Police (Complaints and Conduct) Bill

Damian Green Excerpts

Wednesday 5th December 2012 Commons Chamber

[The Minister for Policing and Criminal Justice (Damian Green)]

I beg to move, That the Bill be now read a Second time.

The events of 15 April 1989 were a tragedy. Ninety-six innocent men, women, and children lost their lives. More than 700 people were injured, many seriously. The impact of those events on all those who watched the tragedy unfold, desperate to help, on the survivors, and on the families and friends of the 96 victims, is felt to this day and must never be forgotten.

We have today an opportunity to address what my right hon. Friend the Prime Minister called the “double injustice” that has been suffered, first through the tragedy itself, and then through 23 years of lies and obstruction. That is why we have brought forward this fast-track legislation.

With the publication of the report of the Hillsborough independent panel on 12 September, the truth about the events of that day is finally known. I pay tribute again to the Right Rev. James Jones, the Bishop of Liverpool, and all the panel members for their dedicated and tireless work in producing the report. It has drawn a line under the lies, rumour, innuendo and conjecture that have surrounded the disaster for the past 23 years.

I want to take this opportunity to pay tribute to the right hon. Member for Leigh (Andy Burnham) for his contribution in getting us to this stage. I also pay tribute to the hon. Members for Liverpool, Walton (Steve Rotheram), for Halton (Derek Twigg) and for Garston and Halewood (Maria Eagle), who have worked tirelessly to get to the truth. The whole House is grateful to them. I am also grateful to the shadow Home Secretary, the right hon. Member for Normanton, Pontefract and Castleford (Yvette Cooper), and the Chairman of the Home Affairs Committee, the right hon. Member for Leicester East (Keith Vaz), for the constructive discussions that they have had with me and my right hon. Friend the Home Secretary, which have enabled us to introduce the Bill in a spirit of co-operation across the whole House.

I also pay tribute, not least, to the families of the victims. Without their unwavering commitment, we would simply not have reached this important point in the search for justice. I believe that without their dedication, there would have been no independent panel, no report into the Hillsborough disaster, no parliamentary debates and no possibility of exposing the truth and obtaining justice.

[Keith Vaz (Leicester East) (Lab)]

May I again put on the record the unanimous support of the Select Committee for the Bill? Aspects of our tenth report, which we published this morning, go beyond the scope of clauses 1 and 2. Will the Minister assure the House that he will look at those other points, for example on the creation of a lead investigator, the need for co-ordination by the Home Secretary and the need for her to publish a timetable? Even though those points are not relevant to the Bill, they are very relevant to the future conduct of the investigation.

[Damian Green]

I am grateful to the Select Committee for producing the report for this debate and for taking parts of it out of its important wider investigation into the Independent Police Complaints Commission. I assure the right hon. Gentleman that all the points that he and the Select Committee have made are under consideration. Clearly, it is in everyone’s interest that the various investigations proceed as fast as possible, consonant with the fact that many of them are being carried out by bodies that are rightly independent of Government.

[Mr Jim Cunningham (Coventry South) (Lab)]

Will the Minister say what the attitude is of the Police Federation and the Association of Chief Police Officers to the Bill?

[Damian Green]

The Police Federation and the superintendents have written to express their reservations and I have written back to them. I obviously meet the Police Federation and the supers regularly. I am meeting the Police Federation next week and this matter will be on the agenda. I have not had a formal exchange with ACPO, so it would be unfair for me to express its collective view.

The findings of the independent panel’s report are deeply distressing. The failure of the authorities to protect the fans, the attempts to blame them and the doubt cast on the original coroner’s inquest are particularly troubling findings. It should not have taken 23 years to get to this point, but finally the report gets us to the stage of knowing the truth—a truth that is now accepted by all. The report exposes many attempts that were made by the authorities—those charged with protecting the public and with uncovering the truth of the events—to change official records, obscure the truth and paint a different picture of what happened.

The truth is both shocking and essential, but it is not the end. As the Bishop of Liverpool has said, we now need to move from truth to justice. It is that move that is at the centre of the Bill. As the Home Secretary set out to the House in the debate on 22 October, the Independent Police Complaints Commission has announced an investigation into the panel’s findings. That is an important step on the path to achieving justice for the victims of the disaster.

The IPCC will investigate the conduct of the officers at Hillsborough on that day, and those who were involved in the subsequent investigations. That means that it will investigate both misconduct and criminality, not only of any officers who are still serving in any police force in the UK, but of any officers who have since retired. Normally, the IPCC would pursue retired officers only for matters relating to criminal behaviour. For criminal behaviour, the sanctions are clear: the officer, serving or retired, will face criminal charges. For misconduct matters, sanctions can bite only serving officers, so it is rare to undertake an investigation of retired officers for misconduct. However, in relation to Hillsborough, the IPCC has made it clear that it will investigate retired officers for both criminal behaviour and misconduct because the public interest is compelling.

[Steve Rotheram (Liverpool, Walton) (Lab)]

I welcome the Government’s proposals, but I wonder whether the right hon. Gentleman, like me, is surprised that page 10 of the Bill research paper states that the IPCC cannot already compel serving police officers simply to attend an interview in connection with any ongoing investigation. Does he believe that there should be clear sanctions against those who refuse to do that?

[Damian Green]

The hon. Gentleman asked two questions. First, he asked whether I was surprised that the power did not already exist. To some extent, yes I am. Obviously, the IPCC was set up under the Police Reform Act 2002 and given powers then. Perhaps this is the first time that so much focus has been on it—indeed, it has caused the House to agree to emergency legislation to give the IPCC that particular power.

Secondly, I know that sanctions are of particular concern. As has been said, we will debate the matter in detail on an amendment to the relevant clause in Committee later. However, I preview my thoughts on that by pointing out that clear sanctions will be available to chief constables and forces to apply to those who refuse to obey what will be an IPCC instruction, and later a requirement. They will be very powerful.

[Dr Julian Huppert (Cambridge) (LD)]

The Minister may recall that I wrote to him about retired officers, and I thank him for his response. Will he be clear about whether such former officers would be required to attend any sort of interview? My understanding of the Home Affairs Committee report is that the Bill does not provide for that, and that could hinder the investigation. Will he make it clear whether there is a way of ensuring that people are available to be interviewed?

[Damian Green]

The case is different for retired officers because they are essentially members of the public. The police cannot compel a member of the public to attend an interview as a witness. If the police feel that it is necessary to interview someone, they have to arrest them if they are unwilling to help voluntarily. It would be strange to give the IPCC powers that the police do not have. Having said that, my expectation is that—inevitably, in this case—there will be many retired officers, simply because of the length of time since Hillsborough, and that they may have useful evidence to give as witnesses. I hope and expect that many will wish to help.

[Stephen Mosley (City of Chester) (Con)]

It is 23 years since Hillsborough and more than 20 years since most of the incidents that concern us occurred. Has the Minister any idea of how many officers from that time are still serving, and how many have retired or moved on?

[Damian Green]

The IPCC is still going through that information. The majority of officers may well have retired by now. This is a large undertaking and represents the biggest single investigation that the IPCC has ever done. It estimates that this will involve it investigating more than 2,400 officers. That is the overall quantum—the actual division is not yet clear. Obviously, many officers may have moved to other forces, and so on.

[Steve Rotheram]

If the right hon. Gentleman will not put sanctions in the Bill, as seems likely, what confidence does he have that police forces will take the necessary disciplinary action against serving officers who refuse to help the IPCC?

[Damian Green]

I have very great confidence in that. There are two points to make in response to the hon. Gentleman, the first of which is that similar sanctions under the conduct regulations are not in any other Bill, so it would be anomalous suddenly to pluck out the sanction for this offence and put it in legislation. Secondly, and more importantly in practical terms, given the enormous and understandable public interest in the matter, the relevant chief officers will be extremely keen to ensure that they use their powers to take sanctions—ultimately, officers who break the conduct regulations in that way can be dismissed. The conversations I have had with senior officers in recent days suggest that that is the case.

I said in response to my hon. Friend the Member for City of Chester (Stephen Mosley) that the IPCC has said that the investigation will be the biggest it has ever undertaken. The Government recognise the additional burden that such a large investigation places on it. We have made it clear that we will ensure that the commission has both the powers and the resources it needs to conduct its investigations into Hillsborough. We take that commitment seriously, which is why we have introduced this fast-track Bill.

[John Mann (Bassetlaw) (Lab)]

The IPCC has accepted two separate complaints, which may or may not overlap. One is in relation to Orgreave in 1984, and the other is in relation to the mystery over the investigation into Norman Bettison for an alleged major theft in August 1987. How will the IPCC be able to look at those two investigations when it has such a heavy burden placed on it, particularly if it finds anything that in any way crosses over because of the individuals involved or anything else?

[Damian Green]

I should restrict my remarks to Hillsborough, which is the purpose of the Bill; it is deliberately narrowly drawn. It is for the IPCC to decide how to use its resources. The Bill gives a power to the IPCC to consider events previously investigated by its predecessor body, the Police Complaints Authority, but it is for the IPCC to decide whether exceptional circumstances obtain to allow it do so. It is for the IPCC to decide whether to accept individual complaints. On the hon. Gentleman’s other complaints, may I urge Members on both sides of the House not to indulge in debate and speculation about individuals? I would not want anything said on the Floor of the House to jeopardise any live investigations being conducted by either the IPCC or the police.

Since the publication of the panel’s report, my right hon. Friend the Home Secretary and I, and Home Office officials, have liaised closely with the IPCC, which has identified two additional powers it needs urgently in order to take forward its investigations into Hillsborough. Those powers are contained in the Bill.

As many hon. Members will know, discussions with the IPCC regarding its powers have been taking place for some time. I am aware of the calls for wider reform of the IPCC and how police complaints are handled more generally. Let me be clear to the House that those discussions are still taking place. The Home Affairs Committee, to which I gave evidence last week, is coming to the end of an inquiry into the IPCC. Naturally, the Government will want to study the Committee’s conclusions and recommendations before coming to a final view on any wider reforms to the IPCC. If there are other gaps in the IPCC’s powers, we will plug them as soon as is practicable, but the Bill’s focus is on gaps in the commission’s powers that it has identified as preventing it from undertaking a thorough and exhaustive investigation in Hillsborough without delay.

[Derek Twigg (Halton) (Lab)]

One of the things that emerged clearly from the report was the role of South Yorkshire police federation in putting out the “alternative” view of Hillsborough. I suspect I know the answer, but I want to be clear for the record—that someone cannot argue they were acting in a representative capacity as a police federation representative in order to escape what is being sought under the Bill. In other words, the Bill’s provisions will apply to them even if they were acting as representatives of the police federation and its members, just as they would to police officers generally.

[Damian Green]

That is a question for the IPCC investigation; it is not for Ministers to act as judges or investigators. I know it is an important point, but it is better addressed to the IPCC.

[Dr Huppert]

The Minister says he is open to plugging gaps. He knows I have pressed him before about people occupying quasi-police roles. He wrote to me to say he is actively considering the issue. Will he indicate where that consideration has reached?

[Damian Green]

Short of reading again what I have just said, that is what we are doing. The Select Committee, of which he is a distinguished member, is conducting an investigation. It has not published its final report, but when it does so the Government will look at it and all the matters it raises seriously.

[Luciana Berger (Liverpool, Wavertree) (Lab/Co-op)]

The Minister says that the IPCC has asked for two powers that are contained in the Bill. What conversations has he had with the IPCC since the Bill was published about anything that is missing? He says he has had conversations with chief officers, specifically on sanctions. What conversations has he had with the IPCC about sanctions?

[Damian Green]

I have had extensive conversations with the IPCC. I have seen its briefing to Members, which led to the all-party group amendment. I have specifically discussed sanctions with the IPCC. As I have said in more general terms, if there is a need to widen the IPCC’s powers the Government will look at it with an open mind and with a view to legislation, but it is sensible to await the Select Committee report before committing ourselves in any detail. It will be for the IPCC to investigate whether individuals involved on the day should face misconduct or criminal proceedings; we must ensure it has the powers it needs. The IPCC has been clear: that fully to investigate the terrible events of 15 April 1989 it needs to hear the testimony of officers involved on the day and in subsequent investigations.

[Alison McGovern (Wirral South) (Lab)]

I thank the Minister for the correspondence he gave the all-party group yesterday. He makes absolutely the right case on the powers the IPCC needs for retired officers. Does he agree that, even if there are substantial legislative issues with retired officers, there is an absolutely clear moral case that retired officers should co-operate with the IPCC?

[Damian Green]

Yes, absolutely. I agree unequivocally, and it is a widely held view in the police service as well. I know that the hon. Lady understands that retired police officers are just members of the public, however, and therefore that giving the IPCC powers that the police do not have to compel witnesses to appear would be anomalous and certainly not something we would want to do through emergency fast-track legislation. Nevertheless, she made the moral case very powerfully.

The IPCC has existing powers to interview officers and former officers who are themselves the subject of an investigation for either a conduct or a criminal matter. The IPCC can already compel a suspect to attend an interview, but it needs to hear from officers not just when they themselves are the subject of the investigation. It also needs to obtain evidence through interviews from those who might have seen the events unfold, when they might have seen or heard of fellow officers amending statements and records—in other words, when they had witnessed key events in relation to Hillsborough.

As I have said, the IPCC can compel officers who are themselves under investigation to attend for interview. Clause 1 extends this power so that serving police officers and police staff can be compelled to attend for interview as witnesses as part of any investigation managed or independently undertaken by the IPCC. The power will apply to officers in Home Office forces and other policing bodies, such as the British Transport police. I am clear that any serving officer who fails to comply with a request to attend such an interview should face disciplinary measures. I emphasise that point once again.

That is consistent with the existing regime that applies when a person who is the subject of an investigation fails to attend for interview. For the sake of clarity, I will repeat that such disciplinary matters may have serious consequences, including— ultimately—dismissal. I have set out that the power granted through clause 1 applies to individuals still serving with the police. The IPCC will not be able to compel a retired officer to attend an interview as a witness through the use of this power.

Several hon. members have asked why the provision should not apply to retired officers, but, as I said, they are in the same position as ordinary members of the public and so are no longer bound legally by the same responsibility as serving officers—although the hon. Member for Wirral South (Alison McGovern) made the point about moral responsibility. To grant the IPCC the power to require a retired officer to give evidence simply as a witness would provide the IPCC with greater powers over the public than those available to the police. I think the House would rightly be uncomfortable about that.

Let me again be clear, however: that does not mean that the IPCC cannot or will not investigate retired officers for misconduct or criminality that they might have committed. The IPCC will do that. We are just not providing the IPCC with the power, at this stage, to compel such retired officers to attend an interview as a witness to events on the day or thereafter. Crucially, the IPCC has not asked for that power in relation to the Hillsborough investigation, so the House does not need to rush its consideration of the matter.

I know that many concerns have been expressed in the House and outside that an officer who wants to avoid the repercussions of their actions can simply retire and avoid all sanction, but that is not the case. The IPCC can and will investigate any individual suspected of criminal behaviour. It has the powers it needs to pursue these individuals and bring them to book. For example, the IPCC already has the power to require an individual, serving or retired, who is suspected of misconduct or criminal behaviour to attend an interview. The IPCC can, in appropriate cases, refer a matter to the Director of Public Prosecutions where there is evidence of criminality in relation to Hillsborough.

If an individual is subsequently convicted of a criminal offence, in connection with their service as a police officer, they could lose the majority of their pension. It will be for the relevant police and crime commissioner to apply for this sanction. That is in addition to any penalty ordered by a court. Let me be clear: charges can be brought regardless of the employment status of the individual concerned.

[Steve Rotheram]

Just for the record, will the Minister clarify something? Criminal behaviour could lead to someone who is serving or who is retired facing a reduction in their pension. What happens if somebody is found guilty not of criminal behaviour, but of wrongdoing? Does the same sanction still apply?

[Damian Green]

The sanctions apply if someone is convicted of a criminal offence—I think that is the point the hon. Gentleman wishes to be clarified. If someone has not been convicted of a criminal offence, matters affecting their pension would, not least, engage human rights legislation as well, so things would be much more difficult in those cases.

[Mr George Howarth (Knowsley) (Lab)]

I understand the Minister’s point that if someone was guilty of a criminal offence, there would be consequences, but what if someone who was serving and was investigated at the time had been found guilty of not carrying out their duties in an appropriate manner? That would have been a disciplinary matter rather than a criminal matter. Is there any sanction that could apply in those circumstances?

[Damian Green]

I think we are getting into the realms of speculation about individuals. There is a clear distinction, which I am sure the right hon. Gentleman will recognise, between criminality and pure misconduct. It is clearly difficult to take disciplinary action against someone who is no longer an employee. At the most serious end, many of the Hillsborough cases would potentially involve criminal sanctions, but too detailed speculation on these matters might be unhelpful in the long run, not least to the families and others seeking justice as well as truth.

[Mrs Louise Ellman (Liverpool, Riverside) (Lab/Co-op)]

Where there is a need to gather sufficient evidence to decide whether a retired individual should be the subject of an investigation for misconduct or criminality, does the Bill contain sufficient powers to enable that evidence to be gathered?

[Damian Green]

The IPCC already has considerable powers to gather evidence, and it is not the only body involved in these investigations. My right hon. and learned Friend the Attorney-General is looking at whether to apply to reopen the inquest, so a coroner may be involved as well. There will therefore be thorough investigation, and I would be surprised and disappointed if any avenue of inquiry fell through the cracks. As much as can be done in the investigation is being done and will be done.

The overall point I would like to reassure the House about is that where individuals are suspected of misconduct or criminality, the IPCC has the powers it needs, so clause 1 is solely about its powers relating to witnesses. The power is essential if the IPCC investigation is to maintain public confidence and show that it has left no stone unturned—precisely the point that the hon. Member for Liverpool, Riverside (Mrs Ellman) made. Information from witnesses will ensure that the IPCC investigation has a broad and thorough evidence base.

As we have discussed, the sanctions carry real weight for serving officers. It would not be appropriate to extend that to retired officers at this time. I should perhaps repeat that I fully expect the vast majority of retired officers called as witnesses to attend willingly. The importance of the matters being considered would cause any decent human being to provide whatever assistance they could. However, we want to ensure that the IPCC has the clear statutory basis to be able, independently and authoritatively, to require serving officers who may have useful information for the purposes of the investigation—because they witnessed events—to attend an interview. This power is needed urgently. The IPCC is currently scoping its investigation, but it wants to make rapid progress, and I know that many people inside and outside the House want that as well. It plans to start calling witnesses early in the new year, so this power needs to be available to it by then if the investigation is not to be held up.

Clause 2 will allow the IPCC to investigate matters that were previously subject to investigation by its predecessor, the Police Complaints Authority. This power will be exercised only when the IPCC is satisfied that the exceptional circumstances of a case justify its use. That is a high threshold. The IPCC has made it clear to me that, without this power, certain key events of the Hillsborough disaster would be out of scope of its investigation, as they have previously been considered by the PCA. In particular, the PCA investigated the decisions to open exit gate C at the Leppings Lane end of the Hillsborough ground and not to close the tunnel. Without this additional power, those matters would be out of scope of the IPCC investigation, although it is clear that those two decisions were critical to the events of the day.

So this power is needed, but it needs to be tightly drawn. We need to avoid the prospect of opening up all previous PCA investigations for review. That is why the power provides the IPCC with the discretion to reopen previously investigated cases when the matter meets the test of “exceptional circumstances”. We are confident that that terminology ensures that investigations relating to Hillsborough can be reopened, while also setting a high enough bar to prevent all PCA cases from being subject to another investigation.

[Stephen Mosley]

The IPCC states in its briefing note, to which the Minister has referred, that there should be powerful public interest involvement if it is to reopen a case. Does he agree that that should be the case?

[Damian Green]

I do. As I have said, it is for the IPCC to define “exceptional circumstances”, but clearly a powerful public interest would be one example. New evidence would potentially be another. The circumstances would be of that kind of order. In serious cases, a powerful public interest or the production of new evidence would enable the IPCC to say that the hurdle had been overcome.

[Angela Smith (Penistone and Stocksbridge) (Lab)]

Does the Minister think that the Orgreave incident represents a case in which these powers might be useful?

[Damian Green]

It is for the IPCC to decide such questions. The I stands for “Independent”, so it is not for Ministers to stand here and tell the IPCC how to define its role or the powers that we give it. It is for us to give it the powers, but it must define how best to use them. So, if the hon. Lady will permit me, I will leave that to the IPCC to decide. It will decide such questions in that case and in any other, and it is right that the decision should sit with it.

[Bill Esterson (Sefton Central) (Lab)]

I apologise for missing the start of the debate. The Minister has talked about reopening investigations that have already been looked into by the Police Complaints Authority. Given the number of officers who were persuaded to change their statements and the scale of the cover-up, does he envisage that those issues will be covered by this provision in the Bill?

[Damian Green]

The previous Government passed a perfectly sensible piece of legislation when setting up the IPCC to prevent it from becoming a body that would investigate every controversial police case that had been investigated by its predecessor body. The reason for including this provision in the Bill is that the IPCC has told the Government very firmly that it needs the power to investigate a case that has already been investigated by the PCA, for the reasons that I have given relating to what happened on that day, and that it wants the high hurdle of “exceptional circumstances” to be set. One element that would enable it to get over that high hurdle would be the arrival of significant new evidence in a public interest case. As the hon. Gentleman says, the fact that there is evidence of statements having been altered on an industrial scale certainly hits the target as far as new evidence is concerned.

[John Mann]

To clarify, if during the IPCC’s investigations into Hillsborough, it comes across other major events that might not be in the public domain at all yet might give some indication not of what happened at Hillsborough or how it happened, but of why certain things happened, will it be able to look into or pass on relevant information at a future stage? In other words, can the IPCC look at things that are not directly related to Hillsborough but that come out as reasons for actions that are, on the face of it, unrelated but could be worthy of investigation in themselves?

[Damian Green]

Again, it will be a matter for the IPCC to decide what to do with the evidence it finds. Inevitably, in this kind of investigation, the evidence it finds will be public. I think I can see where the hon. Gentleman is trying to go. As I say, the IPCC has considerable powers of investigation and it could make things public that might enable someone to make a complaint, at which point it would have to decide whether its powers were sufficient or whether its new powers conferred under this Bill could be triggered. The underlying point is that the IPCC is independent: it is for the IPCC to decide what best to do with the evidence it finds during the course of its investigations.

The Bill is narrow in scope, but crucial to the process of achieving justice for the 96 individuals who died as a result of the Hillsborough disaster, for those who were injured and for the families and friends of all involved.

[Steve Rotheram]

I thank the Minister for his patience again, but I am certain that he must understand the nervousness on Merseyside when this particular issue goes through this House. I know, because I have spoken to him, that the Minister is fully aware of and appreciates the current situation of Anne Williams, whose online e-petition reached over 100,000 signatures some weeks ago. Will he assure us that none of the investigations that will be carried out through the additional powers of the Bill will in any way impact on the time scale of the new inquests? Will he say more about his latest expectations regarding the timing of the application to the High Court to quash the original unsound verdicts?

[Damian Green]

On the first point, I know that the IPCC is extremely aware of the desire for things not to appear to be unduly delayed. Indeed, that is one reason why we are here today—to put a Bill through all its stages in one day, which shows that the House and the Government are trying to speed the process up as much as we can.

On the application to the High Court, I know that my right hon. and learned Friend the Attorney-General is proceeding as fast as he can, and I think a decision will be made public very shortly. I can go no further than that, but the hon. Gentleman’s wider point is well made, and I absolutely take it. I am very conscious that people want to see that this process, having started after the report, is not unduly delayed at any stage. I am very keen, as I know are many other people who have been involved from the start, that that should happen.

That explains why the House should not today consider the wider reform of the IPCC, although we will examine whether there are other gaps in its powers. We have asked it what tools it needs to progress its investigations into Hillsborough, and this short Bill will ensure that it has the two additional powers for which it asked. The Bill thus represents an important step on the road from truth to justice for Hillsborough. All who support that aim will, I hope, support this Bill. I commend it to the House.

[Mr Deputy Speaker (Mr Lindsay Hoyle)]

I must now announce the result of the deferred Division on the draft order amending schedule 1 to the Legal Aid, Sentencing and Punishment of Offenders Act 2012. The Ayes were 288 and the Noes were 213, so the Question was agreed to.

I must also announce the result of the deferred Division on the draft Civil Legal Aid (Merits Criteria) Regulations 2012. The Ayes were 287 and the Noes were 213, so the Question was agreed to.

--- Later in debate ---

[Dr Julian Huppert (Cambridge) (LD)]

It will not be news to anybody in this House how serious the Hillsborough disaster was. It is still the worst tragedy in British sporting history. The shocking revelations of deception, blame and injustice have resonated with football fans and many others around the world. The 96 people paid an awful price and we are still learning from it today. I hope that Parliament will at last ensure that we learn the harsh lessons of the last 23 years through this vital legislation.

I will not go through the details of what happened because they have been eloquently expressed by many right hon. and hon. Members who have much closer links to these events, and the unacceptable acts of manipulation and self-interest by the police forces involved in the disaster have been covered extensively in the media. It is clear from the Hillsborough independent panel report that the extent of the loss of life can be attributed to multiple failures in the emergency services and other public bodies that were charged with the safety of the public on that occasion.

We have to accept the reality that South Yorkshire and West Midlands police, as well as other emergency services, made “strenuous attempts” to deflect the blame for the crush on to the victims. The report stated clearly that 116 of 164 police statements were

“amended to remove or alter comments unfavourable to”

South Yorkshire police. I know that the whole House would agree that that is clearly unacceptable.

For the victims of the catastrophe who have seen decades pass without justice, it is essential that we act to ensure that the systems put in place to protect the public can no longer place themselves above that duty. It is therefore critical that we reform the IPCC. There are two issues. First, the changes proposed in this Bill, which I support, will, we hope, help the Hillsborough investigation, although I have a couple of concerns that I will raise in a moment.

Secondly, there is a need for broader reform of the IPCC. There is much concern among the public that it does not always act sufficiently independently, that it does not take up enough cases and that it is not able to investigate cases as well as it needs to. I am pleased that the Minister has made it clear that he will consider carefully the work that the Home Affairs Committee is doing to look more broadly at the IPCC. There are a number of points that I hope he will look at. I have already raised the issue of those who operate in quasi-policing roles. The former chair of the IPCC, Nick Hardwick, has said that

“if it looks like a police officer, talks like a police officer, walks like a police officer, the IPCC should investigate it.”

The Minister has said that he will have an open mind in looking at those issues. I hope that he will take action on quasi-policing roles.

The Liberal Democrats support the Bill entirely. We are delighted that it also has the support of organisations such as Liberty, which rightly states that there should be due process for police officers. However, there are a number of issues that are not quite clear and I would be grateful if the Minister could reiterate his position on them. The first is what will happen to police officers who are required to attend an interview but who refuse to answer questions at it. Everybody has the right not to answer questions and not to self-incriminate, but there is a question about whether there is a duty on somebody who is still an employee to answer questions. The Home Affairs Committee report, which we concluded yesterday in time for this debate, states at recommendation 10:

“We note that refusal to attend an interview may result in misconduct or gross misconduct proceedings, but that there is no sanction for refusal to answer questions. We expect that chief constables will indicate to their forces that such uncooperative behaviour would be considered to be at odds with the spirit of professional duty.”

I hope that the Minister will confirm that that is his interpretation, too, and that he will encourage chief constables to make that clear more broadly.

There is still the issue, which I raised with the Minister earlier, of former police officers. He pointed out, and others confirmed it, that they would have a moral obligation to co-operate. That is definitely right—we would like former police officers to take part—but I am not clear what would happen if the unfortunate occurred, and some police officers did not agree to co-operate and that caused a fundamental problem with the investigation. I hope that the Minister will consider what happens if that becomes a problem.

[Damian Green]

In the middle of that section of his speech, the hon. Gentleman moved from retired police officers to police officers. Did he mean retired police officers?

[Dr Huppert]

I am sorry; I meant former police officers who do not have to attend an interview and decide not to do so, and that becomes a problem. I hope that the Minister will consider, obviously with much reluctance, whether we need to do anything else to ensure justice. I thank him for correcting me if I misspoke.

I hope that the Bill will be passed quickly, and I look forward to hearing other hon. Members’ comments today.

--- Later in debate ---

[Damian Green]

With the leave of the House, I should like to respond to the debate. I am grateful to all those who have contributed and helped us to make progress towards ensuring that justice will follow truth. It is important for the House to consider all the issues and questions that the introduction of this Bill has raised. Members of this House have shown great commitment in driving us closer to getting the IPCC investigation under way. The point has been well made by the shadow Policing Minister, the right hon. Member for Delyn (Mr Hanson), and others that people do not want more talk. They simply want to see the changes that will unlock justice.

We have twin responsibilities in this House: we have to ensure that progress is made after such a long wait for the truth, but we also have a parliamentary responsibility to ensure that the Bill that passes through the House is appropriate and fit for purpose. I think that today we will meet both those responsibilities. I am grateful for the support from hon. Members on both sides in getting through all the business in a short time. The Bill will enable the IPCC to conduct a comprehensive, painstaking and, above all, transparent investigation. Transparency has perhaps not been mentioned enough, but it is important that what the IPCC uncovers should be transparent.

Let me address the individual points that have been made today. I shall start with those of the right hon. Member for Delyn. He asked about consultation with the families. My right hon. Friend the Home Secretary met representatives of the Hillsborough family groups on 18 October and, as the right hon. Gentleman would expect, Home Office officials continue to be in regular contact with the groups and will write to them again following today’s debate. The Home Secretary has also asked the Bishop of Liverpool to continue to act as the Government’s adviser on Hillsborough. His close relationship with the families will obviously be very beneficial.

Several hon. Members, including the hon. Member for Liverpool, Walton (Steve Rotheram), asked about a single lead investigator, as did the shadow Minister. There are legal and constitutional constraints that would prevent the appointment of a single investigator to investigate Hillsborough. Each of the bodies involved, and the processes relating to them, are independent under laws passed by this House. However, I am conscious of the need for the various investigatory bodies, independent though they might be, to work closely together. The IPCC and the Director of Public Prosecutions are working closely together, and with others who have responsibility for investigating those who cannot be the subject of IPCC investigations. Discussions are continuing on how to approach any aspects of the investigation that cannot be covered by the IPCC. I was also asked about the time scale. A decision on that will be made very early next year. We are moving ahead with that as fast as possible.

[Steve Rotheram]

The Minister has mentioned our questions about a lead investigator. According to paragraph 9 on page 3 of the Home Affairs Select Committee report that was published today, the Committee is recommending

“that a single, lead investigator should be identified”.

How much consideration will he give to that report?

[Damian Green]

As I have said, I can see where the demand is coming from, and I have read the Home Affairs Select Committee report. There are, however, very good reasons for what I have said about this, which I am sure hon. Members will understand. Given the constitutional independence of the Director of Public Prosecutions and the IPCC, there could not be any attempt to direct them, especially the DPP. It would be improper in all senses for a chief investigator, let alone a Home Office Minister, to direct him and tell him what to do. It would certainly be constitutionally improper as well, so there are genuine difficulties involved in going down that route. I assume that the underlying drive behind the request for such an investigator is the need to ensure that people do not go off in different directions or fail to talk to each other, thereby causing unnecessary delay through a lack of coherence among the various strands that hon. Members have talked about. Everyone involved is aware of that; I know they are doing their best to make sure that they proceed as much as possible in parallel.

The right hon. Member for Delyn asked me about engagement with the Police Superintendents Association and the Police Federation. As I said in response to an earlier intervention, I have already had an exchange of correspondence with both bodies; indeed, my officials spoke to them before the Bill was published. I believe the right hon. Gentleman said at one stage that we should have consulted formally, but that would have taken 10 or 12 weeks, so it would clearly have been impossible. Inevitably, there has not been a lot of time between getting the Bill right and publishing it. Of necessity, then, the consultation with the bodies was done relatively shortly before we proceeded. I sensed the House’s pressure to get on with this, and that is what we are doing.

[Mr Hanson]

In view of the written comments that I explained, will the Minister agree to meet, prior to Second Reading in the other place, representatives of both the Police Federation and the Police Superintendents Association to discuss the Bill?

[Damian Green]

I already have in my diary a meeting with the Police Federation next week, and I would be happy to meet the Police Superintendents Association at any time.

There has been a lot of discussion about retired officers—not least by the shadow policing Minister, but also by my hon. Friend the Member for Cambridge (Dr Huppert), the hon. Members for Liverpool, Riverside (Mrs Ellman) and for Penistone and Stocksbridge (Angela Smith), the right hon. Member for Knowsley (Mr Howarth) and the hon. Member for Sefton Central (Bill Esterson). As I have said, former officers are civilians—not police officers—and they are no longer bound by the duties and regulations that governed their lives as serving officers. The police themselves do not have powers to compel witnesses to attend interviews, so I can only repeat that to grant this power to the IPCC would be unusual in the extreme. However, given the seriousness of the allegations being considered by the IPCC in the Hillsborough case, I repeat that the IPCC has made it clear that it will fully conclude investigations for both criminality and misconduct even when officers have left the service.

This is an unusual step. The IPCC does not normally investigate retired officers for misconduct, but it is clear in this case that there is an enormous and legitimate public demand, reflected by Members of all parties, for that to happen. That is what the IPCC was going to do. During its investigation, the IPPC will no doubt call retired officers to provide evidence. As we all agree, the retired officers will understand the importance of this investigation, and I am sure that the vast majority, if not all of them, will attend willingly.

Finally, the IPCC has been clear that it needs these powers only in respect of serving officers. That is what the Bill provides for. I understand the calls to grant a power to compel retired officers to give evidence, but because it is so unusual and because it would be such a powerful tool, I think it would be inappropriate to do this through fast-track legislation. That should be considered when it comes to the possibility of future legislation.

[Mr George Howarth]

I understand the Minister’s point that making a change such as this in fast-track legislation might not be appropriate, but can he give a commitment that, should it become apparent later that there is a reluctance on the part of retired officers to come forward, some further action could be taken by this House to bring in an element of compulsion?

[Damian Green]

What I will say is that we are debating this Bill here today because the IPPC came to the Government and said, “We need extra powers.” We have responded as quickly as possible so as not to delay the move from truth to justice. We are always willing to accept representations from the IPCC and to consider what is the most practical way of allowing it to do its job as efficiently as possible.

The right hon. Member for Delyn asked me about a related subject, namely the retirement of officers during an investigation. The IPCC can continue an investigation into either criminal or misconduct matters even when an officer has chosen to retire in the middle of it. I hope that the right hon. Gentleman is reassured by that. He also asked about private contractors. Contractors working as detention and escort officers already fall under the IPCC’s oversight, and are therefore covered by the Bill. We are considering the need to extend the provision to other kinds of contractor. That is not relevant to events that took place in 1989, because there were no private contractors then, but we will consider the issue in the longer term, along with the IPCC.

I was asked when the IPCC investigation would conclude. I think that everyone recognises that it is a huge, complex, far-reaching investigation, and that it will take time for it to conclude thoroughly. The last thing we want is an investigation that is not carried out thoroughly. The IPCC will set out the scope and projected timings in the new year. As well as meeting my officials, it has been meeting the families and their representatives, and will continue to do so in order to ensure that they are in the loop at all times.

My hon. Friend the Member for City of Chester (Stephen Mosley) and the hon. Member for Liverpool, Riverside (Mrs Ellman) asked about sanctions. As we are about to debate that subject, I shall not intrude on your patience, Mr Deputy Speaker, but I will say that we have not expressly provided for a sanction for failing to comply with a witness attendance requirement because effective sanctions are already available under the Police (Conduct) Regulations 2012. I shall doubtless say more about that shortly, when we discuss amendment 1.

Let me again thank the Opposition, and Members in all parts of the House, who have spoken today and expressed their support for the Bill. I hope that the constructive manner and tone that have characterised the debate will serve as a reassurance, not least to the families of the victims, that the House is working well to try to help them as much as possible. I look forward to the Bill’s remaining stages.

Question put and agreed to.

Bill accordingly read a Second time.