Counter-Terrorism and Security Act 2015 (Risk of Being Drawn into Terrorism) (Amendment and Guidance) Regulations 2015
Lord Hannay of Chiswick Excerpts(9 years, 8 months ago)
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Lord Hannay of Chiswick (CB)
My Lords, will the Minister accept from me—because I was very active in the earlier discussions—my thanks to him and his department for having taken pretty full account of a lot of the points that were made in those debates in bringing forward this guidance? That is admirable and something that we should be grateful for.
I want to raise two or three very small points. The first is one that the noble Baroness, Lady Lister, raised on the vexed issue of non-violent extremism. The Government have consistently refused to define what they mean by non-violent extremism, so they are now passing this extremely hot potato straight to the universities and expecting that they will do better than the Government and will be able to define non-violent extremism. Well, the Minister has one last chance now to do something about that and I ask him to do it. The failure of the Government to say what they mean by this extremely nebulous concept of non-violent extremism is putting universities in a pretty difficult position.
Secondly, I would be grateful if the Minister would note that I take a different view from that of others about the omission from this guidance of any guidance on visiting speakers and lecturers. The Government are very wise not to have rushed into this. Contrary to others who spoke in the debate, I think that, even if it takes the new Government quite a time to work out how to grasp this extremely painful nettle, they should take that time and not dash into it because this is the single most difficult issue.
Finally, there is the issue of the Prevent co-ordinators. It is quite clear from the guidance that the key to this is going to be the sensitivity with which the Prevent co-ordinators and universities are able to work together. That will require the Prevent co-ordinators to show real understanding and sensitivity on how universities work and what makes them worth while. I hope not only that universities will spend a lot of time and resource on Prevent training but that the Home Office will spend a little time and money on training Prevent co-ordinators in how universities work and why it is in our interest that they should continue to work effectively.
Lord Judd (Lab)
My Lords, I hope that the Minister will take seriously the points which have just been made by the noble Lord, Lord Hannay, and, in particular, the contribution of my noble friend Lady Lister. Universities are crucial—this is not to overstate the case—to the future of the species. They must be centres of excellence, of course, but they must also be centres of scholarly excellence, free exchange and originality on an international basis—because any relevant university in our age must be an international community. We have to be careful surely in all that we do that we do not unintentionally inhibit the quality and freedom of discourse, discussion and analysis that are central to humanity’s future.
It cannot be overstated just how huge the challenges to the security services are. They are tremendous, and the work that they do on behalf of us all cannot be commended often enough. However, I have a conviction, which I am sure is shared by many noble Lords, that the ultimate battle against this evil which confronts us is in the minds of men and women across the world. We build the ultimate safeguards and the ultimate strength in what people think, feel and have as their values. In that context, the contribution by universities is very special. We must be careful therefore that we do not do things which are counterproductive. Of course, it is a very difficult balance, and I sympathise across the Floor with Ministers and others, and certainly with officials, who grapple with this issue—but we must be careful all the time that we are not eroding what makes universities so important and attracts so many people from across the world to our own universities.
One other thing that I feel strongly about on this matter—again, I am certain that I am not alone—is that we must beware of giving the extremists victories. They are dedicated to destroying our society. If we ourselves get the balance wrong and begin inadvertently to undermine those things which are precious and special to life today and to our future, we give the extremists a victory. From that standpoint, the points that have been made about the care that needs to be taken with the role of education are very important.
Having said all that, I want to put to put on record how much I admire the Minister’s response to discussion on the Bill throughout its passage through Parliament. He sets particularly high standards in listening and trying to respond. I do not want to embarrass him or put him in a difficult position, but I am always reassured because I think that, instinctively and intellectually, he is on the side of the arguments that I have just put forward.
Counter-Terrorism and Security Bill
Lord Hannay of Chiswick Excerpts(9 years, 10 months ago)
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Baroness Williams of Crosby (LD)
My Lords, I, too, wish to echo the thanks to the Minister for his persistence and patience. I am also grateful to him for letting me know that he and his officials are discussing consultation with universities and students with regard to the guidance offered by the Minister. As it happens, I spent Friday with a group of young sixth-formers from, I suppose, every kind of ethnic and religious background, a substantial proportion of whom were Islamic. They all strongly took the view that it was very important to enable discussion and debate to take place at their age level. They suggested, very sensibly, that the Government could help by, for example, encouraging political parties and Cross-Benchers to suggest the names of people who might be willing to speak to sixth forms of that kind and to respond if a school asks for a speaker without itself having one in mind. That was a very good suggestion by these young men and women. I hope very much that the Minister will persist with his discussions with the officials. It is crucial that young people feel themselves involved and part of the whole effort to try to deal with terrorism in this country.
Lord Hannay of Chiswick (CB)
My Lords, I add my thanks to the Minister for the latest amendments that he has tabled, which met very clearly points made by me and others in the debate on Report. I hope that he will not feel the need to answer too clearly the question put to him. In the professional field in which I practised for many years, clarifications were what you called changes of substance that you did not wish the Opposition to be able to say was a change of substance.
Lord Lamont of Lerwick (Con)
My Lords, the Minister has been absolutely showered with garlands and bouquets. I am sure they are extremely well deserved and I am very reluctant to strike a discordant note—and I will not. However, I wish to follow the point made by the noble Baroness, Lady Williams, on the guidance notes. Everyone is talking about academic freedom but in the Bill it is not just about academic freedom; it is also about freedom of speech on campuses and meetings held in universities. I am concerned about this because recently a degree of intolerance has sometimes been shown, with people trying to ban meetings in universities. Therefore, I have been a little worried about some of the things in the guidance notes.
The Minister will recall that I was puzzled, as was the noble Lord, Lord Macdonald, by his concept of non-violent extremism. I was not altogether convinced by the Minister’s reply as to what that meant. However, what really alarmed me was the substance of the guidance notes. I come to this very fresh, compared to people who have been looking at this for a long time. I drew attention to this business of having to give advance notice of what your speech was going to be about, and rating speakers from seven to 10—or one to 10—on how much risk there was of them causing a disturbance on campus. How do we rate David Irving or Marine Le Pen? These are very difficult judgments to make.
I went through a number of the provisions. In reply, the Minister just said, “Some people made a lot of fun of the guidance notes”. He did not answer any of the points. As the noble Lord, Lord Butler, said, a lot of this is pretty unworkable. It reminds me, as I think it reminded the noble Lord, a little of some regulation put forward by the FSA and the FCA. There is a lot of box-ticking in this.
I am sure that the concessions the Minister has made on academic freedom are very important. I am sure that they have satisfied a lot of people. That is thoroughly to be welcomed, but I very much hope that the points made about the guidance notes will be taken into account in any reconsideration of them.
Counter-Terrorism and Security Bill
Lord Hannay of Chiswick Excerpts(9 years, 10 months ago)
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Baroness Brinton (LD)
My Lords, my name is on Amendment 14F and I also want to thank the Minister for his Amendment 14E. As I said in Committee, after going to war, curtailment of freedom is one of the most important things that a Government must consider doing. Given the seriousness of that, it seemed extraordinary that there was no scrutiny by Parliament, so I am grateful for that. On a slightly lighter note, and not strictly to do with this amendment, the fact that 33% of terrorists have been to university was repeated this evening. I wonder whether we need much more draconian measures for schools, given that 100% of terrorists will have attended school.
Lord Hannay of Chiswick (CB)
My Lords, this is a very welcome amendment that the Minister has moved, and I would like to thank him and his colleagues in the Government for having inserted these necessary provisions. The more you look at the Bill, as far as universities and colleges are concerned—I am not talking about passports and TPIMs and so on—the heart of it is the guidance and the threat hanging over universities of directives from the Secretary of State. That is what is really going to determine whether this is workable, and whether it is or is not counterproductive.
The fact is that the amendment of the noble Lord basically shoots our fox by saying that they are not going to tell us what they are going to do now, but they are going to come before both Houses with the guidance. This is welcome, even if it is perhaps not too ungracious to point out that I am aware that affirmative resolutions in both Houses will no doubt be whipped, and that we will have no possibility of amending them. Having said that, the debates we have had at Second Reading, in Committee and now on Report, will have shown Ministers that the guidance on which they consulted universities and others, ending last week, was really upsetting to everyone, and would have had appalling results both in practicality and in the chilling effect, and so on. I hope we shall never again be told that because UUK produced some guidance like that, it must be okay. It is not okay to make a statutory guidance that tells people that if they are going to go to a university—as I am to Oxford tomorrow—to address a seminar, they have to produce a script two weeks in advance. It just is not going to work. I hasten to say I have not got a script yet.
The point I am trying make, which I hope the Minister will take on board, is that I had rather hoped that he would give us a list of the things in the guidance on which they consulted which they already know they are going to drop. He did some of that in an earlier debate, and if he could bring himself to repeat some of those things it would be good to do so now. But the lesson to be learnt is that huge care must be taken with the guidance, because that will determine whether the Act provides the kind of strengthened Prevent which we would all like to see, or whether it will have what is known as blowback. That must be avoided. So I hope that the Minister will take away from this experience, painful though it may have been, the feeling that the guidance is the heart of it, and that an awful lot of care needs to be taken, because things were not very well done in the guidance which was consulted on.
As for our discussion a few minutes ago, I can see that the noble Lord is pretty desperate not to concede that there should be another formal consultation, and he has avoided doing that, but I honestly think that when Ministers have cleared their minds about what they want to put in the guidance, they will be extremely well advised to contact universities—not necessarily every one of them—to see whether they have got it about right in terms of both practicality and freedom of expression and academic freedom. If they do not do that, the risks of blowback are considerable.
I hope that the noble Lord will draw from this experience first, the feeling that we are grateful to him for tabling the amendment but, secondly, that it is still all to play for as to whether this works.
Counter-Terrorism and Security Bill
Lord Hannay of Chiswick Excerpts(9 years, 10 months ago)
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Lord Hannay of Chiswick (CB)
I am most grateful to the Minister for giving way, but I think that he really is fighting the last war. It is perfectly clear that the Bill is going to enter into force and that it is going to make certain new statutory obligations. Many of us have argued the case against that and for a voluntary approach, and I still believe that that would have been better, but it is not what is going to happen. So although he can have a lot of fun at the expense of UUK, there are other lessons that could be drawn from it—one of which, as the noble Baroness, Lady Kennedy, said, is that no one actually paid any attention to it. So if really unwise guidance is given, as was given then, that is what will happen.
We are talking now about a statutory obligation, though, and that is something completely different. Let us simply work on the basis that something like Amendment 14D is going to come into force. I ask the Minister to address in his winding-up speech one or two modest ways, which have been suggested around the Chamber, in which it could be improved before Third Reading, drawing on some of the excellent language in Amendments 14 and 14A. That is what would enable the Home Secretary of the day. In the next lot but one of amendments we will get on to the guidance, but that is the heart of the whole matter. I do not think that we should dilly-dally much longer on whether or not there is going to be a statutory obligation.
Lord Bates
I certainly take the noble Lord’s point but perhaps I may address some of the key points in the amendments that have been put forward.
I just want to put this in some kind of context. I admit to having had a bit of fun at Universities UK’s expense, but I think that quite a few noble Lords have had a bit of fun at the expense of the consultation document. Given that my noble friend Lord Deben has exhorted us to be in favour of all debate, one should not necessarily try to close off one part of it. However, I accept that perhaps I have pushed far enough, and the noble Lord, Lord Hannay, has got me on track. I shall address some of the particular points that have arisen.
I shall turn to the amendments themselves, but I think it would be helpful to address first the general principle that many noble Lords have spoken about, today and in Committee: the inclusion of universities and further education institutions within the scope of the Prevent duty in Clause 25. In Committee I outlined specific case studies, as did the noble Baroness, Lady Deech, of students and graduates who had gone on to commit terrorist atrocities. For the avoidance of doubt, in all the case studies I mentioned, including the 2010 Stockholm attack and the 2009 Detroit aircraft attack, the perpetrators had studied in UK institutions.
Young people accounted for around 31% of terrorist-related convictions between 2001 and June 2014. Within that date, the figure for at least two years is even higher, at 35%. The Prevent duty is designed to apply to sectors that can most effectively protect vulnerable people from radicalisation and from being drawn into terrorism.
In answer to the noble Lord, Lord Phillips, and the noble Baroness, Lady Lister, who have previously asked for evidence—I went back and said, “What evidence do we have from the regional co-ordinators at BIS that there is a level of non-compliance?”, and I have already referred to part of it—in the year up to 25 January 2015, at least 62 events were held on campuses that featured an extremist speaker or speakers. We know of another eight events that were publicised but later cancelled. Speakers at these events have, for example, called for apostates of Islam to be beheaded and have stated that a man who beats his wife should not be questioned as it is solely a matter between them.
I do not mention all this to suggest that these speakers should necessarily be banned—that is not what our guidance says is required under the Clause 25 duty—but to demonstrate the point that extremist views are propagated on campuses, that students are at risk of being drawn into terrorism and that a disproportionately high number of young people go on to become involved in it.
Since we last debated these issues, the consultation on the draft guidance has finished. Officials are still working through the responses, but an early indication shows that 42 higher education institutions emailed a response to the Home Office and, out of those, only eight stated that universities should not be subject to the duty. Furthermore, Universities UK—I qualify, of course, praying that organisation in aid of my position—which represents 133 vice-chancellors and principals, has not called for universities to be excluded from the Prevent duty. It reiterated its support for the duty when it met my honourable friend the Minister for Immigration and Security and my right honourable friend the Minister for Universities and Science earlier this week.
All this is not to say that universities have not raised issues with the current draft guidance. Almost all of them have done so, in a constructive fashion, and we thank them for their responses. That is the point of this form of public consultation and we will be making a number of changes to the guidance before it is published in its final form. I have already mentioned in Committee two changes that we propose to make: amending the reference to all speakers having to give prior sight of presentations; and making clear that not all staff need to receive Prevent training. We will be working through other changes and of course, as has been said, all that guidance, which will be issued to chancellors, will now be the subject, in a later group of amendments, of an affirmative resolution in both Houses of Parliament.
I now turn to the issue of freedom of speech, which has been heavily focused upon. It was mentioned that placing the duty on universities could have a chilling effect on freedom of speech and academic freedom, which would be contrary to the core function of our universities—a function which, as I have already said, makes universities one of our most important arenas for challenging extremist views and ideologies. As my noble friends Lord Deben and Lady Warsi said, I drew your Lordships’ attention in Committee to existing guidance referring to how speakers are treated. That is why I have tabled Amendment 15D.
This amendment would require further and higher education institutions, when carrying out the Prevent duty, to have particular regard to the duty to secure freedom of speech contained in the Education (No. 2) Act 1986. This will require higher and further education institutions, when considering all the factors that they need to consider when complying with the Prevent duty, to place particular emphasis on the duty to secure freedom of speech. I am sorry that I caused my noble friend Lady Hamwee so much confusion earlier with the difference between having due regard and having particular regard. The reason we put that in is that we want to have a higher test to differentiate between having due regard to the guidance and having particular regard to freedom of speech under the 1986 Act. That was not accidental; it was absolutely intentional and, had I been a little sharper, I might have mentioned that to noble Lords earlier.
The noble Lords, Lord Pannick and Lord Macdonald, have tabled an amendment along similar lines, Amendment 14A, although we would argue that the Government’s amendment goes further. The noble and learned Lord, Lord Hope, has tabled Amendments 14 and 15 with a view to ensuring that, to the extent that Scottish higher and further education institutions are subject to the Prevent duty, their compliance with that duty is also subject to their need to ensure freedom of speech. This is quite clearly a logical approach, given that those bodies are not covered by the duty in the 1986 Act, and we are not in disagreement with the general principle of the noble and learned Lord’s amendments.
Given, however, that no Scottish bodies are currently listed in Schedule 6, these amendments are unnecessary. If and when Scottish institutions are added to Schedule 6 by order, the Government can use the power in Clause 26(3) to make consequential amendments to this chapter. We would at that point seek to ensure that Scottish institutions had the same requirement as those in England and Wales to pay particular regard to the need to secure freedom of speech, as contemplated by Article 10 of the European Convention on Human Rights. I hope that that goes some way to reassure the noble and learned Lord on this point.
My noble friend Lady Hamwee spoke to her Amendment 14C, which would require that guidance to the education sector must recognise the duties of that sector to secure freedom of speech, to promote tolerance and respect for democracy and to offer a broad and balanced curriculum. The guidance already makes these points in the relevant sections. I refer my noble friend to paragraph 105 of the draft guidance in particular. There were a number of points, but I am conscious of the time I have taken to respond.
Lord Hannay of Chiswick
My Lords, before the Minister sits down, he has not really addressed the issue of whether between now and Third Reading he will have another look at his draft of Amendment 15D. It has been broadly welcomed across the House, but imperfections in it have been noted, mostly notably by my noble and learned friend Lord Scott, which the Minister has not addressed. It would be helpful if he would now reflect a little on whether the new clause inserted by Amendment 15D could be improved by some very modest clarification. At the moment, it reads like a piece of parliamentary draftsmanship: that is, totally incomprehensible to most members of the human race.
Some of the amendments, such as Amendments 14 and 14A, are much clearer to a normal reader in their meaning. This clarity is rather important because the concerns that have been expressed about freedom of speech and academic freedom are not going to be settled simply by cross-references to some article in some other piece of legislation. I hope that the Minister will look at that between now and Third Reading. I believe that it will not change one iota the thrust of what he is trying to achieve, which I am sure he will succeed in doing by this article.
Counter-Terrorism and Security Bill
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Lord Hannay of Chiswick (CB)
My Lords, I shall certainly not repeat what has been said—I am sorry; has the noble Lord not finished? I thought that he had.
Lord Elystan-Morgan
My Lords, I have a little to go.
Perhaps I may end in this way. The motivations of the Government are probably very decent, proper and understandable, but the way in which they are going about them is extremely naive and in many respects barbaric. Let us imagine that, before a person can speak at a university, notice for 14 days has to be given. A sketch of the content of that speech has to be produced. Just imagine how three people, all of them now dead, would react to that were they alive. One would be Bertrand Russell; another would be Bernard Shaw; a third would be a 30 year-old Winston Churchill. Do you think that they would have accepted the invitation? Do you think that they would have felt themselves bound by that stricture? It is a situation which, at best, is ridiculous and, at worst, can be extremely dangerous and counterproductive.
Most Members of the Committee will have heard at some time or another quoted the immortal words of John Philpot Curran, who in 1795 said, if I remember rightly:
“The condition upon which God hath given liberty to man is eternal vigilance; which condition if he break, servitude is at once the consequence of his crime and the punishment of his guilt”.
We can, by overemphasising vigilance, destroy the very thing that we seek to protect.
Lord Hannay of Chiswick
I shall not weary the Committee by using all the arguments that have been so well advanced by noble Lords on all sides. They have been much more eloquent than I could possibly be. I support the amendments proposed by my noble friend Lord Pannick and Amendment 104 because I do not think that the Government have made a very convincing case for moving from a voluntary to a statutory basis. They are quite right in wishing to see all higher education institutions taking the Prevent strategy seriously and co-operating with it but they have not given any evidence that this voluntary approach—reinforced perhaps by a bit of naming and shaming—cannot bring everyone voluntarily within this framework. They have said little about the efforts they have made to do that, except to admit, which I very much welcome, that the majority of universities are actually doing this already. Therefore, I do not think that the case has been made for moving from a voluntary to a statutory basis.
There is a bit of a mixture in this grouping, ranging from a carve-out for universities and other proposals that fall short of that, which would leave universities within the Bill but would mitigate the problems from it. I hope that the Minister will address some of the other amendments—Amendments 105, 112 and so on—which would achieve that mitigation. It is extremely important that that should appear in the Bill.
Finally, I have a point to make about the guidance. The consultation on the guidance with universities, if I understand it rightly, concludes at the end of this week. Frankly, that guidance is pretty horrifying. It has caused a great deal of the concern that has been expressed around this Committee by the nature of its prescriptive detail, its intrusiveness and the absolute impossibility for most universities to carry out these provisions. Next week, on Report, the Minister could make clear in the most formal way the changes to the guidance that will be introduced before it is promulgated. I hope that the Minister will take that seriously. If he cannot agree to remove universities from this Bill, which would be my preference, he should accept some of the amendments that would mitigate the effects of it, make quite clear that the guidance will be radically altered and explain how it will be altered. He should explain, above all, some of the points that he put in his letter about the positive things that the Government are happy to continue to see happening in universities and not just give a long list of the negative things that they are going to try to clamp down on. I hope that can be taken to heart before we come back on Report.
Lord Brown of Eaton-under-Heywood (CB)
The amendments here fall into two distinct categories. There is the root-and-branch objection to the whole idea that higher education institutions should be brought into Part 5 of the Bill and the proposal that they should be carved out, to use the expression of the noble Lord, Lord Hannay. Then there are the amendments that seem to massage various provisions within Part 5 as it presently exists so that it becomes, apparently, compatible with the explicit statutory duties already placed on those institutions to promote free speech, freedom of expression, academic freedom and so on. Like the noble Lord, Lord Hannay, I very strongly support the first category, the root-and-branch objection. It seems to be a matter of the first importance that, for universities and higher institutions, nothing short of the express provisions of the criminal law—or, no doubt, the long-established principles of defamation—should operate as an inhibition on the freedoms that are here in question, which really are core values that go to the very heart of effective university life in a liberal democracy. It is small wonder that so little enthusiasm has been voiced in the Committee today in support of anything approaching Part 5 in its present form.
Lord Bates
That is in my next paragraph, if the noble Lord will let me come to it.
However, I can equally understand the trepidation of many in your Lordships’ House, and I have heard the strength of feeling on this matter. On that basis, I will commit to considering this matter further, and to discussing it with my ministerial colleagues, before Report, in order to identify whether it would be possible to provide some additional comfort to noble Lords, and to the education sector itself.
This has been a very wide debate, with some 20 speakers. Many have made very specific points and asked very specific questions. I am conscious that this is the second group of amendments within six weeks to cover Prevent, but—
Lord Hannay of Chiswick
Could the Minister perhaps extend the period of reflection with his colleagues to cover the issues in the guidance, which have given rise to such concern, as well? I am talking particularly about overprescriptive guidance. The Minister addressed some of those issues in his letter of last night, but by no means all of them. As the period for consultation will have expired by this weekend, will he undertake to consider—no more than that—what he will be able to put on the record on Report to make it clear that the guidance to be issued will be very different from the draft guidance that went into the consultation?
Lord Bates
Well, yes, I am happy to say that we will continue to keep the whole thing under review. That is the whole point of the consultation. I accept that the fact that the consultation concludes on 30 January may cause some difficulties. However, all the points debated today and at Second Reading are very much part of that consultation. I shall certainly go as far as I am able towards providing what might be described as an additional “first draft” type of review of the guidance, as a result of the responses that have been received so far. About 160 comments have been received, in addition to the debates that we have had.
I was about to say that a substantial number of points have been raised in the debate, and I can go through them. My noble friend Lady O’Cathain, who happened to catch my ear during the intervention by the noble Lord, Lord Hannay, asked me not to miss out the point made by the right reverend Prelate the Bishop of Chester about religious institutions. There is a point here, which we took into consideration, about what is a private matter, such as religious faith and worship, and what is a public matter—that is, a public matter in public institutions of education—and about comparing the two duties and thinking about whether we should extend our guidance into those institutions.
That was one of the reasons why my right honourable friend the Secretary of State for Communities and Local Government, Eric Pickles, decided to send the letter that he wrote to mosques and other religious institutions, recognising the importance of faith and urging them to play their part in the community-wide desire to keep our society safe.
Lord Bates
My Lords, I thank my noble friend for moving the amendment and giving us the opportunity to consider the important issues that he has raised. I agree with him that it is quite proper that the Government undertake reviews of policy and strategies from time to time to ensure they remain relevant and effective. The Government comprehensively reviewed the Prevent strategy in 2011. Since then, we have kept the various elements of the strategy under review. This has been part of regular business and in particular part of the annual report on our counterterrorism strategy, Contest, which is laid before Parliament. In the light of that, we have expanded the Prevent priority areas to reflect the changing threat, prioritised those that we feel are most effective and increased guidance and support for the voluntary Channel programme. In addition, the Prime Minister’s extremism task force was established in the wake of the murder of Drummer Lee Rigby,
“to identify any areas where the current approach was lacking”.
That task force reported in December 2013, just over one year ago. One of its conclusions was that delivery of Prevent should be put on a statutory footing in areas of the country where extremism was of most concern. The duty outlined in Clause 21 does just that. It does not limit itself to specific areas of the country. As the subsequent geographical spread of travellers to Syria has shown, such travellers can come from areas beyond those of most concern and listed under the current arrangements for Prevent.
Reviews of strategies can take many months to complete. It would be wrong in our view if we were to ignore the findings of the extremism task force and delay the implementation of this important duty in order to carry out yet another review. Should such a review take place at some point and recommend, in the light of actual experience of the implementation of the duty, that changes be made—for example to the authorities listed in Schedule 3—then the Government would be able at that point to lay regulations amending that schedule, which would need to be approved by both Houses.
Regarding the report to be provided prior to commencement, we have already published impact assessments on the measures in the Bill. As for the comparable legislation in other countries, the UK’s efforts in the field of Prevent are considered by most of our allies to be several years in advance of where they currently are.
I say to the noble Viscount, Lord Hanworth, who spoke on this, that when we are talking about a duty that is effectively about the upholding of democracy, tolerance and respect for others I do not think it is in any way appropriate to draw upholding those values akin to a totalitarian approach. I know that he was trying perhaps to provoke us into some further response. What we are talking about here is how, as a free liberal society, we react to a growing threat from within our society from people who seek to challenge those very basic freedoms and who pose a serious risk through potential violence to individuals, be they on campuses or in wider society. That was why when we had an extensive review of the Prevent strategy—which was launched in 2010 and, I think, published in 2011—it took the view that we should focus on national security as the priority of Prevent. That is why the Prevent programme has changed to being one of safeguarding and protecting people’s liberties in our society. I think that is right. It is kept under review, as I have tried to outline to my noble friend, and there are opportunities caused by that systematic review for Parliament to consider the progress of the strategy as it moves forward. In the light of that, I wonder if he might feel able to withdraw his amendment.
Lord Hannay of Chiswick
My Lords, the Minister will not be surprised to hear that his response is a little disappointing on this matter—predictable but disappointing. If the Government are not going to move in the direction suggested by these amendments and by some of the others that we have discussed, will the Minister register that it becomes ever more important that next week we hear from the Government not the full detail but some of the ways in which they intend to improve the guidance that they give to higher education institutions, to make it more positive and clearer about the Government’s support for our higher education institutions, which are some of the best in the world? We also need to hear from the Government their determination to allow some of the fears that have been expressed by those who have put forward a lot of amendments today to be met in some respects.
I hope that when the Minister reflects on this—as he agreed to do when we debated the previous group—he will think about how he can come forward on Report with clear and precise indications of areas where the Government are going to improve the guidance following the end of the consultation. I understand that it will take much longer to produce the full guidance, but I think that having that clear indication on the record will be helpful in our further consideration of the Bill.
Counter-Terrorism and Security Bill
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Lord Hannay of Chiswick (CB)
My Lords, at Second Reading of this Bill I asked the Minister whether the Government had given any consideration to sunset clauses in the two provisions that are being discussed in this amendment. He did not reply in winding up the debate and so I look forward with great interest to his response now. Perhaps I may say that the principle of having a sunset clause on these two provisions is rather compelling because it is important to show that we do not believe that this state of affairs, to which we are now responding quite properly and proportionately, is there for ever. The signal that it is not a permanent part of our law is a good one to send, but I would certainly not attach any importance at all to the short period of two years that is suggested. That really is rather unrealistic in the circumstances we face. For me, it is the principle of having a sunset clause, not its duration, that matters. I would be grateful if the Minister, when he comes to reply to the amendment, could address this matter now.
The Marquess of Lothian (Con)
My Lords, I wonder whether my noble friend could help me because I have missed this somewhere else. When looking at the time factor here, what is the legal and international status of someone who has been subjected to a temporary exclusion order? Are they in fact stateless during that period?
Higher Education: Overseas Students
Lord Hannay of Chiswick Excerpts(9 years, 11 months ago)
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Lord Bates
My right honourable friend the Home Secretary is absolutely committed to opening the doors to genuine students, but not to the bogus students that we were talking about before. When she spoke, it was about a policy that was in the Conservative Party manifesto on page 21, which is that the best way to ensure that we keep a grip on the fact that people are here on the appropriate visas is through them returning to their country once they have completed their study visa and then reapplying for a work visa. That is not the position now. The position now is that they can do that in country. We encourage people to do so where they have high-skill jobs or they want to stay here to set up a business.
Lord Hannay of Chiswick (CB)
My Lords, will the Minister explain how he can be so sure how many students return when we have no proper border controls on people leaving this country? Does he not agree that forcing students who have completed their studies to go back to their home—at very considerable expense to themselves—before reapplying to come here is an astonishing way to try to fill that lacuna?
Lord Bates
The noble Lord is sharp, as ever, in spotting the issue. We will have exit checks in place by the end of this Parliament, as was promised. Of the figure which I gave—about 70,000 people going missing—some of those will have reapplied to go onto the tier 4 system. Some of them will be here and working illegally. The point is that at the moment we do not know. If we counted them in and counted them out and made sure they were on the appropriate visa, we would be able to know.
Counter-Terrorism and Security Bill
Lord Hannay of Chiswick Excerpts(9 years, 11 months ago)
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Lord Hannay of Chiswick (CB)
My Lords, my remarks on this Second Reading of the Counter-Terrorism and Security Bill will pose some critical questions about detailed aspects of the Bill, but they should in no sense be considered to signal opposition to the Bill—quite the contrary. The Government’s case for strengthening current counterterrorism legislation, faced as we are by a whole range of new threats—for example, by lone wolf terrorists, by the possibility of even more sophisticated conspiracies of the 9/11 or 7/7 types or by events such as those that occurred in France last week, which seemed to be somewhere between the two—has been entirely convincing.
I hope, too, that in debating this we will condemn the appalling and odious misuse of language that comes up all the time in the publicity from the jihadis—when, for example, they are claiming completely erroneously that they are supported by their religion, which fortunately in recent days has been contradicted by many, or when they misuse the word “martyr”, which, in my understanding of the word, means someone who is killed by someone else for their principles, not someone who blows themselves up along with a lot of innocent civilians. In any case, I think that the emergence of new terrorist organisations in Syria and Iraq, operating under the umbrella label of an Islamic State and totally impervious to the international conventions on the rules of law, clearly strengthens the case that the Government have made. The provisions in the Bill seem broadly proportionate to those threats and should avoid the criticism of overreaction. The case for fast-tracking this legislation also seems to be a convincing one.
The Government’s contention that a sunset clause for the Bill as a whole would not be practical seems to make good sense, as some of the provisions are indeed intended—and justifiably so—to make lasting changes to our counterterrorism legislation. As the Government point out, some of the measures on TPIMs and data retention will already be caught by sunset provisions in the basic legislation that is being amended. However, it is not clear to me that the provisions on, for example, the seizure of passports or the making of temporary exclusion orders should change our laws in perpetuity, even if it is difficult to predict at this stage exactly how long they will be needed and will be justifiable. Therefore, I hope that the Government will take a careful look at that issue of sunset clauses in the context of at least those two rather important parts of the Bill and will address that issue in our further debates.
There is a tricky issue that has not yet come up in this debate: to whom are these various fairly draconian provisions to be applied? Which categories of people are they to be applied to and who will decide to whom they will be applied? Can we, for example, assume that someone going to Syria to help the Free Syrian Army or other groups seeking to overthrow the Assad regime—an action that the Government approve of and support—would not have these provisions applied to them? Can we assume that an ethnic Kurd from London going to help in the defence of Kobane would not be caught by them? Indeed, can we assume that a person of Ukrainian ethnic origin, going to support the voluntary militias resisting the Russian-sponsored efforts to destabilise and fragment Ukraine, would not be caught? Perhaps the Minister could throw some light on these rather difficult judgments, which have quite important foreign policy implications as well. I hope that the Government will agree that there needs to be some process of transparency and a means of informing Parliament on the judgments that they make as to who falls within these interdictions and who does not. Otherwise, we could end up in the bizarre situation that the United States ended up in at the beginning of the Second World War, when they were prosecuting people who came to serve in the RAF. This is not a clever place to get ourselves to and I hope that some thought will be given to how we clarify that we are not going to go there.
Like my noble friend Lord Evans of Weardale, whose remarkable maiden speech I listened to with great pleasure, I have concerns about Part 5 of the Bill, which relates to the Prevent programme and the moving on to a statutory basis of the Home Secretary’s guidance, with some extremely wide-ranging and totally unspecified powers to issue guidance in this respect to schools, universities and local government. It seems from what Ministers said in the other place that this is certainly intended to apply to universities. I wonder how the Government consulted the universities ahead of reaching that conclusion. It is not going to be enough to say that they are now consulting the universities about how to apply it, because the consultation that the Government are now carrying out does not give the universities the option to say that they would rather do it voluntarily; they are simply being asked to comment on how the guidance should be applied once this Bill becomes law. It would be good if we could hear a bit about whether there was any consultation and whether the Government share some of the concerns about academic freedom and freedom of speech at universities. Is this not an area where the willing co-operation between the Government and the universities is likely to be more fruitful and more effective than wielding the sledgehammer of a statutory obligation, backed up—so I understood from Mr James Brokenshire in another place—by the possibility of criminal prosecutions? Perhaps the Minister could address that point.
My final detailed point—I think that I am the only person so far who has raised this—relates to Part 6 of the Bill, which deals with kidnap and ransom insurance. I wholeheartedly commend this proposed change to the law. It has always seemed quite perverse that the Government’s policy of refusing to pay ransoms for people taken hostage—a policy that I believe, on balance, is clearly preferable to entertaining such payments—should sit alongside treating as perfectly legal insurance activities aimed at assembling such ransom. So I support the provision, but what is not clear to me—perhaps the Minister can make it clearer—is just how far-reaching the proposed changes to the law in the Bill will be. Will those who assemble ransoms for Somali pirates be caught by it? Hitherto, the Government have seemed to take the view that they have no evidence of such ransoms assisting terrorism. That was a pretty heroic assumption, if I may say so. We have only to look at the activities of al-Shabaab in Somalia—nobody doubts that al-Shabaab is a terrorist organisation—to see that it is extremely dubious to say that it is not laying its hands on some of the ransoms being paid to Somali pirates.
Can the Government therefore say whether those in the private sector to whom the amended law will apply can really be sure that moneys paid to Somali pirates never reach al-Shabaab? Will the Government now issue guidance on the obligation to file suspicious activity reports for any payments that could reward criminal activity? That is a matter on which your Lordships’ EU Select Committee has had a long and rather unprofitable correspondence with the Home Office over several years. I hope that the matter will now be put to rest. I am of course perfectly happy for the Minister to reply in writing on this point, because it is fairly complex, but it would be wrong if we missed this opportunity at least to require by law private sector operators who are assembling ransoms in circumstances that do not provide funds for terrorism—which clearly will be outlawed by the Bill when enacted—to file suspicious activity reports. Perhaps the noble Lord can address that matter when he winds up the debate.
Broadly speaking, I support the Government on the Bill and I very much hope that in the course of Committee and Report some of the increased safeguards that have been called for around the House will be inserted by the Government. As for the guidance on how Part 5 is to be applied to schools and universities, the very least that could be done is for the Government to undertake that the guidance will be finalised before the Bill completes its passage through Parliament, so that we and all those to whom it will apply know precisely what is to be applied.
EU: Justice Opt-ins
Lord Hannay of Chiswick Excerpts(10 years ago)
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Lord Bates
We have been very clear that, as the treaty of Lisbon states, the presumption as regards criminal law should be that we operate by mutual recognition rather than harmonisation. We have taken very clear steps to say that, because we have the ability to opt in under the Lisbon treaty, we exercise that choice. That is the reason why the Prime Minister decided to opt out of 135 measures before opting back in to 35; otherwise, European Court of Justice jurisdiction would have extended to all of those. Therefore I recognise the noble Lord’s point, but the Prime Minister is arguing our case well.
Lord Hannay of Chiswick (CB)
My Lords, will the Minister not agree that, now that the Government have successfully rejoined the 35 key measures, it would make more sense to concentrate on some of the measures that we have in principle opted into but which have not yet completed their negotiating track? Can he therefore say what progress the Government are making in dislodging the blockage by the European Parliament on the passenger name record directive, which would be of great assistance in dealing with terrorism?
Lord Bates
I do not have a direct answer on that, but I think that in principle what the noble Lord says is absolutely right. We have made our position clear and argued our case, and have avoided an operational gap by the decision we took on 1 December. Now we ought to get on and make sure that the measures we have opted into work well. However, I will write to him on that point.
CEPOL Regulation: United Kingdom Opt-in
Lord Hannay of Chiswick Excerpts(10 years, 1 month ago)
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Lord Hannay of Chiswick (CB)
My Lords, since I am no longer a member of the EU Select Committee—nor chair of its sub-committee on home affairs—which published the excellent report on the draft CEPOL regulation which we are debating this evening, I can give unstinting praise for the crispness and clarity of that report, which bears witness to the effective chairmanship of my noble friend Lady Prashar, who has just introduced it. I can do so without being thought to be purely self-serving. I support its analysis of the Commission’s draft regulation and its conclusion that the United Kingdom should opt in to its further negotiation before the three-month deadline expires on 24 November. I very much hope that the Government will reach the same conclusion and that the Minister will say so when he responds to the debate.
The complexities of the opt-in, opt-out system are mind-boggling, but before we take the easy way out of blaming that on Brussels, I suggest we recognise that these complexities are totally and entirely of our own making. No other member state faces the same complexities to the same extent when negotiating justice and home affairs legislation. No other member state has a substantial proportion of its own supporters in Parliament who will denounce any decision to opt in, even when the Government consider it in the national interest to do so, as a surrender to Brussels and an abdication of national sovereignty. “Oh what a tangled web we weave” could well be our motto when discussing these matters.
As to the CEPOL draft regulation itself, there are, I see, some points with which the Government are not entirely happy and which they seek to change in negotiations now taking place. That is quite normal and it would be unusual indeed if the Government were ready to agree to every word of every Commission draft. In fact, our track record on shaping justice and home affairs legislation has been good, ever since qualified majority voting was introduced in 2009. We support CEPOL: we welcomed its establishment in Budapest, so we surely need to get stuck in to these negotiations as a full participant and without delay. I was slightly baffled by the noble Lord, Lord Patten, who spoke about CEPOL in terms which led me to suppose that, in the brief time since I chaired the sub-committee, it had metamorphosed into one of those dragons which the shining knights of Euroscepticism ride out every day to slay. I was a bit puzzled by references to mission creep in a training organisation which has no executive authority and by the reference to subsidiarity which we, presumably, decided was fulfilled many years ago when we established CEPOL in Bramshill.
Perhaps the Minister will simply confirm that it is entirely a matter for Britain’s police forces to decide whether or not their officers and others in law enforcement agencies go to CEPOL. You cannot be ordered to send your officers to CEPOL: you decide whether they go. Some of those concerns were, therefore, a little wide of the mark. I say that because the binary choice of not joining the new CEPOL, with its new regulation, seems to me a totally disproportionate response to a few relatively minor and detailed blemishes in a draft which has not yet been negotiated. Can we seriously believe that Britain’s national interest would be served by standing outside CEPOL at a time when the international dimension of crime, whether you are talking about drugs, human trafficking, cybercrime, terrorism or many other forms of crime, is on the increase and the need for closer international co-operation is unchallenged? Therefore, the need for officers who understand how other people in the 28-member European Union are operating their procedures is very important. Do we want to deprive our law enforcement officers of the chance to build up their skills and to build up the networks that they will achieve by attending CEPOL courses? That would seem to be, frankly, aberrant.
However, the other part of the binary choice—the idea that we might perhaps rejoin the old CEPOL, as the Government intend to do under their package of 35 justice and home affairs measures, while not participating in the new CEPOL regulation—is, as the report says, hardly likely to be sustainable any more than it will be for Europol or Eurojust. If these judgments are correct, we should stop pretending that the binary choices really exist. Let us face it: we need to be in CEPOL.
Later this month, we shall have the opportunity to debate and to vote on the justice and home affairs measures that the Government believe to be in the national interest to rejoin after triggering the block opt-out. I will support the Government in that debate and will vote for that package. When I listen to the views of the Government’s own supporters who will oppose that course of action and to those of UKIP, which are identical to those of many of the Government’s supporters, I sometimes feel slight despair. They say that their position is a principled one. It is perhaps more accurately described as an ideological one. I suggest that we need to avoid these polarisations. We used to pride ourselves on our pragmatism and our preference for practical solutions. What on earth has become of that pragmatism when we see the mountain of evidence given to your Lordships’ House by lawyers, prosecutors, senior police officers and indeed by the Home Secretary herself about the value of those 35 measures to our own internal security?
That is a debate for another day. Today, I hope that we will hear that the Government intend to opt in to the CEPOL regulation before 24 November.
The Parliamentary Under-Secretary of State, Home Office (Lord Bates) (Con)
I join your Lordships in paying tribute to the noble Baroness, Lady Prashar, for introducing this debate, for the way in which she introduced it and for the excellent report prepared by the committee, and I pay tribute to the members of that committee. This is part of the process that we agreed, that your Lordships’ House would have a say on these measures, when they come forward, and that there should be a report. We have a report, which is very clear in its recommendations, and I will turn to those in my remarks. It was also agreed that your Lordships should have an opportunity to debate, which is what is happening now. Of course, all that should happen before Her Majesty’s Government have actually reached a decision on whether to opt in at this stage. No decision has been made, so the comments that would be made in your Lordships’ House are pertinent, relevant and will be taken very seriously into consideration.
Before I turn to some of the specific points that have been raised, part of the system for considering these matters involves a formal government response to the report and requires the Government to update the House on their position. So while not losing track of the questions that have been raised from around the House, I will just put these remarks on the record.
I am grateful to the noble Baroness, Lady Prashar, and her committee for calling this debate and I am pleased that we have had such a wide-ranging discussion. The Government have not yet decided whether to opt in to this measure at this stage. The arguments are finely balanced. We recognise the work of CEPOL and its current mission to bring together senior police officers from across Europe to encourage cross-border co-operation in the fight against crime. However, we also need to retain national control over the training of our law enforcement agencies, and there are elements of the draft measures that cause us some concerns. We therefore need to decide whether it would be better to opt in at this stage and use our vote in the negotiations to try to improve the proposal or to stay out for now and reconsider our position once the final text is agreed. Both options are open to us at this stage. I should say, of course, that they are open to us at this stage because the previous Government negotiated the justice and home affairs opt-out, so we are simply exercising an opt-out that they provided for us.
I want to be clear that we support CEPOL as it currently operates. CEPOL courses help the UK and UK law enforcement officers to build contacts across Europe, as has been mentioned by a number of noble Lords, and to exchange best practice in fighting crime. The training also provides personal development, strengthens partnerships and develops networks and co-operation, as well as providing the opportunity to share experiences. However, we are worried that some aspects of the new proposals would go beyond that and allow CEPOL and the wider EU to dictate aspects of our police training programmes. That is a very different thing.
The professionalism and training of the police and other law enforcement agencies should be led and developed by those organisations themselves, at a national or local level, and not by the EU. We believe that the focus of an EU-wide law enforcement training strategy should be to encourage member states to collaborate on matters that are mutually beneficial but to avoid telling us how to train our police. Provisions within the existing CEPOL Council decision are more than adequate to encourage member states to work together where appropriate. I am pleased that the committee chaired by the noble Baroness, Lady Prashar, sympathises with our concerns, including her proposals for a national unit and scientific committee. The commission’s proposals give CEPOL a much broader role than it currently has in law enforcement training, significantly expanding the EU’s responsibilities.
The Government believe that it should be for member states to define and determine which law enforcement officers may benefit from CEPOL’s activities. We are not at present convinced of the need for the law enforcement training scheme—known as LETS—and are concerned about the reference to this regulation in the text, which would make LETS legally binding on member states—this addresses the point that the noble Lord, Lord Sharkey, made about outlining the nature of our concerns. I know that several member states agree with us that all references to LETS within the regulation should be removed for this very reason.
Therefore, the question is whether we should opt in and use the vote—we would then have to help negotiate the proposals that concern us—or whether we should stay out for now, still participate in the negotiations, although without a vote, and consider applying to opt in post-adoption. Of course, the proposal is subject to qualified majority voting and co-decision with the European Parliament, so if we did opt in, we could still be outvoted and would then be bound by the outcome even if we did not get the changes that we were seeking.
A decision to stay out at this stage would not necessarily exclude us from CEPOL for ever. We would remain involved in the negotiations and would have another chance to take part once the measure had been adopted. That would give us the advantage of knowing exactly what the regulation would require of us before we signed up to it—which was precisely the point that was negotiated by the previous Government when they included that opt-out provision in the JHA. However, the disadvantage of having no vote in the negotiations is one which we are very mindful of, which is the point that the noble Baroness, Lady Smith, raised in her remarks. Even if we were not to opt in, I can assure the House that the UK’s voice will still be heard and listened to in the negotiations. Those negotiations are ongoing; we have officials attending Council working groups on the text as we speak, as they have been doing during this week and last week. That is very clear from Europol, a measure to which the committee of the noble Baroness, Lady Prashar, rightly attaches great importance. There we did not opt in pre-adoption but have secured some quite significant improvements to the text on Europol’s power to request investigation and to the duty of member states to supply it with information. So there are arguments either way. The Government have not yet decided at this stage which option they will propose.
The noble Baroness’s committee has argued that it is inevitable that we must adopt the regulation at some stage. In its view, it would be unworkable for the UK to be bound by the current Council decision, while other member states would be working with the provisions of the new regulation. The committee feels that this would in turn be likely to trigger the procedure under Article 4(a) of Protocol 21 of the Treaty of the Functioning of the European Union, resulting in the UK’s ejection from CEPOL. This regulation would repeal the existing 2005 CEPOL Council decision, to which the noble Lord, Lord Hannay, referred, for those member states participating in the regulation. In accordance with the opt-in procedure under Protocol 21, if the UK does not opt in to the proposal, and if it is subsequently adopted by the rest of the EU, the UK will remain bound by the underlying CEPOL Council decision, as the repeal aspect of the regulation would not apply to the UK.
The UK would be working with CEPOL according to the old Council decision while all other member states work according to the new regulation. Practically speaking, which was the point made by the noble Lord, Lord Hannay, this may not be impossible, especially if the new regulation does not significantly alter the focus of CEPOL. However, if the Commission considers—
Lord Hannay of Chiswick
I am sorry to interrupt the Minister, but I wanted to get in before he sat down. I did not suggest that it might not be impossible: I suggested that it might not be possible, which is the exact opposite.
Will the Minister also answer a question that disturbs me? This is not the first time that Home Office Ministers have taken refuge in not declaring their hand at the time of the debate in this House: it is about the third time, in fact. This demonstrates very clearly the ingenuity that Ministers and civil servants are able to put into turning into a meaningless matter the undertakings given by the noble Baroness, Lady Ashton, and by Mr Lidington from another place. The Government manage miraculously to remain poised on the horns of their dilemma until a couple of days after this House has expressed an opinion and then equally miraculously the light shines down from heaven and the Government take a decision, and they are not subject to any scrutiny in this House whatever.
Before he finishes, will the Minister undertake that when the light has shone down from above and the Government have reached a decision, he will come and tell the House what the Government have decided so that we can consider that? This is not a good way of dealing with these matters and the previous examples show just how badly the Lidington/Ashton undertakings are being implemented.
Lord Bates
I hear what the noble Lord says, but the advantage of having a debate at the present time is that the committee’s report and your Lordships’ contributions inform the Government’s position. That is beneficial, rather than coming to the House after a decision has been taken by Her Majesty's Government.
I also accept the noble Lord’s point about what is possible and what is impossible. I readily acknowledge that. It is not for us to decide whether it is possible or impossible: it is for the Commission and the other member states to determine whether they are willing to tolerate that or whether they wish to eject us from the process. That is further down the route.