Police Reform and Social Responsibility Bill

Baroness Harris of Richmond Excerpts

Monday 4th July 2011 Lords Chamber

[Baroness Henig]

My Lords, I will speak to Amendment 47 in this group. I apologise that I was premature in attempting to speak to this amendment an hour or so ago, having failed to notice that, in between the draft groupings and the final groupings, there had been some slight changes.

I particularly note the Minister’s Amendment 43 on behalf of the Government, which specifies that the local policing body must have regard to the priorities of the other statutory partners in developing policing plans. That is very welcome, and it begins to improve linkages with community safety partners. However, like the noble Baroness, Lady Hamwee, I still think that there are gaps in the landscape and that the Bill proposals could be further strengthened.

Amendment 47 suggests an active role for police and crime panel members in community safety partnerships, and it specifies that a panel member must sit on each such partnership within their area. The idea of this is to enable the panel to influence the strategic priorities of those partnerships before they are set, and to provide information to the panel and the commissioner to ensure that the policing family plays its part too.

It is all very well to say that the local policing body must have regard to the priorities of other partners; but what if these were at cross-purposes? Having a panel member in the partnership would enable an intelligent dialogue to take place and would enable that panel member to pick up on concerns before they became major problems.

The Minister is right in what he said earlier about this crucial set of relationships between CDRPs on the one hand and the commission, as we have it, on the other hand. However, I do not want this to be a discussion just about generalities, and it would be nice if this happened or that happened. Ultimately, all this is about better engagement. It is about trying to get an improved response on behalf of local communities. We are looking to try to get a system that works well for local people.

I recall that in Committee this House expressed real concern that one person, in the form of a commissioner, could not undertake the kind of in-depth engagement that 17 members formerly did, and that there was a real risk that they would be perceived as remote, not just by electors but by the many other bodies—public, private and voluntary—that work with the police. If the commissioner is going to find it very difficult to get round all the CDRPs, who can do it instead?

I think that the Government broadly agreed in their recently tabled amendments that the role of the panel must be as much about supporting the commissioner as about scrutiny. My amendment is a way of letting the panel develop a supportive role in practice. We keep hearing about the panel being supportive and about stricter checks and balances, but I am trying to get the panel to play a stronger role in practice. We know that membership of community safety partnerships would be one way for panel members to help to make this ambition effective and to get panels to be more supportive and play a more practical role.

We know that the police alone cannot solve all local problems that could arise. That is why community safety partnerships were set up in the first place. If we allow local policing bodies to become disconnected from the wider community safety partners, we will go back 15 years to the kind of silo thinking that saw record levels of crime at the end of the 1990s. I cannot believe that that is what the Government want.

It might be salutary if I remind the Minister that police authorities were not originally among the bodies required to be on CDRPs when they were established. Over time, it was found to be an error and was changed so that police authorities became statutory partners. Indeed, police authority members became among the most dedicated and active members of the partnerships. The reason was that it was a good source of two-way information. It was not just that police authorities, and now police panels, would get information back. Their presence was very much valued at district level both by local councils and divisional police officers. That system is working as we speak and I would be very reluctant to see it disappear.

I understand that the concept was not invented here. The charge has often been levelled at police forces up and down the country that they are very reluctant to introduce things that they have not pioneered or invented. I feel that the Government face the same danger here. They are trying to set up a new policing arrangement. I understand that, but there are lessons to be learnt about what has happened in the past 15 to 20 years, and we need to be prepared to learn them. My amendment attempts to restore a link that will otherwise be lost. I am trying to enable panel members to keep their pulse on the local landscape and ensure that both the panel and the commissioner are aware of developments, are equipped to understand problems and are able to co-ordinate effective joint action. Once again, I am trying to be constructive and to assist. I am absolutely certain that in the years to come, sooner or later the links will be restored. They have to be, because it is common sense. That is the way in which things will work at local level; it is just a question of making the change now rather than later.

[Baroness Harris of Richmond]

My Lords, I do not know why I did not put my name to the amendment of the noble Baroness, Lady Henig—I ought to have done—but I will say a few words in support of it. First, I welcome some of the government amendments in the group. I will single out Amendments 35 and 43. Amendment 35 deals with ensuring that every responsible authority in the context of community safety gets a copy of the police and crime plan. Amendment 43 ensures—going back the other way, as it were—that local policing bodies must have regard to the priorities of local partners. I agree with the noble Baroness, Lady Henig, that the Bill could go further. Therefore, I will say a few words in support of her amendment.

The Crime and Disorder Act 1998 is widely regarded as one of the best and most effective pieces of legislation passed by the previous Administration in their early years. It has made a huge difference to the way that local crime and anti-social behaviour is tackled. It is no accident that the general reduction in crime that we have witnessed in the past 15 years began at about the same time as the partnerships were put in place. Therefore, it seems strange that the Government appear less than enthusiastic about maintaining the link between the partnerships and the new police governance mechanisms.

It is particularly strange when one considers that the PCC’s role will include a vastly increased remit in relation to partnership bodies in other areas, such as criminal justice. Community safety partnerships seem to me to be the key fulcrum around which local engagement and local solutions are brought together. Why on earth we are disconnecting local policing bodies from these partnerships when they should be an asset to improving the effectiveness of local policing and partners, I really do not know. The noble Baroness, Lady Henig, is right to suggest that panels should be represented on community safety partnerships to preserve this relationship and I certainly support her amendment.

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As I said, I apologise to the House for having gone on for so long, but I believe that these matters are really important. That is why I beg to move.

[Baroness Harris of Richmond]

My Lords, I speak in support of the amendments, to some of which my name is added, which deal with delegation.

The amendments are all about ensuring that all senior police force appointments at and above the rank of assistant chief constable will remain with the governing body, as is currently the case. I envisage that as being the PCC but with a strong role for the police and crime panel from the interview stage onwards. In the case of senior officer appointments other than the chief officer, they specify that the chief officer of the force must be included on the interview panel, and therefore have a role in appointing his or her senior team. I certainly agree that the chief officer alone should not be able to appoint senior members of the team.

Moving on, the amendments state that the responsibility for senior officer conduct and complaints should rest with the governing body, the PCC, with the PCP taking a strong role. It is absolutely unacceptable that police officers decide whether to investigate their close colleagues. That is neither transparent nor proper.

During my time as chair of my police authority, I had to deal with some serious matters touching on the conduct of a chief constable. I could not possibly have dealt with the matter on my own. Even with legal help and support, we needed to work together as a body to come to a reasoned conclusion. As it happened, the legal advice that we were given was wrong, so imagine how I would have felt if I had had to take sole responsibility for making such a decision. Having the panel being supportive—indeed, helping to come to difficult decisions—will be by far the best way to deal with often tricky circumstances. I support the noble Baroness’s amendments.

[Lord Hunt of Kings Heath]

My Lords, I am conscious of the hour and the fact that our Benches are filled to hear this debate, but this is a very important group of amendments. My noble friend Lady Henig and the noble Baroness, Lady Harris, have raised some important points about that come back, really, to the consequences of having a corporation sole, in which one person has enormous power and responsibility.

My amendments relate to the powers exercised by the police and crime commissioner. Under Clause 39, “Appointment, suspension and removal of chief constables”, huge authority is given to the police and crime commissioner to appoint a chief constable and to require their suspension, resignation or retirement. When it comes to the appointment, there are some safeguards, because the police and crime panel has a veto power on the appointment. We may disagree about the number of the panel voting in favour, but it has a veto power. When it comes to suspension, retirement or requirement to retire, the safeguard is much less. Although the police and crime panel can undertake a scrutiny process, as set out in Schedule 8, in the end, the police and crime commissioner can ignore the panel's recommendation.

My worry is that the police and crime commissioner who is seeking re-election when year two or year three is coming up and who is in some trouble may well consider sacking the chief constable as a visible sign to the public that he or she is doing something. There are circumstances—my noble friends have hinted at them—where that would be a jolly good thing to do, but at other times it will not; it will be a political action by a police and crime commissioner. Where are the safeguards? In the end, there are none because, whatever the panel says, the police and crime commissioner can ignore it.

I have a series of amendments which relate not only to the chief constable but to the circumstances where the same may be required of other chief officers and also to the situation in London. Essentially, this provision should apply only where it can be shown: that there is good reason—in other words, that it is in the interests of the force, for reasons of efficiency or effectiveness; that there has been appropriate consultation with the chair of the police and crime panel; that there has been proper investigation of the circumstances leading up to such an action; and that the approval of the Secretary of State is given. If Ministers consider that that gives the Secretary of State overweening powers, I must say that I have not been persuaded that the essential nature of the tripartite arrangement—the role of the Home Secretary, the police authority and the chief constable—should be so torn up that there are no safeguards to be undertaken by the Home Secretary if the police and crime commissioner decides to take such an action where, as I said, there is virtually no effective scrutiny other than the PCP recommendations.

This is a very important group of amendments. There is unease about the power to be exercised both by the police and crime commissioner in relation to the chief constable and other senior officers and then by the chief constable in relation to those employed by him as a corporation sole. We would look to the Government to recognise those concerns and to give some reassurance.