Human Trafficking

Debate between Lord Field of Birkenhead and Peter Bone

Thursday 20th December 2012 Westminster Hall

[Mr Peter Bone (Wellingborough) (Con)]

It is a great pleasure to serve under your chairmanship, Mr Robertson. I thank the Backbench Business Committee for granting this debate, the first we have ever had in Parliament on the Government report on human trafficking. I welcome the Minister for Immigration, my hon. Friend the Member for Forest of Dean (Mr Harper), to this debate on the first annual report by the Inter-Departmental Ministerial Group on Human Trafficking. I also welcome him as chairman of the group, and I look forward to his input. The first thing he could do is to rename the group something catchier and easier to pronounce. It would also save a lot of trees if it were a shorter name to print.

I welcome the publication of the first annual report on human trafficking, promised by the Government as a fulfilment of the group’s role as the equivalent of a national rapporteur, as set out in the EU directive. As my colleagues may know, I am not always wholly supportive of the European Union, but on this occasion I think it was absolutely right that we opted in, and I think the pressure from the all-party parliamentary group against human trafficking helped the Government come to their sensible conclusion.

To pick up on something the Government have put into legislation as a result of the directive, the Protection of Freedoms Act 2012 now allows UK nationals who commit trafficking offences to be prosecuted even if those offences are not connected with the UK. That is a welcome change in the law, as is the power to prosecute traffickers for non-sexual trafficking offences for the first time.

Before moving on, I thank the Government for what they have done and for their commitment to fighting the evil crime of human trafficking. What I say in this debate will be constructive criticism; I will delve into the report and suggest areas where the Government could improve. My hon. Friend the Minister will not be surprised if I start with the rapporteur situation. I had a great deal of difficulty finding the relevant part of the report, but it is right at the end, in chapter 10, paragraph 19.

Under the EU directive, it is recommended that a national rapporteur report independently on the Government’s action against human trafficking and be the overarching body for collecting intelligence. In my view, setting up a national rapporteur could reduce the cost within Departments. An independent rapporteur might also be more approachable by non-governmental organisations that might be sceptical of a Government-led organisation, which would lead to greater data sharing and a better picture of the real number of trafficking victims.

Other European countries have appointed a national rapporteur. The rapporteur for the Netherlands is a former judge, and the Finnish rapporteur is a former Member of the Finnish Parliament. They do an excellent job in scrutinising their respective Governments’ action against human trafficking, as well as acting as a liaison with NGOs. The problem is that our Government have read the small print in the EU directive saying that countries can have an equivalent of the national rapporteur, which is what the interdepartmental ministerial group is.

The group did not start as a great success. In the first 18 months, it met twice, and two thirds of the Ministers gave their apologies. I know the Minister will say that that has been dealt with, the group has published its annual report and it is doing its best, but I still do not see how a group of Ministers can independently scrutinise what the Government are doing. That is also the view of the all-party parliamentary group. Of course, we will wait to see whether the interdepartmental ministerial group is successful, but we have a big question mark over that.

The Government have rightly given over a whole chapter, chapter 2, to data and a true picture of human trafficking. The report says, and the UK Human Trafficking Centre’s baseline assessment of the nature and scale of human trafficking in 2011 highlights, that the true number of trafficked victims is likely to be higher than the 2,077 reported in 2011. The figures recorded by the UK Human Trafficking Centre and the national referral mechanism are only for victims who have been rescued and have agreed to go into the system. That is a bone of contention, especially with the NGOs. I am grateful to all the NGOs that gave input into the research that went into my speech, and I particularly thank my researchers Adam Trundle, Jack Spriggs and Emma Wade for their efforts in putting it together.

Irrespective of how we come up with the number of victims, it is a number of victims. Let us suppose that the figure of 2,077 is the correct number of rescued victims in the UK last year. The NGOs would say that it is higher, but assuming that it is correct, does that represent 10% of the overall number of people trafficked? If so, more than 20,000 people were trafficked into this country last year. If the figure represents 5%, we can double that number. Whatever figure we use, trafficking is a huge problem. It is an evil crime, and we are not yet getting to the bottom of the scale of it. My hon. Friend the Member for South West Bedfordshire (Andrew Selous) may wish to talk later about what was in effect a slave camp in his constituency that existed for almost 30 years without anybody noticing. I think the level of trafficking is a great deal higher than has been recorded, and we must work towards a solution.

I turn to the section I consider the most important. To be fair to the Government, they highlighted it in their initial strategy as one of the most important. In chapter 6, the Government recognise the vulnerability of child victims of human trafficking. However, the report says little about care arrangements for trafficked children. There is just one paragraph about it, 6.1.

Support and care for child victims of trafficking is one of the most important issues that need addressing in the UK. Under current legislation, child victims of trafficking are treated much like any other at-risk children and are under the primary control of local authorities, which often means they are placed in care homes with non-trafficked children, where security and staff observation are limited. Unfortunately, that has led on many occasions to the horrifying situation of a child who escaped trafficking being trafficked once more.

To put that in perspective, let us take a 15-year-old child who has been trafficked into this country and forced into prostitution. If we actually think about what prostitution is, anyone in prostitution who does not want to be there is suffering repeated rape day after day. Lo and behold, the police come and rescue her, and they do a really good job of it; the police are very good at rescuing victims. If all that happens is that she is put in a care home, and the traffickers know where she is, they can re-traffic her. That is a scandal. There has been some national publicity relating to internal trafficking, but the problem remains.

Many local authorities are not even aware of the dangers of human trafficking of children in care. They often report missing children as just missing, without investigating the possibility that they have been re-trafficked. Responsibility for children’s care locally falls on local authorities, but nationally it falls on the Department for Education. Instead of a clearly defined Department or authority in charge of trafficked children’s care and welfare, there is confusion over who is ultimately accountable.

For the first time in this country—I certainly cannot think of another example—the provision of care for trafficked adults is better than that for trafficked children. How we treat child victims of trafficking is the key issue the Government face in our fight against this great evil. A Government contract of nearly £2 million to the Salvation Army includes support and accommodation for adult victims of trafficking. The big society model of allowing the Salvation Army to allocate resources to local charities around the country leads to a system of care and protection that allows adult victims of trafficking to return home, or recover and live a worthwhile life in this country. There is no such independent, specialised provision for child victims of trafficking.

The welfare of children is the responsibility of local authorities, which often do not recognise that trafficking is an issue in their areas and often provide substandard care to trafficked children. As co-chairman of the all-party group on human trafficking, I issued a freedom of information request to all local authorities on the number of trafficked children in their care; very few were able to give me any numbers whatsoever. When I asked the few who took the matter seriously how many of those children then disappeared, the answer was that a staggering 80% to 90% went missing again. That is not good enough. I do not criticise the Government; they have recognised the problem and initiated a pilot scheme.

Barnardo’s currently leads the pilot scheme for children-centred, care-orientated safe homes. They are designed for child victims of trafficking only and provide them with the necessary support, which the local authority care system does not provide. Recently, nine child-centred non-governmental organisations, including Love146 and Barnardo’s, formed an alliance on care for trafficked and exploited children. The alliance recently made a bid to the Department for Education to deliver specialised residential care for child victims. If successful, it will be able quickly to set up five residential care homes. It is an excellent example of how Government funding can be used in conjunction with committed, child-focused NGOs that can set up and run safe homes for child victims.

We always think we are ahead of the game and on top of social care. In 2010, I went to see a safe home in the Philippines. Children who had been trafficked in the most horrible way came into the home traumatised, and left within two years. I attended the wedding of one of the trafficked children. We should be able to run that sort of project in this country, and not let these poor children be re-trafficked.

I strongly urge the Minister and the Government to expand the Barnardo’s pilot scheme into a national policy and seriously to consider adopting child safe homes as an alternative to local authority care for trafficked children. It will have cost implications for the Government—in that it will save them money. For example, local government pays £30,000 a year to look after a child in the normal system; but give just a part of that money to the NGOs and they would look after that child far better. The child could go into society, could go home, as a proper individual. It is the biggest single element of the problem.

I am sorry that my speech is running a little longer than I had hoped. I want to cover a couple more points. Chapter 5.50 of the report refers to the joint investigation teams. The Government rightly recognise the good job that JITs do. I recently attended a seminar hosted by the all-party group for global uncertainties. Detective Chief Inspector Nick Sumner, from the specialist and economic crime command at the Metropolitan Police, gave us a good insight into the law enforcement side of human trafficking. He mentioned the vital role that JITs play in combating trafficking at home and abroad, the results of which can be seen already, for example in Operation Golf in 2008. That joint operation between the Romanian and British police and prosecution services was a resounding success, with 87 people arrested for trafficking offences and 272 victims rescued.

Detective Sumner raised the issue that funding for JITs is not guaranteed in the future. I strongly recommend that this vital resource be well funded and supported, because the results of such bilateral operations seem to show that they are the most successful way to tackle and destroy these gangs. To get on top of human trafficking, we must destroy the gangs of serious criminals involved. Trafficking is the second most profitable organised crime, behind drugs. The advantage of it is that there is much less chance of being caught. We must protect the funding for JITs.

Chapter 6.57 mentions international development aid. The Government have only just started to realise the great advantage of such aid, and a little bit is happening. Overseas aid money could be usefully spent in source countries in two ways. First, it could be spent on prevention measures, which we would all welcome, such as paying NGOs to promote education, perhaps in schools and universities, warning of the dangers of trafficking. I saw such schemes in Moldova.

Secondly, we need the money to be given to NGOs, in Romania for example. There are trafficking victims in this country whom we are looking after at taxpayers’ expense—£30,000 or £40,000 a year—and who want to go home but cannot, because their families would be persecuted or, worse still, they would be re-trafficked if they went back to their village. Sending them home to safe houses—in Romania, for example—run by local NGOs with the support of our overseas aid money would be a good use of that money. I have discussed this with the Secretary of State for International Development and she seemed sympathetic. I wrote to her with suggestions.

I shall pass over the next point I was going to make and move on to my last couple of points. Chapter 4.28 covers victim prosecutions. It is a difficult issue and I understand the Government’s problem. The non-governmental organisations and I say that if someone, perhaps a young child, is trafficked to work in a cannabis factory in this country—a criminal activity—and that factory is raided and broken up by the police, the child working in the factory should not be prosecuted, because they were trafficked. They were not given an option; they were forced to perform the illegal activity. The Attorney-General has repeatedly given Government assurances that it is not Crown Prosecution Service policy to prosecute such people, but NGO after NGO has cases of people forced into illegal activity and then prosecuted.

I agree with the Government on one issue. The report states:

“A small number of trafficked victims may be prosecuted for offences they have committed as a consequence of their trafficking situation”.

The NGOs that I work with would throw up their hands in horror at that and say that it is wrong, but I understand that there is a moral dilemma. If someone is trafficked for sexual exploitation, they get into prostitution, though they may not want to, and move up the gang chain. They then become a recruiter of young girls, by moving back to their home country and trafficking girls, while knowing full well what the girls will have to go through. I agree that there is a case for prosecuting those people.

Finally, I turn to an omission that I hope was made in error. Nowhere in the report is there mention of the all-party group on human trafficking. It may be that the Prime Minister deliberately wanted my name removed from anything relating to Government; I quite understand that possibility.

[Mr Frank Field (Birkenhead) (Lab)]

But not Mrs Bone’s.

[Mr Bone]

No. Mrs Bone is not mentioned either, which is an even greater sin.

I am sure that the Prime Minister recognises the great work done by the all-party group, which I want to speak more about. It was originally set up by the most knowledgeable and brilliant person in the fight against human trafficking—Anthony Steen, the former Member of Parliament for Totnes, who I think is following this debate closely. It is one of the largest all-party groups in Parliament, with more than 60 members from the Commons and the Lords, and representatives from every political party. This parliamentary group, which I am honoured to co-chair with Baroness Butler-Sloss, has put pressure on the Government to sign up to the EU directive, asked parliamentary questions to hold the Government to account on human trafficking and scrutinised the Inter-Departmental Ministerial Group on Human Trafficking to ensure that it meets regularly and delivers an annual report, which we are now happily debating.

The all-party group seeks to increase awareness of the evil of human trafficking, not only at home but across Europe. Through funding from the EU Commission, members of the all-party group have travelled to other countries’ Parliaments to create a European network to raise awareness of the national and transnational nature of human trafficking. Some European countries have been very good, but the French and the Germans say that there is no trafficking in their countries, which is completely absurd. We want to create a network of European groups or sub-committees that are similar to the all-party group—APGs are not recognised in other Parliaments—and we are working towards that.

The Anti-Slavery Day Act 2010 was skilfully taken through Parliament by Anthony Steen in the dying days of that Session. While we were all worrying about our seats, Anthony was busy railroading it through. As a result, anti-slavery day is celebrated on 18 October each year. I pay tribute to the Prime Minister, who held a reception at No. 10 Downing street, for his key interest and support in this area, which is a key priority of the coalition. I also thank Anthony Steen for his extraordinary work. If it had not been for him, that Act would not have happened and, more importantly, there would not be this level of awareness about human trafficking.

There is one action that I want the Minister seriously to consider. The Prime Minister has appointed ambassadors in many other fields; if he appointed Anthony Steen as one on this issue, he could be introduced with the authority of the Prime Minister when we visit overseas Parliaments. I welcome all that the Government and the Minister are doing, but I think that that would be one easy step to take.

--- Later in debate ---

[Mr Bone]

I am very grateful to you, Mr Havard, for allowing me to sum up what I think has been one of the most interesting debates that I have attended. It has benefited greatly from the fact that the speeches have been thoughtful, constructive and in no way party political. I thank all the Members who have spoken for that; of course, they are all members of the all-party group on human trafficking.

I also thank the shadow Minister, the hon. Member for Stretford and Urmston (Kate Green), for her comments, which I thought were useful, constructive and expressed in the right spirit.

Briefly, I want to thank the Members who spoke, starting with the hon. Member for Slough (Fiona Mactaggart). I thank her for getting off her sick bed, coming in and powerfully making her point, partly in relation to the rapporteur and partly in relation to domestic visas. I will make a quick comment on domestic visas. I say to the hon. Member for Linlithgow and East Falkirk (Michael Connarty), who is one of the deputy chairs of the all-party group, that a debate on that subject would be a very good debate that we should press for. The Backbench Business Committee method is something that the all-party group should look to use in the new year. That would allow us to debate all the issues and to highlight the different opinions on domestic visas.

What I recognised from the debate was the fact that, although there was no collusion, everybody from the Back Benches acknowledged the need for an independent rapporteur. We will come back to that issue again, especially if we feel that the Inter-Departmental Ministerial Group on Human Trafficking does not do its job. If the Minister does not change the group’s name, that will be good enough reason for anyone to think that we need a rapporteur.

I thank all Members for speaking. My hon. Friend the Member for South West Bedfordshire (Andrew Selous) told an extraordinary story, and he put it most powerfully. Anyone listening to that story realises that such events can happen anywhere.

The right hon. Member for Birkenhead (Mr Field), who unusually made a prepared written speech for this debate—

[Mr Frank Field]

Never before.

[Mr Bone]

Indeed; it is unique. The right hon. Gentleman’s speech was really powerful, but everyone who spoke did so exceptionally well. I am very grateful to everyone who attended today and to the Backbench Business Committee.