Legislation against Female Genital Mutilation

Liz Saville Roberts Excerpts

Monday 11th February 2019 Commons Chamber

[Lucy Frazer]

My hon. Friend has a number of concerns relating to family justice that I am happy to have talked to him about over recent months. This Bill was about female genital mutilation, and the Government will be bringing forward legislation to address that matter.

[Liz Saville Roberts (Dwyfor Meirionnydd) (PC)]

Some people, although possibly very few indeed, will accuse the MPs condemning the behaviour of a Government Back Bencher of virtue signalling. Expressing abhorrence at the deliberate mutilation of young girls and changing the law to protect them is our duty, but if the Government are also to avoid the charge of virtue signalling, will the Minister indicate when the Bill will be brought forward?

[Lucy Frazer]

I am happy to repeat that the Government take this matter seriously. The Chief Whip has identified this subject as a matter of importance, and it will be given Government time shortly.

Courts and Tribunals (Judiciary and Functions of Staff) Bill [Lords]

Liz Saville Roberts Excerpts

2nd reading: House of Commons
Tuesday 27th November 2018 Commons Chamber

[Mr Gauke]

Absolutely; that is a key point. Perhaps my hon. Friend has set my Department the challenge of ensuring that people associate the modernisation of technology with the court system. We will know that we have succeeded when he tells us that that is the case. He makes the strong point that this is ultimately about delivering justice. We need to have strong support for the process involved and ensure the satisfaction of those who need to resolve a dispute or to undertake a process. The early signs from our work with online divorce processes are encouraging, and the feedback has been very positive.

[Liz Saville Roberts (Dwyfor Meirionnydd) (PC)]

I rise as the co-chair of the Justice Unions Parliamentary Group. I am interested in what the Secretary of State is saying about artificial intelligence, but it seems to me that one of the driving forces behind the Bill is not necessarily to improve the administration of justice but to cut costs by pushing workloads down the grades so that staff will be taking on additional work above their current grade without additional remuneration. Surely he should recognise that making savings in the application of justice comes at a cost to staff and to the public’s experience of justice.

[Mr Gauke]

I do not think that the hon. Lady is correct in the association that she makes. The reality is that we have to ensure that our resources are deployed as efficiently as possible. That is to the benefit of the system as a whole. I will make the case in more detail as to why the steps taken in the Bill to give authorised staff greater responsibility to undertake some roles that they are currently unable to undertake will be to the benefit of the system as a whole. I make no apology for wanting to find efficiencies within the system, but this is in the context of a £1 billion court reform programme. Those efficiencies can improve the experience of the users of the system, and could also ensure that judges will be able to use their time in the areas that are most useful to them. Indeed, the experience of authorised Courts and Tribunals Service staff will be a more positive one, as they will be able to make a greater contribution to the efficient running of the court system.

Oral Answers to Questions

Liz Saville Roberts Excerpts

Tuesday 13th November 2018 Commons Chamber

[Mr Gauke]

My hon. Friend raises an important point. Of course, the House recently passed legislation to increase sentences for violent crimes committed against prison officers and other emergency workers. It is right that we do so, and these matters need to be taken very seriously. It is important that the police, the Crown Prosecution Service and prison authorities work closely to ensure that we do not allow this activity to continue.

[Liz Saville Roberts (Dwyfor Meirionnydd) (PC)]

T5. The North Wales police and crime commissioner has made it clear that the growing prison population at HMP Berwyn is putting increased demand on policing. The cost of that is wholly borne by the people of north Wales through the police precept. Can the Minister explain why his Department does not provide additional policing resources but instead expects North Wales police to find this from already desperately constrained budgets?

[Rory Stewart]

It is the responsibility of the police primarily to work on supporting the Prison Service. Our responsibility at the Ministry of Justice extends to what happens within the prison walls. It is true, of course, that with prisons—regardless of whether they are in north Wales or London—there is additional work, particularly on prosecution, but we do not feel that the imposition of Berwyn leads to the kind of financial pressures that would require a rethinking of the entire settlement.

Future of Legal Aid

Liz Saville Roberts Excerpts

Thursday 1st November 2018 Westminster Hall

[Liz Saville Roberts (Dwyfor Meirionnydd) (PC)]

It is an honour to serve under your chairmanship, Mr Bailey. I thank the hon. Member for Hammersmith (Andy Slaughter) and the right hon. Member for Orkney and Shetland (Mr Carmichael) for applying for this debate, and I thank the Backbench Business Committee for granting it. It is an honour to follow the hon. Member for Great Grimsby (Melanie Onn).

Every single one of us here has similar concerns about the severity of the cuts. Today we have been highlighting the impact that the LASPO Act has had on our constituents and our communities over the past five years. I will speak specifically about Wales because of the particular issues there. They will of course be common to much that has already been raised, but it is important that particular needs are considered. Wales has experienced the largest decline in legal aid providers over the past five years—a decrease of 29%—and today I will talk about the impact on housing, criminal legal aid, and the experience of victims of crime, particularly in the family court.

Legal aid in the housing sector has been particularly hard hit owing to the rates set by the Government, which have left Wales with only one housing legal aid provider in half of the procurement areas and a host of problems. First, families on low incomes might not be able to travel to see the only provider in their area, which might be located many miles away from where they live, because of travel costs and the availability of public transport. That is particularly true in rural areas. The inability to seek essential legal advice can, in the most extreme cases, result in homelessness. Secondly, one firm in a large area might not have capacity to provide advice to those who need it. People requiring legal aid advice on housing issues often need advice urgently and cannot afford to go on a waiting list. Thirdly, conflicts of interest can arise because one law firm cannot represent both tenant and landlord, or represent a tenant if the landlord is engaged with the firm on another matter. We have a real concern about conflicts of interest.

I welcome the recent High Court ruling in favour of the Law Society, confirming that the UK Government’s latest cuts to the pay of criminal lawyers are unlawful. Criminal law duty solicitors, as we have heard, are already in high demand, and we have good grounds to believe that the situation will worsen if present trends continue. In Wales, where we have a specific need for people who can operate professionally through the medium of Welsh—a very real need in the county of Gwynedd and other communities in rural Wales—the shortage is even more exaggerated. In future, who will be able to provide that which we have a right to—justice in English and Welsh—if we do not have those people coming through?

[Robert Neill]

The hon. Lady might like to know that the figures provided to the Justice Committee in relation to mid and west Wales suggest that 60% of criminal law duty solicitors were over the age of 50. That situation clearly is not sustainable.

[Liz Saville Roberts]

The hon. Gentleman has just anticipated one of my next sentences. We have an ageing specialist profession, many of whom are able to operate through the medium of Welsh, and we are not seeing those skilled and important individuals coming through. Unless the Government reverse the cuts and provide an incentive for more people to train in criminal law, they will seriously threaten the right of individuals to access independent expert legal advice in either Welsh or English free of charge when detained by the police.

Finally, I want to explain how the cuts to legal aid are putting victims of domestic abuse, stalking and harassment in further danger and forcing them to come face to face with their abusers. Even if that was never the intention, that is the result. A survey of 122 victims of stalking and domestic abuse conducted by Plaid Cymru found that 55% of victims had court proceedings taken out against them by their abusers, despite restraining orders being in place, and two thirds of the victims then had to appear in court. Although it might be unintended, that snapshot is extremely revealing. Due to the cuts in legal aid, many abusers were not given free legal representation, so they represented themselves. It is distressing enough for a victim of abuse to have vexatious proceedings—they are too often vexatious—taken out against them and to have to appear in court, but a third of the victims had to go through the trauma of being personally cross-examined by the person who had been stalking and relentlessly harassing them, who had made their lives such a misery that they had had to take out a restraining order against them. Again, that might not have been the intention of the legislation, but that is the result. It is in no circumstances safe; nor is it a responsible or just way to treat victims.

The situation is the result of unyielding cuts to legal aid. I do not think that the UK Government anticipated that victims of abuse would bear the brunt of the cuts in such a way, but unfortunately that is the case. Many people predicted such results, and the evidence that has come to pass proves them correct. Again, I echo fellow Members here when such evidence is presented to us. I sincerely hope and I believe that the Minister feels strongly on this matter, too. We need to resolve this. We have the evidence and time has passed. We are seeing the evidence in our constituency meetings and hearing it from legal experts, of whom I am not one, but this issue cries out to be addressed.

The principle of equality before the law should be upheld. A valid justice system must enable everyone to access legal advice. It must not remain a privilege afforded only to the wealthy.

Oral Answers to Questions

Liz Saville Roberts Excerpts

Tuesday 9th October 2018 Commons Chamber

[Edward Argar]

The right hon. Gentleman is right to highlight again the importance of sport. The report published by Professor Meek in the summer, of which we have accepted 53 of the 54 recommendations, sets out a clear direction of travel—that is, alongside education and developing skills, and provisions for mental and physical health, sport plays a key role for prisoners in the rehabilitative process.[Official Report, 22 October 2018, Vol. 648, c. 3MC.]

[Liz Saville Roberts (Dwyfor Meirionnydd) (PC)]

7. What comparative assessment he has made of levels of violence in public and private prisons.

[The Lord Chancellor and Secretary of State for Justice (Mr David Gauke)]

The influx of drugs has had an impact on violence levels in both public and private prisons, which is why we are investing in body scanners, improved searching techniques and phone blocking technology. In 2017, four of the top five assault rates in local prisons and category C prisons were in public prisons.

[Liz Saville Roberts]

It remains the case that the prisons with the highest number of assaults are all private. In the first quarter of 2018, the top five most violent prisons were privately run. Will the Minister commit to an independent review of violence in private prisons and to a moratorium on any new private prisons in the meantime?

[Mr Gauke]

No, the reality is that there are issues with violence in both public and private sector prisons. Certainly, the numbers that I have suggest that there is a significant issue in public sector prisons such as Liverpool, Exeter and Bedford, where there have been urgent notifications. We should not take an ideological approach. There are very good private sector prisons, and there are some very good public sector prisons, and it is right that there is a diversity of prisons in our system.

Criminal Justice System: Veterans

Liz Saville Roberts Excerpts

Wednesday 12th September 2018 Westminster Hall

[Mrs Moon]

It is absolutely vital that we know how many veterans we have and where they are, but many veterans do not want to self-identify. There is a question of shame and not wanting to be identified, so there would have to be some nuancing around that whole question.

We are failing people who have served their country and that cannot be acceptable to anyone. Let us be clear: not every service leaver is likely to end up in prison, in the same way that not every service leaver will end up with mental health problems—I am deeply concerned that that image is being allowed to grow. For many, the transition to civilian life, while challenging, is successful. The MOD has improved its programmes, although it still lacks anything more than a one-size-fits-all approach.

A recent report from the Forces in Mind Trust and King’s College London looked at data held by liaison and diversion services, and shows that we do not even really know how many offenders have served in the armed forces. I have seen figures for the last five years that vary from 2% to 9%. That has to change; we need better, more effective statistics, so that we know the problem we are dealing with.

Military life provides structure and comradeship, which many may have lacked in their lives before they joined the services. That comradeship and structure might not equip people with the education, skills and coping mechanisms that they need for transitioning into civilian life. Some may not have the emotional skills to cope with relationship issues or their change of status. Emotional issues had played a part in almost all of the cases of men that I spoke to, but all also talked of the trauma of going from hero to zero. One minute they are heroes, respected by family and community, and the next minute, they are nothing and nobody. For many of them, that trauma led in some part to their offending, which exacerbated the feeling of zero-ness, because they were totally rejected by family and community after offending.

Like many MPs, I have dealt with numerous cases of veterans who have hit hard times. In the majority of cases, it was not the veteran who approached me—it was their family and friends. Ex-service personnel are not good at asking for help. They are used to being problem solvers—indeed, that is what they are taught to be—but many also need training in seeking and accepting help. One of the men had been offered help and had turned it down because it was not exactly what he was looking for and he did not want to compromise. He made his life harder as a result.

[Liz Saville Roberts (Dwyfor Meirionnydd) (PC)]

The hon. Lady has mentioned HMP Parc and the excellent work done there. I have also visited the prison. Would it not be a proposal to have armed services support officers in every prison and every probation area?

Voyeurism (Offences) (No. 2) Bill

Liz Saville Roberts Excerpts

3rd reading: House of Commons & Report stage: House of Commons
Wednesday 5th September 2018 Commons Chamber

[Liz Saville Roberts (Dwyfor Meirionnydd) (PC)]

I am sure that the hon. Lady shares my concern that many crimes with a gendered aspect have rates of reporting and of final prosecution that are so low. We need to look at all the reasons for that.

[Stella Creasy]

I completely agree. This is the point about changing the mindset. Let me reassure the hon. Member for Cheltenham (Alex Chalk) that where police forces, particularly in Nottingham, have started to record misogyny as a hate crime—this is not a new idea—it is transforming the experience of women not just when it comes to street harassment, but when it comes to violence against women in total.

--- Later in debate ---

I would really like the Minister to accept the amendments as they are, as they will not cost the Government huge amounts of money. By the Government’s own estimates, a tiny number of people will be prosecuted. I think that those estimates are wrong and that there will be lots more prosecutions if the police and the Crown Prosecution Service have the guidance from this House to protect our constituents and our families.

[Liz Saville Roberts]

It is an honour to follow the right hon. Member for Hemel Hempstead (Sir Mike Penning) and his excellent speech, which summarised much of what I intend to say now; I hope he will forgive me.

I would also like to refer to new clause 1 and the need for a review by the Law Commission. With hate crime, we need to look at the rates of reports as compared with the rates of successful prosecutions. If those are low or if something appears difficult to explain, there should then be a consideration of why they are low. I suspect that in many cases we will find that we are trying to use common law or pieces of statute that are now dated and just not clear. Under the weight of criminal activity, it is sometimes very challenging for the police to know how they are going to deal with the matter if there is not a clear route ahead.

I want to speak in support of the amendments tabled in the name of the right hon. Member for Basingstoke (Mrs Miller). Amendment 3, along with amendments 1 and 2, make all upskirting an offence regardless of the motivation of the perpetrator. As I said, the legal clarity necessary to prosecute upskirting becomes blurred when the focus is directed towards establishing an answer to the question of why someone has taken an intimate photo of someone else without that person’s consent. Taking a private, intimate photo of someone else without their consent should always be illegal. The legislation as it currently stands ignores victims and their experiences and places its focus solely on the intentions of the perpetrators. It thus fails to capture all instances of upskirting, fails adequately to protect the victim, and fails to make all perpetrators liable for prosecution.

These amendments rightly take the issue of consent as the primary concern, although it is evident that the motivation of the perpetrator should not be completely disregarded; rather, it should be treated proportionately, as we do in other crimes. Serious sexual offenders, such as those who commit upskirting for the purpose of sexual gratification—rather than, say, for financial gain—should still be subject to notification requirements, and the amendment does not stop that from happening. The prosecution of an act of upskirting can examine whether consent was gained when the image was taken, and look at why the image was taken, in order to ensure that offenders are treated appropriately on conviction, with some being placed on the sex offenders registers as necessary, according to their motivation. The amendment does not seek to make all perpetrators of upskirting offences subject to notification requirements, but seeks to ensure that all perpetrators of upskirting offences are able to be prosecuted, regardless of the reasons behind their actions.

The Minister has justified the current drafting of this legislation on the grounds of existing legislation in Scotland, which it mirrors. It is entirely right that we legislate to ensure that upskirting is illegal, but simply copying the legislation as it stands in Scotland, which has recently been revealed to be in need of review, will not result in an effective or long-term solution. The CPS stated to us in Committee that, if the Scottish legislation were to be replicated in England and Wales, it would

“anticipate that most offending will fall comfortably within these categories”,

but the evidence from Scotland now shows that this is unlikely. Recent figures show that, in the first six years of the law being in operation in Scotland, just 21 prosecutions have taken place out of a total of 142 charges reported—only 15%. That is a clear example of the type of gendered legislation that is not resulting in effective prosecutions. It would be irresponsible for us as legislators to press ahead with this legislation when we have clear proof that many of the reports due to be brought to the police in its name would be unlikely to lead to successful prosecution.

[Alex Chalk]

The hon. Lady is making a powerful speech. I want to explore one thing, if I may. She is saying, I think, that someone should be guilty of an offence whatever the motivation. If a court were to find that the offence were committed for the purposes of obtaining sexual gratification, then the defendant should be put on to the register, but how, if clause 3 is deleted, will a court be able to establish what the motivation was? Is there not a danger that a jury would not be deciding it but instead a judge? Is there not some logic to ensuring that it will be the jury who will determine this matter, which has important consequences for the penalty that follows?

[Liz Saville Roberts]

I am grateful to the hon. Gentleman for his intervention. We need to have this debate in relation to these crimes. None the less, if we find ourselves in a situation where the motivation is the sole means by which we decide to move ahead or not, then we are providing a bolthole that will give people a defence. I hope that the Department will be discussing further with its counterparts in the Scottish Government exactly why the prosecution rates are so low there. If there are concerns that we are giving a line of defence on the grounds of motivation, we must be very careful. Are we prioritising the right issue, or is it, as I was trying to explain, rather a matter of proportionality when it comes to sentencing and knowing what the motivation is?

I will now speak in support of amendment 5, which seeks to close the biggest loophole in this legislation—namely, that it would be an offence to take an upskirting picture but not necessarily an offence to distribute it. When the amendment was introduced in Committee, the Minister explained that there were already statutes that might capture the distribution of such photos, such as section 127(1) of the Communications Act 2003 and section 1 of the Malicious Communications Act 1988. Just as the motivation clause of this legislation means that not all upskirting would be outlawed, nor does the present legislation outlaw distribution in all cases.

We should not be passing legislation that only works to a certain extent. I appreciate that the Department for Digital, Culture, Media and Sport and the Law Commission are working together to look into the onward sharing of images as part of their review in relation to online abuse, but failing to include anything in this legislation about distribution risks creating a giant loophole that would facilitate the further distress of victims. It is an entirely predictable outcome that we can see from where we stand.

We have the opportunity to address this issue now, and we should seize it, instead of holding back. When the original upskirting legislation was passed in Scotland, it had to be followed up with additional legislation to cover the distribution of these images. The UK Government unfortunately appear blithely to be following the process of the original legislation in Scotland. I propose that we take the opportunity to learn from the pitfalls experienced there, rather than run headlong into the same complexities. I urge the Minister to commit to work with Scottish legislators to strengthen the Bill.

I encourage the UK Government to join colleagues across the House, who have made some excellent speeches this evening, in supporting the amendments. Otherwise, they risk waving through legislation whose excessive complexity and obvious loopholes will hobble it from day one.

[Ross Thomson (Aberdeen South) (Con)]

I will keep my remarks very short, Mr Speaker.

I want to begin by acknowledging why we are here discussing this very important issue: the incredible work of Gina Martin and her lawyer, my fellow Aberdonian Ryan Whelan. They have worked so hard to campaign on this issue, raise awareness of it and take it forward. I remember meeting Ryan in my constituency office and talking about Gina’s experiences a victim of upskirting, and I just could not believe that this was happening across England and Wales. It felt wrong that it was happening, and that certainly motivated me to get involved in the campaign to give justice to women and victims, and to ensure protection for all young women.

I thank all Members of the House because the Bill has had genuine cross-party support from the Labour party, Plaid Cymru, the Liberal Democrats and the Scottish National party. Their real support for the Bill has helped it to progress so swiftly through the House. It is at moments like this that Parliament shows itself at its best, with cross-party co-operation to put something on the statute book that will do good for our constituents.

We all came into Parliament to make a difference. We want to be able to serve our constituents, to change the law, to right wrongs and to protect some of the most vulnerable. Together, we are doing that. So often people see on television the spats that we have—there will be many more—and the rowdy Prime Minister’s questions, but often moments like this, which I genuinely think are when our Parliament is at its best, do not get coverage.

The practice of upskirting—taking a photograph up a person’s skirt or clothes without their consent—is truly horrific, and those who have been the victims of such a crime have been clear about how it has personally affected them. Some have described their experiences of upskirting as “scarring”, “a real invasion”, “embarrassing” and “humiliating”. When the Minister talked to the Committee, she referenced the fact that one victim described the invasion of upskirting as making her want to “peel off her skin” and scrub herself clean.

There is a real gap in the law that needs to be filled, and we can do that. This is the moment to do it because upskirting is a terrible and horrific crime. It is a horrendous invasion of privacy, and it is right that offenders will be appropriately punished following the creation of a specific upskirting offence. The whole House will be able to send a clear message to potential perpetrators that this behaviour will not be tolerated.

--- Later in debate ---

In relation to guidance, I can confirm that work is already under way to develop and update guidance on upskirting without the need for any legislative obligation to do so. I recognise the intent behind the amendments, but this narrow Bill is not the place to debate misogyny becoming a hate crime. However, we as a Government are concerned to ensure that our hate crime legislation is up to date and consistent. I am pleased to announce today that I will be asking the Law Commission to undertake a review of the coverage and approach of hate crime legislation, following its earlier recommendation to do so. This will include how protective characteristics, including sex and gender characteristics, should be considered by new or existing hate crime law. As my right hon. Friend the Member for Broxtowe (Anna Soubry), my hon. Friend the Member for Christchurch (Sir Christopher Chope), my right hon. Friend the Member for Hemel Hempstead and my hon. Friend the Member for Aberdeen South mentioned, this is the right way forward. I will confirm that the Ministry of Justice will make available the necessary funds for the review and I will write to the Law Commission this week outlining our intention. On that basis, I ask the hon. Member for Walthamstow to withdraw her amendments.

[Liz Saville Roberts]

I am grateful to the Minister for announcing a review by the Law Commission. Will she commit to considering in the review a wider range of protective characteristics that are recognised by some police forces, in particular my own in north Wales, which considers English and Welsh language as hate crime protected characteristics? Will she consider those in the review as well?

[Lucy Frazer]

I am happy to take that away and consider it. It is appropriate that when we look at protected characteristics we do not look exclusively at sex and gender characteristics, which as I said will be included. I am very happy to consider the point the hon. Lady makes and I will get back to her on that.

Secondly, I would like to deal with amendments 1 to 4, tabled by my right hon. Friend the Member for Basingstoke (Mrs Miller), in relation to purposes. Before turning to the substance of her amendments, I would like to pay credit to her for all her work in this area. For many years, as Chair of the Women and Equalities Committee and individually as a Member of Parliament, she has continually stood up for the rights of women. I am very grateful to her for highlighting important points to me on the Bill in Committee and more informally. The Department has considered very carefully the issues she raises and reflected on them. I will set out in due course how we propose to deal with the points she has very carefully and helpfully raised for consideration, but first I will deal with the substance of the Bill as drafted.

In the Bill as drafted, upskirting is criminalised if the perpetrator takes an image with the purpose of either sexual gratification or causing humiliation, distress or alarm to their victim. The reason those motivations are identified in the Bill is that they are used in other current legislation. Amendments 1 to 4 would remove those defined purposes, effectively taking away any mens rea to the offence and therefore criminalising the taking of all upskirting photographs whatever the circumstances. As I understand it from the explanatory statement and the speeches today, the intention behind amendment 3 is to ensure that those undertaking this sort of inappropriate behaviour for group bonding or financial gain are caught.

Voyeurism (Offences) (No. 2) Bill (Third sitting)

Liz Saville Roberts Excerpts

Committee Debate: 3rd sitting: House of Commons
Thursday 12th July 2018 Public Bill Committees

[The Chair]

Before we begin, Members may remove their jackets if they wish. Can everyone please ensure that all electronic devices are switched off? Tea and coffee are not permitted.

The selection list, which shows the order of debates, is available in the room. However, I remind Members that decisions on amendments take place in the order in which they appear on the amendment paper. I will use my discretion to decide whether to allow a separate stand part debate on individual clauses following the debates on the relevant amendments.

Clause 1

Voyeurism: additional offences

[Liz Saville Roberts (Dwyfor Meirionnydd) (PC)]

I beg to move amendment 2, in clause 1, page 1, line 9, leave out

“, for a purpose mentioned in subsection (3),”.

This amendment is consequential to Amendment 1

[The Chair]

With this it will be convenient to discuss the following:

Amendment 3, in clause 1, page 2, line 1, leave out paragraph (c).

This amendment is consequential to Amendment 1

Amendment 1, in clause 1, page 2, line 6, leave out subsection (3) and insert—

“(3) It is a defence for a person (A) charged with an offence under this section to prove—

(a) in respect of an offence under subsection (1)—

(i) that operating the equipment was necessary for the purposes of preventing or detecting crime, or

(ii) that A did not operate the equipment with the intent of observing another person’s genitals, buttocks or underwear, and

(b) in respect of an offence under subsection (2)—

(i) that recording the image was necessary for the purposes of preventing or detecting crime, or

(ii) that A did not record the image with the intent of recording an image of another person’s genitals, buttocks or underwear.”

[Liz Saville Roberts]

Diolch yn fawr, Ms Buck. It is a pleasure to serve under your chairmanship.

Amendment 2, along with amendments 3 and 1, was tabled by the right hon. Member for Basingstoke (Mrs Miller) and has support from Members of every single political party in the House. The group of amendments seeks to change the purposes mentioned in the Bill to ensure that all upskirting is illegal, regardless of the motivation.

The common issue in all upskirting cases is that the victims did not know that a picture was taken, nor did they consent. The amendments seek to ensure that the Bill, which intends to close a loophole, does not enable another on the motivation of the perpetrator. That view is supported by the Director of Public Prosecutions; victims who presented evidence to the Committee, whose anonymity should be respected; the victims’ lead of the Association of Police and Crime Commissioners, Dame Vera Baird; and Victim Support, in the most recent written evidence presented to the Committee.

As we are amending the Sexual Offences Act 2003, consent should surely be considered, given the significance of establishing consent and the degree to which the complainant has capacity to give consent in other sexual crimes. Upskirting by its very nature is committed without the victim’s knowledge or consent. The Bill does not adequately cover financial motives such as selling to the media, as is common in celebrity upskirting shots. Public order offences might cover such situations, but if they can be covered by the Bill simply by changing the focus to consent, that should be done.

The Bill does not cover situations where the motivation to take a picture is group bonding or banter. In such situations, images are taken not always for sexual gratification or to distress the victim, but purely to have a laugh with friends. The amendments would cover that situation.

I beg the Committee’s leave to refer to the views presented by Alison Saunders, who notes:

“The Bill criminalises observation or recording without the complainant’s consent. Unlike other sexual offences, this offence is commonly committed without the complainant’s knowledge.”

She states that consideration must therefore be given

“to providing that the offence is committed where the complainant either does not know or consent.”

Alison Saunders notes concerns about the specific purposes for which the activities in question must be committed. She anticipates that most offending would fall within the specified categories, but warns that

“this is another element that the prosecution will need to prove. It is not inconceivable that suspects will advance the defence that this purpose is not made out beyond reasonable doubt and/or that they had another purpose, such as ‘high jinks’.”

Some of the evidence that has been presented to us—again, I respect the anonymity of the victims—lays out the range of defences people will put forward with success, which brings into question whether we should not be more cautious in our approach to purposes. Ms Saunders also notes

“Consideration could be given as to whether purpose is a necessary or relevant element of the offence (once it has been proved that the conduct is intentional, and given that it involves an affront to the integrity and dignity of the victim).”

The right hon. Member for Basingstoke set out many of those arguments in her oral evidence on Tuesday.

As this legislation is necessary, I do not intend to hold up the Committee or to press the amendments at this stage. I would, however, like to stress again that the point of legislation is to be fit for purpose and effective, not simply to exist. Nor should we be expected to revisit it within an unreasonably short period of time. I hope that the Government will give proper consideration to this issue, since I and many colleagues believe that the amendments are needed to ensure that the legislation protects victims, whatever the motive of the perpetrator. Legislation should be clear and consistent, and in the case of sexual offences it should be mindful of proportionality in the degree to which the onus is on the complainant to prove a motive for the defendant’s choice of action.

[The Parliamentary Under-Secretary of State for Justice (Lucy Frazer)]

It is an honour and a privilege to serve under your chairmanship, Ms Buck.

I am grateful to the hon. Lady for providing an opportunity to discuss this important issue, and I appreciate the impact that this activity can have on the individuals affected. I am also grateful to my right hon. Friend the Member for Basingstoke; I know she spent much time considering the Bill, including giving up her time on Tuesday to give evidence to the Committee. I am grateful for the leadership she provides as Chair of the Women and Equalities Committee, and the powerful position she has taken on tackling ongoing challenges around sexual harassment.

The three amendments that were tabled by my right hon. Friend and have been moved today by the hon. Member for Dwyfor Meirionnydd would remove the element of purpose, so that upskirting is caught in all circumstances, save for when a defence is established. Those defences are outlined in amendment 1. We understand the objective of ensuring that the offences are wide enough to catch all those who should be criminalised for taking upskirting photographs, and we understand the hon. Lady’s motivation in moving the amendments. It is important to raise and consider these issues, and I am grateful for the opportunity to do so.

Before turning to the amendments, it might be helpful to explain why the Bill has been drafted as it has. The Bill seeks to rectify a gap in the law. That gap exists in relation to where the act takes place: it is possible to prosecute for upskirting in a private place or a public place, but possibly not in a place that is neither private nor public, such as a school. A school is not open to the general public, so it is not public, but it is open to many, so one could not expect privacy.

The Bill specifies two purposes for which an offence can be committed: to obtain sexual gratification or to humiliate, alarm or distress the victim. The reason these purposes are identified is not only that they are clear and appropriate, but that they use language that is familiar to criminal justice agencies. These motivations are used in current legislation. They are used, word for word, in Scotland. They are also familiar to the English system. That means that the Bill as drafted has precedent in law, and we know it will catch inappropriate wrongdoing.

I will deal with a few criticisms that have been made of the Bill’s breadth. It has been said that it will not catch all those who should be caught—for example journalists, as the hon. Lady mentioned—but if a person takes a photograph with the intention of uploading it to a website where others will look at it for sexual gratification, the uploader will be caught. It will not matter that the person who took the image is not obtaining sexual gratification themselves—for example, if they just want to get paid for the photograph. If they share it with another person with the intention that that person obtains sexual gratification, they will still be caught by the new offences.

--- Later in debate ---

[Lucy Frazer]

I will deal with the hon. Lady’s point in a moment, after I have dealt with the one about proving sexual gratification.

Assistant Commissioner Hewitt acknowledged that sexual gratification already has to be proved under existing legislation—the Sexual Offences Act 2003—and that it is well understood by the police, prosecutors and the judiciary. He said that motivation can be assessed by interviewing the offender and through digital evidence, such as the website an image is uploaded to, and that it is then for the magistrate or the jury to decide whether there is a sexual purpose.

[Liz Saville Roberts]

rose—

[Stella Creasy]

rose—

--- Later in debate ---

[Lucy Frazer]

Yes, my hon. Friend is right, and I am grateful to have his expertise in Committee as a criminal barrister who is used to prosecuting offences. There is no need to show a primary motivation; it just has to be a purpose, and there may be many purposes. Equally, that would apply to commercial gain.

[Liz Saville Roberts]

Does the Minister none the less share the concerns of the Director of Public Prosecutions about putting the onus on the prosecution? We are concerned about the effectiveness of this law because the complications implicit in having to tease out the different levels of motivation to find the one that we want, at a time when the police have limited resources and might not initially regard this as a serious crime, might just put too many hurdles in the way.

[Lucy Frazer]

People may have different views about that question. When activities are criminalised, it is right that the Crown Prosecution Service has the burden of proving the offence. We need to strike the right balance between victims and people who are accused of offences. Amendment 1 would reverse the burden of proof to the extent that it would rest on the defendant to show that they acted for a different purpose, and it is very limited, with only two reasons. It would put the burden of proving a defence on the defendant, but I see no issue with the fact that in our law it is for the CPS to prove its case and to prove that people should be criminalised for what is an extremely significant offence. It is wrong that people do this activity, but when they do it and they are criminalised for it, they will have a criminal record for a sex activity for which they could go to prison for two years.

--- Later in debate ---

[Alex Chalk]

The hon. Lady is absolutely right. Ultimately, we are trying to prevent offending so that victims can get justice. One aspect of victims getting justice is ensuring that something is put on the statute book as quickly and efficiently as possible. The key evidence, if I may say so—the centre of effort that came from Gina Martin’s evidence—is that she wants to see this on the statute book. For it to mirror the situation in Scotland has an added advantage.

The second point, over and above the inconsistency, is about the sexual offenders register, which is critically important for this reason. If someone is put on the sexual offenders register, that is major deal, because if they act in breach of that they will go inside. It is absolutely right, by the way, that that happens. If somebody commits an offence such as this for a sexual motive, it is quite correct that they should go on the sexual offenders register. Indeed, the overall tenor of the evidence is that the Bill is right to draw a distinction between those who commit the offence to humiliate or degrade and those who commit it to achieve sexual gratification.

[Liz Saville Roberts]

rose—

[Alex Chalk]

I will give way to the hon. Lady in a moment.

Most people recognise that only people in the latter category should go on the register. Let us imagine for a second that this amendment were carried. The defendant would say, “I’m not guilty of this crime. I want to have a trial, please.” He would go before a judge and jury and say, “My phone was operating by accident. I didn’t mean to do it,” and the jury would say, “Pull the other one. Guilty.” At that point, who would decide whether that person went on the sexual offenders register or not? The jury would not have been able to give any kind of verdict on the individual’s purpose when he took the photo. In other words, the judge might sit there and say, “I’ve no idea. It wasn’t really relevant to the offence. Am I, the judge, going to make the decision about what his motivation was?” How does that serve justice?

[Liz Saville Roberts]

I question the hon. Gentleman’s statement that the overwhelming tenor of the evidence is in favour of what he is arguing. What has been presented to us, particularly since yesterday, is quite strong, especially if we look at what both the victims lead for the Association of Police and Crime Commissioners and the Director of Public Prosecutions have said. In response to the balance of power in sexual offences, Dame Vera Baird QC, Northumbria’s police and crime commissioner, said:

“We do not regard a specific motive as the important characteristic of this behaviour. More important is that this behaviour is done without the consent of the person being photographed. Its impact is that it is a violation of her/him in an intimate way and is thus more closely related to rape and sexual abuse than might at first be considered. It appears to be based on the concerning notion that women’s bodies are public property over which any one has a right to take advantage, for any motive, if they can find a way of doing so.”

[Alex Chalk]

I absolutely accept that the purpose of consideration in Committee is to drill down on such matters and see how they would work in practice. No one should misread my representation on this; of course victims come first—that is why we are here and why the Government have moved so quickly to get the Bill on to the statute book. We recognise that there is a socking great hole in the law that needs to be filled. The question is how that can be done as effectively, efficiently and fairly as possible. Apart from anything else, if the view is taken in due course that we did not think about that in Committee, the people who will be most upset about that are the victims, who will think it bad law.

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[The Chair]

If no one else wishes to speak, I call Liz Saville Roberts.

[Liz Saville Roberts]

Diolch yn fawr, Ms Buck. I shall seek the Committee’s leave to withdraw the amendment at this stage, but I will work with others to redraft and refine amendments, in discussion with Members in the other place, with the intention of tabling them on Report.

I beg to ask leave to withdraw the amendment.

Amendment, by leave, withdrawn.

[Liz Saville Roberts]

I beg to move amendment 4, in clause 1, page 2, line 8, at end insert—

“(3A) It is an offence for a person (A) to disclose an image of another person (B) recorded during the commission of an offence under subsection (2) if the disclosure is made without B’s consent.

(3B) It is a defence for a person (A) charged with an offence under subsection (3A) to prove—

(a) that disclosure of the image was necessary for the purposes of preventing or detecting crime, or

(b) that A did not disclose the image with the intent of disclosing an image of another person’s genitals, buttocks or underwear.”

Again, amendment 4 was tabled by the right hon. Member for Basingstoke and is supported by Members from every party. It seeks to ensure that the sharing or distribution of upskirting images taken without the complainant’s consent is a criminal offence.

As we all know, the Bill is modelled on the equivalent Scottish legislation, which had to be supplemented, relatively soon after its introduction, by additional legislation to stop the distribution of images. That was necessary to make the original legislation effective. It therefore does not logically follow that the Government will bring forward part of what is necessary—measures to prevent sharing—to address this issue effectively.

As the right hon. Lady pointed out in evidence to the Committee, current legislation might stop the distribution of upskirting images, but only in cases where such images would cause distress. As we have already discussed, sharing an image on a group chat for the purpose of banter is not necessarily intended to cause distress, so it may well not be covered. The amendment would close that clear loophole.

Another potential loophole was raised by the Director of Public Prosecutions, who noted in her submission to the Committee that

“the Bill does not criminalise a person who is in possession of images which have been recorded”

without the consent of another person or people

“but where it cannot be shown that”

that individual was responsible for recording the images. For example, someone might have hundreds of such photographs on their computer or digital device or devices, but there might be no forensic evidence to reveal how they came to be taken. It should also be noted that there is no power of forfeiture over such images, so someone may have a really quite unpleasant collection but, unless those other pieces were in place, there would be nothing we could do about it. It could be claimed as a collection—a collection of women being distressed. We have not addressed that.

I also draw the Committee’s attention to the precedent set by existing law in relation to revenge porn. There may be an offence under section 33 of the Criminal Justice and Courts Act 2015 if it can be proved that the sharing of images was done with the direct intention of causing distress to the victim. As we know, that does not cover distribution motivated by finance, entertainment, amusement or indeed sexual gratification. That means that commonplace activities such as sharing among groups of friends are not covered. Once again, rather than acknowledging that distress is implicit in the objectification of women through this deliberately demeaning and humiliating act, we will place the onus on the complainant—the victim—and the prosecution to quantify distress.

Let me say in passing that I welcome the Law Commission’s ongoing review of online abuse. I took part in one of its consultations last night. On the basis of its recommendations, which are relevant to what we are discussing, I understand that the Department for Digital, Culture, Media and Sport intends to bring forward a White Paper on internet safety by the end of 2018. I look forward to the Minister’s response.

[Lucy Frazer]

I reiterate that the Government are introducing this Bill to protect victims. That is absolutely why we have sought to introduce this legislation swiftly.

The amendment seeks to create an additional offence of disclosing the upskirt image, where such an image is caught by the Bill. It would create two defences to this offence, which are the same as those created by the other amendments tabled by my right hon. Friend the Member for Basingstoke for the existing offences in the Bill.

I sympathise with the position of the hon. Member for Dwyfor Meirionnydd on forwarding and sharing upskirting images. I very much share the desire to ensure that victims are protected by the law from this distressing practice and to ensure that the law is sufficiently robust to address this issue. Upskirting is an inappropriate act that we all agree needs to be addressed.

The amendment raises an important question about the distribution of images, but this issue is not confined to upskirting. Sharing images and inappropriate material online is a significant issue; indeed, it is a wider problem than this specific offence.

As the hon. Lady mentioned, there is already good work under way across Government to consider these issues closely. As she said, DCMS has asked the Law Commission to look into the onward sharing of images as part of its review in relation to online abuse, and in May we published our response to the Green Paper on internet safety strategy.

Therefore, although the hon. Lady makes an important point, it seems both prudent and beneficial to be careful not to cut across the ongoing work. It would be better to wait until we know the outcome of these reviews so that we can consider them properly, in slower time, to decide what steps are necessary, if any, to take this matter forward. Tackling image sharing more widely is complex and requires detailed consideration and analysis.

[Liz Saville Roberts]

In that case, could the Minister indicate to me, given that there is now a sense of speed in moving forward with this piece of legislation, how she would incorporate anything that was recommended? Frankly, bearing in mind the experience in Scotland, we should be considering addressing this issue now, rather than holding back.

[Lucy Frazer]

The hon. Lady makes a good point. DCMS is looking at this issue. Its report will come forward in due course and then we will need to consider it—both its scope and whether there is anything else that needs to be considered. Sharing images is a wide issue and the Government are very aware that they need to consider new technologies, how they are affecting women and children, the issue of the distribution of images, and all the horrors, as well as benefits, that come with the internet.

We are concerned that using the Bill, which is moving at pace, to deal with this issue could result in unforeseen consequences. I will mention a few of those in the context of the amendment.

First, the amendment suggests that a person would be guilty if they received and shared an image even if they did not know that it had been taken without consent. Secondly, under the amendment, a person would also be liable if the image was passed on to them by email and they passed it on by email, social media or messenger app without opening it.

So, while we must of course consider carefully those who are victims, it is also important to point out that other laws and a number of other offences relate to this area, which will potentially catch perpetrators of this sort of crime. So, onward sharing is captured by the revenge porn offence, if it is done without consent and with the intention of causing distress to the victim.

There are also offences that might capture the distribution of such photos. The offence of improper use of a public electronic communications network is captured by section 127(1) of the Communications Act 2003, while section 1 of the Malicious Communications Act 1988 captures the sending of letters and other articles with intent to cause distress or anxiety. There are also harassment offences.

The sharing of images is not just a question for the criminal law; we also need to consider the responsibility of the platforms on which those images are shared. Victims need to know that such images will be taken down rapidly, and it is good to know that YouTube, Facebook and Twitter all have terms and conditions that state they will remove upskirting images when they identify them or are requested to do so by a user.

If someone takes an upskirt image and subsequently shares it, they will be fully punished for taking it, and any harm caused by the sharing of it would be taken into account in sentencing. The two-year maximum sentence for the new offence is a serious penalty that fully reflects the harm caused.

The offences in the Bill will tackle the taking of the photo. Existing offences already capture the misuse of communication networks, but, importantly, that issue is wider than the Bill can cover, and the Government are already looking at the broader issue of online abuse. In those circumstances, I urge that the amendment be withdrawn.

[Liz Saville Roberts]

Once again, I shall work with others to redraft and refine the amendment, in discussion with Members in the other place, with the intention of tabling it on Report. I beg to ask leave to withdraw the amendment.

Amendment, by leave, withdrawn.

[Stella Creasy]

I beg to move amendment 6, in clause 1, page 2, line 13, at end insert—

“(4A) Where a court is considering for the purposes of sentencing the seriousness of an offence under this section, and either or both of the facts in subsection (4B) are true, the court—

(a) must treat the fact mentioned in subsection (4B) as an aggravating factor (that is to say, a factor that increases the seriousness of an offence), and

(b) must state in open court that the offence is so aggravated.

(4B) The facts referred to in subsection (4A) are—

(a) if, at the time of committing the offence, or immediately before or after doing so, the offender demonstrates towards the victim of the offence hostility based on the victim having (or being presumed to have) a particular sex characteristic, or

(b) if the offence is motivated (wholly or partly) by hostility towards persons of who share a particular sex characteristic based on them sharing that characteristic.

(4C) For the purposes of subsection (4B), ‘sex characteristic’ means the protected characteristic of sex in section 11 of the Equality Act 2010.”

This amendment ensures that if the crime is motivated by misogyny then that will be considered by a court as an aggravating factor when considering the seriousness of the crime for the purposes of sentencing.

Oral Answers to Questions

Liz Saville Roberts Excerpts

Tuesday 10th July 2018 Commons Chamber

[Rory Stewart]

I have met the Department for Digital, Culture, Media and Sport and we have looked at two areas. We have looked at devices that can be used within the prison walls. As my hon. Friend the Member for North Cornwall (Scott Mann) pointed out in his speech on Friday, and in his question today, there is much more that we can now do by working with the mobile telephone companies to identify the exact frequencies and strengths of transmissions, to locate the mobile phones, prevent their use and analyse the traffic data.

[Liz Saville Roberts (Dwyfor Meirionnydd) (PC)]

24. Diolch yn fawr iawn. I rise as co-chair of the justice unions parliamentary group. Management at HMP Berwyn has made much of the use of digital technology as part of its innovative regime, but in recent days, prison officers there have lost teeth through being head-butted, have been injured, pushed down stairs and had excrement and urine thrown over them. I am told that violence against staff goes effectively unpunished, with prisoners spending only a few hours in segregation. Senior management lost a vote of confidence by prison officers last week. Given the Secretary of State’s announcement today, what will the Minister do to safeguard prison officers at Wrexham?

[Rory Stewart]

This is a very serious point and a very serious challenge. I will be following up this allegation with the governor. The governor has generally done a very good job in Berwyn, and the report that the hon. Lady raises is very disturbing. We must be clear that we have to support our prison officers. We are doing that through supporting a private Member’s Bill to double the sentence for assaults, and investing in body-worn cameras and trials of PAVA spray. But unless we have decent safety regimes, it is almost impossible to do other forms of rehabilitation. We need to learn from the prisons that are doing best in reducing violence. I pay tribute, for example, to Wandsworth, which has made a lot of progress over the past 12 months.

Voyeurism (Offences) (No. 2) Bill (First sitting)

Liz Saville Roberts Excerpts

Tuesday 10th July 2018 Public Bill Committees

[Alex Chalk]

Thank you.

[Liz Saville Roberts (Dwyfor Meirionnydd) (PC)]

Q We have already touched, forgive me, on the issue of motivation, but I think this is going to be critical to our considerations in this Bill Committee. As the Bill stands, it will need to be proven that there is either a sexual motivation or harassment. Do you have any concerns that a defence for people accused of this offence might be that it was accidental, and that that remains a loophole that needs to be addressed?

Gina Martin: I have spent enough hours sitting in enough meetings with my lawyer, Ryan, to understand that that is not something that needs to be worried about massively. Again, I am not a lawyer. There are ways of dealing with it and understanding case by case what happened. It is not the top concern that that would be an issue. That is my understanding.

[Liz Saville Roberts]

Q My second question is that if the taking of the photo is then found to be a crime with whichever motivations are finally accepted, to what degree, from the victim’s point of view, does distribution constitute harassment? Will that cause distress, and should the act of distribution, therefore, be considered within the Bill?

Gina Martin: For me, it is really important that the Bill sets out the intent and the action. Distribution is obviously distressing. I work specifically in digital and social media—that is my job—and a lot of work and education need to be done there to address this. It is really important to me that the Bill looks carefully at stopping and deterring people from committing the act in the first place.

[Maria Caulfield (Lewes) (Con)]

Q We will hear evidence this afternoon that there should be stronger penalties for those who take images of under-18s. On the Women and Equalities Committee, we heard evidence during an inquiry about how prevalent this is for younger people, even at school age. What is your view on the impact that the Bill should have in protecting people under 18 who are caught up in this?

Gina Martin: I think the Bill sets out to protect everyone across England and Wales, regardless of their age. It is very broad and it protects everyone. I am sure that the right steps will be taken depending on age, the offence and the way in which people take the photos.

--- Later in debate ---

[Gillian Keegan (Chichester) (Con)]

Q I want to thank you specifically, because I had not heard of upskirting until you started this campaign. I think a lot of people in the country are much more aware of it now. Until I started reading this, I had not heard of down-blousing either. What is your view on down-blousing and including it in the Bill? Is it a similar offence and intrusion to upskirting? Is it as popular? Is it happening at festivals, as we speak?

Gina Martin: I have heard about it. My personal experience is that all of the hundreds and hundreds of stories that have come to me over the past year have been about upskirting. I have not received that many stories about down-blousing. I do not know why that is. Of course, I think it is horrible. I would like to see a million things sorted out and prosecuted against. This being an upskirting Bill, I have to focus on that issue, but thank you for raising it.

[Liz Saville Roberts]

Q Gina, thank you for coming before us today. I know what you have gone through.

I understand that you want to see something move as quickly as possible. There are concerns that legislation that is made in haste is not necessarily always effective. We have had examples of that in the past. Would you consider that it is important that we are as thorough as possible in taking evidence and in looking at ways of making this piece of legislation as robust as possible, with as few loopholes as possible?

Gina Martin: Yes, of course I would.

[Liz Saville Roberts]

Q Would the fact that it should be done in two months override the need for thoroughness?

Gina Martin: No, of course not.

[Helen Whately (Faversham and Mid Kent) (Con)]

Q I want to raise a couple of things. First, you said that you have been hearing from hundreds of women. Is it your impression that this is happening all the time on a daily basis and really is extensive? As Gillian said, many people had not even heard of this until your campaign, but it seems to have suddenly brought something into the open. Is it your impression that it is really quite common now?

Gina Martin: Yes, and a big part of that is because a lot of women do not know it has happened to them. It is incredibly secretive assault. A study done recently by a women’s magazine asked women to give their stories of it anonymously. The feedback it got was that up to 80% of women said that they felt harassed and upset, but a lot women said that people had seen it happen to them. People feel that this is something that happens to women—and men and children—extensively, but they do not know it has happened because it is very hard to see it. I was lucky that I saw the picture. That is why we have not spoken about it for so long, and it has been normalised and accepted in society for so long. This campaign has ignited a conversation, so of course people have flooded in, talking to me. I am the only one who has ever gone out and said loudly that it has happened, so I think they trust me, which is nice.

--- Later in debate ---

[Mary Robinson]

Q Thank you for that answer. You seem to be implying that there is more scope for expanding this list of offences.

Assistant Commissioner Hewitt: I just think that this is a specific issue that needs to be dealt with. I don’t know if I really want to get into that here. It is worth making the point that we collectively need to focus on a number of image-based sexual offences. People are committing offences in ways they never did before because of the universality of the technology. Legislation can never keep up with every change, but the technology that exists, and our ability to obtain digital forensic evidence and to check things in the way that we can around offending, takes us to a place where we need legislation that fits the nature of the criminality.

[Liz Saville Roberts]

Q Thank you Assistant Commissioner for the information so far. What interests me is that you raise the issue of the exponential growth in digital imagery offences, and you also touch on the growth of 8% to 9% of the sex offenders register. Obviously we have to keep a balance to take into account capacity, but nonetheless we should not be restricting what we legislate for. Growth should not be a motivation for us to cease legislating. How could you advise us to keep the appropriate balance? Looking at this growth in digital imagery crime and in the sex offenders register, the wider question is: what practices need to be changed, and what support do police forces need in order to enforce and bring evidence for successful prosecutions?

Assistant Commissioner Hewitt: There is no doubt that we have been wrestling for some time with a dilemma in exactly the way you describe. Developments in technology have enabled a whole range of offending that previously would still have taken place, but in a very restricted and challenging way.

Consider the issue of indecent images: previously it was difficult for somebody to access indecent images. They had to find their way into very specific websites and undertake a series of acts to get there and do what they did. Indecent imagery is now almost readily available in so many spaces, and this means that far more people are accessing it either deliberately or inadvertently. Equally, there is the technology we use to spot when particular computers are accessing that imagery. We are in a situation in which there is a real volume challenge for us. The legislation point needs to be clear at the outset that doing this is illegal, and in this instance we do not have clarity around the specific issue of upskirting, so we need legislation that clearly says that—in the circumstances described—“This is an illegal act”.

The question then is how we respond, and how the system deals with that illegal act. In the first instance it would require awareness, training and understanding to be shared between police forces so that all officers were aware of the new legislation—as we would do with any new piece of legislation—and so that they understand what their powers are and what needs to be done. Then you get into the use of discretion and how you apply the legislation, as you would under any circumstances. For example, where it involves a 15-year-old and a 15-year-old, we need to think and then apply the usual logical approach that would be applied to whichever outcome you were seeking. The system would need to be able to look at whether certain offences were suitable for a caution or some form of warning. We do not want to be dragging loads of young people into the criminal justice system unnecessarily. With image-based sexual offences, you always have that challenge of trying to understand the level of risk presented by the offender, whether it is the viewing of images or upskirting. Some offenders will do no more than take a photograph or view an image, but some may be contact offenders or be escalating in the nature of the offending, and our challenge is always to have systems and processes in place that allow us to try to identify what the risk level is. Even among those registered sex offenders I spoke about, there are clearly RSOs at the top end who are the highest risk RSOs for whom we have significant control mechanisms, and then others at the lower end, where there is a much lighter level of control.

What you wrap into that, as I said at the very beginning, is what we do in terms of publicity and getting the information out there, not just to the police but to the broader public, about what this legislation says, why it is being done and what it says about what we expect and do not expect. I think that will have a really positive impact. You then broaden that out to all the spaces where this offence might take place, for people to become more aware of it. Looking at the offences we have dealt with most, there are obviously quite a few on transport systems, but they are also in supermarkets, shops and places like that. There is an awareness thing that can go on, and then it really is about dealing proportionately with the offending.

All those things are challenges, but I do not think that any of them take us away from the fact that these acts are illegal—they should be very clearly and specifically illegal. Particularly in this instance, they are also incredible distressing and harmful to the victim, but we have to try to find an ability to operate proportionately, and that gets us into some difficult debates about the images online.

[Liz Saville Roberts]

Q You emphasised earlier the significance of harassment and distress suffered by the victim. How do we ensure that that is safeguarded as a primary issue and that there is not an inappropriate defence of accidental motivations, or alternative ones such as profit? How do we ensure that we safeguard the victim experience as the priority driver?

Assistant Commissioner Hewitt: It is partly about how the investigation is run. There may be circumstances in which someone could run an accidental defence, but it seems unlikely to me. Not only do you have the evidence that the individual provides you with from what is on their phone, but often, in many of the places where this is happening, you have evidence from internal CCTV—in a supermarket, on a train or wherever. The point for me is that we then ensure that we utilise the mechanisms we have, such as the victim impact statements, when we are prosecuting. The evidence from the victim and the impact on them can very clearly be presented in court. Frankly, even if someone did try to say that it was done accidentally, that would not change the distress caused to the person realising that someone had taken a photograph up their skirt. Whether they could successfully run a defence that said, “I accidentally did that”, would depend on the way in which we conducted our interviews and how the CPS carried out the prosecution.

[Andrew Jones (Harrogate and Knaresborough) (Con)]

Q Thank you, Assistant Commissioner, for your answers this morning. You mentioned the desire not to unnecessarily criminalise younger people. I am keen to close this legislative gap in a proportionate way, drawing a distinction between the stupid occasion and the repeated pervert. How do the police tackle the existing offences, such as sexting, for those who are under 18?

Assistant Commissioner Hewitt: You look at all the circumstances. When the figures are produced on other sexual offending, for example, there will often be a lot of criticism levelled at us about people who get cautioned. We will, on occasion, caution people for rape offences, but if your victim and your offender have mental health issues or a mental impairment, we will take decisions based on all the circumstances. You are looking at the circumstances of the victim and of the offender, and on that basis, you will make a judgment. If you have an adult offender and a child victim, that is clearly an aggravating factor, but you will also have mitigating factors, as I said. If you have two 15-year-olds or 14-year-olds, there are mitigating factors around that, but as you alluded to in your question, if it emerges that that 14-year-old offender has done it on numerous occasions, or there is a repeated pattern of behaviour, again, that would clearly be an aggravating factor.

We would then work with the Crown Prosecution Service to identify what the correct disposal and the correct charge would be—probably the charge would be the same—and whether we would dispose of it in a charge way or whether we would use some other form of control. It is difficult to come up with a clear line. It is about individual cases and looking at the circumstances, including the nature of the offence, the nature of the victim and the circumstances of the victim and the offender. When you work against those three areas, in the centre of those criteria or questions, you come up with what you think the most appropriate position is.

We are facing that a lot with people who are sharing images. If a teenager takes an image of another teenager, having possession of that is an offence. Once you pass that around, that is another offence. We have to constantly ask the question, proportionately, what is the right thing to do? Is that the ill-advised behaviour of a 15-year-old who needs to learn some lessons and change what they do, or are they someone who needs to end up in the criminal justice system? That is a constant balancing act, particularly when you bring juveniles into play. Equally, you could get someone who does it and who has a mental health condition. They may be a 30-year-old, but they may not have the capacity of a 30-year-old. Every case will have to be dealt with on its own merits.