Imprisonment for Public Protection (Re-sentencing) Bill [HL]

Lord Woodley Excerpts

2nd reading
Friday 15th November 2024 Lords Chamber

Moved by

[Lord Woodley]

That the Bill be now read a second time.

[Lord Woodley (Lab)]

My Lords, it is a great honour to open this debate today and to lead this important legislative campaign to abolish, once and for all, the great injustice that is imprisonment for public protection—or IPP sentences.

Parliament abolished IPP sentences on human rights grounds in 2012 but not, unfortunately, retrospectively, leaving thousands stuck with no hope and serving long, long-discredited, sentences. At least 90 prisoners have taken their own lives. Some are now free, both from prison and from licence in the community, having jumped through the right hoops—at least those who were fortunate enough to have the hoops to jump through.

I pay tribute, though, to the previous Lord Chancellor, and the current one, for making significant changes to shorten the licence period, ending this living nightmare for around 1,800 former IPP prisoners earlier this month. But many prisoners are still living this nightmare, and it is those people who I focus my Bill on, which quite simply seeks to convert these never-ending IPP torture sentences into regular, normal, determinate sentences with an end date, giving them hope.

There are three groups we are concerned with here. The first is the never released IPP prisoners, of which there were 1,095 at the end of September this year. The second is the recalled 1,600 people who the Parole Board has at one point considered safe for release, but who have since been recalled to prison due to a licence breach, though in the majority of cases for no further offence. They now need again to prove to the board, 18 months or more into the future, that they will still be safe for release. The third is those now out on licence—around 1,200 people currently considered safe by the Parole Board, yet still living in a state of fear and paranoia about recall to custody.

My Bill seeks to resentence all three groups eventually, along the lines suggested by the Justice Committee in the other place back in 2022. In fact, the Bill mirrors the amendment first moved by the committee’s widely respected former chair, Sir Bob Neill, to the Victims and Prisoners Bill, and then in your Lordships’ House by the noble Baroness, Lady Fox.

As your Lordships will no doubt be aware, resentencing was described by the committee as,

“the only way to address the unique injustice caused by the IPP sentence”.

Crucially, the committee also recommended setting up

“a time-limited small expert committee to advise on the practical implementation of the resentencing exercise in conjunction with the senior judiciary”.

The role of the expert advisory committee is extremely important but rarely, if ever, acknowledged by the Government. I sincerely hope the Minister will address this concern. The expert committee, hand-picked by the Government, alongside the judge nominated by the Lord Chief Justice, would be free to explore all options for resentencing and to make suggestions for how this could indeed be achieved, balancing the important fundamental principle of justice with the importance of public protection. My Bill then calls on the Government to enact legislation to enable this resentencing to take place for all three groups, but in whatever order the committee advises, perhaps prioritising those with the shortest tariff or the longest time over tariff.

At this point, I make an apology for a couple of flaws in the Bill, which have been graciously pointed out to me by Nicholas Cooke KC, a former deputy High Court judge who has himself handed down IPP sentences. There are two flaws for us to be concerned with, and I will immediately table amendments that I hope will address them both in Committee. I genuinely apologise in advance if the following is less suited to Second Reading than Committee, but I believe that the Bill must be in the best possible shape if it is to find any favour with His Majesty’s Government. I hope there are elements of the Bill that the Minister might find palatable.

The first flaw relates to Clause 1(6) about imposing no heavier penalty than the original tariff. Of course, the tariff was set as a minimum release date, equivalent to a standard release of 50% of the way through a sentence, which now, of course, is 40% with SDS40 involved. The correct maximum penalty to be imposed with resentencing, therefore, would be double this tariff. My first amendment will clarify this.

The second flaw concerns those people who would otherwise be sentenced to life imprisonment had IPP not been available and who are still considered a substantial risk of causing serious harm if released. I accept that there should be provision for keeping an IPP sentence in place in those circumstances, although I suspect this would apply to only a relatively small number of cases.

None of this is meant to distract from the very real need for movement by this Government on resentencing. I am aware, as are your Lordships, that the Government’s current position, as in Opposition and like the previous Government’s position, is that resentencing will not be considered on the grounds of public protection. This has been expressed by new Ministers, but there appears to be some confusion as to what resentencing actually means.

Most recently, at a Westminster Hall debate last month, Minister Dakin expressed concern that

“resentencing could result in dangerous IPP prisoners being released, without a licence period, into the community”.—[Official Report, Commons, 29/10/24; col. 242WH.]

With respect, this is a distorted reading of the Justice Committee’s report, and I hope the Minister will address this discrepancy in due course. The missing point, as was highlighted, I think, by every other speaker in that debate apart from the Opposition spokesperson, is that the expert advisory committee would be there to ensure that this is not the case. For example, the committee could advise that releases should be staggered so that probation can properly mitigate any risk, with suitable licence periods imposed. Please can we move the argument on from automatic release and no supervision to the practicalities of what a fair and safe resentencing exercise would actually look like?

My Bill proposes, as did the Select Committee, that everyone on an IPP sentence—all three groups mentioned earlier—is resentenced within a set period of time. But if the Government cannot stomach what was described in last month’s debate as the “full-fat version” of resentencing then perhaps they might consider partial resentencing, which might look, for example, at just the second two groups to start with: those who the Parole Board has at one point considered safe for release. Surely the public protection argument against resentencing this safe for release group is less problematic. Or it might look at just the third group: those currently released and living as normal lives as possible in the community. Surely the public protection argument against resentencing them is non-existent, so why will the Government not consider sentencing these people who, I repeat, the Parole Board currently consider safe?

The Minister in the other place made a valiant effort to explain why at the debate, claiming resentencing would

“halt the risk management and support for these individuals, some of whom will be at the critical moment of having been recently released from custody”.—[Official Report, Commons, 29/10/24; col. 243WH.]

But of course, as I just explained, that would be entirely up to the Government. If the Government wanted to continue the risk management and support, all they would have to do would be legislate for this as part of a resentencing exercise.

I hope all these issues can be properly explored in Committee if the Government grant time for it, but before I sit down I thank the dozens of individuals and organisations that have contributed to this really important debate. Most of all, I thank all the IPP prisoners and their families who have written to me with such heartbreaking stories of injustice. My message to them and to all those still serving IPPs in prison or in the community is: please do not give up hope. Likewise, I do not want to give false hope. They deserve better from us all.

It is up to the Government, and the Government alone, whether my Bill becomes law, in whole or in part. IPP reform is clearly a matter of conscience, with the principle of justice to be balanced with protecting the public. Therefore, there should be a free vote on this Bill in both Houses, in my opinion, but I want to work now with the new Government to resolve this scandal for good. If that means making compromises to make progress then I am prepared to do just that. I want to use the Bill to find common ground to bring resentencing a step closer, even if we do not reach our final destination immediately.

Let us work together to end this scandal and give hope, at long last, to the hopeless. History is being written right now, and my plea to the Government is this: do not be on the wrong side of history. Do not wait for the ITV docudrama to cast you unfairly as uncaring, cold-hearted time-wasters who left damaged people—many of them broken by the state—to rot away in prison while those in power stood by wringing their hands. No. Let us work to find a solution before any more lives are lost to this terrible stain on our precious justice system. In that spirit of co-operation, I beg to move.

--- Later in debate ---

[Lord Woodley (Lab)]

My Lords, I thank everyone for their thoughtful, enlightening and informative contributions, which have outlined the tragedy and scandal that is undoubtedly out there. The Minister’s contribution leaves a void in my mind: we are still not treating the prisoners or their families as an absolute priority and with the respect they deserve. There is no doubt as we sit here today that many prisoners’ families will be watching or listening to this debate. They, like me, genuinely believe that this is as big a scandal as the Post Office and infected blood scandals, terrible as they were.

There are 90 dead—not nine or one, which would be bad enough, but 90. Many of them unfortunately took their own lives as a consequence of having no hope, as, in fairness, the Minister just mentioned. Thousands are sitting in prison with no hope. It is unbelievable.

I listened with interest to the Minister, a man I have a great deal of respect for. I absolutely acknowledge his actions before he came into this place, employing, as he said, 30 IPP prisoners, all of whom he had no problems with and who were decent employees and did their job—those might not be his exact words, but he knows what I am saying. I know that he knows what he is talking about, and I know that he cares. That makes his disappointing answer even sadder.

The Minister kept saying that the first thing we need to do is make sure that the public are safe while putting in place a variety of changes, many of which we all welcome and can see the benefits of right now, as he mentioned. Nevertheless, the simple truth is that our system at the moment, compared to what he thinks we should try to do—and I believe he is truthful in what he says—is not fit for purpose.

The Minister had the decency to introduce me to one of his senior Parole Board people last week. I thank him again for that, but even that gentleman said that, if they had a person out for recall who was put back into prison, it could take 12 to 18 months at a minimum before their case would be reheard, irrespective of the fact that they may already have served 10, 11, 12, 15 or 16 years in prison. With the greatest respect, where is the duty of care not just to the general public, which I will come back to, but to those prisoners, many of whom, as I said earlier and the noble Baroness just said, have become mentally unstable as a consequence of their treatment? Where is the duty of care to them and their families?

The Minister has not given any logical or legal reason why he cannot look at partial resentencing. He said that he does not think it would be fair for a particular reason, but where is the legal problem or impediment in resentencing those two groups found to be safe by the Parole Board? If there is such a legal opinion stopping him doing it, I would be most grateful if he could show it to us. If you cannot stop it, with the greatest respect, all of us should stop waffling here and start to do the right thing. As that old adage goes, where there’s a will, there’s a way. With a genuine Minister like the noble Lord, there is a way for us all to try to help, but we will have to wait and see.

I thank all noble Lords for their contributions. The noble Lords, Lord Carter, Lord Davies and Lord Wolfson, and others mentioned the mental state and health of these prisoners after having gone through such turmoil in recent years. Here lies the other problem with the proposals on the table. When people have given up and lost the plot because of what has happened to them, how on earth could they ever turn around and be fit to get through the Parole Board’s criteria? There is no way they could, to be quite honest. Nevertheless, I look forward to this Bill being given a Second Reading.

Bill read a second time and committed to a Committee of the Whole House.