. I am sure that that is sufficient time to enable the Government to make a sensible decision about whether the measure goes too far or does not go far enough.

--- Later in debate ---

[Baroness Howarth of Breckland]

My Lords, I shall speak extremely briefly as the noble Lord, Lord Black, has made a number of the points that I was going to make. I wish to make three points. First, given the debate that took place in the Commons, I seek reassurance that parents and children who share information between themselves will not fall foul of the provision regarding publication. That provision has dangers attached to it but also strengths because, if this legislation is passed, they will be able to share information and ascertain whether other children have been involved. That is crucial.

Secondly, I suspect that the Minister may say that as regards new Section 141F(5) and the protection of the person who is the subject of the allegation, the children concerned may be covered by the “interests of justice” provision. However, that needs to be made explicit because it will not be understood that the children are protected in the interests of justice when the Bill makes special mention of,

“the person who is the subject of the allegation”.

That is a serious flaw and goes against all the legislation put on the statute book from the Children Act 1989, which was introduced by the Conservatives and made children’s rights paramount, right through to the subsequent legislation introduced by the previous Government.

Thirdly, even if parents wanted to go to court, the present state of legal aid means that they would have no support through the legal aid system to enable them to put their case. Therefore, they are even less likely to do so than might have been the case previously, difficult as such a process is. I support the sensible amendments in the name of the noble Lord, Lord Phillips of Sudbury, and the arguments put forward by the noble Lord, Lord Black.

[Baroness Walmsley]

My Lords, I hope that my noble friend the Minister accepts that my noble friends are trying to help the Government produce a good piece of legislation and that he will consider the very thoughtful case made by my noble friend Lord Phillips. In an earlier debate, I said that I was somewhat comforted by the possibility that the police would be able to apply to the court for the restriction to be lifted. However, I take the point that my noble friend Lord Phillips and the noble Baroness, Lady Howarth, have made that the last few words of new Section 141F(5) skew the position of the court in the direction of the alleged perpetrator and not of the child. Personally, I think it would be a very good idea to take that out.

I am also very convinced by my noble friend's argument about inserting his proposed new paragraph (b)—in Amendment 73HH—into subsection (10) of proposed new Section 141F, so that the restriction could be lifted once the person has resigned or been sacked. I have had a great deal of evidence sent to me by campaigners against child abuse particularly, it has to be said, in relation to independent boarding schools, where of course the opportunities are greater. Very often, however, what my noble friend said is absolutely right: it does happen that it is in the school’s interest to sweep it under the carpet and quietly say, “You go away and resign and we will say no more about it”, because these schools are financial organisations and they will lose money if things get about that dreadful things have happened there.

We really have to be very careful if we are to pass legislation that might encourage that situation or protect those people because I am told that what happens is, yes, they go away from that school but they pop up somewhere else and carry on. I am sure that my noble friend the Minister is most concerned about safeguarding children and, secondly, concerned about innocent teachers who might have allegations maliciously made against them. We somehow have to find the right balance between those two things.

I would say one more thing about what the noble Lord, Lord Black, said. The Human Rights Act asks us to draw a balance between the rights of free speech and the right to privacy of the individual. We have to bear in mind that it is not all in the direction of free speech. The Act talks about the rights to privacy for the individual as well and there, again, we have to create the correct balance.

Education Bill

Debate between Baroness Howarth of Breckland and Baroness Walmsley

Thursday 30th June 2011 Grand Committee

[Baroness Walmsley]

My Lords, you will see from the Marshalled List that I added my name to that of the noble Lord, Lord Laming, in his intention to oppose the Questions that Clauses 30 and 31 stand part of the Bill. Amendment 100 replaces Clause 30. It may be appropriate if I comment now.

It was, I think, the Children Act 2004 that imposed a duty on the local authority and a number of relevant partners to work together to improve,

“the well-being of children in the authority’s area”

and reduce inequalities. Initially, schools were not included in the list of relevant partners, and I seem to recall my noble friend Lady Sharp and I protesting loudly about that. Perhaps we were influential in getting schools added to the list at a later date. Therefore, it will come as no surprise to your Lordships to hear that I am very unhappy about the proposal to take them out again. Schools are the only service that all children access at some time or another and therefore they are in a better position than most to affect children’s well-being and equality.

I am not one who believes that the job of legislation is to send out a message but I do believe that, if you repeal a piece of legislation, that sends out a message whether you like it or not. We should remember the outcry when the department ditched the phrase “every child matters”. Everyone suddenly believed that every child did not matter to the coalition Government, which I know for a fact to be quite untrue. Therefore, what will be the message that goes out if we repeal the duty on schools to co-operate with local authorities? Some will believe that they do not have to do it any more and that would be a disaster, particularly for children who need joined-up services. Joined-up services are exactly what the recent Green Paper on SEN is trying to achieve. It is what all vulnerable children and their families want. Children’s trusts, being unaccountable, may not be the best organisations in whose hands to put the children’s plan, but it is essential that there is one and that schools are involved.

There are many special groups with needs that must wrap around the child and not stand alone, and the noble Baroness, Lady Whitaker, has just spoken about a very important one. Another group is young carers and I shall use it as my example. The Princess Royal Trust for Carers has concerns that, by withdrawing the duty on schools to co-operate with local authorities and the duty to have regard to children and young people’s plans, the Bill makes it increasingly difficult for local authorities to deliver against their responsibilities towards vulnerable groups of children such as carers. Services work best for young carers where local authorities retain a strategic role, where they have an overview of all services, including education, and where services and professionals join together around the needs of the young carer and his family. The Carers Strategy 2010 highlights the coalition Government’s commitment to improving support for carers. It advocates a whole-family approach, with services in health, education and social care working together to address the needs when it comes to providing the most effective support. It is also committed to embedding Working Together to Support Young Carers, a model memorandum of understanding between directors for children’s and adult services and health, social care and education. Removing the duty on schools to co-operate with local authorities—that is, with all services that matter working together—therefore runs opposite to the Government’s policy on supporting young carers.

We are not just talking about a few children. The 2001 census data show that there are 175,000 young carers aged from five to 18 in the UK, and I do not know how many more there are according to the most recent census. One-fifth are caring for more than 20 hours a week, and 13,000 young carers are caring for more than 50 hours a week. Twenty-seven per cent of young carers of secondary school age are experiencing educational difficulties. Where children are caring for a relative with drug or alcohol problems, the incidence of missed school and educational difficulties rises to 40 per cent. As young carers get older, so their caring roles often increase, and it gets more difficult for them to participate fully in education, as well as to take part in leisure and social opportunities. For them, time off is a thing unknown in many cases.

Therefore, young carers are a good example but there are others, as we have heard from the noble Baroness, Lady Whitaker. Most schools will carry out this duty anyway but it is those that will not do it unless they have a duty to do so that worry me. I think that we need this duty and it should stay on the statute book.

[Baroness Howarth of Breckland]

My Lords, I shall speak briefly, having not yet spoken at all on the Bill for a number of reasons. I support my noble friend in this matter. I particularly want to make the point that education does not exist in a vacuum and that education without an understanding of welfare—I have said this on a number of occasions—does not address the issues concerning children who will not learn unless those welfare considerations are addressed. I have asked on a number of occasions why this clause on co-operation is going to be taken out of the Bill. The answer that I have heard is that it is bureaucratic. Well, if it is bureaucratic, it is the kind of bureaucracy that I like. I have always felt that bureaucracy is not always a bad thing; some of it is really quite useful in terms of enhancing services.