Police, Crime, Sentencing and Courts Bill

Debate between Lord Ramsbotham and Lord Sentamu

Report stage
Wednesday 12th January 2022 Lords Chamber

[Lord Ramsbotham (CB)]

My Lords, I rise to strongly support this amendment, which was so ably introduced by my noble friend Lady Meacher, particularly if it is matched by a strong commitment to restorative justice among all sections of Her Majesty’s Prison and Probation Service, particularly prison governors. I have witnessed an unfortunate case in which a governor admitted to me that none of the recommendations of the very good police officer who was chairing the conference could be provided by the prison concerned, to the detriment of the whole process.

[Lord Sentamu (CB)]

My Lords, I too support this amendment. It asks the Secretary of State to prepare an action plan and to show how it is being implemented or otherwise, so it is not asking that which is beyond common sense.

I take your Lordships back to the Truth and Reconciliation Commission in South Africa, chaired by Archbishop Desmond Tutu. In front of him is a police officer who was responsible for setting alight a young man. The young man dies and the mother comes, and all that is left is just ash—the body is gone. Desmond Tutu asks, not the person who committed the crime but the mother: “What do you want to say to him?” The mother says, “I lost my son. In the light of what you have been saying to us about the need to address the maladies that have happened and to reconcile people, I say this. I have a broken heart; I lost my son. I want to take this police officer to the place where my son was burnt alive. When we have gone there and have actually touched the earth, I will adopt him as my son, because I no longer have a son.” Desmond Tutu broke down in tears. They go to the place where this had happened, and the mother takes in that police officer as her own son. That is the effect of restorative justice. It never asks the question: “Who has done this? What punishment do they deserve?” It asks the question: “Now that this rather unhappy fact has happened, what are we going to do about it?”

For nearly 20 years I have been lecturing all over the world on restorative justice. In this country, at an international conference gathered by the Bar Council, we had a great debate and discussion; but unfortunately, although we talk about restorative justice, in the light of our criminal justice system we really do not give a major role to what Desmond Tutu’s Truth and Reconciliation Commission did. Had it not been for restorative justice, a lot of people would have been revenging for what had happened. They were very angry and wanted to lock people away and throw away the key, but because of that mission and Desmond Tutu believing that, without forgiveness, there can be no peace—and that forgiveness is a consequence of restoration; it does not come out of nowhere—South Africa, where many people committed terrible, awful crimes, continued to live in peace.

I know that we will not be voting on this amendment, but somewhere, we must find words that express what the noble Baroness has put before us, because if there is no restoration of the relationships that have been fractured by a crime, you just think that that is it. After a big victory in a battle, George Washington started befriending the people fighting on the other side. Those on his side said to him, “Why do you want them to be your friends?” He said, “Well, if they don’t become my friends, they will still be protesting. The only way to overcome an enemy is to make them your friend; then, they stop protesting.”

There are so many people in our country for whom crimes have caused untold difficulty—take the Stephen Lawrence murder. It would have been good if some kind of restorative justice had happened. Neville Lawrence says, “Those five young men did a terrible thing to my son, but I have now realised that if I continue to be angry, it is me who is being destroyed.” Unfortunately, he is not being given the opportunity to go through the restorative justice process. I support the amendment.

Immigration Bill

Debate between Lord Ramsbotham and Lord Sentamu

Monday 3rd March 2014 Lords Chamber

[The Archbishop of York]

My Lords, there are some very welcome amendments to this Bill, and I will speak shortly to Amendments 1 and 4.

As someone who owes his life to a country that was willing to provide sanctuary at a time of extreme danger, as my wife and I secretly left President Idi Amin’s regime in Uganda, I feel strongly about these matters. This is not to say that I do not recognise the need for proper border control. States have the right to guard their citizens from any real negative impact—social or economic—of excessive immigration. Nevertheless, Amendments 1 and 4 are actually very helpful in a number of ways.

First, I apologise that I was not in the House for the Second Reading on 10 February, but I was pleased to see the comments of the noble Lord, Lord Taylor, that day. He said:

“The Bill does not undermine individual rights; rather, it strengthens them. The arbitrariness of whether the family life threshold has been met is replaced by clarity and consistency”.

He went on to say:

“It streamlines the process of removing illegal migrants while protecting the vulnerable. … Families being removed will continue to benefit from the coalition’s commitment to end child detention. … We will protect the vulnerable”.—[Official Report, 10/2/14; cols. 416-18.]

However, undue haste is rarely in the interests of fairness, especially when people are disorientated, confused and fearful. While I can see the merits of bringing the decisions together, giving people only 72 hours to access the legal support and advice necessary to make an appeal is not helpful. What if someone is unwell or on holiday? I can hear those responsible having no answer to make other than, “'Tough luck”. It is only fair that if a person is to be removed they be given adequate notice. The amendment in the name of the noble Lord, Lord Avebury, would have it that the date of removal was given at that point. This is perhaps better than receiving a letter simply saying that you are liable to removal, although either makes it clear that preparations must be made, which is better all round. Of course, some will say that giving notice gives the opportunity to abscond, but, on balance, it is more humane to give notice. The determination is there for those who are regarded as at risk of absconding: they can be detained.

Amendment 4 is another vital amendment that is consistent with the earlier amendment. It would remove the possibility that a family member being removed might receive no notice. It seems to me that, if they did not receive notice, in a society like this that would be not good. I therefore support Amendments 1 and 4.

[Lord Ramsbotham (CB)]

My Lords, I shall speak particularly to Amendments 1 and 2 but also to Amendments 4, 5, 6, 7 and 8, as I shall explain.

At Second Reading, I explained to the House that the whole business of enforced removals was by no means new as far as examination from outside was concerned. Indeed, in 2008, I handed the Home Secretary a document called Outsourcing Abuse, which referred to 78 cases where injuries or death had been inflicted on people who were being removed forcibly from this country. I was then a commissioner on the Independent Asylum Commission, which made some far-reaching recommendations about the whole process. In December 2012, I handed the Home Secretary the report of a commission on enforced removals, which made another series of recommendations relating to the Home Affairs Committee report published earlier that year.

Although Part 1 of the Bill has the sub-heading “Removal Directions”, what is lacking from the whole enforced removal process is overall direction. I was very grateful to the Minister, who was accompanied by the noble Earl, Lord Attlee, for meeting me last week with the Bill team, when I gave him what we had in effect drawn up in December 2012, which was a draft code of practice laying down precisely what should be done in the Home Office as well as by the contractors who are responsible for the removal. The draft also provided for oversight of the whole process, which is sadly lacking at the moment. I was grateful to the Minister for saying that he would take away the document and study it, having referred it to the Minister for Immigration, because it is further reaching in the whole enforced removals process than the content of the Bill. Therefore, I did not table it as an amendment.

However, I should like to inform the House about the content of that document, which is really three codes of practice. The first is all about the actual conduct and the preparation of the case. It refers to duties of the Home Office, which we suggested should establish a complex returns panel to deal with single returnees who refuse either a voluntary or an assisted return in the same way that the Independent Family Returns Panel deals with families. I am very glad that Amendments 4, 5, 6 and 7 deal particularly with the families, and the Independent Family Returns Panel has been a qualified success ever since it was appointed. However, I do not think that that is good enough for the whole process, because the vast majority of people taken back are single people, some of whom have very complex cases indeed.

The document also refers to a group of people who have suffered from totally inadequate supervision and direction for years: the case owners in the Home Office. Frankly, I reckon they are both inefficient and incompetent. I do not reckon that they have ever truthfully told Ministers exactly what has gone on. That has meant that Ministers have not been in possession of the facts. Therefore, we put in the code of practice a lot of things that must be done to oversee the case owners and make certain that they are competent to carry out their task, including having a detailed understanding of immigration law.

Then we come to staff in the immigration detention centre, because that is where the returnee is based. Frequently, the detention centre staff know quite a lot about the person being returned which is not passed on to the case owner and is therefore never taken into account. That causes some of the problems in returns. We believe that immigration detention centre staff must be brought into the process.

Finally come the contractors—the people who provide the detention custody officers taking the person back. Again, this is a sadly neglected part of oversight at present. The contractors have behaved appallingly badly, in public and in front of the Chief Inspector of Prisons when he was accompanying a flight. That they are prepared to do that in front of him suggests that for years they have got away with—literally—murder. It is time that that was stopped. We suggest what must happen to them.

The next part of the thing is oversight. We believe that the Home Office must establish a clearer description and direction of oversight. It has the ideal person to do that in the Independent Chief Inspector of Borders and Immigration. I have met the chief inspector on a number of occasions and know that he is very keen to improve on what he has done already. The difference he has made since he was appointed in 2007 is enormously marked, as I note from when I was Chief Inspector of Prisons and responsible for doing detention centres. If he is given oversight over the process, particularly the practicalities of it, Ministers will find that a lot of the problems that currently appear and are listed under their names will disappear because somebody is responsible and accountable for making certain that those problems do not arise.

I will not speak to the final part of the code of practice at this moment because it refers to the use of restraint, which comes under Clause 2 and Schedule 1. However, my purpose in all this is that underlying everything that has gone on for far too long in the whole conduct of immigration has been what we described in the Independent Asylum Commission as a “culture of disbelief”. It is time that that was eliminated. I find very worrying at the moment that, although the UK Border Agency has been eliminated, I do not detect in the Home Office the leadership of the three silos that have been appointed to take over those jobs. The intentions of this Bill will be achieved only with leadership and drive of the whole process, starting with a determined attack on the 500,000 backlog—it will be defeated only by a determined attack.

--- Later in debate ---

[Lord Ramsbotham]

My Lords, I, too, pay tribute to government Amendments 10, 14 and 15; 10 because of the Independent Family Returns Panel about which the noble Baroness, Lady Hamwee, spoke. I agree with the importance of independence. There is no doubt that the Independent Family Returns Panel has made marked improvements to the process since it was formed, and that it is very well led and well worth listening to. I commend the coalition on the determination with which it has pursued the detention of children. Having served on the advisory board early in 2010, soon after the election, I am glad to see this clause in the Bill.

Finally, I am very glad to see the place of detention at Cedars, and I commend Barnardo’s for the way that it has conducted the care of families who have been in that place.

[The Archbishop of York]

My Lords, I, too, welcome this amendment. The noble and right reverend Lord, Lord Williams of Oystermouth, and I visited Yarl’s Wood when he was Archbishop of Canterbury. We were quite surprised and shocked, and made very clear representations about this particular question of the detention of unaccompanied minors. I am very grateful for what is happening here but again, like the noble Baroness, Lady Hamwee, I want to know whether the Minister can give us an assurance that there will be monitoring of the 24-hours issue and that it will not turn into a norm that nobody can question, so that we can find out whether this is healing a very difficult problem. However, for all of that, I welcome this particular amendment.

--- Later in debate ---

[The Archbishop of York]

My Lords, I stand again to support this wonderful amendment with its mover. What is going on here? This makes sense to me. There are detention centre rules which govern immigration removal centres, but the short-term holding facilities in airports, as has already been mentioned, are very different. In some of them—for example, Pennine House in Manchester where, sadly, a Pakistani man died last July—people can be held for up to seven days. There need to be published rules to provide a sound governance structure. Without that, we will not be reassured. People can be held at times of great personal and familial stress. The intention behind the amendment is to make sure that these facilities make good provision, with clear rules, for safety, care, health, activities, discipline and control of detained persons. Who would argue against that?

[Lord Ramsbotham]

My Lords, I support the amendment so ably moved by the noble Lord, Lord Avebury. When I took over as Chief Inspector of Prisons and was given the responsibility for immigration detention centres, I was horrified to find that all of them were geared only for the short term and had no long-term arrangements for people who were there for a long time. When I went into it, I discovered that the reason for this was the lack of direction from the Home Office. There was at that stage the Immigration and Nationality Directorate, which was meant to be running the centres, and they were all let out on contract, but there was no overall drive, no direction.

The fact that we have now been waiting for longer than World War II for this matter to be resolved suggests that that lack of direction and drive obtains across the whole immigration detention centre system anyway. I am still told by members of immigration monitoring boards that, in fact, the centres where people are held—sometimes for years, let alone months—are not geared to look after their needs in any more than the short term, about which I asked last October and which has been so ably described by the noble Lord, Lord Avebury. It is important not just that the Government do this in six months, but that they appoint someone responsible and accountable for overseeing these centres, and seeing that things actually happen.