Covert Human Intelligence Sources (Criminal Conduct) Bill
Lord Whitty ExcerptsWednesday 11th November 2020
(4 years ago)
Lords ChamberRead Full debate Covert Human Intelligence Sources (Criminal Conduct) Act 2021 View all Covert Human Intelligence Sources (Criminal Conduct) Act 2021 Debates Read Hansard Text Read Debate Ministerial Extracts Amendment Paper: Committee of the whole House Amendments as at 15 October 2020 - (15 Oct 2020)
Lord Whitty (Lab) [V]
My Lords, the noble Lord, Lord Young, makes it easy for me to refer to his protégé, the noble Lord, Lord McLoughlin. I welcome him to this House and welcome his maiden speech.
I also welcome the Minister. I listened carefully to his speech, and indeed to the speech from my own Front Bench, on why the Bill is needed. I am afraid that I am not as yet convinced. On Monday, this House overwhelmingly expressed its outrage at the Government trying to give themselves statutory immunity from breaching international and national law in, as they call it, a limited and specific sense. Today, the Government now propose giving equivalent protection in criminal law to our own security services and a dozen other state agencies to commit unspecified criminal acts.
Obviously, I appreciate that this is not a new issue; I was a member of the Government when the Regulation of Investigatory Powers Act 2000 was passed. I remember feeling uneasy about it at the time—I generally did with Home Office initiatives in that era—but I recognised the need for an authorisation framework. Still, this Bill goes much further than that. My noble friend Lord Rosser proposes significant amendments that might make it more palatable to me, but even then I am not yet convinced.
I am not an automatic knee-jerk opponent of the security services and state agencies. I recall many occasions in my life when I have told keen young political activists who complain that the deep state is monitoring them, “Of course they are! That is their job.” I have always felt that society is safer as a result of those agencies; I am glad that they are there. However, the Bill goes beyond the monitoring, surveillance and simple embedding in, and infiltration of, dangerous organisations.
There are issues with the authorisation process itself but I have two main objections. First, the Bill renders such criminal acts legal for all purposes. That appears to mean that victims could not claim compensation in any respect. If, in order to gain trust in an organised crime syndicate by proving himself, a CHIS undertakes a robbery, does that mean that the victim of that robbery is denied not only a criminal process but any compensation or recourse to the criminal compensation scheme because, under this Bill, the action was deemed not criminal? At a minimum, we need to retain or at least describe the right to compensation for victims.
My second main objection relates to the infiltration into political campaigns, particularly trade union ones. As my noble friend Lord Hain said, we know from very recent history that phrases such as “danger to the economic well-being of the UK” or “preventing disorder” can be used to target otherwise legitimate trade union industrial action or political or environmental campaign demonstrations. Such infiltration by police agents has been identified in the past. On occasion, it has been aggravated by agents of the state authorities acting in effect as agents provocateurs—that is, a supposed member persuading his colleagues in the organisation to go further than they would have done previously. Here, we are treating political campaigns on anti-racism, the environment and trade unions in an equivalent way to terrorist organisations. There must be some distinction and some limit to the degree to which we can grant immunity under the Bill.
Unless there are drastic, explicit changes on access to the civil courts, compensation and agents provocateurs, I will not support the Bill.
Modern Slavery (Transparency in Supply Chains) Bill [HL]
Lord Whitty Excerpts(8 years, 4 months ago)
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Lord Whitty (Lab)
My Lords, I strongly support this Bill and congratulate the noble Baroness on introducing it. As we know, modern slavery takes a number of forms: forced labour and domestic servitude; indentured labour; and sexual exploitation. The reality is that victims come in all walks of life and all sectors.
We were all taught at school that William Wilberforce abolished slavery but here in 2016, more than a century and a half later, we are still faced with products and services that come to us through our shops and daily lives which have in part been produced by what we now call modern slavery. The growing reliance on the internet and social media means that we should know what is happening all over the world, but still in the clothes shops and fashions, in the food we eat and even in our medical supplies there is a component that has been produced by what is, to call it by its proper name, slave labour and equivalent labour practices.
The Modern Slavery Act of last year was indeed a major step forward. I am sorry I could not play a more effective part in that Bill but I strongly supported it. It was a beacon of light shining on to a dark place. In many ways it put the UK at the forefront of nations attempting to deal with this problem. However, the commitments reflected in that Act need enforcement in the commercial sector and across the world if they are to be fully effective. While there is now a relatively high level of public consciousness, it is certainly not sufficient to rely on well-motivated consumers or the important consumer-led bodies and other organisations, some of which the noble Baroness referred to as supporters of this Bill, to enforce it. We have consumer organisations such as the Fairtrade Foundation and trade organisations such as the Ethical Trading Initiative. These are vital to public consciousness and have been vital in getting us this far—particularly in Britain and, with equivalent organisations, in Scandinavia. However, they need to be backed up by effective enforcement.
Enforcement comes in two forms: a legislative and direct regulatory form and an economic form through pressure on the supply chain from the most powerful point in the supply chain, which is usually the final commercial or governmental user. I will say a few words about regulatory enforcement in a moment but this Bill deals primarily with economic enforcement through the supply chain. That is why the original Section 54 of the Act required major commercial organisations of all kinds to report on the steps they have taken to try to ensure that their supply chains are as free as possible from dependence on any form of modern slavery. That could be slavery, trafficking or forced labour which occurred in this country. Frequently we forget that, but there have been some horrific cases in our courts and reports of what is happening in this very city and in the fields of our farming areas. The Act also covers abuse throughout the world.
Our supermarkets and clothes shops—Tesco and Primark as well as the more obviously ethical stores such as Waitrose and Marks & Spencer—now have an obligation to check their supply chains. That does not rely on outside pressure but is, as a result of the 2015 Act, a legal requirement on the retailer or final provider themselves. I am not claiming in any way, any more than the noble Baroness did, that this is fully effective. There are still many clothes in our shops and much food in our supermarkets that we have probably all bought even in the last week that is tainted by these practices. This Bill will further strengthen that requirement so that such companies are listed, their performance much more accessible and the requirement is more widely known.
At least there is already a clear obligation on such retailers and final providers, and campaigners and consumers can therefore hold them to account. However, it was a peculiarly strange omission from the original Act that an equivalent obligation and similar assurance do not apply when we use our GP or go to a hospital, attend university or schools, benefit from the protection of our Armed Forces or the police force, or when we walk by construction sites contracted by the Government. Yet all these contractors and procurers are in the very same markets most prone to abuse down the supply chain—the supply of mass apparel, food, furniture and construction. Indeed, during the passage of the Bill, the noble Baroness was assured by the Minister that public contracts would be dealt with in a different way. However, to my mind that has not been forthcoming.
Evidence for the need to include public procurement and contracting authorities in the requirement to vet their procedures comes from many sources. The need for public procurement to exclude from its supply chain organisations that have been clearly convicted of modern slavery and labour abuse is not even there. I particularly refer to evidence that came to me only yesterday from the British Medical Association. Other noble Lords may have seen that. I appreciate that the BMA is not necessarily the Government’s favourite organisation at this point but nevertheless it is a well-researched and effective report. It shows that in one quite large but obscure area—the procurement of surgical gloves—there are examples of severe labour abuses amounting effectively to forced and indentured labour, particularly in south-east Asia.
That BMA report on the working conditions surrounding the primary sector of the latex glove industry focused predominantly on Sri Lanka, Thailand and Malaysia. It is a damning insight into the living and working conditions of factory workers in those countries, with cases of severe exposure to safety hazards and retention of passports by the company so that people could in effect leave neither the company nor the country—it is mainly migrant workers who are employed. There is a long excerpt in the report from the examination of the situation in Sri Lanka, where the EPZ regions are designated by the Sri Lanka Government for special labour conditions. They are excluded from any of the labour standards that would apply in terms of ILO commitments in other regions of the country.
In terms of our procurement here in the UK, this area should already have been covered. NHS procurement rules and guidelines have, since 2009, been included in the code of conduct, which also includes a labour standards assurance scheme. However, it was due really only to BMA pressure that in December last year that assessment was applied to this trade in latex gloves. If that is one example, there must be myriad more examples in other areas of procurement by not only the NHS but also the major government contracting organisations both at local and national level. They really need to be included in the noble Baroness’s Bill, putting them on a par with commercial organisations.
Will the Minister put on record aspects of the other way in which we strengthen enforcement in this country—direct regulation? A Statement in June related to the extension of the role of the Gangmasters Licensing Authority, together with a changed name for that body. I have an interest in that field, having brought the GLA legislation through this House many years ago, but at that time—and since—its remit was limited. It has been made more limited by subsequent Governments. Both the coalition Government and this Government resisted extending the GLA remit from agriculture, fisheries and first-line food processing to other areas such as construction and catering where modern slavery practices are known to occur. The turnaround in extending the remit of the GLA is welcome and important but needs to be backed by resources and effective enforcement. In replying on the economic pressures on the supply chain, will the Minister also refer to what parallel steps are being taken by the Government on the GLA and by the Independent Anti-slavery Commissioner? What resources are being given to them? How will that more effectively close down some of the appalling practices of which we are all now aware? If the Minister is not in a position to do so today, will he please write to me and other noble Lords? Meanwhile, I strongly support the Bill.
The Advocate-General for Scotland (Lord Keen of Elie) (Con)
My Lords, I am grateful to the noble Baroness, Lady Young, for introducing this Bill and this debate. This Government are determined to tackle modern slavery and ensure that UK supply chains are not driving demand for slavery around the world. That is why we included a world-leading transparency in supply chains provision in the Modern Slavery Act, and why we welcome suggestions for strengthening our approach.
The provision in the Act requires all commercial organisations carrying on business in the UK which supply goods or services and have a turnover of £36 million or more to set out the steps that they have taken to prevent modern slavery in their business and supply chains. This transparency will allow consumers, investors and civil society, and indeed commercial organisations, to hold businesses to account and drive a race to the top.
The first proposal in the Bill is to extend the transparency provision to include public sector organisations as defined by Regulation 2 of the Public Contracts Regulations 2015. The Government fully agree that the public sector must play a full part in increasing the transparency of supply chains. Work to achieve this is under way. Several major public sector procurers have already introduced anti-slavery measures in their standard procurement procedures. For example, the NHS standard terms and conditions for goods and services suppliers include conditions on labour standards, and the Department for Health and NHS Supply Chain have also developed a labour standards assurance system that encompasses issues of forced labour for auditing suppliers in high-risk categories.
We agree that such good practice should be used more widely. That is why we are taking action to ensure that information on slavery and trafficking statements informs future procurement decisions by the public sector. We are amending the cross-government procurement selection questionnaire so that large commercial organisations wanting to do business with government will be asked whether they are compliant with Section 54 of the Modern Slavery Act. This will enable contracting authorities in the public sector to decide whether to exclude the organisation from the procurement process. The new questionnaire will be in place later this year.
We are not, however, convinced of the merits of the proposal in the Bill which involves applying to the public sector a provision that was specifically designed with private sector organisations in mind. The public sector already has different kinds of transparency requirements and accountability to Parliament, which means that it is held to account in a different way from the private sector. Public authorities are also already legally required by Section 6 of the Human Rights Act to act compatibly with the European Convention on Human Rights, which incorporates Article 4 prohibiting slavery, servitude and compulsory labour. Public authorities can therefore be challenged under the 1998 Act for acting incompatibly with convention rights, which private sector organisations cannot, and there are other ways to make progress that do not require primary legislation.
The Bill would also require all organisations to include their statements in their annual report and accounts. This would be a departure from the current provision, under which the Government have made clear that businesses can include their transparency statement in another publication or report, as long as it is clearly marked as their slavery and human trafficking statement and there is a link directly to the statement in a prominent place on the organisation’s website. The existing approach was very much based on a consultation with businesses and NGOs and reflected their desire to avoid a one-size-fits-all rule that could be restrictive. We remain open to feedback about this, but we would prefer to assess the impact of the provision in its existing form before considering any changes to the guidance.
This Bill would also require the Secretary of State to publish a list of all applicable organisations covered by this legislation. This is an interesting proposition. The Government are committed to doing everything we can to amplify the value of information in the slavery and trafficking statements. We want consumers, businesses and civil society to make informed choices that reward companies that take action to eradicate slavery. In theory, publishing a list of the commercial organisations which are captured by the duty by dint of their operation in the UK and their annual turnover could help with this. In practice, producing such a list is likely to be difficult and resource-intensive and may, in any event, not require primary legislation. We are prepared to look at this, but at this time we believe that no legislative change is needed.
The Bill would make it mandatory for contracting authorities in the public sector to exclude an economic operator from a procurement process, if it was established that it should have complied with Section 54 but had not. It would also require the Secretary of State to publish guidance for those public contracting authorities on how to comply with this requirement and with Section 54. We agree with the objective of this provision but do not think that legislating for more guidance is necessary. First, contracting authorities can already exclude an economic operator which has failed to comply with Section 54 of the Act. This is provided for under Regulation 57(8)(a) of the Public Contracts Regulations 2015, which was referred to by the noble Baroness, Lady Hamwee. The regulation is not absolute, as she observed. Secondly, the Cabinet Office will later this month publish cross-government guidance on social, labour law and environmental aspects of the public procurement regulations. This will help public sector authorities decide when and how to exclude economic operators. This guidance will be issued via a Crown Commercial Service procurement policy note which is binding on central departments, their agencies and non-departmental public bodies and which is recommended for the wider public sector. Thirdly, as I mentioned earlier, we are already taking steps to encourage compliance with Section 54 by amending the cross-government procurement selection process. We are confident that these steps will achieve the desired outcome.
I shall now consider one or two particular questions raised by noble Lords. The noble Lord, Lord Whitty, acknowledged that the United Kingdom is at the forefront of this form of legislation. He suggested that it may not be enough for us to rely on consumers and consumer organisations. Over and above that, we rely more particularly on peer pressure. That was underlined in the consultation process that preceded the original Act. There is a desire, particularly on the part of larger businesses, to ensure that at an economic level they are not unfairly prejudiced by the unlawful and disgraceful conduct of potential competitors. Therefore peer pressure plays a part in this process.
The noble Lord referred to the strange omission of public authorities but, with respect, the legislation was designed to apply to the private sector. I pointed out the distinction that arises under the Human Rights Act. Under Section 6, all public authorities are bound by the terms of the convention. He also asked questions with regard to gangmasters and the Gangmasters Licensing Authority. As the noble Lord may recollect, the Government used the Immigration Act 2016 to extend the remit and powers of the GLA. It will be renamed the Gangmasters and Labour Abuse Authority, and its new mission will be to prevent, detect and investigate worker exploitation across the entire economy, which will result in more scrutiny of companies from a law enforcement agency which can examine their supply chains. I hope that meets his concerns about the position of the GLA in that context.
Lord Whitty
I recognised the extent of its remit and asked what resources were given to it and to the other bodies involved in that area. Will the Minister reply to me in writing if necessary?
Bus Services Bill [HL]
Lord Whitty Excerpts(8 years, 4 months ago)
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Baroness Randerson
My Lords, I support Amendment 33. I have tabled other amendments which will make a similar point. I also raised the issue in our previous sitting. It amazes me that the Bill specifies bus operators and a number of other organisations for consultation on a regular basis, but not bus users. Bus users are specified in that way in one place; the rest of the Bill refers to “such other persons” as local authorities think fit. That is not good enough for a Bill which purports to put the passenger at its heart. The point of the Bill is supposed to be to increase the number of passengers and improve bus services. You will not, of course, improve bus services if you cannot increase the number of passengers. To be able to do that, bus services have to be more sensitive to the needs of passengers. The difference between a good, effective bus service and one which is trotting along almost empty is how much you have consulted people about where and when they need the service.
I draw the Committee’s attention to the latest report from Passenger Focus. As a result of its survey, it makes the point:
“At present, passengers believe they have no involvement in determining how bus services are provided; few could think of any examples where they had been given the opportunity to be consulted, and therefore even fewer where they had been actively engaged”.
It goes on to say that they could all “recall significant changes” to bus services but had no recollection of being asked about them. Many years ago, I was a local councillor. I clearly recall how important it was to get the details of bus services right: where the bus stops were, the timing so they fitted in with local trains, and so on. Those are crucial decisions which passengers—who are, after all, the ones doing the journeys—are able to advise on.
I urge the Minister to listen to this plea, which has already gone out in previous debates and will go out again on a number of other amendments: please specify bus users; be precise about this; and enshrine in the Bill a role for bus passengers and their representatives at whatever level. Even down at the lowest and most informal level, bus passengers need a voice. The amendment talks about an increasing voice for bus passengers. We need a good, strong voice there right from the very start.
Lord Whitty (Lab)
My Lords, I too have a later amendment which deals with this subject, so I will be brief. I agree with what my noble friend and the noble Baroness have said. What ought to be in the mind of the Government is the kind of bus service and its relationship, not only with those who currently use buses, but with those who might do so if the service was significantly better and integrated with other means of transport. My noble friend Lord Berkeley spoke about plans in Cornwall to link together the train and bus timetables more effectively. I have to tell him that in my area of Dorset they are not integrated at all. Quite frequently, even in the main part of the day, you get off the London train and there are no buses for another hour and a half.
It ought to be a precept from the word go for these new and enhanced arrangements that there is effective passenger representation in the decision-making process. I quibble slightly with the noble Baroness in that I think that probably has to build up over time. You need an organisation in there right at the beginning, but the way in which my noble friend has phrased the amendment puts an obligation in the new contract or the new franchise for the operator to make part of that improved performance be an improvement in taking into account the views of passengers. As Transport Focus—as it is now called—surveys have shown, there is a pretty pathetic level of trust and appreciation among bus passengers about services at present. So we are starting in most parts of the country, outside London, at a pretty poor low. It is therefore important that this is there in the Bill and that it underlines the whole philosophy of the management approach of the new operator, and that ought to be specified at this early stage of the Bill.
Bus Services Bill [HL]
Lord Whitty Excerpts(8 years, 4 months ago)
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Lord Whitty
Lord Whitty (Lab)
My Lords, this is a slightly odd group, although all the amendments in it deal with consultation after a franchising notice has been agreed. The first amendment deals with an issue which the Minister may feel we have flogged to death at early stages, and relates to the engagement of representatives of users of the services. That is referred to in the relevant new paragraph (c), although I agree with the earlier comment of the noble Baroness, Lady Randerson, that the term “as they think fit” somewhat prejudices the possibility of effective consumer representation in this field if the authority is rather resistant to any organisation purporting to represent the users.
The additional point in this amendment is that not only would I expect authorities and operators in the new franchising situation to encourage, engage with and help develop organisations representing users in the area covered by the new franchise, and go on to develop that further during the course of the franchise, but there is also an issue of how—at least in the initial stages—these franchises develop in different parts of the country and how they relate to passenger concerns across the country. Across England we have an organisation—Transport Focus—which is based in statute and has recently enlarged its role in relation to road users of all sorts as a result of the Infrastructure Bill which passed through this House a few months ago. With Highways England it is responsible for looking after all the interests—commercial and individual—of road users; that is, cars, buses, freight, et cetera. It also has a national perspective. In the railway sector it compares the performance of franchises in the different railway franchise areas, and has done so a number of times. It conducts surveys and gathers feedback. There is a crossover of things that are appreciated by passengers in one area into other areas of rail provision. The same must apply in relation to buses. As we are just starting a new system in relation to buses, the first two or three franchises will set the tone for the way in which the system will operate. It will be important for a national passenger organisation to have at least the ability to comment on those developments and on what passengers find good or negative about them and where they would like to see improvements. As the system develops, the franchising system in large parts of England would benefit from having an overall view from Transport Focus on how a new franchise is perceived by passengers using the system.
When setting the franchise, the authorities will wish to look at the way it has operated in areas where they have already established a franchising system. As time goes on, cross-comparison is important. The organisation, already in place, which would give this perspective is Transport Focus. There is no mention of Transport Focus in the Bill. Therefore, I hope that a role is given in the Bill to that organisation in providing a cross-reference of how the system is working for those who ultimately will be the beneficiaries of what I hope will be an improved service. I beg to move.
Baroness Scott of Needham Market
My Lords, I have four minor amendments in this group and wish to say a word or two about each of them. My Amendment 45 would include the Competition and Markets Authority in the list of consultees. This goes back to a point I made on Second Reading and in the private meeting organised with the Minister from another place.
In the days when I had much more to do with transport, the Competition and Markets Authority writ large across the operation of the bus industry, to the extent that, when I tried to deal with buses in Suffolk, I could not get two operators to sit in the same room with me because they had been told by their lawyers that that could be regarded as collusion and therefore anti-competitive. As noble Lords can imagine, that made trying to run a coherent bus network in Suffolk very difficult. We have dealt with that very effectively now—because we have very few buses. We need to really think about the point at which the Competition and Markets Authority is involved with this. The last thing we want is a very lengthy and expensive process of tendering, consultation and agreement, only to find at that point that the authority has a problem with it.
Amendment 49 tidies up the question of modification. At the moment, it is not at all clear what a modification means. You would not need to re-consult for a relatively minor one, but it is possible to imagine fairly major modifications to a franchising scheme where reconsulting would be a good idea. Amendment 52 comes back to the question of oversight. The Bill mentions “a summary of” the consultations. Given the questions about oversight and robustness, it is really important that we have all the information required. It is not going to be favoured reading among large sectors of the general public, but it is important that those involved in oversight have full information. The same goes for Amendment 53, which is about publishing all the responses so that everyone can see what everyone else has said. That is an important part of good governance and robust oversight.
Lord Whitty
My Lords, I congratulate the Department for Transport on being so forthcoming on this group of amendments, both mine and those of other noble Lords. In opposition and in government I have found previous manifestations of the Department for Transport to be slightly more resistant to the good sense of amendments put forward in this House. I am glad that a culture change seems to have taken place, epitomised in the Minister. Of course, the Bill does have a further, Report stage, when I certainly hope we will have amendments reflecting at least some of the positions taken in this group. The noble Lord agreed the other night on the one part of my noble friend’s amendment he did not refer to—on trade unions and employee representatives. He has already committed on that front so I hope that, before Report, we will see many of the principles embodied in the amendments in this group in government amendments. If not, I shall be disappointed but at the moment I am feeling pretty pleased with the department.
My point about Transport Focus being referred to in the Bill is an important and newish one, and I am very glad that the Minister responded positively to it. I thank him and the department—keep up the good work. In the meantime, I beg leave to withdraw the amendment.
Bus Services Bill [HL]
Lord Whitty Excerpts(8 years, 4 months ago)
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Lord Whitty (Lab)
My Lords, I shall intervene briefly to underline one particular point. I agree that pretty much everything the noble Baroness, Lady Randerson, has said should be taken into account in the setting up of partnerships and in franchising.
There is one point that should be emphasised here and elsewhere in this Bill, and it relates to advanced ticketing and smart ticketing. The noble Lord, Lord Bradshaw, was kind enough to remind me just now, although I acknowledged it on Second Reading, that part of my work as a Minister years ago was never implemented. A big chunk of the failure to implement it is why we have this Bill now, and I congratulate the Government on putting it right. One part was successful, however. I was the Minister overseeing the invention and early implementation of the Oyster card. In 1999, I made the very first commercial use of the Oyster card at St James’s Park station down the road.
The Oyster card has utterly transformed public transport in London. There are other factors, but it is at least part of the reason why we have seen such an enhancement of the use of the buses, and indeed the whole transport system, in London, compared with other parts of the country, both in the cities and in the countryside. It is so much easier to make complex journeys, or even a single journey, within other towns and across the countryside if you already have an advance card. As the noble Baroness said, most buses, even some relatively elderly buses on our rural roads, have the machinery to cope with this or can be adjusted to do so.
This ought to be one of the legacies of this Bill and be writ large across the whole of the bus system throughout the country, with some interaction with other forms of transport as well. It should be developed as rapidly as possible. It should be one of the major achievements of this Bill and of the Minister and his colleagues in the department.
Lord Berkeley
My Lords, one thing that my noble friend has forgotten is that these Oyster cards should possibly be called Whitty cards, rather like the bicycles that are called Boris bikes. I am sure he would not want to be related to Boris in that way, but they are a great success.
I am pleased to be able to tell your Lordships that the local authority in Cornwall is going to implement a similar thing. It is very long and based on customer focus, but I will summarise it. The big double-decker buses will have wi-fi and tables so that you can put your laptop on them. They are going to run very frequently on the main routes. Smaller buses will go into the smaller areas. They will link in with the railway timetable, and I think that the operators’ ability to talk to each other will be unique. They are proposing a single ticket structure—one standard, one band. I hope my noble friend will appreciate this. It is going to happen within the next year or two.
This is a real example of a local authority taking an initiative. It sees that where you have several different operators, as there are at the moment, they never fit with the train timetable. They are going to. Nor do they fit with the ferries to the Isles of Scilly, but I am not going to go on about that now.
Amendment 54A in my name and some other amendments propose something on the quality of standards and on frequencies. We should probably also include interchange points, but we have not done so yet. Maybe we should also add something about a percentage of the population not having to walk further than X miles to a bus stop and an hourly or better bus service. There are what you might call faster services between the major centres of population—plus ones that you might say wiggle between villages and take a lot longer, although they do get there for people who do not have access to public transport. I believe that TfL has a bus services plan, involving the public transport accessibility level, which takes this into account, as does Transport for Greater Manchester.
Not all these things need to be in the Bill; the amendments here are perfectly adequate. However, they and the initiative that Cornwall County Council has shown would mean that neither partnerships nor franchises would provide a much better quality of service for all types of people who want to use it. The irony is that although it has been suggested that Cornwall will be able to have franchises in the same way as authorities with mayors—we will come on to that later—it is confident that all this will happen without the need for a franchise.
It is encouraging that the Government have produced a structure. I am sure that we can improve it, but at least it is there, and it should enable the volume of bus passenger traffic to go up, which is what we all want, with a much better quality of service. I commend what Cornwall is doing, but I hope that the Government will seriously consider adding something about the standards and the frequency of service, as well as the quality, and perhaps come back with their own suggestions on Report.
Baroness Randerson
At a time when the key spots in our towns and cities regularly breach EU limits on air pollution, I believe it is essential that the Bill reinforces the need to improve emission levels. Of course, some people in this country this week may be rejoicing at the idea that we will no longer have to worry about EU emission levels in a couple of years, but the fact that we have emission levels that we have to adhere to is a wonderful example of the advantages and huge benefits that being part of the EU has brought us. Whatever emission levels we choose to adopt in future years, bad and polluted air will still kill you. Therefore, it is important that we have stringent levels.
Many operators are doing an excellent job of reducing emission levels from buses. They are investing heavily in fleets which have very low, sometimes zero, emissions at the point when they are actually being driven. I have in recent weeks been on two electric buses and they were very impressive. However, this does not apply to all operators; some are lagging behind. The technology exists and it does not necessarily involve investing heavily in new buses. TfL has retrofitted buses with scrubbers in order to reduce emission levels—exhaust scrubbers have taken out many of the emissions from diesel vehicles.
I want to deal briefly with the other amendments in this group. I support the other amendments but I re-emphasise my point about retrofitting. The other amendments are very specific about new vehicles, but there is potential for dealing positively with older vehicles and I believe that the general tenor of the amendment in my name means that those operators which may have small fleets and less access to large amounts of capital could still manage to improve the quality of the emissions from their vehicles.
Lord Whitty
My Lords, I have two amendments in this group which go in broadly the same direction as that of the noble Baroness and were intended to apply to existing as well as new vehicles. It seems extraordinary to me that the Bill as first drafted does not contain a need to have regard to environmental standards—even through the word “may”. Over recent months there has been increased attention to air quality in our cities and sometimes in our countryside as well; quite rightly, because the health effect and the environmental effect of air quality deterioration, plus the Volkswagen scandal, and so forth, have underlined the need to move more rapidly on all sources of air pollution, in particular in relation to vehicles.
I should declare that I am the current president of Environmental Protection UK, the successor organisation to the National Society for Clean Air; it was the leader of the successful lobby that led to the Clean Air Act 50 years ago this year, which seriously cleaned up visible forms of air pollution and, indeed, many invisible forms as well. We need now to finish the job and we have the technology, both in retrofit, as the noble Baroness has said, and in new standards. Buses may not be a huge component of air pollution but, per person and per trip, they are large contributors if they are not treated or the standards are not met.
I hope that the Minister will take away, if not the wording of any of these amendments, a need to write into the Bill, both in this section and the subsequent section on franchising which my second amendment deals with, that some of the requirements must relate to the environmental standards of the vehicles and the total environmental impact of the fleets of franchisees or contract holders. If it does not, it is a serious omission and a serious lack of joined-up government between the Department for Transport, DECC and Defra when we are trying to tackle both climate change and air pollution. Whatever final form of words we come up with before the Bill leaves this House, this ought to be reflected in both sections of the Bill.
Lord Berkeley
My Lords, I have my name to two of these amendments. I support what my noble friend has said. Let us remember that even in London, which probably has some of the newest and now cleanest buses in the country—even if they do not have any air conditioning, which does not seem to affect the emissions, luckily, but does affect the passengers—the then Mayor of London, who may even be our next Prime Minister, had to cover up the monitoring stations along Euston Road before the Olympics in order to keep the levels of pollution below those which had occurred in Beijing during its Olympics. With all the money that TfL had and has, it had to fiddle that. It was not a problem caused by buses but by other vehicles, but it was still a fact. It happens in many other cities and it is essential that some regulations or clauses such as those proposed by these amendments are included in the Bill.
Bus Services Bill [HL]
Lord Whitty Excerpts(8 years, 4 months ago)
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Lord Whitty
“(fa) recognised trade unions or other representatives elected or appointed by employees,”
Lord Whitty
My Lords, the two amendments in this group in my name are on the same issue—one relates to advanced quality partnerships and the other to franchises. They simply relate to the pre-consultation process. In new Section 113G(3), there is a list of everybody that,
“the authority or authorities must consult”.
They include a wide range of people. I am not disputing that any of them should be excluded from that list. Obviously, the operators, the users, the local authorities, the traffic commissioner, the chief of police and the Competition and Markets Authority should be there, but it does not include the workers or any representatives of those workers.
In previous discussions, we have heard of the importance of the skill of the drivers and the way in which they deal with passengers—particularly disabled passengers, but passengers in general. It is not just the drivers. The maintenance department is required to keep the vehicles up to scratch without encountering safety issues. The workers in that industry know the problems; they know how the old system works and, if there are proposals to change it, they will have a view on whether those changes are desirable, viable and workable. For the most part in this industry, they are represented by trade unions and there needs to be a clause which, if not precisely in the words that I have here, needs to require the consultation to involve the representatives of these workers. It is a highly unionised sector. There are, therefore, recognised unions in most parts of the country. That is why I refer here to “recognised trade unions”. Local authorities and the department would be wise to make sure that the trade unions are included in that consultation when they are proposing change.
There are some sectors where there are no unions and there is a reference in the amendments to alternative means of representation. Some of my more purist colleagues in the trade union movement may not like that particular phrase, but I have used it because it is used in the department’s own guidance as to how consultation should be carried out in relation to changes to the existing system. It is important that, on the face of the Bill, we refer to consultation with the workers and representation of those workers. I hope it would be in roughly the form that I am proposing. The department has, in a parallel context, used it in their own secondary legislation and guidance and it is therefore important that it should be here.
There is of course the usual catch-all in the final paragraph of subsection (3), which refers to,
“such other persons as the authority or authorities think fit”.
They may or may not judge the people who are currently operating the system or might potentially do so to have been incorporated in that category. I think that we need to be explicit about it; there needs to be reference to the representatives of workers. In this industry, that is mainly recognised trade unions, and it would be wise to reflect that in the Bill. I beg to move.
Lord Ahmad of Wimbledon
My Lords, the amendments in the name of the noble Lord, Lord Whitty, would add further requirements to the consultation provisions relating to franchising and the partnership proposals. I thank all noble Lords who have spoken in this brief debate. I sympathise with their aims and I accept that this is an important point to raise. I agree that it is important that employee groups are consulted appropriately on proposals to improve local bus services. I agree particularly that significant changes to local bus services could well impact local bus industry employees, so it is only fair that they are given the opportunity for input in such circumstances.
In that regard, I encourage any authorities thinking of using any of the new tools in the Bill to engage with all the interested parties as proposals are developed. The likely impact on employees will, however, be materially different in the context of franchising, where it is more likely that service patterns, and potentially the operators of those services, will change than under partnerships schemes. So I agree that employee groups and others affected by the proposals should always be consulted formally on franchising schemes and I will consider how best to ensure that the Bill achieves the objectives of Amendment 46, as proposed by the noble Lord.
There are a number of ways in which this might be achieved. These range from the use of statutory guidance to an amendment to the Bill along the lines that the noble Lord proposes. I will take the comments from this short debate back, reflect on them and, I hope, work with the noble Lord to come back with something that represents what has been expressed. To pick up briefly the point raised by the noble Lord, Lord Berkeley, on the need for passenger representatives to be consulted on schemes, this is already included within the advanced quality partnership clauses, the franchising clauses and the enhanced partnership schemes in Clause 9. Coming back to a point made by the noble Baroness, Lady Jones, I hope I have demonstrated that, as Committee progresses, the listening goes beyond acceptance and sympathy to due consideration of some of the valid concerns and issues that noble Lords have raised. I hope that, with that reassurance, the noble Lord is minded to withdraw his amendment.
Lord Whitty
My Lords, I thank my noble friends for their support for these amendments and I particularly thank the Minister for being so constructive about the substance of this clause. I hope that he and his department can come up with a form of words which meets my point and that of my noble friends. I congratulate him on not reading out the usual departmental guff about not being able to add somebody else to a list when you already have a list, on the grounds that you then have to add everybody else. The employees are key to the success of both the current and the future operation and I therefore think the noble Lord has done us a favour tonight by not taking the usual ministerial line—which I confess I have used on occasion—but seeing reason. I hope that the employees of this industry will be duly grateful to him and I beg leave to withdraw the amendment.
Bus Services Bill [HL]
Lord Whitty Excerpts(8 years, 5 months ago)
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Lord Whitty (Lab)
My Lords, it is a pleasure to follow the noble Lord, Lord Young. I agreed with a good two-thirds of his speech. We have to recognise that this Bill follows 30 years of bus deregulation and—outside London—30 years of bus decline.
There has been a fall in bus coverage in almost the whole of England outside London and a big contrast with the situation in London, where franchising has been the rule. There has been a decline in passenger trips in metropolitan areas by more than 1 billion, as well as falls in rural and suburban areas. Of course, the reduction is still going on in services: there have been 2,400 withdrawals and downgradings of routes since 2010. The noble Lord, Lord Bradshaw, referred to Oxfordshire. In my area of Dorset, Somerset and Wiltshire there are now threats to withdraw several vital routes.
Meanwhile, in London the bus service has gone from strength to strength. Some of this relates to funding, and the Minister acknowledged that—but the Bill does not. There is a big funding gap and a big gap in the Bill. The funding of bus services has gone down by 25% since 2010 and the funding of concessionary fares has been cut by 40% since 2010. In London, again, the funding has moved in the opposite direction.
This decline in bus services post deregulation was recognised quite early on—certainly by the time the Labour Government came to power in 1997. I was the Minister in this House who brought through the Transport Act 2000, along with my noble friend Lord Macdonald of Tradeston, who is no longer in his place. Some of that worked, as far as buses were concerned. We brought in legislated partnerships and in many parts of the country they worked very well—but for larger local authority areas we envisaged quality service contracts, and that part of the Bill, I have to say, completely failed. That was recognised by the Government later on. In 2008, they tried to simplify the process to get some moving, but none have actually occurred. This is the very area where franchising is now the appropriate form and I applaud this Bill’s commitment to it.
The reason that the previous form of intervention failed was partly the complexity in the drafting of the Bill and the regulations. But they were complex because we knew that we would be faced with serious challenges from the large bus companies. That occurred on every single occasion when quality service contracts were tentatively proposed. This even went on until very recently. Even last year, the proposal in the north-east for a quality service contract—or something very like it—was dropped because of objections by the companies. The chair of Stagecoach referred to local councillors in the north-east as unreconstructed Stalinists. I am not sure whether he included the noble Lord, Lord Shipley, in that description—but nevertheless the process was stopped in its tracks.
With franchising, we have a new measure which has worked well in London and in many international examples. It puts power in local authority hands and gives a sensible size of area for the franchise to operate in. I recognise that it will be most effective in areas where there is wider devolution to city regions. In Greater Manchester, I know that for many years they have envied London’s abilities in this area and would like the ability to decide routes, frequencies, fares and quality standards for all buses in their city region. The franchising model, which could be extended to a multimodal one that would be appropriate for Manchester, facilitates that along with the setting of fares and requirements to meet reasonable costs.
The elected mayor in Greater Manchester could specify new minimum standards for fares, real-time information, timetabling et cetera. I know that in Manchester my old friend Tony Lloyd, who is acting mayor and may well take up the job permanently, would want to use bus-franchising powers to set routes that work for communities and make sure that the north and south of the conurbation of Manchester, which are rarely connected, should operate together, and that the oversupply of buses on some routes, because of the competition, and the undersupply on others would be corrected by the franchising process.
While the Bill is great for Manchester and other conurbations, why does it require there to be an elected mayor? This is the opposite of localism. It is the opposite of what I would regard as the spirit of devolution. In many rural areas there is no prospect of having an elected mayor, and there are other urban areas which do not like the prospect of an elected mayor. The process could work just as well in combined authorities, whether there was an elected mayor or not. I do not understand this restriction. The Government have promised these powers to Cornwall—my noble friend Lord Berkeley is here and often speaks for Cornwall—so why not to other areas in the rural counties of England? There is a bit of an obsession with elected mayors in legislation coming from this Government. Devolution, city regions and additional powers on the transport front, including those in the Bill, are very appropriate but do not need to be confined to areas that have decided to have an elected mayor.
The other restriction on localism and devolved decision-making relates to the prohibition on new municipally owned or part-owned companies. I do not understand why. We still have a number of quite successful municipal bus companies operating in this country. The Minister mentioned Reading and my noble friend Lady Jones mentioned the success of Nottingham City Transport, which is majority owned. The model also exists in Blackpool, as noble Lords who attended conferences there will remember, and in Halton. I do not know whether the Chancellor of the Exchequer ever takes a bus but it has been pretty successful in that area. Why prohibit it elsewhere, if that is the decision of the combined authorities that will be able to introduce these franchises and take advantage of other parts of the Bill? In fact, internationally, in some of the best-served cities that we visit, the municipalities of the regions own the buses. They include Vienna, Munich, many French municipalities and even parts of the United States.
So why are we very explicitly, in Clause 21, prohibiting the power to set up a company as an option in England? Again, this is the opposite of localism. It could be useful in rural areas, some of which might want to set up a company of their own because those areas are not attractive to some of the major companies. Local authorities and other public services lay on buses for other purposes—schools, social services, disabled transport et cetera—and you could combine all of those in a municipal or county-owned bus service in rural areas.
Rural areas of course are the parts of the country that are most dependent on buses, but they are also, in practice for most areas, where they are most underused and most expensive—as far as people without concessionary fares are concerned—and where they have seen a very substantial decline in both routes and passenger numbers. Concessionary fares are of course being threatened, in which case you could have even more empty buses on rural roads. The rural bus subsidy grant needs to be restored and devolved in some form or other. Rural counties should, as I say, have access to franchising powers and the other powers in the Bill. Rural areas should have the option of setting up on-demand services—what are sometimes locally known as Wigglybuses, which are a combination of buses and taxis—and engaging in other synergies between scheduled and on-demand routes.
We have not yet had an impact assessment of the Bill, and I hope that the Minister can confirm that we will receive that before Committee. We also need an indication of the rural-proofing of the Bill, which I have not seen anywhere in the literature that has been provided by the department, which is otherwise excellent.
Other noble Lords referred to environmental factors. Buses contribute to a degree to the carbon emissions from transport. We have now been set the task by the Government of cutting transport carbon emissions by 15% by 2020, which will be difficult, and buses need to be meeting that. More important, probably, is the air quality aspect, and we need to ensure that there are proper provisions and incentives for refitting and scrapping older buses and for bringing on newer ones that are more environmentally sensitive.
I welcome the ticketing provisions in the Bill, including the emphasis on simplified electronic and through ticketing, which is a very important issue for consumers. Again, London and the Oyster card led in this area, and Oyster itself is now being updated. There is much more that we can do here; ticketing could be multimodal.
When we talk of the benefits to the consumer that the Bill could deliver in terms of convenience, cost and reliability of service, we need to recognise the role of passenger bodies in this area. In the consultation list, for example, there is no reference to what is now Transport Focus, a very commendable body; nor is there any reference to any local equivalent in the franchised areas to what we have in London with TravelWatch. We need some established form of consumer representation in this area.
We also need to consider the workforce. A qualified and experienced workforce is very important, and the noble Lord will know that this remains a very highly unionised area; the main union is Unite. The only point where union or worker representation is touched on at all is in the TUPE provisions—which are welcome, as are the parallel pension provisions—for people who are affected by transfer between one company and another. But of course TUPE only arises at the end of the process, and there should be a requirement for consultation with the workforce all the way through the franchising process, as there is in respect of consumers.
In summary, the Bill is a good move in the right direction, but it needs to go further and to be tidied up a bit. There is too much reliance on regulation, but I am sure that I and other colleagues in this House can work on that as we go through Committee so that we get an improved Bill before it leaves the House.
Civilian Use of Drones (EUC Report)
Lord Whitty Excerpts(9 years, 2 months ago)
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Lord Whitty (Lab)
My Lords, I enter this debate principally to congratulate the noble Baroness, her committee, staff and advisers on producing what I think is an exemplary report. I say that although until very recently it was a subject about which I knew pretty much nothing. Two things happened to me before the turn of the summer. The first was that I attended a family wedding in the depths of rural Somerset on a lovely summer’s day, when, after quite a few glasses of champagne, the gathering was summoned out into the open for photographs. I was expecting to see a bloke underneath a black shroud—crash, bang, wallop, stick it in the family album—but no, there was a speck in the sky coming ever closer, darting around and taking photographs. To be honest, I had not encountered that before and I was astonished. Many of my fellow guests, who were much younger and more conversant with the technology then me, were equally fascinated.
The second thing that happened to me was that, in their wisdom, the usual channels have now made me chair of the very committee which the noble Baroness, Lady O’Cathain, has recently vacated. I am therefore responsible for taking this forward, along with the other responsibilities of the committee. I am glad to say that at least two new members of the committee are participating in this debate.
As my noble friend Lord Giddens said, this is an entirely new technology but part of a whole range of new technologies which are taking over the globe. It is very difficult for those who are not intimately involved in it, except possibly as users, whether as toys or as part of their business, to see the big picture. The great thing about the report is that the committee saw the big picture. It saw, first and positively, that this was an infant industry; secondly, that the regulatory structure was at present inadequate at both national and international level; and, thirdly, that there is a very important role for the European Union in this respect—something that justifies the committee in choosing this area to examine.
As has been said, the technology has multiple applications and raises multiple issues of safety. What are the design standards and requirements? It also raises issues of privacy and security for individuals, businesses and the state, and serious issues about data protection. Using general rules does not always deal adequately with new technology.
There is a problem of invasion of and impact on the space used by aviation and by us in our gardens and recreation. There is also an economic impact on a lot of existing industries from traditional means of communications and delivery. If this technology grows as rapidly as some are saying, it is clear that it will need a lot of attention from various state organisations and that it will need some coherent framework of regulation, which the committee is asking for. It is a nascent industry and, like a young child, a nascent industry certainly needs encouragement, nurturing and investment, but it also needs boundaries and rules—and it needs rules that protect others with which it comes into contact. It is important that we in Britain recognise that and that the CAA and the Government take that on board, and it is clear from the positive reaction of the Government to the report that they are beginning to grapple with that. But it is even more important to recognise that it would be utterly absurd if, in this complex area, we ended up with 28 different jurisdictions all attempting to deal with this new phenomenon in ways that suited their own economy and own society. Recognition that an EU initiative is necessary is vital.
Who should actually perform those initiatives, in terms of regulations, is a difficult one. The committee ends up by recommending that JARUS, an organisation that I had never previously heard of, should take this responsibility. But it also recognised that the resources, expertise and backing that JARUS has are not really adequate to the task. Others have pointed out that the CAA and the police in this country are not really resourced or expert enough to deal with this technology. The challenge facing the Minister tonight is really to give an indication not that the Government have done something about it but that they are clearly aware of the need to ensure that the CAA—and via the CAA the European organisation building on JARUS—has adequate resources and expertise, and that that expertise and those resources are available within this country.
This is a big subject, and the committee has dealt with it in a very effective manner. There are graver spectres of how this technology could develop if we go for the wrong form of regulation or non-regulation or submit this new industry to powerful interests, legitimate or non-legitimate. This overlaps with the new field of inquiry, which my committee is undertaking in relation to the operation of platforms within the digital market. There are anxieties there that large platforms in effect have an impact on traditional sectors which is not accountable or clear and crosses the boundaries and alters issues of accountability and contract law. Also, as the noble Lord, Lord Giddens, indicated and as the noble Lord, Lord Wei, pointed out in the committee only the other day, they run on algorithms which almost nobody—even the owners of the companies—entirely understands. If we envisage a situation in which a large proportion of these drones were actually owned directly or indirectly by a single entity run on the basis of algorithms, we are talking about a very sinister development indeed.
I hope that this report will aid the institutions at British and European level to ensure that this development operates in a positive and not a negative way. We should all be aware that there are vast problems here, and ones that we hope that the Minister will reassure us the Government are aware of and are addressing.
Modern Slavery Bill
Lord Whitty Excerpts(9 years, 11 months ago)
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Baroness Kennedy of The Shaws
My Lords, I support these amendments. I see them as a corollary of our concerns about supply chains. Increasingly in my work, I am looking at issues concerning the corporate world and human rights. Many leading figures in the corporate world are anxious to address these issues because of the implications for their brand and damage to their reputation internationally if they are seen to be participating in activities which breach human rights.
Outsourcing is similarly an area where there are risks of high levels of abuse. There needs to be a real awareness that, as with supply chains, in outsourcing aspects of a business there is often a risk that those who are providing labour are going to be exploiting and abusive of those they are bringing in. As I mentioned, I chaired an inquiry in Scotland for the Equality and Human Rights Commission. The whole of the central belt of Scotland is a provider of soft fruits and brings in migrant labour from abroad. It was the Gangmasters Licensing Authority that helped to eradicate some of the abusive practices that were happening there. The workers were living in the most terrible circumstances and there were issues around not just what they were being paid but how they were being treated. It falls to the Gangmasters Licensing Authority to raise standards as well as to bring prosecutions. The inspectors within the GLA are often former police officers. I was very impressed with their commitment and with their evidence to the inquiry. As we have heard, this is moving beyond food and agriculture and into construction. It is also moving into care, as the noble Baroness, Lady Kennedy of Cradley, mentioned. In this area, the ill treatment of workers is great, as it is in the outsourced elements of hospitality, such as cleaning and laundry.
I urge the Government to look at this. I accept, as do others, that there are financial constraints and that there would need to be resourcing. I support the idea of enabling legislation so that when the time is right we will not have to take up more parliamentary time and the expansion of the Gangmasters Licensing Authority’s remit can be speedily introduced.
Lord Whitty (Lab)
My Lords, I will intervene very briefly because I agree with almost everything that has been said. I was the Minister who brought in the Gangmasters Licensing Authority. At that time there was considerable scepticism as to whether we could use administrative means to clean up what was broadly recognised as an exploitative situation within horticulture and agriculture. I wished then that it had been slightly broader than that because, even more than 10 years ago, it was evident that some of these terrible practices extended to some other industries. Indeed, the same workers were being used. However, we decided to focus on horticulture and agriculture. The general message is that, although we have not entirely eliminated exploitation, bad living conditions and illegality from those sectors, they are a lot cleaner than they were. The effectiveness of the GLA is widely recognised.
The important point that has not really been emphasised is that the GLA has the ability to sanction the users of the labour. It is not just the gangmasters who are in the frame but the farmers and the horticulturalists as well, and that has driven a change of behaviour and attitude which has been backed up by those who use the produce—the retailers and the processors. There is a whole supply effect because the direct employer of labour that is being provided under these terrible conditions can be sanctioned.
This situation pre-eminently applies in parts of construction and it very evidently applies in catering and hospitality and in the care sector. If pressure is not put on the apparently respectable users of that labour then the sanctions, although not entirely ineffective, are less than complete. I recognise, as other noble Lords have done, the need for more information and more resources but we must use this legislation to enable the Government to extend this kind of approach to these other sectors at the appropriate point.
Baroness Hamwee
My Lords, I have added my name to Amendment 97 tabled by the noble and learned Baroness, Lady Butler-Sloss. It is clear that the Gangmasters Licensing Authority is widely respected and its role in preventing the increase in forced labour is very effective. The sectors that we are concerned about have all been mentioned and so I do not need to repeat points that have been powerfully made. It is not just a question of extending the sectors covered by the GLA. We should also not overlook its powers and duties. For instance, I understand that the GLA does not have the power to recover arrears of pay on behalf of workers. That sort of power or function might be one for further consideration.
The issue of resources arises. My noble friend Lady Suttie, who cannot be here at the moment, commented to me that there should be some sort of cost-benefit analysis of the extension of the sectors because of possible savings elsewhere. We know how hard this is in government. The DWP, the Department of Health and even the Home Office perhaps would not readily concede this, although they might be involved in some sort of analysis.
I am sorry to see that the CBI is reluctant to consider an extension. Its briefing refers to the GLA being,
“most effective in those sectors in which it currently operates”,
and to focusing on not extending work to “low-risk areas”. As noble Lords have said, construction, care, catering and hospitality are high-risk areas. The CBI is concerned about scrutiny of the compliant rather than action against the non-compliant. The obvious answer is that when there is compliance there need not be too much of a burden.
The British Retail Consortium takes a different view and has briefed a number of noble Lords about the GLA being an example of an effective body in helping to manage and mitigate the risks of slavery. It supports a review of the role and remit of the GLA, including extending its investigative powers, as long as it is sufficiently resourced, into other, as it puts it, high-risk areas. It is obvious that there is, if not unanimity, quite a lot of support. This surely must be something that the Government could at least leave on the agenda rather than exclude it.
Police: Performance Indicator Management
Lord Whitty Excerpts(11 years, 8 months ago)
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Lord Whitty
My Lords, I will make one or two of the same points as the noble Earl, Lord Lytton. Unlike some other Members who are going to speak today, I do not have great experience or expertise in this field. With one or two exceptions, my relationship with the police has been generally okay. I am merely a concerned citizen here, in that I really want to know what is happening to crime in this country. Politically, both this and the previous Government congratulated themselves on a falling level of crime. I did not seriously query this claim until recently.
Of course, government and police claims of crime reduction have always been treated with a degree of cynicism by the general public. Public perception of crime rates in all neighbourhoods tends to exaggerate the degree of actual crime. Of course, there are horrendous crimes, which receive massive publicity. Although harrowing to those immediately concerned, as I know, these are probably not typical. There is a general public perception that the level of particularly low-level crime is higher than the police and the Government claim.
Sometimes the police go over the top. I am told that the South Wales Police notepaper says that crime is the lowest for the past 30 years. I doubt that anybody in south Wales actually believes that—nor would people in Dorset or the City of Westminster. There is a credibility issue underlying this, and some of it has a good statistical basis because of the way in which the police record crime as against, for example, the crime survey and the way that victims see their complaints. So there are some rational explanations for it.
However, I was quite alarmed to see that the ONS itself was seriously querying the degree of crime reduction. That is probably where I am. I probably logically accept, despite the psychology of it, that there has been some reduction, but it is the degree. There was quite a significant difference between the police figures and the other figures to which the ONS referred. The ONS gave a number of quite good reasons for this but at the same time I became aware of the work of Dr Rodger Patrick, to whom the noble Earl, Lord Lytton, has already referred.
According to Dr Patrick’s analysis, some crimes are no longer recorded on the basis of reporting by victims or the public but on the evidential assessment of police officers and on the balance of probability. That was always the case with third party reporting but used not to be the case where victims themselves reported. Other cases are lumped together and given the same crime number to appear only once in the statistics. Minor crimes can go unreported altogether: some are on a local crime data list; some are subject to informal caution and are cleared, one way or another, and do not get into the national statistics.
Meanwhile, on the detection side, issues such as “take into consideration cases”, to which the noble Earl, Lord Lytton, referred, are sometimes lumped together as solved or cleared as a result of a deal with a defendant or prisoner, without real conviction and due process. I have read parts of Dr Patrick’s analysis, and I have no way in which to assess the validity of all this or how widespread it is. But it is also true—and this is in the title of the debate—that with some crimes under the last Government there was a drastic fall, following the introduction of targets and performance management criteria. That might mean different things: it might suggest that the target culture was instantly incredibly successful in increasing overall efficiency against targets; it might suggest that the priorities and resources were, as in other public services, concentrated on those areas that were measured and defined as targets while other areas were left underresourced; or it might mean—and this is something that we regrettably know about in bits of the NHS—that figures were reclassified or manipulated to exaggerate performance improvement.
What we need to know from the Minister tonight is two-fold. Does he recognise the figures on descriptions of malpractices in individual police forces to which the noble Earl referred? What arrangements for quality control and challenge of statistics coming from individual police forces are there in England and Wales? Secondly, I recognise that the Home Office and the ONS give guidance to the police on how to record crime, but who checks the compliance? Is it the police authority, the new police commissioners or the Inspectorate of Constabulary? What is the role of the Police Support Unit—or is it the ACPO high command, or the Home Office itself? How does it work and, in particular, how far is it guided, checked and quality controlled by non-police bodies, or is the guidance and advice from ACPO to chief officers dominant? Like the noble Earl, I have some concerns about the role of ACPO in this area.
There are also reports that those who query the current system, whether from within the police force, from community bodies or even from the Home Office, suffer repercussions—they have been victimised or moved to other duties. Is the Minister aware of such allegations, and what would he instruct the Home Office to do about such allegations? I have to phrase this in the form of questions, partly because of the difficulty of proof and partly, frankly, because of the litigiousness of some of those who defend their position. But these are questions that the Ministers in the Home Office and, perhaps, the Ministry of Justice, need to ask.
The present Secretary of State has made two key decisions in relation to crime statistics and performance. First, she transferred responsibility for oversight and reporting of crime statistics after 2011 from the Home Office to the ONS. That is a very sensible move, which will probably pay off in the long run. However, the ONS analysis is only as good as the statistics that come in. Unless we can improve the accuracy and integrity of all sources of information and eliminate natural bias and contrived distortions, the ONS and Ministers will still be working on flawed systems of statistical records, and hence a flawed evidence base. Secondly, the Home Secretary determined that the police service should move away from target-based performance indicators and, in the light of experience, we would probably think that was the right move as well. But local commissioners will still need authentic, undistorted statistics on which to make their decisions. If not, we are going to end up in the worst of possible worlds, where there are no performance targets, but the police go on recording the same statistics in the same way.
It is time that we had a proper analysis of this—the review by the ONS goes just so far. But as the noble Earl said, unless we are confident in the statistics that we receive, bad statistics will distort the basis for operational decisions by chief officers and strategic decisions by police commissioners and distort the very basis on which Home Office Ministers and officials make national policy in England and Wales. We need a new, expert review, probably judge-led, without an axe to grind, distinct and separate from the police force itself, and we need it soon.
Earl Attlee
Can the noble Lord conclude his remarks very soon, because he is completely out of time?
Lord Whitty
If I am completely out of time, I shall just say that a push for such an outcome needs to start from the proceedings here today.