Public Order Bill

Debate between Lord Bishop of Manchester and Lord Coaker

Committee stage
Tuesday 22nd November 2022 Lords Chamber

[The Lord Bishop of Manchester]

My Lords, first, I declare my interest as co-chair of the National Police Ethics Committee for England and Wales, though I am speaking on my own behalf. I want to focus my remarks on the amendment opposing the question that Clause 12 stand part of the Bill, to which I am a signatory, but also on those opposing the questions that Clauses 10, 11, 13 and 14 stand part of the Bill. I am grateful to the noble Lord, Lord Paddick, and the noble Baroness, Lady Jones, for the way they have introduced this debate.

It is deeply concerning that the Bill seeks to extend suspicion-less stop and search powers to the context of protest. If brought forward, such measures would open a Pandora’s box for the further misuse of such powers that have in many contexts caused trauma, both physically and mentally, particularly to those in marginalised communities. The proposers of these clauses may have in mind the current environmental protesters, who appear, somewhat unusually, to include a large proportion of those from white, middle-class backgrounds, notably one of my own clergy. But history tells us that such powers, after a short time, are almost invariably and disproportionately used against minorities, especially ethnic minorities.

I would not be involved with the police in the way that I am if I was not passionate that our forces should gain and hold the confidence and respect of all sections of our society. But I know all too well how fragile that respect and confidence are. Police powers that are not grounded in suspicion create suspicion, and they create suspicion in those parts of society, as the noble Lord, Lord Paddick, has so eloquently indicated, where we can least afford it.

We must note when considering the Bill’s creation of a new stop and search power in relation to specified lists of protest offences that there is—as has been referred to—no agreed position among police forces that such a power is either necessary or wanted. When you add to this the fact that the definition of “prohibited objects” is so broad—the noble Baroness, Lady Jones, has referred to bike locks, but it could be posters, placards, fliers or banners—I am not sure about jam sandwiches, but I suspect it fits in somewhere; all could become suspect. How would the police ascertain that such objects were in fact for use at a protest? There are lots of legitimate reasons why you have household objects with you. The Joint Committee on Human Rights states:

“A suspicion of such an offence, even a reasonable one, in the course of a protest represents an unjustifiably low threshold for a power to require a person to submit to a search.”


There are serious risks here for people’s ability and willingness to exercise rights that are fundamental in a democratic society.

The Bill attempts to address what it refers to as “public nuisance”. But its scope is too broad—arguably, any form of protest risks “public nuisance”. Indeed, in these very halls of Parliament, four suffragettes chained themselves to statues to bring attention to their demands for votes for women; we must ask ourselves whether our contemporary context allows space for similarly important issues to be protested on. As things stand, these clauses risk a disproportionate interference with people’s Article 8, 10 and 11 rights as set out in the Human Rights Act.

This country has long prided itself on being a democracy, this Parliament is at the heart of that, and one of our duties is to ensure that the rights and freedoms necessary to such a system of governance are not undermined. Those rights and freedoms include the right to peaceful protest. Therefore, should these provisions remain at a future stage, I will vote to oppose the questions that Clauses 10 to 14 stand part of the Bill.

[Lord Coaker (Lab)]

My Lords, I rise to speak to the clause stand part amendments in my name. In doing so, I thank the noble Lord, Lord Paddick, the noble Baroness, Lady Jones, and the right reverend Prelate the Bishop of Manchester for their supportive remarks and the views that they have expressed, which I very much support.

Stop and search can be a frightening experience; it can be intrusive and intimidating. There are real concerns, as the noble Lord, Lord Paddick, outlined, about disproportionality, and a point that nobody has yet made is that it can be used against children, worries which matter so much in any democracy.

I am going to spend a few minutes going through this. The Chamber is not packed, but a lot of noble Lords will read our deliberations in Hansard, and this is one of the most important parts of the debate in Committee that we are going to have, as the right reverend Prelate the Bishop of Manchester outlined.

Despite these concerns, Parliament has given police the power to stop and search with suspicion for items such as offensive weapons, illegal drugs and stolen property. In its recent report, the Joint Committee on Human Rights accepted that stop and search with reasonable suspicion was appropriate in certain circumstances. However, as the noble Baroness, Lady Chakrabarti, and the noble Lord, Lord Paddick, are arguing through their Clause 10 stand part notice, is it right that these stop and search powers should be extended to peaceful protest? For example, new paragraph (g) inserted by Clause 10—I urge noble Lords to reread that clause—extends stop and search powers to an offence of

“intentionally or recklessly causing public nuisance”,

when we know how wide the scope of “causing public nuisance” can be. Can the Minister explain what, in the Government’s view,

“intentionally or recklessly causing a public nuisance”

actually means? We would be passing this in new paragraph (g).

By creating a risk of causing serious inconvenience or serious annoyance through your actions in the course of a protest, or preparation for or travel to a protest, you would have to submit to a search under the Bill. How would an officer know my intention? Extending the stop and search powers to cover searches for articles connected with protest-related offences risks encounters between the public and the police where there is little or no justification. Does the Minister agree with that? People on their way to protests, marches, rallies or demonstrations are at risk of being searched in case they are equipped to commit one of those offences—or so the police believe.

As the noble Baroness, Lady Jones of Moulsecoomb, has just articulated with reference to her Amendments 100 and 101—this is the purpose of a Committee—what on earth do the Government mean by “prohibited” items? It is incumbent upon us to give some indication of what we consider prohibited items to be. It is easy to scoff when the noble Baroness, Lady Jones, asks if that includes a bicycle lock—but does it? I think it is quite right to ask that question.

This takes us to Clauses 11, 12, 13 and 14. Even if one thinks that stop and search with reasonable suspicion may be appropriate, to stop and search for prohibited items without suspicion, looking for articles with respect to peaceful protest, is not where this country should be going or what this Parliament should be legislating to allow the police to do. The application of suspicionless stop and search powers was previously reserved for use in the most serious circumstances, such as the prevention of serious violence, gun and knife crime, or indeed terrorism. Is this where we want our democracy to go—to use stop and search powers that we have previously said should be used only in relation to the prevention of terrorism or serious violence? We are now saying that they are appropriate to be used to search people going to a peaceful demonstration for prohibited items.

The Minister needs to explain—this is the purpose of my clause stand part notices, even though we are in Committee—why the Government think that is appropriate, whether the Minister agrees that it is appropriate, and why the Government believe it is necessary to give terrorist-related powers to the police to deal with peaceful protest. That is the purpose of my clause stand part notices for Clauses 11, 12, 13 and 14 on the creation of the suspicionless stop and search power in relation to a list of specified protest offences. I am grateful for the support of the noble Lords, Lord Paddick and Lord Anderson—who is not in his place—the noble Baroness, Lady Chakrabarti, and the right reverend Prelate the Bishop of Manchester. I know there are others; the noble Baroness, Lady Jones, has just said that she supports it. My reason for opposing these clauses is to ask the Government to justify such an extension of power to the police in the context of peaceful protest.