Police, Crime, Sentencing and Courts Bill

Baroness Kennedy of Cradley Excerpts

Lords Hansard - part one & Committee stage
Monday 22nd November 2021 Lords Chamber

Moved by

[Baroness Kennedy of Cradley]

277: After Clause 170, insert the following new Clause—
“Section 6 of the Sexual Offences Act 1956: removal of time limitation
Proceedings for the offence under section 6 of the Sexual Offences Act 1956 (intercourse with a girl between thirteen and sixteen) are not to be barred only by virtue of the passage of time since the date of the alleged offence.”

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[Baroness Kennedy of Cradley (Non-Afl)]

My Lords, I shall speak to Amendment 277 in my name and I fully support Amendment 292C in the names of the noble Baroness, Lady Newlove, and others.

In 2004, when this House also acted in its judicial capacity, it considered an appeal by a Mr J, who had been convicted of three counts of indecent assault and one count of gross indecency with a child. Mr J, 35 years, had seduced the 13 year-old daughter of a friend. The charges of indecent assault actually related to full sexual intercourse. There was no doubt that he did those acts, for which he was originally sentenced to three years’ imprisonment, but this House quashed the convictions for indecent assault. The reasons why are still relevant today. Men who seduced girls between the ages of 13 and 16 before 1 May 2004 are now immune from prosecution on account of this case. It is still possible to do something about this, but legislation is needed, hence my amendment.

The problem is that sexual offences committed before 1 May 2004 must be prosecuted under the Sexual Offences Act 1956. Under that Act, the applicable offence is unlawful sexual intercourse, as outlined in Section 6. In the 1956 Act, there is a time limit of one year from the alleged commission of the offence under Section 6. Proceedings must therefore be instituted within a year from then. This time limit is clear and unambiguous and can be found in paragraph 10 of Schedule 2 to the Act.

The problem had been going on for some time, since before May 2004, but prosecutors were for a long time able to evade the time limit. Instead of charging for underage sexual intercourse, which could not be done if the offence was discovered or prosecuted too late, they would charge for indecent assault in relation to the same underage sexual intercourse.

That is where the J case comes in. Mr J argued that this was impermissible and the House accepted that argument. Since that time in 2004, men who procured sexual intercourse from vulnerable and impressionable girls before 1 May 2004, perhaps introducing them to like-minded friends, have been practically immune from prosecution. The only applicable offences in the 1956 Act were time-barred as a result of the time limit relating to underage sexual intercourse.

To avoid confusion, I should say that the time limit problem does not apply where the offence has been committed since 1 May 2004. If a man had sexual intercourse with a girl aged between 13 and 16 after 1 May 2004, he can be prosecuted for the new offence of sexual activity with a child. That was created by the Sexual Offences Act 2003 and no equivalent time limit is applied to it.

Many cases, however, are historical in nature and precede 1 May 2004. The 1956 Act must then still be applied, with all its anomalies—including this time limit. In theory, if two women came forward today and woman 1 reported abuse that took place on 30 April 2004 while woman 2 reported abuse that took place the next day, on 1 May 2004, only woman 2’s case would proceed, because the modern law of the 2003 Act applies to only her case.

Some may read this speech and question why I am assuming female victims and not children of any gender. Here, the story gets worse still. This time limit applies only to offences committed against underage girls; if the victim were a boy, it would be different, as historical cases of sexual intercourse between men and boys under 16 can still be prosecuted. The time limit applies only to girls. How can the law deny justice and discriminate in this way and this House not seek to put it right?

In fact, we can find anomaly after anomaly in this area. In my research, I read the work of Dr Jonathan Rogers, assistant professor in criminal justice at Cambridge University, who gives a full account of them. For example, Mr J was in fact still punished for the act of gross indecency with a child which related to oral sex with the same consenting child. It is incomprehensible that oral sex with the abused girl could be prosecuted at any time while the sexual intercourse had to be prosecuted within one year.

Some may say this is a past problem, but it is a present one, because we are still uncovering abuses that happened before 1 May 2004. Historical sexual abuse is, sadly, coming to light too frequently in the news. We know that girls are regularly threatened into silence for long periods. Many girls are victimised in this way and recognise themselves as victims or have the confidence to go to the police only much more than one year later. That is well known.

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[Lord Stewart of Dirleton (Con)]

My Lords, I acknowledge the long-standing interest and expertise of the noble Baroness, Lady Chakrabarti, in this field. Her words will have been noted by the Bill team listening in on this, and I assure her and the Committee that that matter will be examined.

My intention was to turn now to the terms of Amendment 292C. Again, I am grateful to my noble friend Lady Newlove and the noble Lord, Lord Russell of Liverpool, for raising this issue in the Committee and, in so doing, raising a matter that, as your Lordships have heard, the Government have acknowledged in the other place to be an important one. The amendment would have the same effect as one tabled during the passage of the Bill through the other place, both in Committee and on Report—that is, to alter the period of six months allowed for bringing

“summary proceedings for an offence of common assault or battery involving domestic abuse”,

as defined by the Domestic Abuse Act 2021, so that it ran not from the commission of the alleged offence but from its being reported to the police within two years. I sense that the Committee will be as one in agreeing that it is essential that victims have confidence in the justice system—confidence that it is a fair, impartial system that will support them when they come forward.

A number of noble Lords who have given their views on this amendment have spoken of the context of domestic violence, in which these matters take place. We know it may take many attempts before victims of domestic abuse finally leave the abusive relationship, and that this may cause delay in reporting crimes to the police. When the Bill was in the other place, we acknowledged the concerns about the possible effect of the six-month time limit for prosecuting summary-only offences—common assault in particular—in domestic abuse cases. Again, there is no disagreement between us about the importance of domestic abuse victims being able, practically, to seek justice. They should not be frustrated in so doing by the standard time limits set by Section 127 of the Magistrates’ Courts Act 1980, should the evidence indicate that this time limit is too short in this context.

We were clear in the other place that this is an issue that must be looked into. The Home Office has been working to obtain data on cases that appear to have been brought to an end through the operation of the current time limit. I am also aware of the media coverage, to which the noble Lords, Lord Russell of Liverpool and Lord Hunt, referred. I note the concern expressed that, for whatever reason, it would appear that matters are being submitted to the press in advance of proper scrutiny by Parliament. Being aware of those concerns, I will relay them to the appropriate quarters.

I can confirm to the Committee today that we agree that there is a problem here and that domestic abuse-related crimes are disproportionately likely to be timed out. The Domestic Abuse Act demonstrated clearly this Government’s determination to address domestic abuse, and throughout its passage we showed our willingness to listen and take additional steps to address this abhorrent crime. It is important that we develop a proportionate response to this issue, so I ask for the patience of the Committee while we complete consideration of the matter and finalise our proposals. As the previous Minister for Safeguarding at the Home Office—now Minister of State at the Ministry of Justice—the Member of Parliament for Louth and Horncastle, Victoria Atkins, has stated, that might include an amendment. We will complete our consideration shortly, and I assure the Committee that we will return with a proposed course of action on Report.

I hope all Members of the House with an interest in this subject, including the noble Baroness, Lady Greengross, who spoke on it on Second Reading, will be reassured by what I have been able to say. Therefore, on the clear understanding that we agree there is a problem to resolve and that we will be able to return to the issue with our conclusions on Report, I urge the noble Baroness to withdraw her amendment at this stage.

[Baroness Kennedy of Cradley (Non-Afl)]

My Lords, I am grateful to all noble Lords and noble and learned Lords who have spoken in today’s debate and supported my Amendment 277 and Amendment 292C in the name of the noble Baroness, Lady Newlove, and others. I am heartened by the debate. I thank the Minister for his reply; however, I am disappointed that the retrospective argument is the main one being given for not moving ahead to change this legislation. But I am hopeful and grateful for the agreement to meet the noble Lord, Lord Wolfson, to discuss this issue further before Report. I thank my noble friend Lady Chakrabarti for potentially giving me another reason—Article 3—for this legislative change. I will go and read the case cited around the article and discuss this directly with her to add the argument to my armour.

Royal Commission on Criminal Justice

Baroness Kennedy of Cradley Excerpts

Wednesday 15th July 2020 Lords Chamber

[Lord Keen of Elie]

The matter to which my noble friend refers is one of considerable importance but I cannot say that it is an issue that will be embraced by the royal commission.

[Baroness Kennedy of Cradley (Non-Afl) [V]]

My Lords, after years of underfunding, our criminal justice system is crumbling. Criminal trials have dropped to an all-time low despite recorded crime continuing to rise. Can the Minister tell us when exactly the terms of reference for the royal commission will be finalised? Also, can he guarantee that the commission will have a comprehensive remit and be able to look at every part of our criminal justice system, and will he ensure that support for victims is put at the top of its agenda?

[Lord Keen of Elie]

My Lords, we anticipate that the royal commission will be able to commence its work in the autumn, having before it a finalised set of terms of reference. We have to be realistic about how the royal commission will operate. We wish it to report within 12 to 18 months; accordingly, the terms of reference will have to reflect that timescale.

Prisoners (Disclosure of Information About Victims) Bill

Baroness Kennedy of Cradley Excerpts

Report stage & Report stage (Hansard) & Report stage (Hansard): House of Lords
Wednesday 1st July 2020 Lords Chamber

Moved by

[Baroness Kennedy of Cradley]

17: After Clause 2, insert the following new Clause—
“Parole board database
(1) Within six months of this Act being passed, the Parole Board must create and maintain a database of family members of victims to whom the circumstances referred to in sections 28A(1) and 28B(1) of the Crime (Sentences) Act 1997 apply.(2) At each stage of an offender’s parole application the Parole Board must contact the relevant persons to provide them with information pertaining to the application, including but not limited to—(a) the timings of hearings where the prisoner’s release from prison is being considered;(b) a relevant person’s rights in relation to requesting a judicial review of the Parole Board’s decision;(c) the length of the sentence that will have been served by the prisoner at the time of the hearing;(d) decisions of the Parole Board; and(e) any other rights that a relevant person has relating to the provision of information.(3) The parole board must remove a relevant person from the database if they, or their parent or guardian (if applicable), do not wish their details to be included in the database.(4) Within one year of the database being created, the Secretary of State must undertake a review of the effectiveness of the Parole Board’s actions under this section, with a report to be laid before Parliament.(5) In this section, the relevant persons are—(a) where the prisoner’s sentence has been imposed for murder or manslaughter, the victim’s parents or guardians, children and siblings; or(b) where the prisoner’s sentence has been imposed for an offence relating to indecent images as defined by section 28B of the Crime (Sentences) Act 1997—(i) the victim, or(ii) the suspected victim’s parents or guardians if the victim or suspected victim is under the age of 18.”

[Baroness Kennedy of Cradley (Non-Afl) [V]]

My Lords, Amendment 17 is in my name and the names of the noble Baronesses, Lady Barker and Lady Newlove, and the noble Lord, Lord German. I thank them for supporting this amendment. It is a joint effort and builds upon the one tabled in Committee by the noble Baroness, Lady Barker, and the noble Lord, Lord German, which had support across the House and the support of my noble friend Lord Ponsonby. Let me indicate at the start of the debate that if the Minister does not accept this amendment, I will test the opinion of the House.

This amendment adds a new clause, which seeks to put the victims and their families at the heart of the Bill. It is a clause about respect being given to victims and their families by ensuring that there is a process in place, set out clearly on the face of the Bill, where there can be no dispute about people’s rights or the Parole Board’s obligations regarding communications with victims and their families. In explaining why this amendment is necessary, we must consider the reason for this Bill in the first place. To quote from GOV.UK, the Bill

“places a legal duty on the Parole Board to consider the anguish caused by murderers who refuse to disclose the location of a victim’s body when considering release”.

Thanks to the tireless campaigning of mothers such as Marie McCourt, the Government have rightly recognised that not having your child back to give them “a final goodbye”, in Marie’s words, is harrowing and painful and that legislation is needed to get closure for families such as the McCourts and to relieve the anguish that they feel.

This Bill is about alleviating the hurt that non-disclosure of information causes to families and places a duty on the Parole Board to act. This amendment does the same. It seeks to relieve the anguish that victims and their families experience from not knowing information about parole release hearings and places a duty on the Parole Board to act. It cannot be stressed enough how important it is for families to be fully informed and involved in parole hearings about release, and, when mistakes are made in the flow of information communication, how much anguish this causes victims and their families. As I noted at Second Reading, sadly, many parents involved in the Vanessa George case found out about her release on Facebook or via the local newspaper. That is completely unacceptable. I am sure that every effort was made to contact the parents, but the system places the onus on the victims and their families to keep in touch.

This amendment asks for this small group of people to have the right to receive proper, accurate and timely communications and information from the Parole Board. It shifts the responsibility from the victims and their families to the board. At a meeting a few months ago, the current Victims’ Commissioner and the chair of the Parole Board acknowledged that not all victims opted into the victim contact scheme. They noted that this caused distress to those who failed to opt in and who later discovered, through third parties, that the offender had been released. This amendment addresses that concern.

The Minister will say, as I am sure that he did in Committee, that processes already exist for victims and their families to receive information. Yet despite this, as in the case of the victims and families of Vanessa George, some find out about the offender’s release via the media and Facebook. This amendment stops that from happening. It does not stop a prisoner being released, it just sets a duty for the Parole Board to ensure that communications with victims and their families are made, that they are fully informed at each stage of the process and fully aware of their rights. The requirement is to maintain a database, which is not onerous in number, and have it set up within six months of the Bill getting Royal Assent. It allows victims and their families to opt out of receiving information and communications. It is not now the family’s responsibility to opt in. To ensure that this is working as intended, proposed subsection (4) of the new clause requires the Secretary of State to undertake a review of the effectiveness of the Parole Board action and lay a report before Parliament.

Finally, proposed new subsection (5) sets out, so that there is clarity and no dispute, who the relevant persons are and who needs to be communicated with. I hope that the noble and learned Lord recognises the anguish caused to victims by the Parole Board process and by ineffective communication, and will accept this amendment as it seeks to improve communications and the publicity surrounding parole release hearings. I beg to move.

[Lord German [V]]

My Lords, this amendment has two principal functions: first, to ensure that victims are contacted about each stage of the parole application; and secondly, to provide victims with information about the Parole Board’s hearing of the case and about their rights in the course of the application.

The principle of opting out of these two functions is an important change from the current opt-in approach. The amendment seeks to place an obligation on the Parole Board to maintain a database of victims’ contact details, but with victims able to choose not to be on the database and therefore not to receive information. Fundamentally, this provides a right to information which they can choose not to receive if they so wish. In Committee, I sensed that the Minister had some sympathy with these issues. He told us he would be happy to discuss further an opt-out scheme for victims and the provision of improved engagement for victims. I would be grateful if he could tell us whether the proposed meeting on this matter has taken place.

Like other noble Lords, I believe that more needs to be done to support victims. In this tightly defined Bill, that is not necessarily possible, but there are some matters which relate to the Parole Board’s functions where we can act. There are considerations which affect the way in which the Parole Board should engage with victims. In Committee, I raised the importance of the system being modernised. Your Lordships’ House has learnt, if nothing else from this Covid-19 pandemic, to make best use of digital technology. Surely victims’ views can be taken by videolink, rather than having them travel in person to the prison where the perpetrator is located.

Victims will always struggle to come to terms with the grief they have suffered, and sentencing and conviction is just the start of the process. The parole process can easily add to a victim’s pain. Everything that can be done must be done to minimise the trauma it can cause, so opting out is the new right that this amendment provides. The amendment also sets out the information to which victims are entitled. The amendment does not seek to limit the information provided to victims, as proposed new subsection (2)(e) makes clear. For that reason, the review of the amendment’s operation in proposed new subsection (4) is important, as it will ensure that the process, the information and the victim’s rights are as effective as they can be in a situation of such anguish.

The opt-out principle built into this amendment is crucial. There are far too many examples of victims finding out the result of the parole process from media reports, as the noble Baroness, Lady Kennedy, said. I am sure noble Lords will understand that the pain caused by reporters calling victims to ask for their comments on the results of the parole process, when they had no knowledge that it was taking place, is immense. By way of example, Members will recall the case of John Worboys, which was debated in your Lordships’ House.

Within the narrow scope of the Bill, which leads to only a relatively small number of cases to be considered, maintaining the database should not place a large administrative burden on the Parole Board. These parole cases are of great significance to victims; victims have a right to know what is happening and have a right to their say. They deserve a consistent and fair structure for exercising these rights. Modern technology makes keeping in contact with victims much easier. Tracing victims if they have changed address, telephone number or email is now much simpler and quicker.

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[Baroness Kennedy of Cradley [V]]

My Lords, I thank all noble Lords who have spoken in this debate. I am very grateful for the support of the noble Lords, Lord German, Lord Blunkett and Lord Ponsonby, and the noble Baronesses, Lady Barker and Lady Newlove, and for the pertinent questions and comments made by the noble and learned Lord, Lord Mackay, and the noble Lord, Lord Naseby. I thank the noble Lord, Lord German, and the noble Baroness, Lady Barker, for clearly setting out how the move from an opt-in to an opt-out approach is an important change that needs to take place.

The speech by my colleague, the noble Baroness, Lady Newlove, was passionate and well thought-out; I hope it brought home to noble Lords why this amendment is necessary. As a former Victims’ Commissioner, from her personal experience, and from her friendship with Marie McCourt, she passionately set out the anguish created for families and victims by the parole process and the lack of effective communication; that communication has to change. The victim contact scheme is, in her words, piecemeal, and the wait for information very distressing.

My noble friend Lord Blunkett recognised how this amendment would relieve anguish and pain; I thank him for his support. The noble Lord, Lord Naseby, and the noble and learned Lord, Lord Mackay, referred to the victim contact scheme. I thank them for their questions but, as other noble Lords, and the noble Baroness, Lady Newlove, from her personal experience, pointed out, that scheme is well under par. As my noble friend Lord Blunkett said, it is this Bill that is before us at this time. There is no reason why these amendments should not be accepted; the proposed new clause would also put in place a review after 12 months.

I am disappointed that the Minister is not prepared to accept the amendment. The explanation for not supporting victims and putting a duty on the Parole Board is very disappointing. As the noble Baroness, Lady Barker, noted, and as I tried to outline in my opening speech, the Government have recognised that these families need a separate law to relieve their anguish. Let us please now allow them a separate clause to make sure they are communicated with properly. I wish to test the opinion of the House.

Sentencing Bill [HL]

Baroness Kennedy of Cradley Excerpts

2nd reading & 2nd reading (Hansard) & 2nd reading (Hansard): House of Lords
Thursday 25th June 2020 Lords Chamber

[Baroness Kennedy of Cradley (Non-Afl) [V]]

My Lords, first, I join other noble Lords in putting on record my thanks to the Law Commission and the many others who have participated in the consultation and outreach work, for all they have done to deliver this Sentencing Bill. I agree with their comments and many others made by noble Lords with regard to sentencing. Having laws spread over multiple pieces of legislation has made our processes complex, inefficient and lacking in transparency, and has clearly led to errors in justice.

I therefore welcome this Bill. The Single Sentencing code should go a long way to increasing public confidence in the sentencing process, and should make it easier, quicker and more transparent. I believe, as I have said in this House before, that the public want transparency and accountability in our criminal justice system. So, measures like this, which seek to provide greater clarity and make our sentencing procedures more easily understood, are welcome progress. As other noble Lords have said, I too was concerned to note the research referenced in the Law Commission report, which found that sentences in 36% of its sample cases were unlawful; this is unacceptable and a truly shocking figure.

If this snapshot is representative of the level of incorrect sentencing that has been going on, there must be many more wrongly decided cases out there. Can the Minister tell us what action the Government have taken in this regard since the research was done in 2012? Have the Government made their own estimate of the level of unlawful sentences, or reviewed cases in the Law Commission sample to identify errors, learn from them, take action and, maybe, amend the sentences guidelines accordingly? Do the Government expect that the Sentencing Code will solve the issue of unlawful sentences once and for all?

Finally, I particularly welcome the clean sweep provision but can the Minister clarify how the listed exceptions in any future legislation will be dealt with, without adding back in the layers of complexity that this Bill seeks to remove? I end by saying that this Bill ensures clarity and transparency and improves the service provided to the public, in terms that build their confidence in the sentencing process. It is, therefore, a welcome step.

Crown Court (Recording and Broadcasting) Order 2020

Baroness Kennedy of Cradley Excerpts

Monday 8th June 2020 Lords Chamber

[Baroness Kennedy of Cradley (Lab) [V]]

My Lords, I welcome measures that seek to open up our criminal justice system. I believe that the public want transparency and accountability; people should know how and why justice decisions are made. As many noble Lords have said, more accurate information in the public domain leads to greater understanding and, in turn, to increased confidence and trust in the system.

As noted by the noble and learned Lord, Lord Keen of Elie, in his opening remarks, public research for England and Wales carried out by the Sentencing Council last August showed how important it is to put in place measures to build public trust. It found that confidence in the criminal justice system was mixed and that only slightly more of the public were confident in the effectiveness and fairness of the system than were not. When asked about their views in general of sentencing, a minority said that sentences were about right, whereas most were likely to say that they were too lenient. Interestingly, the same research showed that, overall, the public get their information from the news and their engagement was high, with the majority of those getting their daily news from watching broadcast media news and current affairs programmes. These research findings therefore provide a supportive context for the orders before us today. It is evidence that more understanding of sentencing is needed to build confidence in the system, and that using broadcast as a way to achieve it is an appropriate response.

Allowing the public to hear judges’ sentencing remarks in Crown Courts, where they set out the full picture of the facts, the background to their decision and any mitigating or aggravating factors that framed their thinking, should help increase understanding of the sentence passed. Of course, even after hearing the judge’s remarks, there may be those who disagree with the conclusions drawn, but at least they are able easily to hear in full the rationale for the decision. I hope, too, that broadcasting rights will lead to fuller reporting of sentencing decisions and therefore more generally help to reduce uninformed or inaccurate comment.

As many have noted, judges may of course come under more scrutiny due to these measures and they will potentially be put in the public eye like never before. What measures or guidance will be in place to deal with personal and any unwarranted behaviour towards judges?

In the interim, I support judges having discretion to withhold consent for broadcasting, but I hope that permission to broadcast will become the default position. I am sure that cases will arise where this discretion is necessary, but will guidance be drawn up for its use and will the Government consider a review of the discretionary power after an appropriate time has passed?

Before closing, I want to make a broader point about the use of technology in our criminal justice system. At the start of the year, it would have been hard to imagine that our justice system could continue virtually, but it has. Weeks later, we have seen some cases where reporters have been able to join court proceedings via Skype or telephone, have instant message chats with clerks and receive documents digitally. Great leaps forward in the use of technology have been made at break-neck speed. Although the technology has not been without its problems, there are many examples of remote proceedings running smoothly.

At an appropriate point after this pandemic, will the Government review how technology has been used to keep our justice system turning over the past few months? Were the right technological solutions developed for different court settings? What worked well and what did not work at all? Essentially, will the Government assess whether the case has been proven during the lockdown that technology can be used to deal with cases faster, improve people’s access to justice and increase the reliability of data about the justice process and its outcomes? If so, how can we retain the best technological advances from the last few months to improve public transparency and accountability for the future?

I support these orders as measures to give our justice system greater transparency and accountability. They are long overdue and I agree with the noble Baroness, Lady Anelay of St Johns, that they are a modest step forward but a step forward none the less. They will help build public confidence and trust in our system.

Private International Law (Implementation of Agreements) Bill [HL]

Baroness Kennedy of Cradley Excerpts

Committee stage & Committee: 2nd sitting (Hansard) & Committee: 2nd sitting (Hansard): House of Lords
Wednesday 3rd June 2020 Lords Chamber

[Lord Mackay of Clashfern]

My Lords, the Act referred to in the Bill is dated 1982, which shows that we are concerned with the time when I was Lord Advocate and before devolution. I remember it lucidly. It fell to the Lord Advocate to deal, inter alia, with the Scottish position and what the detail involved. I strongly oppose the group of amendments in the name of the noble and learned Lord, Lord Falconer of Thoroton. My understanding of the principle that rules in this area is that when the United Kingdom undertakes an international obligation, that does not become part of the law of the United Kingdom until it becomes part of the domestic law of the United Kingdom and, since devolution, that may apply differently in devolved jurisdictions. A suggestion has been made that the principle goes further and requires that the result can be achieved only by primary legislation doing so directly, without the intervention of subordinate legislation. I do not agree with that. I can see no logical requirement to restrict the power of Parliament in that way.

My noble and learned friend the Minister has already given examples. Since we joined the EU, this has been achieved by a statutory instrument naming the treaty involved, without any further detail. The year 1982 yields another striking example. Section 60 of the Civil Aviation Act 1982 confers power by Order in Council to make provision for carrying out the Chicago convention. If the principle were as claimed, surely the Act could not confer this power. I regard the provisions of the Bill as entirely adequate. Once we undertake an international obligation, it seems right to implement it in our law as soon as possible. The ordinary affirmative procedure seems entirely adequate, particularly since the other place now has power in relation to international obligations.

The noble Lord preceding me, an expert in many of these matters, particularly in the criminal law, requires that the criminal law should not be specified except very clearly and very occasionally in statutory instruments. In my respectful submission to your Lordships, this is a space in which the international agreement must have in it the criminal offence in question, because it is only a reflection of what is in the international obligation that will become part of the law under Clause 2. This seems to me to adequately secure the definition of the offence in question. I will add only that I would like to see the Lord Chancellor’s advisory committee consulted as much as possible: it is a very well informed, very good source of solid advice. I also add that if the Government’s ambitions are fulfilled for many international agreements in the future, it would be a great pity to saddle the procedure to implement them into our law with unnecessary delays.

[Baroness Kennedy of Cradley (Lab)]

My Lords, I shall restrict my comments and questions to parliamentary scrutiny. Private international law agreements are so important for businesses and individuals when they cross borders that to accept new international conventions into domestic law using broad delegated powers seems a step too far. The Government have failed to make a convincing case for why they need such extensive delegated powers here. What are the barriers that led the Government to propose such a low level of parliamentary scrutiny of new agreements?

Of course, this House is not against the Government getting their business through, but there needs to be appropriate scrutiny, challenge and revision. That is, after all, why we are all here. Amendment 20 offers a set of safeguards absent from the Government’s proposals and therefore has my support, as does Amendment 19. It cannot be acceptable to create and impose new criminal offences without consultation and some level of parliamentary scrutiny, the reasons having been eloquently set out by the noble Lord, Lord Thomas of Gresford, and my noble and learned friend Lord Falconer. In responding to these amendments, will the Minister give insight and clarity as to why the Government believe they need such sweeping powers? Do the Government accept the conclusions of the House of Lords Constitution Committee? If not, why not? Do they really believe that private international law agreements are produced at such a rate that proper consultation and scrutiny can be set aside?

As the Constitution Committee noted:

“The UK has become a party to only 13 Hague Conventions over the course of nearly 60 years”


so the need for delegated powers to prevent a delay does not seem a very strong argument. Why is it necessary for these delegated powers to extend to matters wider than private international law? How do the Government envisage dealing with a future international convention that needs supplementing for a domestic situation? Where will the parliamentary scrutiny be in such cases?

Finally, is it the case, as has been argued by some, that statutory instruments in this area may be quashed under the Human Rights Act 1998, leading to unnecessary legal uncertainty?

In conclusion, I welcome and support the amendments tabled by my noble and learned friend. These are issues that need further consideration by the Government, and I hope that the noble and learned Lord will agree to look at them again.

Prisoners (Disclosure of Information About Victims) Bill

Baroness Kennedy of Cradley Excerpts

Committee stage & Committee: 1st sitting (Hansard) & Committee: 1st sitting (Hansard): House of Lords
Wednesday 20th May 2020 Lords Chamber

[Baroness Barker]

My Lords, I was inspired to table Amendment 19, which stands in my name, by three experiences. The first was that, prior to the Bill’s Second Reading, I spent a considerable amount of time talking to Helen McCourt’s mother. She stressed to me the importance of families being informed fully and involved in hearings about release.

My second experience happened very many years ago. I knew Iris Bentley, and I watched her in her latter years as she came to the end of her decades-long campaign to obtain a pardon for her brother Derek Bentley. She was a woman of immense fortitude, diligence and grace. They are very different cases, but in both, the amount of time and effort it took for those women to seek and obtain justice from a system that largely ignored them was remarkable. They were two very strong, determined women who refused to be ignored. Not everyone is so resilient, and nor should they need to be. They should automatically be involved and included by the criminal justice system.

My third experience is that I lived for many years in a Pennine town. Anyone who did at that time could not be unaware of or unsympathetic to the suffering of the families of the Moors murder victims—and that suffering continues today.

From talking to Marie McCourt, I understand that there are at most 100 prisoners to whom this legislation would apply. There are not that many, but the families of their victims suffer perhaps more than anybody else in the criminal justice system. For them, not to be told that a release hearing will take place, nor where and when it will take place, is a trauma. These hearings might happen many years after there has been a conviction, but their importance to victims and victims’ families never diminishes. One needs only to look at what happened to the victims of John Worboys to know about the importance of making sure that people are informed and included.

By the time a release hearing is reached, relatives who are desperate to know what has happened to their loved one are running out of time and the means to compel the prisoner in question to tell them what has happened. It is wrong not only to ignore them but not to advise them that they might not be involved in something that they might see as their last hope of achieving a resolution.

My amendment would place in the Bill that it is the right of relatives to receive information about the timing and location of a release hearing and about their rights, particularly in relation to judicial review. In putting this in the Bill, my intention is that the Parole Board will know right from the moment that the sentence is passed that it is under an obligation to maintain contact with victims’ families and that the onus is on the board, not the families, to maintain contact. It is not unusual for families to be told that they have not been contacted because they have moved or their details have changed, and the Parole Board has simply failed to keep their details up to date.

Release hearings and the prospect of release are a time of heightened anxiety for victims’ families. It can be a grave disappointment that there is no further prospect of the prisoner disclosing information about the victim, but for some there is also the knowledge that the perpetrator will be released into the community and might well know or discover where their victim’s family lives. I know that victims are very fearful of that. At that time, the onus should be on the Parole Board to keep victims’ families fully informed. It is the very least that they should expect. This might be a seemingly simple procedural matter, but it is of immense importance to people who are victims of these prisoners. Therefore, it is in that vein that I beg to move.

[Baroness Kennedy of Cradley (Lab)]

My Lords, I support the amendment. I agree with the noble Baroness, Lady Barker, that much more needs to be done to support victims in the parole process. The amendment would provide information rights for victims and their families, which are desperately needed. As I noted at Second Reading, many parents involved in the George case sadly found out about her release on Facebook or via the local newspaper. That is completely unacceptable. I am sure that every effort was made to contact the parents in that case, but the system places the onus on the victim or their families, as the noble Baroness, Lady Barker, eloquently set out. It is made their responsibility to opt in and keep in touch with victim liaison officers; it has to be the other way around. The Parole Board should have a duty to ensure that accurate information is given to victims and their families in an appropriate timeframe. The amendment would give them that reassurance.

I particularly welcome proposed new subsection (3). Rather than there being an opt-in approach, victims and their families should automatically be included in the scheme for information unless they opt out. In a meeting a few months ago, the Victims Commissioner and the chair of the Parole Board acknowledged that not all victims opted into the victim contact scheme. They noted that this caused distress to those who failed to opt in and who later discovered through third parties that the offender had been released. They agreed that the current requirement for victims to opt into the scheme was a concern. The amendment addresses that concern. In addition, technology should be developed to modernise information flow to victims and their families so that they can keep their contact details up to date and keep up to date with the details of the case.

The type of additional support outlined in the amendment will not only help victims and their families but help to build public confidence in the system. I hope that the Minister will highlight his support for the principles raised in the amendment, commit to improving the victim experience of the parole process and give assurances that the needs and experiences of victims and their families will be central to the pending review of the parole system. Will he indicate whether he is willing to discuss the amendment further before Report?

[Baroness Healy of Primrose Hill (Lab)]

My Lords, I welcome the Bill and am sorry that I was unable to speak at Second Reading. I pay tribute to the ground-breaking work done by my colleague in the other place, Conor McGinn, following the campaign by Marie McCourt, the mother of Helen, who was tragically murdered and whose remains have never been found or their location revealed by her murderer, now released.

It is right that the refusal by serious offenders to disclose information about their victims—including the whereabouts of a murdered victim and the identities of child victims in the case of offenders who take or make indecent images—is always taken into account by the Parole Board when making decisions about their possible release, and will now be a statutory requirement.

I support Amendment 19 in the names of the noble Baroness, Lady Barker, and the noble Lord, Lord German, and believe the effectiveness of the Bill will be proved only if we can assure victims that their concerns are a priority in the justice system. Victims cannot be an afterthought; there have been too many occasions in the past when painful interviews with the bereaved, still suffering terrible grief, are broadcast in which they say that no one had told them in advance that those who had done terrible things to their loved ones had been released.

The Victims Commissioner reported recently that victims are less satisfied than ever that their views are taken into consideration. Can the Government assure the House that victim involvement in Parole Board decisions will improve with the passing of this Bill? I hope that the amendment will therefore be accepted. I know that the Government will point to a future, wider root-and-branch review of the operation of the Parole Board as a way of increasing transparency, but they have an immediate opportunity to do so by accepting Amendment 19.

Prisoners (Disclosure of Information About Victims) Bill

Baroness Kennedy of Cradley Excerpts

2nd reading & 2nd reading (Hansard) & 2nd reading (Hansard): House of Lords
Tuesday 28th April 2020 Lords Chamber

[Baroness Kennedy of Cradley (Lab)]

My Lords, I add my voice to the tributes paid to Marie McCourt. Her campaign to secure this legislation was formidable and supported by her local Member of Parliament, my honourable friend the Member for St Helens North, whose 10-minute rule Bill tabled in support of Marie’s campaign back in 2016 informed the legislation we have before us today.

The Bill has been a long time coming—in the other place it was noted that it has taken over three years, two general elections and two Prime Ministers for the Government to offer their own variation of Helen’s law—but thanks to the campaigners’ persistence and the Government’s constructive approach to this legislation, the Bill is now before us. It rightly has an enormous amount of cross-party support.

The first part of the Bill, introducing a new statutory obligation on the Parole Board to consider the non-disclosure of information about a victim’s remains when making a public protection decision, is a welcome step forward. It is not a “no body, no parole” Bill, so it is not everything the campaigners wanted, but it sends a clear message to Parole Board panels that the Government’s view is that a refusal to give information that can ease a relative’s pain, such as non-disclosure of remains, should be a significant factor in their decision-making.

In taking this legislation forward in practice, will guidance be issued to Parole Board panels on this new duty? For this legislation to work, it is vital that Parole Board panels view this new duty as a critical part of the eligibility criteria and not as a peripheral addition. How will the Government ensure that this happens? Even though it is not a “no body, no parole” Bill, that is the aim of this legislation, so will the impact of the legislation be subject to its own review?

I move briefly now to the second case that has shaped the Bill and to which the Minister referred: the horrific crimes of Vanessa George, who was convicted of multiple counts of sexual abuse against children at the Plymouth nursery where she worked. I pay tribute to my honourable friend the Member of Parliament for Plymouth, Sutton and Devonport, who has spoken out on behalf of the distressed parents of George’s child victims. To protect their children, the parents rightly wanted to stay private, so the support of their local MP has been critical, especially as he has ensured that this Bill includes a statutory obligation on the Parole Board to consider the non-disclosure of information about the identity of a child or children featured in such images.

It is tragic that this legislation is not in place in time to deliver for the victims in the George case. She has refused to disclose to the authorities the identities of the children she photographed, but she has been released, so already distressed parents not knowing whether their children were abused will continue to live in fear, pain and concern for their children. At this point, we must acknowledge that for Marie McCourt, too, the timing of this Bill is heartbreaking, as Helen’s murderer has been released, as the Minister said, without providing information on her whereabouts.

It would be remiss not to mention in this Second Reading that much more needs to be done to support victims in the parole process. Can the Government give assurances that the needs and experiences of the victims will be put at the heart of the root and branch review of the parole system which the Government have promised?

The way in which victims give evidence to the Parole Board needs to be modernised. It is daunting for a victim or their family member to travel, sometimes hundreds of miles, to give evidence in the prison holding the abuser or murderer in question. Making victims go through the necessary security to read out their statement seems an undesirable way to treat them. Can the use of video conferencing from a local court be adopted as standard practice for Parole Board panels?

There is also a lack of support and help for victims in compiling and presenting their evidence to Parole Board panels, which should be addressed. Support and clear advice in plain English is particularly important if you are a young person having to give evidence.

Sadly, many of the parents involved in the George case found out about her release on Facebook or via the local paper. I am sure every effort was made to contact the parents in this instance, but in general the change of contact details over time and the opt-in approach of the victim contact scheme cause issues. Again, technology should be developed to modernise this scheme so that victims can opt in and opt out at any time and update their contact details easily. The Government should also consider changing the law so that victims are automatically included in the scheme unless they opt out. Will the Government consider that option?

Finally, measures to increase the transparency of how decisions are made and how the Parole Board works are to be welcomed. In this area, simple changes can take place without the need to wait for a review or legislation. For example, victims should be given the high-level summaries of decisions without having to apply for them.

Today’s Bill is a welcome and positive step in the right direction, but we have to do more to support victims in the parole process, and put mechanisms in place to make sure that the aim of the Bill becomes a reality and gives victims and their families the information they rightly seek.

Crown Prosecution Service: Rape Cases

Baroness Kennedy of Cradley Excerpts

Thursday 5th March 2020 Lords Chamber

[Lord Keen of Elie]

My Lords, whatever the terminology may be, RASO prosecutors are trained in all of these matters, and when they come to apply the merits test in relation to such complaints they do so simply on the basis of the merits. Certainly the CPS is clear that victims and witnesses should never be discouraged or prevented from seeking therapy and counselling, whether before or during a trial process, and that the need for such counselling should be taken into account when addressing the evidence placed before the CPS.

[Baroness Kennedy of Cradley (Lab)]

My Lords, the other day there were more media reports of young girls, raped as children, who cannot get justice because of the one-year time limit to commence proceedings for unlawful sexual intercourse set by the old Sexual Offences Act 1956. When I raised this question with the noble and learned Lord last October, he referred to the review that he has just mentioned to my noble friend. Do we really need a review to bring forward action to close this unjust loophole that is protecting rapists and not giving victims the justice they deserve?

[Lord Keen of Elie]

My Lords, I appreciate the concern that has been expressed in respect of this matter. We are taking forward the review but, in addition, we are also setting up a child sexual abuse stakeholder forum, which consists of survivor groups, key national charities and academics in order to address this issue.