Queen’s Speech

Lord Dholakia Excerpts

Monday 9th June 2014 Lords Chamber

[Lord Dholakia (LD)]

My Lords, I welcome the gracious Speech and the opening remarks of the noble Lord, Lord Faulks.

Time constraints have obliged the coalition Government to propose fewer legislative measures than has been the case in the past. This is a good example for future Governments. We have learnt that knee-jerk reactions or chasing headlines are not sensible ways in which to run the country. Just look at the plethora of criminal justice legislation promoted by political parties in the past. Many of the measures have become irrelevant to the changing situation in the country. Some of these measures have still to be implemented.

The past four years have seen some important changes for the better in the criminal justice system. The iniquitous IPP sentence has been abolished. Legislation has restricted the unnecessary use of remand in custody. The prison population has increased at a significantly slower rate than under the previous Government, and estimates of the future prison population have been scaled down.

It is particularly encouraging that there has been a dramatic reduction in the number of juveniles in custody, falling by 55% in the past five years. The number of women in prison has also fallen, from 4,200 in 2010 to 3,800 now. The Government have continued to commit to funding for a national network of liaison and diversion services at police stations and courts to divert mentally disordered offenders to treatment and care. We have passed legislation which, for the first time, will provide prisoners serving sentences of less than 12 months with supervision and support on release.

The Government are taking steps to reduce the indefensible racial disproportionality in the use of stop and search. They have passed legislation to promote the use of restorative justice in the criminal justice process—here thanks are due to the initiative taken by the noble and learned Lord, Lord Woolf. They have implemented reforms to the Rehabilitation of Offenders Act which will reduce the scope for unfair discrimination against former offenders in the job market and, because employment reduces reoffending, will also increase public safety. The Queen’s Speech announced two further welcome pieces of legislation in the modern slavery Bill and the Serious Crime Bill, which will contain measures to combat slavery, organised crime and child neglect. So far, so good. Regrettably, however, there are some clouds on the criminal justice horizon.

With a general election approaching, the past few months have seen signs of a heightened temptation for politicians to indulge in knee-jerk reactions which do nothing to promote justice or public safety. For example, the Secretary of State for Justice has recently banned the transfer of anyone who has previously absconded from an open prison. This means that an inadequate offender who absconds after receiving distressing news from his family, then thinks better of it a few hours later and hands himself in cannot be transferred back to an open prison later in his sentence. It is true that a small number of prisoners have gone out from an open prison and committed serious offences. However, in 2012 there were 485,000 releases on temporary licence and only 26 prisoners were arrested on suspicion of committing an offence—a rate of five failures in every 100,000 releases. It makes sense to be as rigorous as possible in assessing prisoners’ risk before transferring them to open conditions. However, it is not sensible to introduce sweeping restrictions on the use of open establishments, which greatly reduce overall reoffending by enabling prisoners to be released into the community on a gradual basis rather than suddenly after a period in completely closed conditions.

Over the past few weeks, we have seen the prison population start to rise sharply—by more than 500 in the second half of May—and this may well be in response to the tough rhetoric which is beginning to emerge as a general election approaches. During the next year, we would like to see the Government resist the temptation to engage in knee-jerk reactions or punitive rhetoric. Instead, they should use the next year to promote a series of further measures to improve our criminal justice system, either by implementing them during this Session or by preparing the ground for their implementation in a future Parliament.

First, we need to take further steps to reduce the unnecessary use of imprisonment. This country still uses imprisonment at a higher rate than any other western European country. We have 149 prisoners per 100,000 of the population compared with 100 in France and 77 in Germany. Why is there such an anomaly? Many prisons remain seriously overcrowded and more than 19,000 prisoners are held two to a cell designed for one person. At the same time, the need for public expenditure restrictions has led to a reduction in the number of prison officers relative to the number of prisoners: from 2.9 prisoners per officer in 2000 to 4.8 prisoners per officer last September. This reinforces the case for using prison more sparingly, particularly as community sentences have lower reconviction rates than prison sentences for comparable offenders. We should prohibit courts from using prison, except for dangerous offenders, unless they have first tried an intensive community supervision programme. We should also convert the sentences of existing IPP prisoners into determinate sentences once they have served a period equivalent to double their tariff.

Secondly, the Government should implement the recommendation of the draft Voting Eligibility (Prisoners) Bill Committee by enabling prisoners to vote if they are serving sentences of 12 months or less or are in the last six months of their sentence. It is now 10 years since the European Court of Human Rights judged that our blanket ban on voting by convicted prisoners violates the European Convention on Human Rights. The longer we continue to ignore our obligations under international law, the longer we are adopting a position which sits badly with our insistence that prisoners and other offenders should respect the rule of law. Respect for the rule of law involves an obligation for nation states as well as individuals to abide by binding legal rulings and not to pick and choose by abiding only by decisions that they choose to accept. We should waste no further time in making this relatively limited change, for which there are strong arguments based on considerations of citizenship and rehabilitation.

Thirdly, we should build on the welcome recent legislation which provides for restorative justice when sentences are deferred by making restorative justice one of the statutory purposes of sentencing and by enabling courts to include specific restorative justice requirements in community orders and youth rehabilitation orders.

Fourthly, the Government should reinforce the steps they are taking to reform stop and search by placing a clear statutory duty on all criminal justice agencies to adopt numerical targets for reducing racial disproportionality in their operations.

Finally, the Government should grasp the nettle and raise this country’s unusually low age of criminal responsibility—currently the lowest in Europe—from 10 to 12. The current position is incompatible with our obligations under international standards of juvenile justice and the UN Convention on the Rights of the Child. Dealing with children of this age through non-criminal processes would hold out more hope of diverting them from offending than subjecting them to punishments in a criminal court. A short criminal justice Bill containing these measures would provide a legacy of which the coalition Government could be proud.

I know that noble Lords from all parties with an interest in the criminal justice and penal system will continue to press for changes along these lines, not only during the current Session but throughout future Parliaments. Let me conclude with a word of caution. We have yet to study detailed provisions of legislative measures proposed by the Government. We are also aware that we have a short parliamentary timetable available to get these measures through both Houses of Parliament. I trust that the Government will accept these sensible amendments. Let us work together so that sensible amendments form part of effective legislation.

[The Parliamentary Under-Secretary of State, Home Office (Lord Taylor of Holbeach) (Con)]

My Lords, perhaps I can interrupt at this stage of the proceedings in the absence of a Whip to say that we have an advisory time of five minutes. I am most grateful for the contribution made by the noble Lord, Lord Dholakia, but I know that other noble Lords will wish to move on, and I hope that they do not mind being reminded of that.