Armed Forces (Service Court Rules) (Amendment) (No. 2) Rules 2022

Lord Coaker Excerpts

Tuesday 18th October 2022 Grand Committee

[Lord Jones (Lab)]

My Lords, I presume that prior to the very welcome rules female board members were never present. Was that the case? I am looking at Rule 3A(1). How often do these boards sit? One presumes it is as events dictate, but how many are there in the average year? What number are we dealing with? This issue is central to the rules and some numbers might help. Finally, can the Minister furnish an example of gender representation—a woman/she/they—on a given present board? Is an example available?

[Lord Coaker (Lab)]

My Lords, I do not wish simply to make things up. I have very little to say on this. However, the amendments to the rules that the Government have brought forward are important. I agree with the noble and gallant Lord, Lord Craig, the noble Baroness, Lady Smith, and my noble friend Lord Jones.

From the various reports we have seen, there seems to be a real problem of confidence in some of the service justice system. To be fair to the Government, it is good to see them coming forward to adopt the recommendations of the review that they set up to look at this. These days, being commended is probably something the Government would welcome, but this is an important step forward in this case.

I sometimes wonder about overriding objectives. The noble Baroness, Lady Smith, is right: this is not a sarcastic remark, but it is quite astounding that we have to say that a court must deal with people fairly—“justly”, according to the law—and that that needs to be written down in law. Having said that, I understand that it is something put down by Judge Lyons—fair enough.

I want to tease the Minister a bit politically here. I do not know whether she has passed this by all sections of the Government but I am absolutely delighted to see them recognising the rights of defendants, particularly under Article 6 of the European Convention on Human Rights. It is absolutely wonderful that the Ministry of Defence is defending the convention and using it as a way of ensuring that courts operate—

[The Deputy Chairman of Committees (Lord Beith) (LD)]

There is a Division in the House. The Committee will adjourn for 10 minutes.

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[Lord Coaker (Lab)]

My Lords, I was in the process of welcoming the Armed Forces (Service Court Rules) (Amendment) (No. 2) Rules 2022, in particular their adoption of the recommendations of His Honour Shaun Lyons—we are pleased about that.

I was also congratulating the Minister on the MoD’s including the European Convention on Human Rights. I was excited to see it mentioned on page 2, but my excitement reached a crescendo when I saw it also mentioned on page 3. Then I turned over, and with just a scant look through I saw it mentioned again on page 5. That is before we get to the Explanatory Memorandum, which talks about the importance of the European Convention on Human Rights. Leo Docherty has said that the instrument is consistent with it.

It is important that the Minister outlines for the Committee how important she and the Ministry of Defence think retaining Article 6 of the European Convention on Human Rights is to the maintenance of the instrument before us. The Committee needs an explanation of that. She will be aware that many members of her own Government seem to think that the European Convention on Human Rights is not important, but I am pleased to see that the Minister and the Ministry of Defence have laid this instrument before us, which makes it clear through repetition that the European Convention on Human Rights is absolutely fundamental to this SI. Will the Minister ensure that all parts of the Government are aware of the importance the MoD attaches to the convention? Looking around the room, I am sure that a number of Committee Members are certainly well able to defend the Minister and help her in that respect, should she need it.

I think we would all welcome the addition of lay members to the court martial panel, and the gender balance. Can the Minister explain what a lay member is? I was speaking to the noble Baroness, Lady Smith, about this. Our understanding is that a lay member is not a member of the public, so who is a lay member who becomes a member of the court martial board?

Given that the whole purpose of the change in new rule 34A is to try to ensure that initially, there are more effective procedures with respect to sexual offending, I think we are all pleased to see that the Government have now extended that to all offending. Can the Minister say how that will be monitored, and what we mean by lay members?

With those few comments, we welcome the instrument before us. It will be an improvement, and will hopefully lead to greater confidence in the service justice system.

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[Baroness Goldie (Con)]

That is what I am saying. Indeed, I add to that by observing that it would be profoundly undesirable if the Secretary of State, as a government Minister, were getting involved in the discharge of justice under what should be an independent criminal justice system, albeit within the services justice environment. It would be most undesirable for the Secretary of State to get involved. The Judge Advocate-General alone will decide what should or should not be done to take account of the need to maintain operational effectiveness.

I think I have dealt with the commentary of the noble Baroness, Lady Smith, about why this is phrased as it is. It is not some cosy set of aspirations; it really is intended to deliver what has been working well in the civilian criminal justice system and to try to ensure that our services criminal justice system benefits from that. I thank her for her observation about the absence of her colleague, the noble Lord, Lord Thomas of Gresford, who is, of course, always a welcome presence in these debates where legal issues arise. I am sure that he would have had some pithy observations to make on the technical content of the Sis, but I am grateful to the noble Baroness, Lady Smith, for confining her remarks to general observations.

The noble Lord, Lord Jones, asked some specific questions, including how often the board sits. Court martial boards sit in assizes of two weeks with 24 periods in any year; that is, 48 weeks a year. The noble Lord also asked whether the measure of extending female representation on the court martial board should be extended to the judge advocates. There is a mix of men and women judge advocates now; we have both men and women. The role is being introduced to align better with juries where women are represented in civilian courts, but there has been under-representation in the analogous role within the services justice system.

I thank the noble Lord, Lord Coaker, for his kind remarks about the SIs and where we have got to in delivering improvements for Armed Forces personnel. I particularly noted his phrase, “commend the Government”. It is certainly not something I have been hearing very regularly in recent times, and I thank him for that. On his reference to Article 6 of the ECHR, the MoD has consistently shown a desire to comply with human rights legislation and conventions, and the convention is an important part of the framework within which we operate; hence the various references to Article 6 throughout the SIs.

The noble Lord, Lord Coaker, also asked about the composition of a court martial board in general; I think that his question related to lay personnel. This measure will have an impact only on women in the Armed Forces at ranks of OR7 and above. To help your Lordships, I asked for clarification on this. In the Royal Navy, the rank of OR7 is chief petty officer; for the Royal Marines, it is colour sergeant; for the Army, it is staff colour sergeant; and, for the Royal Air Force, it is flight sergeant/chief technician. Service persons below that rank are not eligible to sit as lay members. Eligibility is currently set at OR8 personnel but from January next year it will be OR7. We are broadening the scope in the hope that this will facilitate the presence of more women. Also, as I said, there will be a 12-month exemption for women who have already sat. That is important, because it is a sizeable chunk out of otherwise operational time. If any woman has sat on a court martial board for more than five working days, this provision will prevent them repeatedly sitting on boards.

[Lord Coaker (Lab)]

This is a really important point, which, as I said, the noble Baroness, Lady Smith, and I were discussing. If somebody outside this Committee read our proceedings and saw the word “lay” they would assume that these people are members of the public, even though the instrument deals with non-service personnel and the military courts. The Minister putting this on the record is quite helpful for those who read our proceedings to understand exactly what we are talking about.

[Baroness Goldie (Con)]

I thank the noble Lord. We are sometimes guilty of using vocabulary in the environment with which we are all familiar. These are lay members who are not legally qualified; they sit as a presence roughly comparable to a jury. The noble Lord is right that they are “lay” not in the sense of any members of the public coming in but in the sense that they are in the Armed Forces and not legally qualified.

I have tried to address the points that were raised; I hope that I have managed to do so. I thank your Lordships for your contributions. This instrument takes us another step forward in making our service justice system stronger, better and fairer.