Legal Aid, Sentencing and Punishment of Offenders Bill

Lord Beecham Excerpts

Monday 5th March 2012 Lords Chamber

Moved by

[Lord Beecham]

7: After Clause 6, insert the following new Clause—
“Expert evidence
The Lord Chancellor must review the accessibility and quality of expert advice that is available for civil legal proceedings and ensure that this is maintained or improved following the commencement of this Part.”

[Lord Beecham]

My Lords, as your Lordships will be aware, the Lord Chancellor hails from Nottingham. He adopts the robust approach to justice that the legendary sheriff of that place is assumed to have held. Indeed, he almost embodies in himself a spiritual descent from the sheriff of Nottingham judging by some of his more recent observations, including today’s, in which he seemed to imply that concerns about the Bill were motivated by concerns for lawyers’ incomes. Recently, in an interview, he said that there are far too many experts.

As I said in Committee when we were discussing this issue, we are not concerned to protect the interests or incomes of lawyers or experts. We are concerned about the position of organisations, such as law centres and the like, which the Government assume will be able to shoulder a substantial part of the burden that will be shed from the legal aid system—but that is another issue. Our objective is to preserve access to justice and to ensure that the parties and the courts have the assistance that experts can bring to bear on the matters which have to be adjudicated.

This amendment seeks only to create a duty on the Government—the Lord Chancellor—to review the accessibility and access to expert assistance and to ensure the maintenance of both. It does not prescribe a method by which this should be achieved. There could be a variety of ways in which the objectives can be met. There might, for example, be a system of approving panels of experts for particular areas of law and for dealing with their remuneration in a rather more structured way than is presently the case. But that is not a matter which the amendment seeks to prescribe in any detail.

Expert witnesses are relevant across many types of case. The amendment refers to the need to preserve the expert capacity in relation to Part 1, which is a matter that we will debate at some length on Wednesday. It remains to be seen what areas of law will remain in scope and what will not. Among the areas that might be brought into scope are elements of personal injury law and clinical negligence, and some matters of contract and the like, in which expert evidence can be very important.

Perhaps the most clear example, which will certainly arise, is in relation to evidence in family situations. There are many cases in which expert evidence can be extremely important in the context of private family law. Examples include false allegations of child sexual abuse. In one particular case a child psychiatrist, having examined the situation, stated that a child who was allegedly abused would in fact have no memory of the time when the abuse was alleged to have occurred and thus was able to demonstrate that the child had been influenced by a foster carer.

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[Lord Beecham]

My Lords, I am grateful to all those who have spoken in the debate for their contributions and, indeed, to the Minister. I will not press the amendment to a vote. Even if the noble and learned Lord were disposed to accept the thrust of the amendment, legislation is not required to achieve its objectives. Nevertheless, it is somewhat disappointing that the objective of maintaining the supply of expert evidence is not apparently on the Government’s agenda. It is one thing to arrange for an organisation—at present it is the Legal Services Commission—to determine fee levels on what looks to be a fairly crude and arbitrary basis. It is clear that neither the Lord Chancellor nor his department decides who should be included on any panel of approved experts. However, the Government are not even encouraging the formation of such panels comprising members of professional organisations who could evaluate whether a person was a competent specialist in his own field and was able to act as an expert witness. The latter is a different role. It is not necessarily the same as being an expert surgeon, psychiatrist or whatever. Giving evidence in the context of litigation is an additional skill which not everybody has or aspires to have, although the matter could be delegated. However, if the Government simply stand aside, as appears to be the case, it is not at all clear how the supply of relevant expert evidence can be secured.

This is a matter that will have to be returned to in the light of not only the financial aspects, which are clearly threatening to reduce the availability of witnesses with relevant experience and expertise, but the choice that is available to parties and courts. It is certainly necessary to be economical in these matters—that is absolutely accepted—but the danger is that we will end up with the worst of all possible worlds, with a reduced supply of people. That would damage the judicial process and sometimes the interests of, as the noble Lord, Lord Thomas, pointed out, vulnerable people—whether they are children or others—particularly, although not exclusively, in family matters, as the noble Lord, Lord Faulks, rightly reminded us.

Although I will seek leave to withdraw the amendment, this topic will not go away. It is one to which the courts, professional bodies and ultimately the Department of Health in the context of medical evidence—and perhaps departments in other areas, including that of the Lord Chancellor, who has responsibility for the judicial system as a whole—will have to revert at some point. However, I beg leave to withdraw the amendment.

Amendment 7 withdrawn.

Moved by

[Lord Beecham]

7A: After Clause 6, insert the following new Clause—
“Post-commencement review
(1) Two years after the commencement of Part 1 of this Act, the Lord Chancellor must commission an independent review to assess—
(a) the cost and impact of Part 1 on—(i) children and young people;(ii) people with disabilities, including people with learning, physical, mental and psychological disabilities; (iii) women;(iv) victims of domestic violence;(v) black and ethnic minorities;(vi) government departments;(vii) courts and tribunals, including any changes in time and resources; and(viii) local authorities; and(b) the impact of Part 1 on—(i) the incidence of homelessness;(ii) the incidence of ill-health or suicide;(iii) the commission of criminal or anti-social behaviour; and(iv) the future provision and availability of services including, but not limited to, law centres and citizens advice bureaux.(2) The Lord Chancellor must lay a copy of the final report commissioned under subsection (1) in both Houses of Parliament at the same time as laying a draft revival order under section (Duration of Part 1).”

[Lord Beecham]

My Lords, I will be blessedly brief. The first of the two amendments in this group is the mirror image of my noble friend’s previous amendment and calls for a post-commencement review of the impact of the changes proposed in the Bill after two years. It would provide for a report to be laid before Parliament. No doubt the noble Lord, Lord McNally, will say that it was always intended that there should be a post-implementation review. I accept that.

The second amendment in the group would create a more formal structure by proposing a sunset clause, whereby the provisions of Part 1 would lapse unless they were to be revived by an order. This would add teeth to the review process that the noble Lord will no doubt say would happen anyway. The provision would also add pressure to ensure that such a review would be thorough and comprehensive and allow Parliament to take a considered view of what, by any standards, would be significant changes to the legal aid system, regarding not only the effect on potential clients but the impact on government departments and public expenditure as a whole.

While the noble Lord constantly returns to the refrain about the difficult economic situation, which we all of course understand, it is certainly the view of many—I put it no higher—that the Government are transferring the burden from this department to elsewhere. They may also—according to the King’s College report, at any rate—actually be increasing their financial expenditure rather than reducing it. Experience will tell us which way this will go—I hope within the period suggested. At that point it would, if the amendment were to be accepted, be open to the Government to table a resolution to continue with the scheme. Otherwise, if those of us who are sceptical about it prove to be right, the provisions would lapse, and therefore the savings would be made at that point, rather than ab initio, as the noble Lord believes will be the case. I beg to move.

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[Lord McNally]

My Lords, let me make it absolutely clear from the start that my spirits are lifted when I see the noble Lord, Lord Howarth, rise to his feet. In all seriousness, I believe that he is a very effective parliamentarian. I say that as a compliment. He researches his interventions, his arguments are well marshalled, and it is always a pleasure to respond to him. That is particularly the case this evening, when we have had a glimpse of what might have been: the Howarth Chancellor of the Exchequer Budget. There would be all the savings and cuts and the only thing that would stop Chancellor Howarth getting the country a triple C rating would be the presence of a triple D rating. Nevertheless, it is always a pleasure to respond to him, and that is why I intend to take at least 25 minutes to deal precisely with the points that he has made.

As the noble Lord, Lord Beecham, very frankly, pointed out, Amendment 7A would require a post-commencement impact assessment in the same terms as the pre-commencement impact assessment, which we discussed under Amendment 6. I do not propose to rehearse the same arguments again here, as the real issue of this amendment concerns its relationship with Amendment 161. That amendment would, as has been explained, place a time limit on the effect of the primary legislation, and any revival of its provisions would require the approval of both Houses.

I ask the noble Lord, Lord Beecham, to consider for a moment the legal, contractual and practical implications of the legal aid scheme under this Bill lasting for only three years unless Parliament’s approval were reaffirmed at that point and thereafter annually. That would undermine the approval that Parliament may give by seeking re-approval inside a period shorter than most governmental terms. I do not really think that this proposition for a sunset clause in this Bill is practical. I hope that the noble Lord will reconsider the wisdom of this amendment and withdraw it.

[Lord Beecham]

My Lords, it is a profoundly wise amendment, but nevertheless I beg leave to withdraw it.

Amendment 7A withdrawn.