Counter-Terrorism and Sentencing Bill

Lord Anderson of Ipswich Excerpts

Committee stage & Committee: 1st sitting (Hansard) & Committee: 1st sitting (Hansard): House of Lords
Tuesday 26th January 2021 Lords Chamber

[Lord Anderson of Ipswich (CB) [V]]

My Lords, it was an honour to put my name to this amendment, moved by the noble Baroness, Lady Prashar, with her experience as a former executive chair of the Parole Board for England and Wales. As she said, Clause 27, which this amendment would replace, aims to remove the role of the Parole Board in the case of certain dangerous terrorist offenders who have been given a determinate sentence. Clause 27 would do this by amending Section 247A of the Criminal Justice Act 2003, itself dating from only last year, which currently requires the Secretary of State to refer terrorist offenders serving any determinate sentence to the Parole Board at the two-thirds point of the custodial term.

There are instinctive attractions—including, no doubt, electoral attractions—in providing for all dangerous terrorist offenders to serve their entire sentences in prison. But the notion that such offenders are uniquely incorrigible is not supported by the facts. I remind the Minister of a Written Answer that I received from the noble and learned Lord, Lord Keen, last February, revealing that, of the 196 terrorist offenders released from prison in England and Wales in the seven years from January 2013, only six—barely 3%—had committed another terrorist offence by the end of that period. This illustrates a pattern of surprisingly low terrorist recidivism rates around the world, expertly analysed by Andrew Silke and John Morrison in an ICCT policy brief of September 2020 aptly entitled Re-offending by Released Terrorist Prisoners: Separating Hype from Reality.

This is not an argument for complacency. It most certainly does not mean that all is well in our prisons, but it is something to consider before we dispense with the Parole Board in the circumstances that Clause 27 would effect.

My successor but one as Independent Reviewer of Terrorism Legislation, Jonathan Hall QC, has been referred to today with wholly justified approval by at least two Ministers and numerous other noble Lords, so we should listen to the three reservations that he has voiced on Clause 27. First, it would remove the possibility of early release

“as a spur to good behaviour and reform for offenders who are going to spend the longest time in custody”.

At the same time, it would deprive the prison authorities of an important tool for prisoner management. Secondly, it would remove the opportunity to explore current and future risk at Parole Board hearings. Thirdly, it would remove the opportunity for early release of

“child terrorist offenders, whose risk may be considered most susceptible to change as they mature into adults”.

I endorse what the noble and learned Lord, Lord Falconer, said about that and the public safety implications in the last group.

Those reservations are addressed by this amendment and by the following group. I look forward to hearing what the Minister, whom I welcome warmly to his place, has to say about them.

[The Deputy Chairman of Committees (Lord McNicol of West Kilbride) (Lab)]

We have been unable to reach the noble Lord, Lord Ramsbotham, so we now move to the noble Lord, Lord Faulks.

--- Later in debate ---

[The Deputy Chairman of Committees (Lord McNicol of West Kilbride) (Lab)]

I call the next speaker, the noble Baroness, Lady Prashar. No? We will come back to her. Let us try the noble Lord, Lord Anderson of Ipswich.

[Lord Anderson of Ipswich (CB) [V]]

My Lords, I have once again signed up to the amendments tabled by the noble Baroness, Lady Prashar. I do not want to repeat what I said on the last grouping, so I will raise just two additional points. The first is the risk of inconsistency that Clause 27 and its companions could bring into the law. They of course apply only to determinate sentences, so does this not raise what the independent reviewer has described in a recent series of tweets as the

“uncomfortable possibility that offenders may be ‘better off’ if sentenced to life imprisonment than extended sentences”?

He illustrated that observation with the case of the Anzac Day plotter—recently released on the recommendation of the Parole Board, having been convicted at the age of 15—and the decision last week of the Court of Appeal in the case of the St Paul’s suicide bomb plotter. The Minister and others might want to reflect on those cases, and on the observations of the independent reviewer before Report, when I suspect that we may need to come back to this.

Secondly, since the Minister accepts that the prisoners who would be affected by Clause 27 are not always incorrigibly violent, and since he does not take issue with what I said about the very low terrorist recidivism rates, is he not tempted to accept that there might be cases—perhaps rare—in which the Parole Board would feel able to recommend their release?

[The Deputy Chairman of Committees (Lord McNicol of West Kilbride) (Lab)]

We still cannot reach the noble Lord, Lord Ramsbotham, so I call the noble Lord, Lord Naseby.