Advertising of Prostitution (Prohibition) Bill [HL]

Lord Morrow Excerpts

Friday 23rd October 2015 Lords Chamber

[Lord Morrow (DUP)]

My Lords, I support the Bill proposed by the noble Lord, Lord McColl. I believe that addressing the demand for paid sex is one of the key challenges of our society today. It is a great disappointment to me that one of the longest-standing forms of exploitation has yet to receive the same attention and focus as modern-day slavery. I speak, of course, about prostitution.

As noble Lords will be aware, I recently helped to take a Bill to address human trafficking and exploitation through the Northern Ireland Assembly. In the course of that process I engaged in extensive consultation, read a large amount of evidence and spoke to a great number of experts in this area. I spent hours talking with groups such as Women’s Aid in Belfast, which supports victims of trafficking and sexual exploitation, and Ruhama, a charity from the Republic of Ireland that supports women exiting prostitution. I visited Sweden and met police officers and anti-trafficking experts, who explained to me the principle and the practical impact of their laws banning the purchase of sex. Most importantly, I met survivors of prostitution.

If I am honest, when the idea to criminalise paying for sex was first suggested I was far from sure. However, after meeting survivors and then carefully studying the evidence, I was more than convinced. The scale of the evidence demonstrating the vulnerable position and terrible experiences of the vast majority of people involved in prostitution requires us to take action. I recognise that that is not the case for every person, but from all the evidence that I read and all the people I spoke to, the voice of the most vulnerable was the most compelling. At the end of the day, we as legislators have to make a choice when considering prostitution. Do we act out of primary regard for the vulnerable majority or the privileged minority? I am very clear that it should be the former. That is why I strongly agree with the noble Lord, Lord McColl, and disagree with the noble Lord, Lord Davies, that we must seek to reduce demand for prostitution.

While the noble Lord, Lord McColl, has done exactly the right thing in identifying the need to engage with demand for paid sex, the Bill does not go far enough. Rather than just focusing on advertising, a more effective way of tackling demand and attendant exploitation would be to make it an offence to purchase someone for sex. That legislative solution goes right to the root of the problem, and I am delighted to say that more and more countries are now turning to it.

Most recently, Lithuania has just changed its law, and the Republic of Ireland is currently in the process of changing its law. In Northern Ireland the decision to address the demand for paid sex through criminalising the buyer was not a decision taken lightly. The issue was debated at length, and ultimately was supported by 81 out of the 108 Members of the Northern Ireland Assembly and, significantly, by Members across the political divide, both nationalists and unionists. We must make it illegal to buy sex, because that will be the most effective way to reduce demand—which is in turn the most effective way to reduce the harm of exploitation.

Evidence from interviews with those who buy sex indicates that criminal sanction would be the most effective deterrent. Moreover, independent analysis of the long-standing employment of this approach in Sweden and Norway demonstrates that banning the purchase of sex can reduce levels of prostitution and curb trafficking. The independent evaluation of the Swedish law found that street prostitution had been cut in half as a,

“direct result of the criminalisation of sex purchases”,

and there was no evidence that the decrease in on-street prostitution had led to an increase in off-street prostitution.

We must reject the tacit acceptance of prostitution in our society. That acceptance may not take the form of openly promoting commercial sex—it might even acknowledge that prostitution is a harmful practice—but if we continue to say that it “has always been with us and will never be eliminated” or seek only to make the practice of it a little less dangerous, in effect we support its continuation. The only way to reduce the harm of this ancient form of exploitation is to reduce the demand that perpetuates it.

Having explained why the noble Lord, Lord McColl, is absolutely right to propose that we address demand for the overwhelmingly exploitative practice of buying people for sex, and while suggesting that I think criminalising demand is the most effective way of doing so, I want to be very clear that I regard the proposal in the Bill to constitute a very important step in the right direction. Making it illegal to publish adverts will mean that the law no longer permits the promotion of prostitution. It will send the message that promoting exploitation is not acceptable and will reduce access to prostitution—both of which can play a role in reducing the demand that fuels the trade. I was very interested to hear the noble Lord, Lord McColl, say that the anti-slavery commissioner says that the current anomaly in the law needs addressing. That is important, and we would do well to pay attention to his concerns.

I heartily congratulate the noble Lord, Lord McColl, on tackling an issue which is too often pushed to the margins because it is too difficult, and I give the Bill my fullest support. I very much hope that the Government will take the overwhelmingly exploitative nature of prostitution much more seriously and recognise that this Bill provides them with an effective and timely means of doing so.

Modern Slavery Bill

Lord Morrow Excerpts

Wednesday 25th February 2015 Lords Chamber

Victims of human trafficking, wherever they are in the UK, need to have the same confidence and the same assurance of support. We owe it to them to ensure that we demonstrate our commitment to their well-being in the centre of our foundational legislation on modern slavery. I beg to move.

[Lord Morrow (DUP)]

My Lords, I will speak in favour of Amendment 78 in the name of the noble Lord, Lord McColl, to Clause 49, to which amendment I have also added my name. I commend the noble Lord, Lord McColl, for putting forward this important amendment today.

Some noble Lords may be aware that I brought forward legislation in the Northern Ireland Assembly on human trafficking. It took over three years to get from the genesis of the legislation to the granting of Royal Assent last month, but to my mind it was worth every minute. Noble Lords will undoubtedly agree with me that victims of human trafficking are some of the most vulnerable people within the United Kingdom. Northern Ireland most certainly is not exempt from the impact of human trafficking, and I brought forward the Human Trafficking and Exploitation (Criminal Justice and Support for Victims) Bill to improve the response to the crime of human trafficking in Northern Ireland, crucially with regard to this amendment, to ensure that victims of trafficking are effectively supported.

The statutory requirement to assist and support victims of trafficking is a crucial part of the Human Trafficking and Exploitation (Criminal Justice and Support for Victims) Act. The relevant section was the product of a collaborative effort between the Minister of Justice, David Ford, and me, alongside our respective support teams. We were determined to ensure that victims of human trafficking who have entered into the NRM process have a statutory right to access support including: appropriate and safe accommodation; material assistance; assistance in obtaining health care services, counselling, translation and interpretation services; assistance in obtaining legal advice or representation; and assistance with repatriation.

That section was supported unanimously by the Northern Ireland Assembly. Northern Irish society may be divided on many issues, but the need to effectively support victims of human trafficking is not one of them. The NGO community in Northern Ireland also overwhelmingly supported the introduction of this section. In my opinion it is vital that the requirement to provide assistance and support is in statute. It makes it crystal clear to victims of trafficking, the NGOs supporting them and state agencies what victims are legally entitled to. It gives victims and those seeking to support them the ability to challenge the actions of the state if it has failed to provide effective support. It also ensures that the support and assistance provided to victims cannot be withdrawn or restricted by government if, for example, it faces challenges, particularly a challenging budgetary situation.

I have added my name to Amendment 78 because I believe it fills an important gap in what is otherwise an excellent Bill. First, it will help to ensure that victims of human trafficking are effectively supported in England and Wales. I appreciate that the Bill requires the Government to issue guidance to public authorities setting out,

“arrangements for providing assistance and support to persons who there is reason to believe may be victims of slavery or human trafficking”.

This requirement is better than nothing but in my opinion does not go far enough. There are no directions or guarantees about the content of the guidance, which can be varied at the will of the Secretary of State. Guidance also does not have the same status as legislation and cannot be relied on in the same way. It would be far better for victims if the amendment of the noble Lord, Lord McColl, were adopted. It would ensure that there is a legal guarantee of support for victims.

Secondly, it seems clear to me that if the amendment of the noble Lord, Lord McColl, or something like it is not accepted, victims of trafficking in Northern Ireland—and in Scotland once the Human Trafficking and Exploitation (Scotland) Bill has passed—will have more legal rights than victims of trafficking in England and Wales. This would be a rather unfortunate situation. Surely, most of us here and most of the public would think that victims of trafficking, regardless of where in the United Kingdom they have been identified, should have the same or similar legal rights. Of course, it is Parliament’s prerogative to decide whether this will be the case.

I urge noble Lords to support the amendment of the noble Lord, Lord McColl. It rectifies a significant omission in the Bill and will help to ensure that victims of trafficking in England and Wales are effectively supported.

[Baroness Grey-Thompson (CB)]

My Lords, I wish to speak in support of Amendment 78, in the name of the noble Lord, Lord McColl, to which I have added my name.

I have been watching the passage of the Bill with great interest. I recognise that many noble Lords who have spoken on Report have much greater knowledge and a longer history of raising these issues than I have. In particular, I pay tribute to the noble Lord, Lord McColl, for his tireless efforts in bringing the needs of vulnerable people to the attention of your Lordships. It is listening to his contribution that has encouraged me to step forward.

I do not doubt that the Government take victim protection very seriously, but I have concerns that the Bill itself does not yet provide the necessary framework for victims to receive the support that they most desperately need at the time when they are at their most vulnerable—when they are first rescued or identified. Nor does it give a clear enough signal to victims and those who first encounter them that access to immediate assistance is a matter of utmost priority.

Modern Slavery Bill

Lord Morrow Excerpts

Monday 23rd February 2015 Lords Chamber

[Lord McColl of Dulwich (Con)]

My Lords, I support Amendments 34, 35 and 37.

It has been said by many during debates on this Bill—but it is worth repeating—that victims must be at the heart of all our actions to address modern slavery, whether in this Bill, in other policies and strategies or in the everyday front-line work of police officers, prosecutors, support workers, local authorities and so on. When a victim escapes from a situation of modern slavery they are likely to be interviewed by the police, they may enter the national referral mechanism process, or they may be placed in a specialist shelter through a victim care programme or be cared for by other charities. They might apply for asylum and have to deal with immigration officers and the whole asylum process. As they move between all these scenarios, victims do not change: they remain the same person. Their experience cannot be compartmentalised. For them it is a seamless whole.

The commissioner-designate has stated the importance of taking a victim-focused approach to this crime. Indeed, he told Peers during our informative meeting that he has made improving victim care one of his five priority areas of work. If the commissioner, a man of great experience in the front line of addressing modern slavery, believes that engagement and oversight of victim care and support is a vital function for his role, I am sure noble Lords will agree that we should be listening. I am pleased, therefore, that the Minister has introduced Amendment 37, which clarifies that the commissioner should have regard to the provision of assistance and support to victims in carrying out his functions.

I confess that I had some concerns following a meeting with the commissioner- designate that, without this amendment, bringing victim care into the concerns of the commissioner involves a creative interpretation of the current functions set out in Clause 41(1) which might not be endorsed by future Home Secretaries. During our debate in Committee the noble Lord, Lord Deben, highlighted the importance of getting the commissioner’s statutory mandate right. He said:

“Unless the commissioner can point to the Act and say, ‘I do this because …’, there will be those who will use every possible opportunity to try to trip him up and make the kind of legal arguments that hide the fact that what they are really about is stopping him being effective. That is why it is so important that we should be absolutely sure that we get it right”.—[Official Report, 8/12/14; col. 1629.]

I agree entirely. Amendment 37 will ensure that the text of the statute matches our intentions so that in a number of years, when the memories of our debates on the Bill have faded, the commissioner will still be able to look at all aspects of a victim’s experience and make recommendations to see victim care and support improve and develop, based on the letter of the law. I therefore firmly endorse Amendment 37 and commend it to your Lordships.

However, I have some questions of clarification that I would like to raise with the Minister about Amendments 34 and 35, which specifically suggest that the commissioner may consult, co-operate and work jointly with the noble Baroness the Victims’ Commissioner. I support the noble Lord’s proposal for co-operation and consultation between the anti-slavery commissioner and the Victims’ Commissioner. I believe this will ensure good oversight and joined-up thinking on all issues in a far more effective way than trying to separate into silos matters which are, on the ground, interlocked and interdependent.

My concerns stem from the fact that specific reference is made to the Victims’ Commissioner for England and Wales only, and I am not sure whether the Minister dealt with this. I would have thought that similar co-operation and consultation would be needed with other commissioners such as the children’s commissioners—and those of all the four nations now that the role extends across the whole of the UK. I imagine that co-operation will also be required with other commissioners or inspectors such as the Independent Chief Inspector of Borders and Immigration. I recognise that the amendment allows for a wider class of other persons, but I would be grateful if the Minister could indicate the reasoning for specifically mentioning the Victims’ Commissioner for England and Wales and how we can ensure consultation with bodies in Scotland and Northern Ireland which have responsibilities regarding victims. I would also be grateful if the Minister could explain what consideration had been given to including a reference in the clause to other commissioners or bodies.

[Lord Morrow (DUP)]

My Lords, I support government Amendments 34, 35 and 37 spoken to by the noble Baroness the Minister. I first make my apologies to your Lordships for not having been present during the earlier debates on this Bill. My absence on those occasions was however directly connected to the matters before us today, as I was engaged in debates on my human trafficking and exploitation Bill in the Northern Ireland Assembly on those days—a Bill which, I am pleased to say, received Royal Assent in January.

I have a particular perspective on the role of the Independent Anti-slavery Commissioner since the role has now been extended to cover Northern Ireland. This means that the commissioner will need to work to promote good practice in the prosecution and investigation of offences and the identification of victims, all with regard to the legislation we have enacted in Northern Ireland, as well as to the Modern Slavery Bill.

I had the opportunity to meet the commissioner-designate during a visit he made to Northern Ireland and I was most impressed by his plans and his passion to tackle this terrible crime head on. I was encouraged by his commitment to visit Northern Ireland regularly and his awareness of the particular challenges and opportunities that arise from our land border with the Irish Republic. It seems likely that he will do an excellent job. I was also particularly impressed with his clear understanding that victims’ needs must be central to any strategy to deal with modern-day slavery and, moreover, with his determination to make sure that all our systems and agencies across the UK recognise this and reflect it in how they work.

I had some reservations that the ambitious victim-centred plans set out by the commissioner are not clearly reflected in the mandate provided by the Bill. It concerned me that if a new Home Secretary came into office, he or she may not approve a future strategic plan that extends as widely as that proposed by the present commissioner. Indeed, it is possible that an organisation receiving unwanted recommendations from the commissioner could argue that victim support is outside the commissioner’s remit and reject his recommendations on that basis. I therefore welcome government Amendment 37, which expressly gives the commissioner the mandate to look into matters of victim support.

Modern slavery is the exploitation of individual human beings. Any effective anti-slavery commissioner will need to look at how we improve our systems to better protect and support those individuals, whether in investigations or other environments. The Bill must support and empower him to do that. I urge your Lordships to support Amendment 37 in the name of the Minister.

I referred earlier to my particular perspective in relation to the commissioner’s work in Northern Ireland. I have one area of concern about government Amendments 34 and 35 that stems from this perspective. I have no doubt that it will be important for the anti-slavery commissioner to consult and work together with a wide variety of groups and organisations, and I welcome the fact that these amendments specifically highlight the importance of the voluntary sector. The advice, constructive criticism and on-the-ground evidence from NGOs was of vital assistance to me as I prepared and refined my human trafficking Bill through its passage in the Northern Ireland Assembly. I dare say that the Minister would say the same about the contributions made in the development of this Bill from its draft form right up to the amendments proposed this evening.

I also echo what has been said in respect of the need for the anti-slavery commissioner to co-ordinate with the Victims’ Commissioner, as a way to maximise benefit and avoid duplication of work. I have some concerns, however, that victims in Northern Ireland, and indeed Scotland, will not benefit from this co-operation. I suggest to the Minister that we need to ensure that the commissioner is careful to take account of efforts to improve victim care and to work with bodies involved in supporting victims in other parts of the UK as well. I hope very much that she can assure me that reference to consultation with the Victims’ Commissioner will not create a hierarchy of victims, with victims in England and Wales receiving greater attention from the commissioner than victims in the rest of the UK.

[Baroness Garden of Frognal]

My Lords, I thank noble Lords for their comments and their broad support for the amendments which we have brought forward here: the noble Baroness, Lady Howe, and my noble friend Lady Hodgson, who were very enthusiastic, and the other two noble Lords who spoke. My noble friend Lord McColl expressed his concerns about co-operation with the Commissioner for Victims and Witnesses, but I stress that it is,

“public authorities (including the Commissioner for Victims and Witnesses)”.

He is not precluded from co-operating with other people as well. The Commissioner for Victims and Witnesses is one of the examples given, because the commissioner is one of the key players in the Bill.

The noble Lord, Lord Morrow, raised the point about Northern Ireland. The commissioner will work very closely with Northern Ireland and the Scottish Government. These government amendments were developed with the co-operation of the Northern Ireland Executive and the Scottish Government, to ensure that the United Kingdom-wide remit which the commissioner has will apply as much to people in those parts of the United Kingdom as in England and Wales. With those reassurances, I hope that noble Lords will support these amendments, which will benefit those in all parts of the United Kingdom.