Covert Human Intelligence Sources (Criminal Conduct) Bill

Debate between Baroness Wheatcroft and Lord Blunkett

Report stage & Report stage (Hansard): House of Lords & Report: 1st sitting & Report: 1st sitting: House of Lords
Monday 11th January 2021 Lords Chamber

[Lord Blunkett (Lab) [V]]

My Lords, I support my noble friend Lord Hain in his admirable description of what has happened historically and what we need to avoid in the future. Our previous debate was cracked before Christmas because we had a break and started again on another day. I shall try to be brief because I hope that will not happen this evening and that we can move forward with some form of consensus.

In commending the admirable speech of my noble friend Lord Hain, I have to say that we are getting ourselves in a real muddle. Having sat through the earlier debate on the previous group on the very reason why this Bill is necessary, I feel incredibly sorry for the Minister. Not only does she have three major Bills on her hands and all the other day-to-day questions and activity, but she must scratch her head about why something that was taking place without the framework we are trying to develop is now being criticised when a framework is being put in place.

I have a great deal of sympathy with her, and I am grateful that she was prepared to talk to my noble friend Lord Hain and me about this. I was also grateful to the Met, the counterterrorism branch and the security services for the discussion I had with them, refreshing my memory—as the noble Lord, Lord Anderson, has—about what has taken place over the years since I was Home Secretary and the improvements that have been put in place, including the order passed in 2013 that the noble Lord referred to. I think it was Statutory Instrument 2788.

The other part of the muddle seems to be this: the noble Lord, Lord Anderson, is right, in my view, to say that it is probably not appropriate for a judge to make the pre-review, and therefore the authorisation of criminal activity. I too think it is not appropriate, not for the reasons he gave, but because I do not think that judges should authorise criminal conduct and criminal activity. They are then in an entirely different role to the one they were trained to undertake and have our confidence in carrying through independently. That is why the Minister is almost certain to agree to Amendment 33—spoken to by the noble Lord, Lord Anderson, today and in its previous iteration before Christmas—to make some progress. I say to the noble Lord, Lord Cormack, with whom I often agree, that I think there has been some move behind the scenes and that we will see that carried through on Wednesday.

I can understand the concerns of those operating in the field that we should distinguish between, for instance, those taken on as what used to be called “snouts” or informers and placing someone, as a police officer, in a situation of potential criminal conduct, which is very different. I understand that very well. At a higher level, it is really important to see the implications of placing an officer in those situations, which might have a major knock-on effect in terms of the reputation of the Government, never mind the policing and security services.

In those circumstances, it would be appropriate for the Secretary of State to authorise the clearance prior to the activity beginning, as happens with phone taps and surveillance. In those circumstances, while this amendment is much tighter than the previous one that I, my noble friend Lord Hain, and others signed, it is desirable to have that level of authorisation for very specific placements of trained officers while giving greater flexibility to what the noble Lord, Lord Paddick, has talked about and must have experienced on a day-to-day basis when he operated in the police service.

This is so complicated because these elements do not sit easily with each other. It is not easy to sort out what would be the most appropriate way forward. I simply ask the Minister to consider whether a higher level of authorisation is required for very specific activities where an officer, whether in the police or security services, is placed in circumstances and situations that could lead to considerable reverberations down the line, taking into account the strictures made on human rights and, of course, our duty of care.

I am not sure that I feel comfortable with the amendment moved and supported by my own side, and I will finish on this. There is a wonderful feeling at the moment that politicians are not appropriate for, or capable of dealing with, high-level situations, even though they have been elevated to the highest possible level. I understand that, particularly at the moment, but I cannot for the life of me understand why my own party is so taken with giving the judiciary roles that are not about judgments of criminality or even carrying out reviews, both of which judges are perfectly capable of because that is their role. What is this love of the belief that we should hollow out the state, as we call it in the academic world, so that politicians are seen as incapable of making decisions and taking responsibility for them, but judges are not? I worry about this, because we are getting ourselves into a terrible mess, where eventually politicians will dance to the tune of Covid but very little else.

[Baroness Wheatcroft (CB) [V]]

My Lords, it is a pleasure to follow the noble Lord, Lord Blunkett, who speaks with deep personal experience and authority. I listened to the passionate debate on the previous group of amendments, and now on this group. The noble Lord, Lord Dubs, made his case for Amendment 5 in his usual persuasive manner, but I favour a slightly different approach, not least for the reasons outlined by the noble Lord, Lord Blunkett. Hence I will speak to Amendment 16, as introduced so effectively by the noble Lord, Lord Hain, and supported by the noble Lord, Lord Cormack.

If the state is to grant advance pardon to individuals to commit serious breaches of the law, this should not be a common occurrence, and it is a decision that should be taken at the highest level. To my mind, that should be at the level of government. I accept that there might be occasions when, for matters of national security, criminal acts will need to be committed, but I have not been convinced of the need for change in the status quo regarding the way these authorisations are given. However, as the charity Justice says, it is inconceivable that the Government should not be accountable for serious criminal offences committed with their approval—but if that approval is delegated to officials, who will be accountable?

I have many qualms about this legislation. As many have remarked, the Government have repeatedly failed to make a convincing case as to why such a drastic abandoning of moral norms should be sanctioned. They have certainly failed to provide convincing arguments as to why such a broad set of agencies should need access to criminal conduct authorisation. What undercover activity does the Food Standards Agency, for instance, envisage having need of? However, while I am not comfortable with aspects of the legislation, I have no doubt of the Government’s determination to press ahead with it. It is therefore down to this House to try to make it more palatable.

As ever, the Government are keen to embrace anything that will show contempt for the European Court of Human Rights, and this obviously presents an opportunity to do that. But it is imperative that we try to stop these powers being used with impunity—and how better than by making government directly accountable? It would clearly be wrong for officials to have the power to grant immunity from prosecution to undercover agents on the basis of what they perceive as necessity without external authorisation.

The noble Lord, Lord Dubs, believes that the judiciary could provide that authorisation; the noble Lord, Lord Blunkett, pointed out the flaws in that. I would prefer it to be the Government: the shift in responsibility from Ministers to officials has become a worrying trend. It seems that senior officials are deemed dispensable these days, but Ministers are not; ministerial resignations are now very rare, although I am sure that most of us have a little list of those that we feel are long overdue. The issuing of these orders is a very serious decision, with potentially enormous effects; it would surely be appropriate for a Minister to take ultimate responsibility.