Police Reform and Social Responsibility Bill

Lord Ramsbotham Excerpts

Wednesday 13th July 2011 Lords Chamber

Moved by

[Lord Ramsbotham]

242: Before Clause 91, insert the following new Clause—
“Status of British Transport Police Force
(1) After section 1(2)(c) of the Police Act 1996 insert—
“(d) the area over which the British Transport Police Force has jurisdiction.” (2) In section 30 of that Act insert—
“(2A) A member of the British Transport Police Force shall have all the powers and privileges of a constable throughout England and Wales and Scotland and the adjacent United Kingdom waters.”
(3) In section 101 of that Act, in the definition of “chief officer of police” insert—
“(d) in relation to the British Transport Police Force, the Chief Constable of that Force;”.(4) In section 1(2) of the Police (Property) Act 1997, in inserted section (2B) insert—
“(d) the British Transport Police Authority.”(5) Omit section 100 of the Anti-terrorism, Crime and Security Act 2001.”

[Lord Ramsbotham]

My Lords, I shall speak also to Amendments 243, 271, 272, 304, 305 and 306. Since all the amendments are to do with the British Transport Police and the British Transport Police Authority, they have been deliberately grouped together rather than with specific clauses. They aim, as I said at Second Reading, to,

“strengthen the Bill by increasing co-operation between the authority and other police forces, particularly in counterterrorism and in the run-up to the Olympics”.—[Official Report, 27/4/11; col. 173.]

I shall first outline the context in which the amendments have been tabled and apologise to the House for being unable to be here when they were debated in Committee. Again, as I said at Second Reading, I am an unashamed proponent of two-tier policing in this country, with a national police service complemented by a number of local and specialist forces. Bearing in mind that the last royal commission on policing was in 1962 and much has happened since then which suggests the need for reform of the policing as extant at that time, I was very disappointed to find that although called the police reform Bill, there is very little in it about reform, except about the governance of policing, which is not the same thing.

However, these amendments are about long-needed reform; they are an attempt to complete business that was begun as long ago as October 2001, when the then Government issued a consultation document entitled Modernising the British Transport Police, which included detailed proposals to bring it in line with Home Office police forces in terms of accountability, status and powers. It proposed, first, placing the jurisdiction of British Transport Police constables over the railways on a statutory basis; that was partly addressed in the Railways and Transport Safety Act 2003, which gave them the powers and privileges of a Home Office constable, not only over all railway property, but throughout Great Britain in relation to railway matters. It secondly proposed giving British Transport Police constables jurisdiction outside the railways in certain circumstances. This, again, was partly addressed in the Anti-terrorism, Crime and Security Act 2001, emergency legislation that followed 9/11 and other terrorist attacks.

However, although welcoming these changes, the Transport Police and its authority regarded them as only partial introduction of what had been proposed. Therefore, they tried to use the opportunity presented by the August 2008 consultation that preceded the Policing and Crime Act 2009 to address the identified anomalies once and for all. They submitted a formal request for a number of legislative changes that addressed the issues of police powers and jurisdiction to which, reprehensibly, they received no formal feedback from the Home Office. Instead, there was no consultation and they were surprised to find that Schedule 7 of the Act stated that:

“Where a member of the British Transport Police Force is for the time being under the direction and control of the chief officer of another police force by virtue of a police force collaboration agreement … the member shall have all the powers and privileges of a member of that other force”.

Furthermore, no attempt was made to address an added complication to co-operation that they had raised, namely that the powers of jurisdiction of police officers from Home Office forces were not extended to match those of a British Transport Police officer, which include the ability to police in England, Wales and across the border in Scotland.

Charitably, the British Transport Police assumed that these continued inequities were not intended, but resulted from a lack of knowledge about the anomalies that resulted from gaps in existing legislation. Therefore, they continued to look for opportunities to obtain parity of police-officer powers regardless of employing force, the next opportunity coming in September 2010 with the coalition Government’s consultation before the Bill, entitled Policing in the 21st Century; Reconnecting Police and the People.

The Bill envisages annual police plans, covering areas of the country yet to be determined, drawn up by elected police and crime commissioners. Assuming that, in logic, this must include all police forces, the Transport Police, in its response to the consultation, pointed out that, as the specialist national force for the railways, cross-border working was part of its day-to-day business. It welcomed the fact that, in drawing up their plans, PCCs would have to look beyond their own force borders,

“under a strong duty to collaborate, in the interests of value for money and to tackle cross border, national and international crimes”.

The British Transport Police also said that it was keen to ensure that the different governance structures between it and its authority and their Home Office colleagues and their authorities did not create difficulties in the excellent communications and partnership working that currently existed between them. There must be, for example, adequate provision for communications between the authorities and committees of the Transport Police, the Civil and Nuclear Constabulary, the MoD Police and police and crime commissioners, if they subsume the role currently filled by the Association of Police Authorities.

I mention this not to criticise the Bill so much as to suggest that these amendments to do with the British Transport Police ought to be government amendments. Identified anomalies that inhibit national and local policing have existed for far too long and have been drawn to the attention of both the Home Office and the Department for Transport over a number of years. Amendments 242, 271 and 272 are designed to rectify the status anomaly; Amendment 243 is designed to provide the opportunity for the Transport Police to protect the travelling public by taking preventive action against possible sex offenders.

The noble Lord, Lord Faulkner, will speak to Amendments 271, 272 and 304 to 306, covering licensing and firearms. All are designed to save money and better protect the public.

I appeal to the Minister to accept the opportunity created by the Police Reform and Social Responsibility Bill to complete this unfinished business. I know that both she and the Transport Police and its authority have been in contact with the Department for Transport and I look forward to hearing what may have been agreed between them. I accept that she will be unable to promise more than that the issues I have raised will now be tackled positively and not allowed to drag on as they have over the past 10 years. In that anticipation, I beg to move.

[Lord Faulkner of Worcester]

My Lords, I speak in favour of the seven amendments. I start by expressing my appreciation to the Minister for the constructive approach she has adopted in conversations with both the noble Lord, Lord Ramsbotham, and me about the role, powers and jurisdictions of the BTP. I know that she has written to the Transport Minister about these amendments and I hope that when she answers the debate she will be able to say that the Government at least accept the spirit of them, if not accept them tonight.

I know from what the Minister said in Committee that she is particularly concerned about licensing issues and the difficulties that the BTP and the travelling public face with anti-social behaviour on the railway fuelled by excessive drinking. I shall come to the amendments which deal with that issue in a moment.

I would like to add a word to what the noble Lord, Lord Ramsbotham, said about jurisdiction. This is covered in Amendment 242. The British Transport Police Authority has sent me a copy of a letter which was sent on 7 July from the chief constable of the force, Andrew Trotter, to the Minister of State for Transport, Theresa Villiers. In a paragraph headed “Jurisdiction”, he says:

“The current legislative anomalies mean that there are a number of caveats applied to the powers of BTP officers, these are provided not through our own Railways and Transport Safety Act 2003, but the Anti-terrorism Crime and Security Act 2001 (section 100(2) and (3)) which pre-dated it. The amendment laid before the House of Lords seeks to remove the ambiguity the current legislation creates through these caveats. If the amendment is approved, in the eyes of the public and the rail industry, it will have no obvious impact on day-to-day policing of the railways and I can assure you it will have no impact on costs or other resource implications. It will however put BTP officers on the same footing as their Home Office colleagues when not physically on rail property or carrying out duties related to the railways, i.e. they will be warranted officers not civilians”.

Amendments 271 and 272 deal with the Firearms Act. I read in the latest issue of Railnews, which is the monthly newspaper for rail industry staff, that the Government have approved the creation of an armed response unit for the BTP. That paper states:

“Transport secretary Philip Hammond said the Home Office go-ahead was not in response to any specific threat but would reduce the burden on other police forces which provide armed support to the BTP”.

That is all well and good and it is what the BTP chief constable asked for, but it appears that BTP officers, once selected and through the selection process, will have to apply individually for firearms certificates. This seems ludicrous and flies in the face of the Home Secretary’s determination to reduce bureaucracy in the police service—a point made by the chief constable in his letter to Theresa Villiers. The cost in direct financial terms and in opportunity costs to the BTP and Home Office forces to process more than 100 applications is completely avoidable simply by giving the BTP the same powers as those expressly quoted in the Act for the Civil Nuclear Constabulary and the Serious Organised Crime Agency. It also creates a delay in trained officers being fully operational. Our amendments avoid that and I hope the Minister will feel able to accept them too.

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We have the greatest respect for the BTP, which carries out the difficult task of tackling crime on our transport network. However, for the reasons that I have given, I ask your Lordships to withdraw the amendments.

[Lord Ramsbotham]

My Lords, I thank the Minister for that very encouraging and positive response. I also thank her personally for the care that she has taken to meet with us and take on board the points that we have made and transfer them to the Department for Transport as well.

I think we are all encouraged, but I hope that the Minister will forgive me if I sound a note of caution, because promises have been made to the British Transport Police since 2001. I ask the Minister if we could now have from the Department for Transport and indeed the Home Office an action plan showing who is to do what and by when, which will be reported back to this House so that we can keep in touch with what is actually happening. We have been here before over the last 10 years and people have been frightened, I suspect, by the figures that she might have quoted to us and put the matter in the “too difficult” file. It is not a “too difficult” file; it is a file that must be actioned. Therefore, if I say that I am prepared to withdraw the amendments tonight but perhaps return to the subject on Third Reading briefly, I hope that at that stage the Minister might be able to assure this House that the action plan that I am calling for will be implemented so that these things really will happen rather than be allowed to wither on the vine.

--- Later in debate ---

[Lord Ramsbotham]

My Lords, I am very grateful for that. I do not know whether I have the right to say that but we of course have the opportunity, when the Bill goes back to the other place and comes back here, for progress to be made. It is terribly important, as the Minister has clearly realised, that we maintain the momentum rather than let this matter die. I beg leave to withdraw the amendment.

Amendment 242 withdrawn.