Police Reform and Social Responsibility Bill Debate
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Baroness Hamwee
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Police Reform and Social Responsibility Bill
Baroness Hamwee Excerpts(13 years, 4 months ago)
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Baroness Hamwee
My Lords, I have a number of amendments in this group but I will first comment on the Government’s amendments. The Minister described Amendments 35 and 41 as allowing flexibility. Indeed they do, but I asked myself when I saw them whether it was necessary to put the words down on paper. Amendments 35 and 41 merely provide for sending the responsible authorities copies of the plan. That is not a very onerous obligation and, more importantly, it is not one which amounts to a consultation. It is something which hardly needs saying. I am entirely with her on the points she has made which we will come to in later amendments about the supportive and collaborative arrangement which we want to see between the two arms of the new model, but I do not think this amounts to much. I hope that is not too unkind.
Amendments 43 and 50 talk about observing priorities and I could not find where the priorities were. I am grateful to the Bill team for explaining to me by email that the Government intend to amend regulations to impose a requirement on the statutory group to send their strategic assessment and partnership plan to the commissioner so that he or she will know what the priorities are. That is helpful. It is sometimes difficult to anticipate precisely what will go into regulations.
The noble Baroness, Lady Henig, has tabled Amendment 47 about membership of community safety partnerships and crime reduction partnerships. Like her, I still feel that relationships between the panel and local authorities have not yet been bottomed out, if I may put it that way.
My amendments largely repeat amendments to which I spoke in Committee. I have tabled them again because they came up in some of the enormous groups we had, which made it very difficult for Ministers at the Dispatch Box to ensure that they covered everything. There were one or two in the group on which my noble friend Lord Wallace, I think, said that he would write; I have not yet had the letter. I am sure that the Minister will understand that, as this is the last opportunity, essentially, the amendments are here again.
Amendments 40, 45 and 46, 54A, 55 and 56, 56A and 57 are about the contribution to be made by both victims and witnesses. I have tabled some of those amendments after contact with Victim Support. I am grateful for its contribution. It makes the point that in obtaining the views of the community on policing, witnesses—interestingly, Victim Support has been dealing with me on witnesses—should also be included. They, too, fundamentally depend on an effective and responsive police force. They are key participants in the justice system, whether or not they are also victims. It is often owing only to witnesses that the criminal justice becomes aware of an offence in the first place.
Victim Support states—I think, rightly—that our justice system requires witnesses to feel confident in the service they will receive from the police and that they will be the subject of sensitive handling throughout the progress of a case, not only, but including adequate protection if their status as a witness means that their safety or that of their family may be in danger. It made the point to me that particularly relevant is the apparent lack of adequate training given to officers about the reality of the court process. It commented to me about witnesses frequently being the victims of basic police misunderstanding about whether their identity will be protected, whether there will be a screen around the witness box, a video link, and that sort of thing. In fact, that is subject to the discretion of the court, and not something about which the police can give blanket assurances. In order that witnesses should not feel overused and underserved, some of my amendments suggest that they should have a role in the way that I have proposed.
A point I made at the previous stage is that victims have suffered a huge range of crimes, some very distressing, some very damaging, and some unimaginable. They or their representatives should have an opportunity to make an input to the police and crime plan and there should be arrangements to obtain their views on policing as part of the community.
Amendment 42 would alter Clause 8 regarding the means by which a,
“chief officer of police’s performance in providing policing will be measured”.
My amendment would change that to the,
“attainment of the police and crime objectives”.
That concentrates on the outcome rather than on the output and seeks to link this part of the Bill not to what the chief officer does but to whether the police and crime commissioners’ objectives, as set out in the police and crime plan, are attained.
Amendment 53 would enable the police and crime panel to request in advance that certain information should go into the commissioner's annual report. Although this is a small amendment, when I chaired the London Assembly I found that similar provision in the GLA legislation was very useful. It merely enables the panel, and the Assembly in London, to say in good time what subjects it thinks the commissioner should cover in the annual report. In this legislation, the annual report seems to have some status.
Amendment 59 would require the commissioner to have regard not only to the panel's report and its recommendations on the annual report but to any other reports and recommendations that it may make. This is not just an annual exercise. If there is to be this supportive and collaborative relationship then the panel will need to work year round. I am sure that it will have plenty of things it wants to say and that it will want to do so not just on an annual basis. This is a mild amendment as I use the words “have regard to”.
Amendment 58 relates to clauses on obtaining the views of the community on policing, and I suggest that local authorities should be included in the process. There should be consultation not just with people in the area but with those who have been elected in our system of representative democracy, who have views about the priorities for spending and whose own expenditure may cover allied or parallel ground.
Baroness Hamwee
If the noble Lord is teasing me about a previous amendment, he can probably read my answer in the fact that I have stayed put. I am not averse to being teased.
Lord Hunt of Kings Heath
My Lords, I was merely trying to liven up the debate.
Lord Hunt of Kings Heath
Far from it. I was just trying to follow in the noble Baroness’s footsteps with lively engagement.
Baroness Hamwee
Let us go on to the Local Government Association. That seems to follow, as Amendment 239A would add police and crime commissioners as statutory partners on community safety partnerships. Under the Bill, commissioners do not replace police authorities as members of CSPs; they simply have a duty to co-operate. The Local Government Association, making the point that this is an all-party view, says that it is concerned about fracturing current local community safety governance arrangements and that placing commissioners as statutory members on CSPs would help to ensure that all bodies involved in local community safety work together through a collaborative approach in the best interest of local communities and that the commissioner does not undertake contradictory efforts to those of the other CSP members.
I apologise to your Lordships for the length of time it has taken me to introduce all those amendments. It is a medium-sized group in the context of the Bill.
Lord Beecham
My Lords, pursuing my usual course of local government recidivism, I will comment briefly on Amendment 49A, which will include local authorities in the rather wide category of criminal justice bodies set out in Clause 11(4). On Second Reading, I rather questioned the extent of that list and wondered whether it is appropriate to regard the police commissioner in the same category as, for example, the Crown Prosecution Service or youth offending teams. However, be that as it may, if there are to be bodies such as those listed here—including, for example, youth offending teams, which are regarded as criminal justice bodies—surely it is logical that local government should be included as well, as the noble Baroness, Lady Hamwee, seems to acknowledge at least on this occasion. I hope that the Minister will accept that modest amendment. However, I will endorse the noble Baroness’s amendments that refer to the need for local government to be included, particularly, for example, in relation to the annual reports in Clause 13. It would be strange if the elected local policing body—effectively the commissioner—were not to give a local authority a response to a report or recommendations that such an authority might make to the commissioner. Again I hope—possibly vainly—that the Minister will see the logic of that and accept the amendment to that effect which the noble Baroness has moved.
Baroness Doocey
My Lords, I shall speak also to my other amendments in this group. The purpose of Amendments 39, 168, 173, 175, 176, 177 and 178 is to make the provisions of the Bill consistent with those proposed in the Localism Bill. The Localism Bill gives the London Assembly a new power to reject the Mayor’s draft statutory strategies by a two-thirds majority vote. The Bill makes no equivalent provision. As it stands, it would not have the effect of applying the Assembly’s new power to the Mayor’s draft police and crime plan. Once these two Bills become law the London Assembly would have the power to reject any mayoral strategy with the sole exception of the draft police and crime plan. This discrepancy makes no sense. There is no substantive difference between the draft police and crime plan and other mayoral strategies, so there is no justification for the police and crime plan, which is probably the most important of the mayoral strategies, being excluded from the new arrangements. This is perhaps why the Mayor of London and every political party on the London Assembly are in favour and fully support this amendment.
Amendment 171 is designed to clarify whether the London Assembly could appoint independent members of the police and crime panel and whether the Assembly could enable independent members to vote. This has now been clarified by a government amendment, so I will not say any more about this at this stage.
My final amendment in this group, Amendment 180, is designed to give the London Assembly’s police and crime panel the power to require senior Met officers and civilian staff to attend meetings and to provide information. The Government have said that the Assembly’s police and crime panel can request senior police officers to attend. This is completely meaningless since there is no way of enforcing a request. The Government have argued that allowing the Assembly to summon senior police officers would blur the lines of responsibility. I simply cannot accept this. I believe that it is perfectly legitimate for the Assembly to be able to question the Commissioner of Police. The Government have not responded so far to the second half of my request—the part about allowing the Assembly to require senior staff to attend and produce documents. Surely their argument about blurring lines of accountability cannot possibly apply to senior police staff. Requiring either attendance or papers would allow the Assembly to have information on which to inform its assessment of the mayor’s policies, actions and decisions. I beg to move.
Baroness Hamwee
My Lords, I have Amendments 166, 167 and 179 in this group. The first two would allow the London Assembly to determine whether to discharge its functions under the Bill either through a committee or through the full Assembly. At the moment the Bill prescribes. In responding to a similar amendment at the previous stage, the Minister said:
“The first question to address here is why there should be a bespoke committee of the London Assembly called the police and crime panel rather than, as proposed by noble Lords, the functions being conferred on the London Assembly as a whole. The reason is one of practicality. Having a dedicated committee, representative of the wider London Assembly, will ensure that sufficient attention and scrutiny can be paid to delivering its policing responsibilities and would also allow for independent members to be brought on to the panel … This smaller group will be able to focus its attentions on the important business of scrutinising, in detail, the actions and decisions of the Mayor’s Office for Policing and Crime”.—[Official Report, 24/5/11; col. 1800.]
I am not sure whether I can say this of the noble Baroness, but I thought, reading that, it was really rather paternalistic. The London Assembly is a grown-up body, with its current and past members and, I am sure, its future members, and ought to be able to take its own decisions as to the best way of organising itself.
I remember when we were debating the GLA Bill, which became the GLA Act 1999, it originally provided for the Government to deal with, I think, the standing orders of the Assembly. I remember the noble Baroness, Lady Farrington of Ribbleton, saying from the Government Front Bench, “This is ridiculous. It can sort itself out”. She was quite right then and I make the same point now. There seems to have been some confusion, in any event, on the Government side, because earlier the same day the noble Lord, Lord Wallace of Saltaire, said:
“We argue that it is for the London Assembly as a democratically elected body to decide for itself how the membership of the panel should be chosen”.—[Official Report, 24/5/11; col. 1751.]
I accept that this was a slightly different context and a slightly different point, but I argue that the London Assembly as a democratically elected body should be able to decide for itself how it carries out its functions.
Amendment 179 would provide for the Assembly to approve or reject the draft police and crime plan, or a variation, with the veto of a two-thirds majority—unco-ordinated, but the same point as that made by my noble friend. I feel that it is appropriate for the Assembly to be able to treat the plan in the same way as it does mayoral strategies. On this point, the Minister said at the previous stage that it would not be appropriate for the panel to have a power of veto because of the plan being statutory in nature. My short point here is that the strategies to which my noble friend has referred—she managed to say statutory strategies without tripping over the words—are statutory in nature. I do not see that there is any qualitative difference between the two.
Finally, I have two questions about government Amendment 172. I welcome the clarification of the position regarding co-options, but if the Assembly is to be able to fix the number of members of the panel—reverting to my earlier point—can the Assembly create a committee which consists of all 25 members as a result of this amendment?
The third subsection of the amendment states that the,
“panel functions must be exercised with a view to supporting the effective exercise of the functions of the Mayor’s Office for Policing and Crime”.
That picks up today’s theme of the constructive, collaborative and supportive nature of the relationship. I am not quite sure whether the Government might have gone too far on that because, in exercising the functions, the panel or the Assembly might support the best outcome but oppose the way in which the mayor’s office chooses to exercise them.
Lord Harris of Haringey
My Lords, this is an important group of amendments on which a number of issues are raised. The amendments highlight how serious the Government are, or are not, about these scrutiny bodies—in London it is the London Assembly structure—in terms of what they can and cannot do. The amendments would enable some opportunities for the London Assembly to propose amendments and changes to the policing plan.
At the moment, the London Assembly is charged with consideration of a whole series of statutory plans; for example, the Spatial Development Strategy and the transport strategy. I think that there are about seven or eight of these strategies, but that figure may have increased since I was a member of the London Assembly. In addition, there is the biodiversity action plan, which is specifically referred to in the Greater London Authority Act. The Government, or one arm of them, are busy changing the statute so as to give the London Assembly the power for which I have often argued in the past; namely, the ability to amend those plans by a suitable majority. Why is that not part of the Government’s vision for policing? It is absent and I do not understand why. I could suggest that the Home Office does not talk to the Department for Communities and Local Government, which is unthinkable, or that there is a reason why the policing strategy is seen in a different light from the other plans and strategies that the mayor is required to put before the London Assembly.
I suppose I am pleased to see that the Government have responded to the concerns expressed by many Members of your Lordships’ House about the need to ensure that, in the case of the PCPs, the chief officer of police should be able to appear before them or, in the case of the London Assembly, that the London Assembly should be able to see the Commissioner of Police of the Metropolis. But it is a very weak and watery power that the Government have put forward in the amendment. It is simply the power to invite, which does not need to be written into statute because it already exists. The Commissioner of Police of the Metropolis appears several times a year before the full London Assembly on the basis of the current implicit right to invite. Therefore, the Government have made no concession at all.
By the abolition of police authorities, the Government are removing the place where the public know there will be visible answerability by senior police officers. The right to invite is not a significant new right. Under most circumstances, any sensible chief officer of police and any Commissioner of Police of the Metropolis will accept such an invitation. When there are difficult circumstances, it is important to the public that senior police officers are seen to be required to appear before a public body in that way. I have spoken in this Chamber previously—I will not repeat all the points I have made—about the value of visible answerability and the important opportunities that that gives for the public to see that the police are being held accountable.
It is no substitute that under the new arrangements London will have the deputy MOPC who will not, unfortunately, have the benefit of being directly elected but will hold the commissioner of police to account, while outside London the PCC will hold the chief officer of police to account. That process inevitably will happen in private. A one-to-one meeting cannot be held in public. That will not be a system of visible answerability, so there has to be that visible answerability somewhere else—in the case of London, that should be the London Assembly. The right to invite is not sufficient. On limited occasions, there must be the right for the London Assembly to summons. It is very sad that that has not been the case. In passing, the noble Baroness, Lady Hamwee, asked whether the London Assembly could decide that all 25 members should sit and carry out this scrutiny function. At present, the full London Assembly on occasions meets as a whole to ask questions about policing. Will that now be precluded by the Bill and the way in which it has been structured? That is the implication. You end up with less visible answerability and less visible accountability, and the arrangements that already exist are diminishing. Surely, that is not the Government’s intention, which is why this group of amendments is so important.
Baroness Hamwee
Before my noble friend sits down, I am aware that this is Report stage although it has not always been treated quite that way. My noble friend has been dealt an almost impossible hand but may I tempt her to respond to the question of the noble Lord, Lord Harris, on whether there is to be a change in how the Assembly operates? May it no longer in plenary session ask questions of the mayor in his capacity as MOPC? I cannot believe that either of the mayors, of whom London has so far had experience, would themselves be constrained, nor can I think that any chair of the Assembly would say, “I have to stop you there. This is outside the legislation”. I never succeeded in stopping the first Mayor of London when he strayed, as he did rather widely. This seems unbelievable but there is a serious question. In a plenary session when an individual who holds the two offices is answering questions, can he or she not answer them in a holistic fashion, moving between strict policing matters and non-policing matters?
Baroness Browning
My Lords, I understand that there is absolutely no change. There is no reason why they cannot ask those questions.
Baroness Browning
I assume that if a question is asked and somebody has the answer they would have the courtesy to give it. There is nothing in the Bill to prevent them answering a question they are asked.
Baroness Hamwee
Baroness Hamwee
In moving Amendment 51, I will also speak to my Amendments 52, 54, 142 and 143, with which it is grouped. I again apologise to the House that my amendments repeat, or are similar to, amendments to which I spoke in Committee. The large groups in Committee meant that we had what I might describe as composite responses from the Dispatch Box.
Amendments 51 and 53 continue the theme of checks and balances in the shape of tools to enable the panel to do its job. Clause 12 is headed “Information for public etc”. Under Clause 12(3), the commissioner must publish information which he or she “considers to be necessary” to enable local people to assess the matters that are set out: that is, information that he—some may be “she”, but I guess they will mostly be “he”—considers necessary. No doubt that consideration has to be done in good faith, but it strikes me that it would be almost impossible to enforce. I do not know who would enforce it. My amendment would insert, as additional matters to be included, those,
“which are required by the relevant police and crime panel”.
As I say, these tools would enable the job to be done and would interpose the strict checks and balances required to check and balance the commissioner.
I have already alluded to the provision that I seek to add to Clause 13. It is not an onerous or difficult obligation but would allow the panel before the beginning of the relevant year to tell the commissioner what it thinks ought to be included in the annual report. This was applied in London under the GLA Act when I chaired the Assembly. After the Assembly had had a preliminary discussion about the items that it thought should be included in the mayor’s annual report, there was a negotiation with the mayor. It was a perfectly civilised but productive process.
Amendment 52 is designed to draw attention to the position of victims of crime and to ensure that “performance” includes,
“the treatment of victims of crime”.
I have brought this up again because I do not think it was answered in the group in which it was contained previously.
Amendments 142 and 143 are a repetition of amendments concerned with the attendance of senior officers and the production of documents and information. I heard what the Minister had to say in our debate on the previous group about allowing the attendance of the most senior officer. You do not need to put into legislation that someone may attend a meeting; the legislation should not set out a narrative of what might happen but provide rules if people are not minded to do the sensible thing. Surely the point of a law of the land is to require attendance—in this case of someone who is not particularly willing to attend. If we think that attendance is a good and productive thing, the role of the legislation is to ensure that it is required.
My noble friend Lord Wallace did not state specifically which amendments he was speaking to—he said that the Government were right about some of them—but he said that the balance was wrong and that he was concerned to protect the commissioner from,
“being inundated with requests for information”.—[Official Report, 24/5/11; col. 1750.]
However, the panel’s role is to advise and scrutinise the police and crime commissioner, especially in respect of the annual police and crime plan. To advise and to scrutinise in the broadest sense, the panel needs information, and not only the information that the commissioner determines that it should have. This applies to every piece of information because everything is relevant to the plan. I fully appreciate where accountability lies—with the chief constable to the police and crime commissioner and with the commissioner to the electorate—but there are dotted lines in there to enable the panel to be brought in. Sometimes it is appropriate and practical for someone a bit less senior than the chief constable to attend, but at other times it is necessary to insist on his attendance and to insist that documents and information are provided.
The Government have tabled amendments in this group. Some of them are about the request to which I have referred; others change the relevant term from “reports” to “information”. They are a minor improvement but still do not seem to my mind adequately to recognise the role of the panel. I beg to move.
Baroness Henig
My Lords, I have tabled Amendment 141 in this group, which would provide that outside London the panel should be able to call senior police officers to answer questions as well as the commissioner and members of the commissioner’s staff. As I shall spell out, this amendment complements the amendments tabled by the noble Baroness, Lady Hamwee. I very much agree with the sentiments that she expressed with regard to her amendments.
It is very important for panels to be able to call in senior police officers. The panels must be able to triangulate evidence if they are to carry out their role of effectively scrutinising the commissioner. It is true that they will be able to gather information from the commissioner under the provisions in the Bill, but they will also need to analyse and test that information. The most effective way of challenging and testing information is to ask questions about it. Certainly, the panel can ask questions of the commissioner under the provisions already in the Bill, but this may tell it only what the commissioner wants it to hear, particularly if the commissioner has been responsible for providing that information in the first place. All my experience in local government and policing tells me that it is extremely important for the panel to be able to reality check what it hears from the commissioner against the views of senior members of the police force.
Lord De Mauley
My Lords, perhaps I may come back to that point and, for the moment, move on.
Amendment 143 would make the panel’s ability to request information more explicit. As discussed, it is important that panels can carry out their functions. However, panels already have powers appropriate for the scrutiny role they will perform. They can require the attendance of the police and crime commissioner or members of the PCC's staff to answer questions that they deem necessary. They can also require information from the commissioner and their staff, except where this would compromise security, so I hope that I can persuade noble Lords in due course to withdraw these amendments.
We are proposing in this group a number of government amendments which will address many of the issues raised by your Lordships during Committee. Amendments 145 and 181 would allow the police and crime panel to request the attendance of the chief constable in the exercise of their duties. We have noted your Lordships’ comments and we thank my noble friends Lady Hamwee and Lord Shipley in particular for their contribution. It is still one of the fundamental principles of this reform that it is the police and crime commissioner who holds the chief constable to account. As has been said, we believe that such dual accountability would lead to a confusing landscape, with the chief constable being pulled in two different directions and the public unclear as to who they were holding to account for their policing service.
However, it is recognised that in order for the police and crime panel to fulfil its role in holding the police and crime commissioner to account, there might be times when the chief constable’s attendance is desirable, so it is proposed to give the panel the ability to request their attendance. That stops short of it being able to compel him or her to attend and it will be for the chief constable, in consultation with the police and crime commissioner, to decide. As I said, the principle is that the PCP’s function is to scrutinise the PCC rather than the chief constable but we acknowledge that there may be occasions when it is desirable for the PCP to meet the chief constable.
I turn to information provided to PCCs and to government Amendments 182 and 186. Noble Lords will be aware that, as originally drafted, the Bill provided that a chief constable could be required to provide a police and crime commissioner with any report that he or she saw fit. That matched the existing provisions for police authorities and one may well ask what these government amendments add to that. It is arguable that a report is a document containing or consisting of information—we certainly take this view—so that a power to require reports necessarily encompasses a power to require information. While this was not discussed in your Lordships’ House, a number of parties have raised with us concerns about the existing provisions.
Those concerns were, essentially, that by requiring a report rather than information, the PCC might only be able to obtain the chief constable's interpretation of data rather than being able to analyse that data themselves. I am confident that chief constables would not in any way seek to misrepresent data or use them selectively. However, in order for the PCC to be able properly to hold the chief constable to account, they will need to be able to see raw data for themselves so that they can give their own thought and analysis of them. This amendment will ensure that happens and that there can be adequate and appropriate flows of information between the chief constable and the PCC. It will also achieve consistency throughout the Bill, since similar provisions such as Clauses 14 and 94 are couched in terms of information rather than reports. Comment, opinion or analysis are kinds of information, so a PCC will still be able to use this clause to require the chief constable to give an account or explanation of any matter of concern. As such, I hope that noble Lords will support these government amendments.
Baroness Hamwee
My Lords, I have learnt one new thing today: the use of the term triangulation. I feel that any response would simply risk going round the circuit again, although I note that the noble Lord has just given some assurances on interpretation of terms, which will be useful, and I must acknowledge them. I beg leave to withdraw Amendment 51.