Angiolini Inquiry Report

Debate between Baroness Thornton and Baroness Doocey

Tuesday 5th March 2024 Lords Chamber

[Baroness Thornton (Lab)]

My Lords, this damning report is about women’s safety. It is also about trust and confidence in policing, and whether we have the standards in place to maintain confidence in individual officers. The vast majority of police officers work immensely hard, and with integrity, to keep our communities safe. This is undermined when standards fail.

We thank Lady Elish for her inquiry and its comprehensive first report. The report exposes a catalogue of appalling failures in police misconduct processes. What is truly frightening is the line,

“there is nothing to stop another Couzens operating in plain sight”.

We can believe that that might be the case because of the story of PC Cliff Mitchell, who was vetted months after Sarah Everard was killed. He had an allegation of rape in 2017 and a non-molestation order against him, but that did not stop the Met recruiting him. At about the same time that the Met was telling us that vetting had been tightened up, it was simultaneously congratulating PC Mitchell on passing his police entrance and handing him a warrant card, which he used to get the trust of women he went on to abuse and rape.

This Government have been repeatedly warned about failures around vetting and misconduct. Independent inspectorate reports in 2012, 2019, 2022 and 2023 all highlighted serious failures in vetting processes, which is why, two years ago, we on these Benches called for mandatory national vetting standards. Why has this not yet happened?

As for the misconduct charges the Statement referred to, most of them are not even in place yet, three years after Sarah Everard was murdered. Will the Minister commit today to a new mandatory vetting framework, underpinned by legislation, that all forces must abide by, under which any evidence about past domestic abuse or sexual offending will be pursued—and not simply take convictions into account? At a minimum, he should surely accept recommendation 6:

“Review of indecent exposure allegations and other sexual offences recorded against serving police officers”.


As well as talking extensively about vetting, the recommendations also focus on indecent exposure. Indecent exposure is still treated as a joke by police—something “she” should not be bothered about because “he” is pathetic and harmless. It is seen as old men—past it and pathetic—trying to get attention. Many women, if not most, have experienced this at some point in their lives. But Couzens was in his 40s and did this five or so times, including one scary incident when he masturbated on a banking on a country lane as a lone woman cyclist cycled past. There was an incident just before Sarah Everard’s kidnap, rape and murder when he drove undressed through a McDonald’s. People got the name, model and licence number of his car and the vehicle was traced to him, but nothing followed after that.

Clearly, the sexual impulse that drives indecent exposure is to force attention to the man’s sexuality on a woman who does not want it. We have to ask the question: how far is that from the motive that drives rape? It is clearly a terrifying experience for a woman—often isolated and confronted with a man bigger and stronger than she is—who will be afraid of what might happen next. Getting away with it encourages a predator to feel that they can act more boldly next time, increasing the threat to women.

The recommendations in this report are absolutely clear, and they have a timetable. Will the Home Office insist that all police forces have a specialist policy on investigating all sexual offences, including so-called “non-contact” offences such as indecent exposure, by September this year? Will the Minister commit to guidance and training on indecent exposure being in place by December this year? Will he ensure that the College of Policing, in collaboration with the National Police Chiefs’ Council, will improve guidance and training on indecent exposure? Will there be an immediate review, called for in recommendation 3, which concerns treatment of masturbatory indecent exposure within the criminal justice system? The review needs to focus on recognising the seriousness of the offence, identifying it as an indicator of disinhibition by perpetrators, and understanding and addressing the wider issue of sexual precursor conduct, so as to prevent victimisation, to improve the response to victims when it occurs, and to bring more offenders to justice.

Recommendation 4 calls for research into masturbatory indecent exposure with immediate effect. Does the Minister have a schedule that he can tell us about today? Recommendation 5 is a public information campaign on indecent exposure by March 2025, which the Home Office should launch, together with the National Police Chiefs’ Council, to raise awareness about the illegality, criminality and legal consequences of any type of indecent exposure.

When it comes to women’s safety, the reality is that the number of prosecutions for domestic abuse has halved, rape prosecutions are still taking years, and early action and intervention still do not happen. As my honourable friend Yvette Cooper said on Thursday:

“There is a shocking drift on women’s safety and in what the Home Secretary has said today … How long must we go on saying the same things? The first women’s safety march was on the streets of Leeds nearly 50 years ago, and we are saying the same things about our daughters’ safety today”.—[Official Report, Commons, 29/2/24; col. 454.]


We really cannot stand for any more of this.

[Baroness Doocey (LD)]

My Lords, what happened to Sarah Everard was horrific, and made worse by the fact that this callous murder was committed by a serving police officer. The report says that Wayne Couzens should never have been a police officer and that numerous opportunities to end his career were ignored. It lays out a number of steps to ensure that this appalling tragedy is not repeated.

The Minister has promised decisive action and outlined several welcome measures, yet the vehicle required to take such action is available to him now. The Criminal Justice Bill is due to reach this House in the coming weeks. As it stands, the charity Refuge says it is seriously disappointed with the Bill’s measures on police perpetrators, which it believes will do very little to rid our forces of abusers.

The Government have so far resisted a series of amendments, such as one that would mean all allegations of police-perpetrated domestic abuse would be recorded —either as a police complaint or a conduct matter. This would inform vetting and any potential future investigations. Will the Minister reconsider placing such provisions in the Bill, rather than falling back on regulations and, worse still, voluntary codes of practice, which seldom if ever work?

Does the Minister accept that the time has now come to spell out, in no uncertain terms, that violence against women and girls is not acceptable if you are a police officer? That surely means being clear that domestic abuse is not just a criminal matter but a disciplinary matter within the police services themselves.

I also want to address the issue of consistency. At the moment, there is too much variation around the country, and the issue of warrant card removal illustrates this well. In some forces, officers are required to surrender their warrant cards if they are suspended; in other forces, they are not. Sarah Everard’s murder horribly underlines the power that comes with a warrant card. At the very least, surely suspended officers should be required to surrender warrant cards nationwide. This is something that the Domestic Abuse Commissioner is calling for.

Another matter of consistency is on the issue of suspensions themselves. The Government are now saying that there will be an automatic suspension of police officers charged with certain criminal offences pending trial. Can the Minister confirm that domestic abuse offences will be among those leading to suspension?

The Government are planning to change the rules to make it easier for forces to remove officers without vetting clearance. However, removing those who fail vetting or are guilty of gross misconduct will still not be a legal obligation. These measures will not be mandatory or backed by primary legislation. A Liberal Democrat freedom of information request last October revealed that 129 Metropolitan Police officers were still working on the front line while under investigation for allegations of sexual or domestic abuse, eight months on from the Casey review. This is, frankly, a disgrace.

Meanwhile, a clear issue with culture and leadership remains to be addressed. This is particularly critical in the context of an increasingly young and inexperienced workforce, a third of whom have less than five years’ service. The Police Foundation describes a

“culture of silence and complicity”,

where the default is to keep quiet if you want to get on or fit in. This report rightly says that our police must be held to a higher standard of behaviour and accountability given the powers that they have. Good officers will welcome anything that does this.

Time and again, we have had excellent reports which identify the issues and make recommendations to stop them happening again. Most of the recommendations are accepted, but they are seldom, if ever, implemented. Can the Minister explain what the Government propose to do to ensure a full and speedy implementation of the recommendations in this report? Crucially, can he also say what the consequences will be for those forces that fail to comply?