Modern Slavery Bill

Lord Morrow Excerpts

Monday 23rd February 2015 Lords Chamber

[Lord McColl of Dulwich (Con)]

My Lords, I support Amendments 34, 35 and 37.

It has been said by many during debates on this Bill—but it is worth repeating—that victims must be at the heart of all our actions to address modern slavery, whether in this Bill, in other policies and strategies or in the everyday front-line work of police officers, prosecutors, support workers, local authorities and so on. When a victim escapes from a situation of modern slavery they are likely to be interviewed by the police, they may enter the national referral mechanism process, or they may be placed in a specialist shelter through a victim care programme or be cared for by other charities. They might apply for asylum and have to deal with immigration officers and the whole asylum process. As they move between all these scenarios, victims do not change: they remain the same person. Their experience cannot be compartmentalised. For them it is a seamless whole.

The commissioner-designate has stated the importance of taking a victim-focused approach to this crime. Indeed, he told Peers during our informative meeting that he has made improving victim care one of his five priority areas of work. If the commissioner, a man of great experience in the front line of addressing modern slavery, believes that engagement and oversight of victim care and support is a vital function for his role, I am sure noble Lords will agree that we should be listening. I am pleased, therefore, that the Minister has introduced Amendment 37, which clarifies that the commissioner should have regard to the provision of assistance and support to victims in carrying out his functions.

I confess that I had some concerns following a meeting with the commissioner- designate that, without this amendment, bringing victim care into the concerns of the commissioner involves a creative interpretation of the current functions set out in Clause 41(1) which might not be endorsed by future Home Secretaries. During our debate in Committee the noble Lord, Lord Deben, highlighted the importance of getting the commissioner’s statutory mandate right. He said:

“Unless the commissioner can point to the Act and say, ‘I do this because …’, there will be those who will use every possible opportunity to try to trip him up and make the kind of legal arguments that hide the fact that what they are really about is stopping him being effective. That is why it is so important that we should be absolutely sure that we get it right”.—[Official Report, 8/12/14; col. 1629.]

I agree entirely. Amendment 37 will ensure that the text of the statute matches our intentions so that in a number of years, when the memories of our debates on the Bill have faded, the commissioner will still be able to look at all aspects of a victim’s experience and make recommendations to see victim care and support improve and develop, based on the letter of the law. I therefore firmly endorse Amendment 37 and commend it to your Lordships.

However, I have some questions of clarification that I would like to raise with the Minister about Amendments 34 and 35, which specifically suggest that the commissioner may consult, co-operate and work jointly with the noble Baroness the Victims’ Commissioner. I support the noble Lord’s proposal for co-operation and consultation between the anti-slavery commissioner and the Victims’ Commissioner. I believe this will ensure good oversight and joined-up thinking on all issues in a far more effective way than trying to separate into silos matters which are, on the ground, interlocked and interdependent.

My concerns stem from the fact that specific reference is made to the Victims’ Commissioner for England and Wales only, and I am not sure whether the Minister dealt with this. I would have thought that similar co-operation and consultation would be needed with other commissioners such as the children’s commissioners—and those of all the four nations now that the role extends across the whole of the UK. I imagine that co-operation will also be required with other commissioners or inspectors such as the Independent Chief Inspector of Borders and Immigration. I recognise that the amendment allows for a wider class of other persons, but I would be grateful if the Minister could indicate the reasoning for specifically mentioning the Victims’ Commissioner for England and Wales and how we can ensure consultation with bodies in Scotland and Northern Ireland which have responsibilities regarding victims. I would also be grateful if the Minister could explain what consideration had been given to including a reference in the clause to other commissioners or bodies.

[Lord Morrow (DUP)]

My Lords, I support government Amendments 34, 35 and 37 spoken to by the noble Baroness the Minister. I first make my apologies to your Lordships for not having been present during the earlier debates on this Bill. My absence on those occasions was however directly connected to the matters before us today, as I was engaged in debates on my human trafficking and exploitation Bill in the Northern Ireland Assembly on those days—a Bill which, I am pleased to say, received Royal Assent in January.

I have a particular perspective on the role of the Independent Anti-slavery Commissioner since the role has now been extended to cover Northern Ireland. This means that the commissioner will need to work to promote good practice in the prosecution and investigation of offences and the identification of victims, all with regard to the legislation we have enacted in Northern Ireland, as well as to the Modern Slavery Bill.

I had the opportunity to meet the commissioner-designate during a visit he made to Northern Ireland and I was most impressed by his plans and his passion to tackle this terrible crime head on. I was encouraged by his commitment to visit Northern Ireland regularly and his awareness of the particular challenges and opportunities that arise from our land border with the Irish Republic. It seems likely that he will do an excellent job. I was also particularly impressed with his clear understanding that victims’ needs must be central to any strategy to deal with modern-day slavery and, moreover, with his determination to make sure that all our systems and agencies across the UK recognise this and reflect it in how they work.

I had some reservations that the ambitious victim-centred plans set out by the commissioner are not clearly reflected in the mandate provided by the Bill. It concerned me that if a new Home Secretary came into office, he or she may not approve a future strategic plan that extends as widely as that proposed by the present commissioner. Indeed, it is possible that an organisation receiving unwanted recommendations from the commissioner could argue that victim support is outside the commissioner’s remit and reject his recommendations on that basis. I therefore welcome government Amendment 37, which expressly gives the commissioner the mandate to look into matters of victim support.

Modern slavery is the exploitation of individual human beings. Any effective anti-slavery commissioner will need to look at how we improve our systems to better protect and support those individuals, whether in investigations or other environments. The Bill must support and empower him to do that. I urge your Lordships to support Amendment 37 in the name of the Minister.

I referred earlier to my particular perspective in relation to the commissioner’s work in Northern Ireland. I have one area of concern about government Amendments 34 and 35 that stems from this perspective. I have no doubt that it will be important for the anti-slavery commissioner to consult and work together with a wide variety of groups and organisations, and I welcome the fact that these amendments specifically highlight the importance of the voluntary sector. The advice, constructive criticism and on-the-ground evidence from NGOs was of vital assistance to me as I prepared and refined my human trafficking Bill through its passage in the Northern Ireland Assembly. I dare say that the Minister would say the same about the contributions made in the development of this Bill from its draft form right up to the amendments proposed this evening.

I also echo what has been said in respect of the need for the anti-slavery commissioner to co-ordinate with the Victims’ Commissioner, as a way to maximise benefit and avoid duplication of work. I have some concerns, however, that victims in Northern Ireland, and indeed Scotland, will not benefit from this co-operation. I suggest to the Minister that we need to ensure that the commissioner is careful to take account of efforts to improve victim care and to work with bodies involved in supporting victims in other parts of the UK as well. I hope very much that she can assure me that reference to consultation with the Victims’ Commissioner will not create a hierarchy of victims, with victims in England and Wales receiving greater attention from the commissioner than victims in the rest of the UK.

[Baroness Garden of Frognal]

My Lords, I thank noble Lords for their comments and their broad support for the amendments which we have brought forward here: the noble Baroness, Lady Howe, and my noble friend Lady Hodgson, who were very enthusiastic, and the other two noble Lords who spoke. My noble friend Lord McColl expressed his concerns about co-operation with the Commissioner for Victims and Witnesses, but I stress that it is,

“public authorities (including the Commissioner for Victims and Witnesses)”.

He is not precluded from co-operating with other people as well. The Commissioner for Victims and Witnesses is one of the examples given, because the commissioner is one of the key players in the Bill.

The noble Lord, Lord Morrow, raised the point about Northern Ireland. The commissioner will work very closely with Northern Ireland and the Scottish Government. These government amendments were developed with the co-operation of the Northern Ireland Executive and the Scottish Government, to ensure that the United Kingdom-wide remit which the commissioner has will apply as much to people in those parts of the United Kingdom as in England and Wales. With those reassurances, I hope that noble Lords will support these amendments, which will benefit those in all parts of the United Kingdom.