Criminal Justice and Courts Bill

Robert Neill Excerpts

Monday 1st December 2014 Commons Chamber

[Chris Grayling]

Indeed. I am genuinely baffled as to why the Opposition are so set against many of these reforms when many of their predecessors as shadow Ministers or in government raised many of the same concerns. I will challenge them over one or two of the issues later, because I find their position inexplicable.

Whoever wins the general election will have to take some very difficult decisions in the next Parliament. Those decisions are not ones that any of us would wish to have to take, any more than we in government wanted to take some of the difficult decisions that we have faced in this Parliament, but tough times mean tough decisions—decisions in the interests of this country. And yet, whichever party is in government after next May will face a wave of pressure groups trying to use judicial review to delay decisions, to avoid spending reductions, and to generate publicity for their own cause.

If a group can find a clever enough lawyer, almost any Government decision can be judicially reviewed, and very many are, not necessarily on the basis of specific breaches of specific laws, but far too often on a loose argument that something was not quite right with the consultation paper, that there should have been a bit more consultation, or that a tough decision seen in isolation was irrational. Without undermining the essential core of judicial review, we need to restore common sense to the way in which the judicial review system works, and that is what we are working to do.

[Robert Neill (Bromley and Chislehurst) (Con)]

Does my right hon. Friend agree with the important point made by Lord Horam that there is a difference between a balance to protect the rights of the citizen in specific cases and a situation where, sadly, judicial review can be moved through pressure groups to what is effectively a review of the merits, rather than of the procedures, often contrary to the wishes of the communities that are most directly affected?

[Chris Grayling]

My hon. Friend is right. Judicial review has become a vehicle that is used as one of the tools to campaign, to delay and to challenge, not necessarily in the interests of the broader society or the broader community, but because it provides a vehicle to make a point or to delay something for financial reasons. It makes no sense to have a system that can be abused in the way it often is.

We listened carefully to the debate in the House of Lords, and as hon. Members will see from the amendment paper, we have suggested some modifications to ensure that we avoid unintended consequences of what we are working to do. I hope that the House will say clearly today that having agreed those safeguards, we want to see this package of reforms pass into law.

--- Later in debate ---

[Mr Elfyn Llwyd (Dwyfor Meirionnydd) (PC)]

Lords amendments 97 to 102 were carried in the other place to ensure that courts maintained their discretion in determining whether to grant a judicial review by making use of the “highly likely” test. Groups such as Justice have rightly concluded that if these amendments are defeated, it will change the role of judges by inviting them to second-guess how decisions might otherwise have been taken. From his experience, the hon. and learned Member for Torridge and West Devon (Mr Cox) has detailed some very potent arguments why the amendments should be upheld. Parliament should never seek to undermine the courts’ discretion; courts should be free to determine whether to apply the “no difference” test, and to legislate otherwise would impede the integrity of our legal system. I therefore support these amendments.

Lords amendments 105 and 106 would allow the courts to consider the circumstances of individual cases in determining whether to grant an application for judicial review, even in cases where third-party information is not readily available. In clause 66, the Government have tried to find yet another means of limiting the circumstances where applications for judicial review can be heard. The amendments seek to ensure that applications can be heard in cases where third-party information is not easily available.

Judicial review is often the only means by which individuals can hold the Executive responsible for wrong -doing, yet the Government are trying to shut down that avenue for redress. The Joint Committee on Human Rights has said it sees no evidence to support the Government’s reforms, and neither does Justice, Liberty, JustRights, Human Rights Watch, the Howard League, Redress, Inquest, Mencap, Amnesty International—the list goes on. Can anyone report which groups actually support the Government in these changes? [Hon. Members: “The Whips.”] Yes, the Whips.

On clause 67, Lords amendment 107 would maintain courts’ discretion over whether to order an intervener to pay the costs of relevant parties and vice versa. As drafted, the Bill would compel the court to order interveners to pay such costs, other than in exceptional circumstances, as we have heard from the hon. and learned Member for Torridge and West Devon. The provisions in clause 67 are among the most disturbing in the Bill. Unamended, the clause would ensure that charitable organisations and individuals with expertise could no longer enrich the opinion of the courts by intervening in cases where their expertise would be of use because they could not justify the risk to their trustees, funders or members of supporting litigation. As the noble Lord Carlile asked in the other place:

“How could trustees reasonably agree to support an intervention when it could result in losing tens of thousands of pounds or more in costs, jeopardising, in some cases, the existence of small charities?”—[Official Report, House of Lords, 30 June 2014; Vol. 754, c. 1607.]

Yet the plans would still allow Departments and corporations with huge funds to intervene and hence play a pivotal part in the development of public law.

I ask the House to reconsider the Government’s proposals in the context of the various and—I am trying to avoid vitriol—crippling reforms to access to justice in the Legal Aid, Sentencing and Punishment of Offenders Act 2012. As a result of the significant cuts in that Act, more individuals will be looking to charitable organisations for support in getting justice. It seems to me that clause 67 will take away this last resort. I am afraid the Government seem intent on restricting access to justice so that only those with the least to lose can gain redress. Why do they think it necessary to pursue this agenda, which will throw the baby out with the bathwater, despite the perceived misuses of the law relating to judicial review? The hon. and learned Gentleman, a far more experienced lawyer than me, has referred to the time-honoured practice of judicial review—the Wednesbury principles and so on—and the practices in place to ensure that Departments act reasonably in all circumstances. Why should we not uphold the individual’s rights to ensure that Departments act reasonably?

In conclusion, Justice said:

“Punitive and disproportionate, these measures are designed to deter any organisation with limited funds acting as an intervener. In practice, this means that – even in important cases with a constitutional impact which reaches far beyond the immediate interests of the parties - the court will no longer benefit from expert advice and information provided from cash-poor and experience rich charities and NGOs.”

I think that says it all. As we heard earlier, senior judges themselves are on the record as saying that the courts are enriched by the interventions of these people, who know exactly what they are talking about.

[Robert Neill]

I commend to this House the words of the former Lord Chancellor, the noble Lord Mackay of Clashfern, in the other House. He supported the Bill and set out a sensible balance, as did the Minister, Lord Faulks, himself no slouch as a Minister. It is right that those who come to the Queen’s courts in a public hearing should not shield their true identity or who truly funds them. The Government are right to insist on that point.

It is legitimate for Parliament to set the parameters within which the undoubtedly important system of judicial review works. That is what the Bill seeks to do: it strives to strike a fair balance. I hope the House will support the proposals of my right hon. Friend the Lord Chancellor. It is absolutely critical that we have a comprehensible and credible system of judicial review. I want to see that as much as anyone else, but the mission creep of some areas of judicial review, very often for politically motivated purposes, undermines the true purpose of judicial review as a legitimate and important remedy for the individual. I believe that the Government’s proposal, despite the rather hyperbolic—