Legal Aid, Sentencing and Punishment of Offenders Bill

Baroness Quin Excerpts

Wednesday 1st February 2012 Lords Chamber

All noble Lords taking part in the Bill will know that there are many organisations representing victims. I have been contacted by a number of them, as I am sure have other noble Lords. They all essentially make the same point, which is that the lack of contact between victims and agencies such as the police, the courts, the prosecution services or the probation service is very often perceived as a lack of action by those agencies. In many cases that is the wrong perception but, even if it is wrong, it clearly undermines the criminal justice system itself. That is no doubt why we hear this admirable ambition of the Government to put victims at the heart of the criminal justice system. My amendment goes further towards achieving the Government’s aims and I beg to move.

[Baroness Quin]

Amendment 172B is in my name and that of the noble Lords, Lord Ramsbotham and Lord Wigley, and relates to Clause 61. I tabled two more amendments in the same group with the support of the noble Lord, Lord Wigley, Amendments 178ZA and 178ZB, which are similar to the first amendment and relate to Clauses 86 and 95. Even though my noble friend spoke on a slightly different aspect, I associate myself with his comments and with his concern for victims.

Although I do not have a financial interest to declare, I was prompted to table this amendment by some work that I did some years ago with the Prison Reform Trust. We were part of a project called No One Knows, which looked at the experience of people with learning difficulties and learning disabilities in the criminal justice system. I chaired the project’s advisory group, which brought together people with knowledge of issues from various spheres, including members from Mencap, healthcare professionals, people involved in social care and learning and skills, and various practitioners and academics. We were also helped in that work by the Working for Justice Group, a group of people who have direct experience of the system and whose first-hand knowledge was invaluable to us.

The project produced what I hope was an authoritative report, Prisoners’ Voices, which was well received by Ministers at the time, who undertook to look at our recommendations. I am pleased to say that both the previous Government and this one have taken some action on those recommendations; in particular, we are about to have more of a proper screening programme in the prison system to identify people with learning difficulties and disabilities. There have been improvements in the training of prison officers in this respect, and the very welcome recent development of some offender behaviour programmes recognising these particular issues. In addition, the Easyread system is being adopted in various parts of the criminal justice system, to increasingly good effect.

However, I believe strongly that further improvements and commitments in this area are necessary, certainly as far as the courts are concerned, which explains the tabling of these amendments. I am very grateful to the noble Lords, Lord Ramsbotham and Lord Wigley, for their support, particularly on an issue such as this, where I recognise their keen interest and experience. I am also grateful to the noble Lord, Lord Wigley, for signing the other two amendments that I mentioned. It is perhaps particularly appropriate because I know that the Prison Reform Trust’s report, Prisoners’ Voices, has been taken very seriously in Wales. The previous Health Minister in Wales, Edwina Hart, was part of the launch in Wales of the report and the measures that we wanted to see adopted.

I am also aware that Mencap and the noble Lord, Lord Rix, had very similar concerns about this part of the Bill to the ones that are reflected in these amendments. I say to the Government that these are, at this stage, obviously probing amendments, but with the plea that the Government look at our concerns with a view to try to change the wording of the Bill to reflect their importance.

We know that a very large number of offenders have learning difficulties and learning disabilities. Obviously it all depends on the definition that you use. If you use a very wide definition of learning difficulty, you could make the case that the majority of people in the prison system are affected. The work and research that has been done suggests that a core of, say, 20 to 30 per cent of offenders and people in the criminal justice system are affected by learning difficulties and learning disabilities. If you have a prison population of 80,000, that means anything between 16,000 and 24,000 people; so we are talking about a considerable number of people that we need to be aware of.

The figures for young people are even more serious. Research by Professor Karen Bryan and others seems to indicate that more than half of children who offend have speech and language communications difficulties. About half this group have very poor skills indeed. It is important for all parts of the criminal justice system to be aware of this, but it is particularly important in the initial stages, when people charged come into contact with the system. The Bill refers to ordinary language, which is welcome as far as it goes, but I find it somewhat vague. What may seem ordinary to a well qualified and educated lawyer may be way out of the ordinary to a young offender with learning difficulties or learning disabilities. As the Prison Reform Trust puts it:

“The term ‘ordinary language’ is imprecise; what is ‘ordinary’ to a magistrate or a judge may not be ‘ordinary’ to the individual offender”.

In the course of our work, we came across some very interesting examples. For example, one young person was asked in court whether he was remorseful about the crime that he had committed. Since he did not know what the word “remorseful” meant and was rather distrustful of it, he said no. Even such words as “victim” or “breach” are sometimes sufficient to confuse or mislead someone in that position. Indeed, Mencap makes the point that almost a quarter of prisoners under 18 have a learning disability or difficulty, with a 78 per cent reoffence rate among those at risk. That reoffence rate is an important part of our concern that we have the ability to make sure that we communicate properly with such people, as that can help to avoid some of the later difficulties that we are all keen to avoid.

I am aware, in conclusion, that an amendment trying to do what I seek to do here was tabled in another place by my honourable friend Helen Goodman, and I accept what the Minister Crispin Blunt said in reply on that occasion—that that particular amendment was defective and could have resulted in omitting some valuable elements from the Bill. However, my amendment, in trying simply to insert some wording, seeks to rectify that, and for that reason I hope that the three amendments that I have tabled can find favour and that we can find a better wording than the imprecise and unsatisfactory current wording of the Bill. I do not believe that there is a difference of substance or principle here; it is really simply a concern that we get the wording right so that the desired result is achieved.

[Lord Ramsbotham]

I rise to speak in support of Amendment 172B, to speak to Amendment 174, and to speak to Amendments 173, 177, 181, 182, 183, 184 and 185 both on behalf and in support of my noble friend Lord Rix, who would have declared his interest as president of the Royal Mencap Society had he been able to be in the House.

I speak first to Amendment 172B. I must declare an interest as chairman of the All-Party Group on Speech and Language Difficulties. As the noble Baroness, Lady Quin, has already pointed out, more than half the children who offend have some form of learning difficulty. The inability to communicate is the scourge of the 21st century, about which I have spoken many times in this House, most recently in the context of the Health and Social Care Bill. Regrettably, except in Northern Ireland, there is currently no routine screening to identify children with communication difficulties or learning disabilities. Until and unless there is, and early remedial action is taken, these children will be unable to understand or participate in the judicial process without effective support, which in turn must be related to their abilities or lack of them. This is yet another example of a need, identified in this Bill, being inhibited by lack of provision in another Bill. I hope that the Minister will speak to the Department of Health before Report so that we can consider how best to proceed with this amendment.

Amendments 173, 177 and 181 to 185, to which I speak on behalf of my noble friend, who much regrets that he cannot be present, are all based on the principle of safeguarding vulnerable people in the criminal justice system. They also reflect demands that the system should be sufficiently flexible to achieve the delicate balancing act of protecting offenders with additional needs while prosecuting them. Of course, perpetrators must face the consequences of their actions, but they should not be denied the support that they may require in order to understand and participate in the judicial process.