Eurojust and the European Public Prosecutor’s Office

Diana Johnson Excerpts

Tuesday 29th October 2013 Commons Chamber

[Diana Johnson (Kingston upon Hull North) (Lab)]

I thank the Minister for his characteristically thorough and detailed explanation of the motion.

Tonight the House is discussing the two issues of European co-operation on justice and home affairs: Eurojust and the European public prosecutor’s office. If anyone is feeling a sense of déjà-vu, that is because the House discussed the EPPO this time last week. Indeed, there was a rare moment of unity when those on both sides of the House agreed with the Government, the previous Government and the European Scrutiny Committee that the creation of the EPPO did not meet the test of subsidiarity and that the UK should therefore opt out. In government, Labour secured an opt-out from the EPPO and in opposition we support the Government in continuing to use that opt-out. We have also heard that the yellow card has now been issued.

Given the degree of unity in the House and as we debated it at length last week, I do not intend to dwell on the subject of the EPPO. I note what the Minister said about the links between the EPPO and Eurojust, but I think that we should particularly consider Eurojust.

To recap, Eurojust was established in 2002 and in 2001 the EU Commission conceived its role as

“facilitating cooperation between Member States and contributing to proper coordination of prosecutions in the area of serious, and organised, crime.”

Its concern is so-called “annex 1” crimes such as drug trafficking, human trafficking, terrorism and financial crimes. Those are serious crimes that constantly evolve and adapt. Increasingly, they cross borders and require co-operation between different jurisdictions. The importance of Eurojust to the UK is underlined by the fact that there have been 1,459 requests from EU member states for co-operation with Britain through Eurojust since 2003, with 190 requests made in 2012 alone. It is therefore a little disconcerting to see the Government playing the hokey cokey—we are in at the moment, but now we are opting out although, in principle, we might be back in again in the future.

The primary functions of Eurojust have been and will continue to be the facilitation of co-operation between member states. Eurojust is required to respond to any request from a member state and to facilitate co-operation. That role means that Eurojust must inform member states of investigations and prosecutions that are occurring in a different member state but affect the member state; assist the competent authorities of the member states in the co-ordination of investigations and prosecutions; provide assistance to improve co-operation between member states; co-operate and consult with the European judicial network in criminal matters; and provide operational, technical and financial support to member states’ cross-border operations and investigations, including joint investigation teams.

The key thing to remember is that Eurojust seeks to support member states in conducting investigations, unlike the EPPO, which seeks to undertake the prosecutions itself. The distinction is vital and the aim of the British Government should be to continue that element of Eurojust.

[Mr Dominic Raab (Esher and Walton) (Con)]

The hon. Lady talked about the hokey cokey of the Government’s position. Can she be clear whether the Opposition advocate that the UK opt in now, based on the draft regulation as it stands, with all the supra-national transfers of power entailed in it?

[Diana Johnson]

I shall come later in my remarks to what I think the Government should have been doing leading up to this point—making sure that the aspects that they were concerned about were discussed. I shall put a series of questions to the Minister about how many conversations and dialogues took place with the EU to try to get the regulation in a form that was more acceptable to the Government.

As Eurojust is based on co-operation, it places obligations on members to co-operate with joint investigations, and these obligations are set to increase. I shall come back to that. If the Government are serious about tackling human trafficking, terrorism or financial crime, for example, they need to be serious about working with European partners, but I am concerned that the Government seem to be sitting on the sidelines. Their current position appears to be that they would like the UK to stay in Eurojust as it is now, but they are content to let everyone else get on with a new Eurojust, which they are not part of, but which they hope they might get back into in the future. What we should do is work with our European partners to get a Eurojust system that works for us.

[Mark Reckless (Rochester and Strood) (Con)]

I find it difficult to take the hon. Lady’s point in respect of what the Government are doing. Is she implying that we should opt in now, without knowing what will be in the regulation, in order to seek to influence it?

[Diana Johnson]

I shall come on to some of the issues that the Government should have been considering in the lead-up to the motion today, but we will not oppose the motion. However, we have questions about how we got to this point and whether there could have been a proper negotiation with Eurojust that we might have supported. We have never supported the EPPO. That was very clear in the debate that we had last week.

[Chris Heaton-Harris (Daventry) (Con)]

Has the hon. Lady ever tried to have a conversation on these issues with Commissioner Reding? It is very much like talking to a brick wall which, if it is moving at all, is moving away from one’s own position. If she had ever had such a conversation, she would understand the difficulty that the Government might have on occasion.

[Diana Johnson]

Clearly, I am not in government, so I am not in a position to have such conversations, but it is important that the Opposition raise questions about what the Government have been talking to their EU partners about and whether they have been able to form any of the alliances that other hon. Members have mentioned to get the best possible way forward.

[Mr Redwood]

Do the hon. Lady and her party agree that we do not want more transfers of power over our criminal justice system to the EU and that we wish to protect our common law traditions?

[Diana Johnson]

As I just said, we are interested in trying to deal with crimes such as human trafficking, financial fraud and the serious organised crimes that go across borders, which are not about what is happening in the UK but are Europe-wide and global. We should make sure that we have procedures in place to ensure co-operation where it is useful.

The three main aims of the reforms are, as we understand it, to increase democratic accountability to member states’ legislatures; to increase efficiency through more streamlined management structures; and to improve EU member states’ effectiveness in the increasingly globalised fight against organised crime. All are laudable aims with which I am sure we all agree. Equally laudable is the aim of increasing our effectiveness in tackling cross-border crime. The Government’s current objections can be divided into those that need working through, which we recognise, and those that, I suggest, appear to be spurious.

The major change, and the one that we recognise poses the biggest challenge, is the appointment of the national member. Under the proposed reform, member states will second a national member—a prosecutor, judge or police officer—to work full time at Eurojust. Member states will grant national members the power to fulfil the task conferred on them by the Eurojust regulation. That means national members, once appointed, will bear responsibility for ensuring that their member states co-operate with Eurojust, including through legal assistance, information exchanges, liaising with international bodies and assisting in joint investigation teams. National members, working with other competent authorities from member states, will also:

“a) order investigative measures;

b) authorise and coordinate controlled deliveries in the Member State in accordance with national legislation.”

The Opposition accept that the appointment of national members represents a big step up for the role of Eurojust. We fully recognise that it is not acceptable for the national member to be in a position of oversight over the UK criminal justice system. I reiterate that we do not support any move to cede prosecuting powers to the EU, either to the EPPO or through some mechanism of Eurojust. However, we would like to see the Government attempt to reconcile those proposals with the current set-up in our criminal justice system.

The Government appear concerned that, as currently formulated, the proposals could allow Eurojust to order investigations, or even prosecutions, that duplicate efforts already under way in the UK. Prosecutions in the UK of course require the consent of the Director of Public Prosecutions, while investigation of most of the crimes listed in annex 1 are the responsibility of the newly formed National Crime Agency. Perhaps the Minister will explain what work is being done to look at the possibility of drawing the national member from one of those bodies and work on the basis of a memorandum of understanding to ensure that the UK retains sovereignty over our systems while improving cross-border co-operation. As has been mentioned, special arrangements will need to be put in place for Scotland.

[Lady Hermon]

Unfortunately, special arrangements will also have to be considered for Northern Ireland, because the National Crime Agency’s jurisdiction cannot be extended in full to Northern Ireland as a result of opposition from two parties, Sinn Fein and the Social Democratic and Labour party. It is most unfortunate indeed.

[Diana Johnson]

The hon. Lady is right that the National Crime Agency does not cover Northern Ireland. I am grateful to her for reminding me.

The Commission envisages a special relationship between the EPPO and Eurojust, as I mentioned at the beginning and as the Minister set out. Of course we need to ensure that countries that are not involved in the EPPO—it is clear that the UK will not be, and others have already declared that they will be opting out—can still enjoy the co-operation of Eurojust without being drawn into the EPPO, which we all agree is a bad idea.

The Opposition have less sympathy for some of the other concerns that the Minister put forward, particularly his concern about the European convention on human rights. It might be helpful if he explained that a little more. Our major concern remains that the Government seem prepared to allow the rest of Europe to go along with these matters without us being at the table.

[Henry Smith (Crawley) (Con)]

With respect, the hon. Lady has still not answered the question that my hon. Friend the Member for Rochester and Strood (Mark Reckless) asked: does she advocate opting in now, and therefore being locked in?

[Diana Johnson]

I think that I made it very clear to the hon. Gentleman that we will not be opposing the motion this evening, but we have questions on what the Government have been doing up to now to ensure that this is not the only avenue open to them, and whether we might have been able to get some agreement before we ended up where we are today. Our major concern remains that the Government seem to have been prepared to allow the rest of Europe to go along without us, and instead of working for reforms that protect the rights of the UK they are allowing the rest of the European Union to set up an agreement that works for it and then saying, “We’ll make a decision later.”

I have a few questions I would like the Minister to respond to, either in his winding-up speech or in writing. What work is being done to look at how a national member could be appointed for the UK? Is there any mileage in that proposal? Will the Minister confirm the timetable? According to the European Scrutiny Committee, the deadline is 21 November, but the Minister has suggested, both in written evidence to the Committee and in the House, that the Government will wait until at least 2014, possibly later. Does the deadline of 21 November still stand?

Will the Minister clearly confirm the Government’s position on the current Eurojust arrangements? It is a little disconcerting that the motion does not contain a commitment to maintain the current arrangements and agreements, even though the Home Secretary indicated to the Home Affairs Committee that that is the Government’s desired outcome. Is that correct?

[James Brokenshire]

I am happy to clarify that the existing Eurojust measure was on the list of 35 measures that we would seek to opt back into following the exercise of our block opt-out. Obviously, they are being analysed by the relevant Select Committees, so we will await their determination before taking further action.

[Diana Johnson]

I am grateful to the Minister for that clarification.

When did the Government actually get around to raising concerns about the structure of Eurojust and the EPPO at EU level? Those concerns are set out in a memorandum dated 7 August 2013, but surely the Government’s efforts to secure a better outcome began before that. The Government had various chances to discuss Eurojust’s future with the Commission, so did they raise those concerns?

For example, a strategic seminar entitled, “Eurojust and the Lisbon treaty: Toward more effective action”, was held in Bruges in September 2010. Did the Government raise then any of the concerns that they are raising now? There was another opportunity to discuss Eurojust’s future at an event marking its 10th anniversary at the European Council in February 2012. A Eurojust and Academy of European Law conference called “Ten years of Eurojust: Operational Achievements and Future Challenges” was held at The Hague in November 2012. Were the concerns raised then?

On 18 October 2012, the Commission consulted member state experts and others about a possible reform of Eurojust. According to the Commission:

“The meeting generally supported improving Eurojust’s governance structure and efficiency.”

What did the UK representatives say at that meeting? The Commission then instigated a consultation on the strengthening of Eurojust. What issues did the Government raise?

What improvements to Eurojust have the Government been pushing for? We all support more effective co-operation on cross-border action against serious crime and it would be helpful to know what work the UK Government have been doing to lead that agenda at European level. It would be good to see the UK setting the agenda, as was the case under the previous Government, rather than watching what happens and complaining when it does not reflect the specific interests of the UK.

Finally, on the justice and home affairs opt-out in general, the Government have found time tonight, as they did last week, for a debate on the Floor of the House, which is to be welcomed. On both occasions, the Government have raised the issue of the opt-out, which is widely supported with regard to the EPPO, but other, more controversial areas of it also warrant proper discussion. As the Minister has said, we are waiting for various Select Committees to publish reports. Will he reiterate the Government’s assurances that time will be made available for a full debate on those reports on the Floor of the House?