Counter-Terrorism and Border Security Bill

Bob Stewart Excerpts

Ping Pong: House of Commons
Tuesday 22nd January 2019 Commons Chamber

[Mr Wallace]

Yes. That is important. Someone who claims to be an aid worker or a doctor will be expected to prove that. It is not possible simply to pick one of the excuses and use it as a defence. We should expect it to be necessary for the police to investigate any case in which a person returns from a designated area, to establish either whether that person may pose a risk to the public, or whether they fall outside the offence by virtue of travelling for one of the specified purposes or can otherwise rely on a “reasonable excuse” defence.

[Bob Stewart (Beckenham) (Con)]

If a person from this country were to go to one of the prohibited areas and then come back, would it be automatic for that person to be picked up if he or she had not been given permission to do something there? Is it possible that the security services—which, I presume, fully support this measure—would say, “Let him or her run, because it is more in our interests to watch what they do”?

[Mr Wallace]

As I think my hon. Friend will know, when it comes to intelligence and investigations, such decisions are operational. Should our police or intelligence services suspect that someone has committed an offence but there is nevertheless more to discover, that is a risk that they will have to take. They will take it into consideration and make a decision. Of course, any prosecution under the Crown Prosecution Service must meet a number of thresholds. It must be established, for example, whether the prosecution is in the public interest, or whether there is a likelihood of success. However, if someone does not provide a reasonable excuse, that person is potentially open to prosecution and to being sentenced to up to 10 years in prison.

It is regrettable but a fact of life, given the challenges posed by end-to-end encryption, secure communications, and the ability to obtain evidence from people who we may know from intelligence—but not in evidential space—have been up to no good, that we must seek a way around the current issue. When I attended the G7 in Canada last year, it was clear that every state represented at the table, from Japan to France, faced the same challenges. We must reduce the number of offences of this type, and we hope that the Bill will make a difference. We want it to deliver a strong deterrent to ensure that people are where they are for the right reasons, and to make clear there are other ways to better people’s lives in their communities than going to a designated area for reasons that may turn out to be spurious.

To ensure that the power to designate an area is used proportionately, Lords amendment 5 provides that regulations designating an area will automatically cease to have effect after three years. That will not, however, prevent further regulations from being made to designate the same area should such a designation still be required to keep the public safe from the threat of terrorism.

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[Stephen Twigg]

My hon. Friend is absolutely right. Church and other faith-based organisations are often involved in peace-building activities.

I will give some examples of the sorts of things that could be covered by peace building. It could include mediation and dialogue activities to negotiate local ceasefires or broker peace talks, support for local communities to strengthen early warning schemes or civilian protection efforts and initiatives to deal with the legacy of violence and promote social cohesion so that peace is built. DFID’s single departmental plan has as one of its five objectives strengthening global peace, security and governance, and DFID seeks to spend about half its investment in fragile states. In November last year, the Department doubled the UK’s commitment to the United Nations Peacebuilding Fund as part of a long-term strategy to build global peace and prosperity by tackling the underlying causes of instability.

[Bob Stewart]

In my experience, a Department such as DFID will sometimes send in a project team to do peace building or peace making, or to build a hospital. Does the hon. Gentleman agree that we might also have to consider bodyguards, because a private military company might be involved in protecting DFID’s people when they go into a war zone? Has he considered that as part of his amendment?

[Stephen Twigg]

The hon. Gentleman is absolutely right. Aid workers—whether directly employed by DFID or other donor countries, or employed by other non-governmental organisations or private contractors—require security arrangements in precisely the sorts of countries that we are discussing. That is an important part of the aid effort, and therefore it is, as he suggests, covered by my amendment.

My concern is that the term “aid of a humanitarian nature” does not explicitly include such peace-building programmes. I fear that without a clear exemption, there is a risk that peace building could be at the mercy of interpretation on what constitutes a reasonable excuse. This is a relatively low-profile area of international activity, so I think there is a risk that it may not be widely understood. I note that, as the SNP spokesman rightly said, on Third Reading in the other place Earl Howe for the Government said:

“In the absence of such an exemption the Government are clear that entering and remaining in a designated area for the purpose of engaging in peacebuilding would constitute a reasonable excuse.”—[Official Report, House of Lords, 15 January 2019; Vol. 795, c. 141.]

That commitment is welcome, but I think the risk remains that were such a case to come to court, juries might not have a full understanding of peace building and might not understand it to be covered by the concept of humanitarian activity. I do not think anybody in this House would want the Bill to have the unintended consequence of deterring NGOs from going into conflict areas or post-conflict areas. I urge the Minister, if he gets the chance to do so in responding to the debate, to give a commitment to the importance of peace building. Ideally, he will do so, as per my amendment, by adding this activity to the list of specified purposes. Alternatively, he could make it explicitly clear today that peace keeping is covered by the term “aid of a humanitarian nature”, and he could reflect that in the policy guidance.

Finally, let me refer to human rights monitoring. Rightly, the Bill now refers to

“carrying out work as a journalist”

but my amendment seeks to extend the provision to cover those who are undertaking human rights monitoring or advocacy. The United Nations defines human rights monitoring as seeking

“to gather information about the human rights situation in a country or region over time through readily available methods, with the goal of engaging in advocacy to address human rights violations.”

That is dangerous and incredibly important work. Without human rights defenders on the ground, injustices too often go unchallenged, and the most marginalised and vulnerable people have little protection from abuses of power. Those who work in the field of human rights monitoring and advocacy often put themselves in grave danger to shine a light on the abuse of power. I believe they have a right to know that when they are conducting that important work, they have protection in UK law that recognises their legitimate reasons for travelling to such designated areas.

I finish by saying that although it is fundamental that we strengthen our legislation to tackle terrorism, it is important to ensure that when we do so, we do not inadvertently undermine the very values that terrorists seek to attack. We have a proud record as an open, outward-looking country that does not turn away when it witnesses injustice. It would be sad if the Bill had the unintended consequence of limiting the contribution of our own citizens to development programmes, peace building and human rights monitoring in some of the world’s most fragile states. Although I will not press my amendment to a Division, I hope that the Minister will consider the points that I and others have made about this and will, even at this late stage, consider accepting my amendment.

--- Later in debate ---

Interestingly, the hon. Member for Barrow and Furness (John Woodcock) used the example of the “Four Lions” film, which is actually tragic rather than a comedy. The tragedy is in the waste of life and so on. When the characters go out for the wedding, they do not go to a wedding. It would not be a hard excuse to disprove; I do not think they actually attended a wedding. It is qualified within the list. The “reasonable excuse” would have to be tested by the prosecution.

[Bob Stewart]

So, if a person wishes to go to a designated area, that person should, perhaps on Foreign Office advice, be told, “That is a designated area; you need to declare it.” If that person declares it prior to his or her going, that is good. If they do not declare it, and they go there and are picked up on the way back—it might be a mistake, but it might not—is that what the Minister anticipates might happen?

[Mr Wallace]

The decision that we took around this offence is that it is not a permission—something that you obtain in advance. As the hon. Member for Torfaen (Nick Thomas-Symonds) pointed out, in the Danish system one effectively gets a licence. The problem with that is that people just get a legitimate licence, and then go and carry out their other mission. It is also administratively burdensome. It also becomes a barrier to travelling for those who are doing so for a genuine reason, because they would have to check in with the state beforehand. We are proposing that people can go, but that if we have a suspicion that they have been doing something, we will test their “reasonable excuse”, and if the “reasonable excuse” fails, they will be guilty of the offence. We believe that to be the best way.

The hon. Member for Torfaen said that journalists would not be able to advertise where they were going. Many are based in theatre and do not know where they are about to go. They might be based in Lebanon and choose to visit—as some have—foreign fighters in detention in Syria. We shall not set up a permissions system; it is simply that you will have to declare it.

To clarify, the list of specified purposes is an exhaustive, not an indicative list, but there is power to add to the list by regulation. To give some reassurance to the hon. Member for Liverpool, West Derby, let me say that we will review the operation of this in conjunction with the Department for International Development and the Foreign Office, to see how it works, and we will of course be open to adding to the list if there were such issues as he represents. I am confident, however, that genuine peace builders would have a reasonable excuse and would not, therefore, be subject to the committing of an offence.

To give the hon. Member for Barrow and Furness some reassurance let me say that these excuses do not exempt a person from committing the offence if all their reasons for being out there are not covered by the “reasonable excuse.” You cannot say, “On Monday I am a peace builder; on Tuesday I am a terrorist.” That will not exempt you from that offence. You have to be there specifically and entirely for a reasonable excuse.