Forensic Science Regulator and Biometrics Strategy Bill

Bambos Charalambous Excerpts

2nd reading & 2nd reading: House of Commons
Friday 25th September 2020 Commons Chamber

[Bambos Charalambous (Enfield, Southgate) (Lab)]

Before I begin, on behalf of the Opposition, I express my deepest condolences to the officer who was killed in Croydon police station last night. It is a tragic and shocking loss that reminds us how important it is to recognise the risks that our police officers face and take every day of their lives. I also associate myself with the remarks of the Minister and other Members who paid tribute to the sad loss.

I congratulate my hon. Friend the Member for Bristol North West (Darren Jones) on his timely and much needed Bill, which covers an area that has not had much attention in recent years. I also congratulate Members who have taken part in the debate on the manner in which they have conducted themselves and on their broadly warm consensus on the Bill. I very much hope that we will see progress as a result of the debate.

In order to understand why the Bill should be welcomed, it is necessary to look back at key points in Parliament’s interest in the work of the Forensic Science Regulator. In the heyday of the coalition Government, the House of Commons Science and Technology Committee carried out an inquiry into the Forensic Science Regulator, publishing its report on 17 July 2013. In its conclusion, the Committee made the following recommendations.

On quality standards, it said that

“there must be a level playing field between those who conduct forensic tests for the police, prosecution and defence. In particular, the police must work to the same quality standards as they demand from external forensic science providers.”

On a Forensic Science Regulator, the report concluded that

“the disparate nature of forensic science provision across the public and private sector means that the role of the FSR now needs a statutory underpinning. The current FSR has done an excellent job in raising the profile of forensic science quality standards during his tenure, and this must be continued.”

That was back in 2013.

As part of the Government response to the inquiry, on 8 November 2013 the then Home Office Minister Norman Baker made a written statement announcing the launch of a consultation on strengthening the powers of the Forensic Science Regulator. Acknowledging the regulator’s role in setting standards, and accepting that the meeting of standards by forensic service providers was voluntary, he added:

“there is a risk that voluntary quality standards might not, in the future, provide the high level of assurance required for forensic evidence. For that reason we now propose introducing stronger powers, including putting the regulator’s codes of practice, which set out the quality standards for forensic science providers, on a statutory basis.”—[Official Report, 8 November 2013; Vol. 570, c. 24WS.]

That was back in 2013 when there was a consultation which clearly showed the Government’s intention of the day.

Following the consultation, the Government’s response in July 2015—things sometimes move slowly in the Home Office, although hopefully that will now change— showed that the overwhelming number of respondents agreed that all stages of the forensic evidence process should be covered by the regulator’s statutory powers, as should all forensic science disciplines. The section entitled “Next Steps” stated:

“The Home Office is developing a Forensic Strategy to be published by the end of 2015. This will consider current and emerging opportunities and challenges in the forensic landscape. Alongside this work, options for the Forensic Science Regulator are being considered and the way forward will be published alongside the Strategy.”

That strategy was published in March 2016, and page 7 includes the aim of having a clearer statutory role for the Forensic Science Regulator. Paragraph 44 states:

“We will develop proposals to give the Forensic Science Regulator statutory powers, put the current remit and the associated Codes of Practice on a statutory basis and enable the Forensic Science Regulator to investigate non-compliance where necessary.”

That was in the strategy, and the Bill does exactly what was set out in 2013, 2015 and 2016. Since then there have been ample warnings and opportunities for the Government to take action and implement their own strategy commitments, but despite further scrutiny from the Lords and Commons, via the respective Science and Technology Committees, they have not yet done so.

The hon. Member for Bolton West (Chris Green) gave an excellent speech and is clearly an expert in this area. He introduced the Forensic Science Regulator Bill in March 2018, but despite promises from the Home Office and its responses to the Select Committees, the Bill did not progress and action was not taken. That was unfortunate, but we are where we are. I am pleased the Government have indicated that this time they will support the Bill.

The Bill aims to put the forensic science regulator on a statutory footing so that it has investigatory and enforcement powers to use against non-compliance by forensic science service providers, with standards advised by the regulator. It seems perverse that the regulatory position was created to set standards, but there was no way of compelling anyone to follow them. Although there has been a reasonable level of compliance with established areas of forensics, new and evolving areas such as digital forensics tell a different story. Levels of compliance with ISO standards in digital forensics are less than 30%.

The Forensic Science Regulator, Dr Gillian Tully, has always maintained that although under the current system we can get average compliance of 75% across all forensics, the final 25% can be achieved only with enforcement powers. That is what the Bill seeks to achieve. The code of practice in clauses 2 to 4 sets out the statutory footing for forensic science standards. Clauses 5 to 7 give the regulator enforcement powers to ensure that the code is complied with. The powers of investigation include the power to require the production of documents or the provision of other information, with the sanction of legal measures in the High Court as an ultimate last resort for failure to comply.

Those powers are welcome. The Government’s forensic science strategy from 2016 recommended giving the regulator statutory powers to identify and sanction forensic service providers that fail to maintain standards, and the Bill does the Government’s job for them, because everything within it is exactly in line with that strategy.

It is important to ensure that those standards are met because of the catastrophic impact on the criminal justice system if they are not—hon. Members across the House have made that point. The Government’s strategy refers to the case of the Birmingham Six, who were acquitted of the 1974 Birmingham pub bombings on appeal in 1991. Fresh evidence was introduced that cast doubt on a key piece of forensic evidence that was used at the original trial to secure their convictions. Standards go to the heart of our criminal justice system. We must ensure that standards are met so that the public retain their trust and confidence in the integrity of our criminal justice system.

Experienced forensic scientist Professor Angela Gallop, in her book “When the Dogs Don’t Bark”, gives a compelling account of how, 18 years ago—this case was also referenced in today’s debate—Stephen Lawrence’s murderers were not brought to justice due to lack of evidence. However, new procedures, high forensic standards and a dedicated expert team found fibres from Stephen Lawrence’s clothing and identified and matched a microscopic speck of blood on the clothing of the two men who were later convicted of his murder. The evidence had been there for 18 years, but the standards and methods had not. That is why it is so important to ensure that forensic standards are met and that techniques in the field continue to develop and evolve.

Research in the field of digital forensics identified significant areas of concern with the potential to impact negatively on the production of expert reports and the criminal justice system. Those areas were identified during the process of assessment for accreditation to ISO standards. The evidence therefore supports the need for quality standards in digital forensics. Considering that it is a growing area in forensics, as Members mentioned, regulation is necessary to ensure the robustness of this field. We must maintain the development of our standards to keep up to speed with new developments in technology, and there must be recognition of the challenge of implementing those standards in digital forensics. That should not be underestimated, particularly in an environment where there is insufficient capacity to meet growing demand for services in an area of complexity and fragmented delivery.

I have spoken so far about standards and regulation, but we also need to consider the individuals who work in forensic science. Members have mentioned “Quincy” and other television shows about individuals, but we must not forget the largely public sector workforce who deliver forensics for our criminal justice system. They need to be brought along on a cultural change, but they also need to have their professionalism continually recognised as integral to delivering justice in our system. They are one of the few workforces in society who deal exclusively with death and destruction on a daily basis. Many forensic specialists work in the communities that they live in, and they take great pride in their work when they find evidence that leads to justice and greater protection for their community. We should pay tribute to them for the work that they do, which must have a big impact on them mentally.

Members have mentioned the substantial cuts and continuing squeeze on police budgets, and job losses, particularly in back-office staffing. That has led to a reduction in the capacity for crime scene investigations and other forensic work. I acknowledge that the Minister has mentioned the provision of additional funding, but those cuts have left forensic specialists feeling demoralised and unable to protect their communities. There has to be understanding and sensitivity about the fact that regulation is, inevitably, an additional load on an already overburdened workforce. That needs to be taken into account, and that is why these staff must be brought along with the wider cultural change.

Even the private sector, which carries out a significant amount of police forensics work, is not immune to financial pressures. According to evidence to the House of Lords Science and Technology Committee’s inquiry into forensic science and the criminal justice system in 2019, spending on forensic services reduced from £120 million in 2008, when the FSS was still in existence, to approximately £50 million to £55 million in 2018-19.

There seem to be financial pressures across the board in the whole sphere of forensic services, with those carrying out defence work on legal aid rates among the worst paid. As was mentioned, regulation should not place additional financial burdens on small providers. I know that the regulator has given much thought to this area and has worked with the House of Lords and the Minister to look at ways of reducing costs proportionately for niche and small private providers.

In conclusion, it is worth quoting the current regulator, Dr Gillian Tully. Hon. Members have mentioned what she said, but it is worth repeating that:

“forensic science should be firmly rooted in good science. Courts should not have to judge whether this expert or that expert is ‘better’, but rather there should be a clear explanation of the scientific basis and data from which conclusions are drawn, and any relevant limitations. All forensic science must be conducted by competent forensic scientists, according to scientifically valid methods and be transparently reported, making very clear the limits of knowledge and/or methodology. Implementation of quality standards is a means to this end, ensuring a systematic approach to scientific validity, competence and quality. It therefore remains my absolute priority to publish a standard for the development of evaluation opinions, to ensure that this systematic approach to quality covers all scientific activities from crime scene to court.”

The Bill does exactly that. It is long overdue and will be the first step in rebuilding the reputation and trust in our forensic science service and criminal justice system. I commend the Bill. I hope that the Government adopt it and that it takes the next steps to become law.