Judicial Review and Courts Bill

Robert Neill Excerpts

Report stage
Tuesday 25th January 2022 Commons Chamber

[James Cartlidge]

I will explain very shortly what impact we expect this to have on the delays, which my hon. Friend is quite right to raise.

Just to be clear, in the coming months, we will be extending magistrates court’s sentencing powers from a maximum of six months to 12 months imprisonment for a single triable either-way offence by commencing existing provisions in the Sentencing Act 2020 and the Criminal Justice Act 2003.

Extended sentencing powers will allow for more cases to be retained in magistrates courts, allowing these cases to be heard more quickly and with the intended effect of reducing the backlog of outstanding cases in the Crown court. Just to be clear, we estimate that this will save nearly 2,000 Crown court sitting days per year. Magistrates are also fully capable of hearing these cases. They make sound legal decisions, which is supported by the fact that there is very low appeal rate of only 0.7%, 50% of which are dismissed or abandoned.

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

rose—

[James Cartlidge]

I give way to the Chair of the Justice Committee.

[Sir Robert Neill]

I, too, support this amendment. My hon. Friend will remember, or will perhaps know, that the Justice Committee has raised this in the past when we did an inquiry in relation to magistrates. A concern was raised by his predecessor that this might have an impact on the levels of those going into custody, but we were never able to find any evidence to support that. It seemed, essentially, anecdotal. Has any hard evidence been found to suggest one way or another?

[James Cartlidge]

The short answer is no. That is certainly my impression. The reason that we are making this change is that we have faith in our magistracy. I have spoken about the huge shift that they put in during the pandemic to get the backlog down in the magistrates courts. When it comes to trying to make guesses about what impact this will have, the key thing is to simply trust our magistrates to look at the case before them, to take into account sentencing guidelines, to take the advice of their legal advisers, and to make their sentence according to the circumstances of the case before them, which is how they always behave.

We want to make this change as quickly as possible, so that we can ensure maximum benefit for court recovery. That is why we will be implementing the policy on a national basis from the outset, rather than first running a pilot in select courts. This clause supplements the provisions to extend the sentencing powers of magistrates courts by introducing a power to vary the limit on the length of sentence that the magistrates courts may give to either six months or 12 months in the future. This will ensure that there is the ability to return to the current position in the event that any unsustainable adverse impacts materialise—of course, we sincerely hope they will not.

Taken together, this amendment and the magistrates’ recruitment campaign launched this week shows that this Government are committed to our magistracy and understand how important they are for court recovery.

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To finish, I emphasise again that Labour supports measures that will streamline and build efficiency into the justice system; it is vital that we do so to bring the backlog down. But we cannot compromise access to justice in the name of efficiency, so I hope that the Government will accept the new clause.

[Sir Robert Neill]

All in all, this is a valuable Bill and I welcome the Government amendments. I practised criminal law for the better part of 30 years before I came into the House—in both magistrates courts as a younger barrister and then predominantly in the Crown court, both prosecuting and defending. It never seemed logical that the legislative provision introduced by the Labour Government in 2003 had not actually been brought into force.

Much has changed since that time in the way magistrates operate—and for the better, frankly. It seems to me that there have been real efforts to make the bench more diverse, and those recruitment activities are continuing. As a Select Committee in the previous Parliament, we wrote a report about the magistracy—the first for a number of years—that recognised the value of the work that magistrates do. Since 2003, the sentencing guidelines have been developed to a high degree and they are available now to all benches as well.

[Andy Carter]

My hon. Friend mentioned a diverse bench. Does he agree that it is vital that employers think about the value of having employees on the bench? They should be considering that step in personal development for employees.

[Sir Robert Neill]

I salute my hon. Friend’s work as a magistrate over many years. What he says is absolutely true, and the Justice Committee report picked the point up at the time. When I practised in parts of east and central London, magistrates benches used to have a very high number of what we would now term blue collar workers—frequently trade union officials and public sector workers. They were given time off. Some of the major employers—Ford at Dagenham in the old days, for example—used to allow employees time off to serve as magistrates. The courts were much the better for that. I hope that that can be encouraged and we should make it easier to achieve.

We should also look at magistrates’ expenses, which have not been updated for very many years. We do not need legislation to do that, but we should make it worth people’s while to serve and not leave them out of pocket. That is important.

When the Committee published the report and considered why the provisions in the Criminal Justice Act 2003 had not been brought into force, we questioned the evidential basis. At that time, the Ministry of Justice’s line was that there was a risk of an adverse impact on the prison population, but we were never able to find any evidence to establish that. I think there is a bit of an urban myth that magistrates are heavier handed in sentencing than the Crown court would be. In fairness, when I first started, there might have been a bit of anecdotal evidence that I came across to support that view, but things have moved on over the years. The benches have a more sophisticated approach to sentencing and the guidelines have developed to such a degree that that dimension has changed.

[James Daly]

I truly wish that my hon. Friend would come to Bury magistrates court, then he would know a bench of magistrates who were willing to impose the stiffest possible sentences. My hon. Friend the Minister referred to the backlog, on which this debate is framed. I am a member of the Justice Committee, under the excellent chairmanship of my hon. Friend the Member for Bromley and Chislehurst (Sir Robert Neill). We should be considering the measures in terms not just of the backlog, but of the new offending that comes into the system. I believe the measures will give confidence to the police and to other partners in the criminal justice system that, instead of creating more backlog, by releasing more people under custody we can get them before the magistrates, sentenced and dealt with at the earliest opportunity.

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[Sir Robert Neill]

I agree with my hon. Friend and recognise his experience in the field. I do not think this needs to be framed as a backlog-reducing measure. There is merit in the measure in its own right, as there was in 2003 when the Labour Government introduced it. With all due respect to the Minister, it does a bit of disservice to the measure to say it is done to reduce the backlog, and that it can be reversed. I would hope it would not be reversed; it is desirable in terms of a better allocation of case time, and it is a better use of court arrangements to keep lower level cases in the magistrates court.

A powerful point was made about the reduction in the number of committals for sentence and those cases when the magistrates refuse jurisdiction in relation to either-way offences. I do not think that will be eaten away by people electing that course of action needlessly, particularly if they have good and sound early legal advice.

That is where I think we can improve the system. Doing so does not require our legislating in this Bill, but we should make sure that when we revise the legal aid system, we front-load it so that there is proper legal advice available from solicitors at a very early opportunity to get informed pleas and early disclosure into the system. That will of itself be likely to keep more cases down at the magistrates court level, and would get more pleas. When they are confronted with the reality of the evidence, and with sound advice, more people will accept that they should enter a guilty plea when they have committed an offence.

That is the right way to deal with the issue, which is why I think the amendment is entirely justified in any event. Of course, it has to be applied on a national basis. The idea of a pilot never seemed realistic and would be against the principle of natural justice. It could not be right if there was a postcode lottery and someone could get a higher sentence in Bury than they could in Bromley because one was in the pilot. We either do it nationally or not at all, and the Government have made the right call.

I hope we will continue to invest in training and professional support for the magistracy, which again our Committee report called for.

[Edward Timpson]

We have to remember that magistrates sit not only in the criminal courts, but in the family proceedings courts. Support and advice, and the recruitment of magistrates, will be really important in making sure that children and families are also getting justice through the family court system.

[Sir Robert Neill]

That is entirely true. We know that there is sometimes a struggle to get sufficient magistrates to sit in the family jurisdiction. They are absolutely crucial. There is a separate piece of work that needs to be done, so that, as with early legal advice, informed decisions and choices are made. That applies in the magistrates court in the criminal jurisdiction and also to decisions that have to be taken in family court proceedings. I am a great believer that the lawyer is the best route into mediation in many family law cases. Having the magistrates end of the family jurisdiction treated seriously is really important for doing justice and for the early resolution of issues for the benefit of the parties and the children involved.

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[Sir Robert Neill]

I understand the spirit in which the shadow Minister makes that point. He will know that the Justice Committee has said on a number of occasions that we cannot get justice on the cheap. I accept that we cannot write blank cheques, but the fact is that the proportion of total public spending that goes on the court system is a fraction of a fraction. We get justice for a very small amount of overall public spending in this country and a modest increase in that could be entirely justified, even within the existing budgets. With the increase in the Department’s allocation in the last spending, there is scope to do that. However, in terms of a greater reprioritisation of Government spending, more weight ought to be given to the importance of an effective justice system. It is a fundamental part of a democratic society and of the rule of law, and the magistracy are a key part of that.

I understand the spirit in which the shadow Minister spoke to a number of his amendments. I have sympathy with a lot of the thrust behind them and I hope that the Government will take them on board. I do not think that they need to be written in legislation, but there are issues relating to the way in which the single justice procedure operates. I am not against this—I think we have all seen what happens in magistrates courts when a bench sits in an entirely empty court going through a whole list of TV licence defaults or road traffic offences where nobody has attended. That is not a good use of time.

A fair point was raised with the Justice Committee about this issue in relation to open justice. More needs to be done to improve, for example, publication of the lists online so that people can be aware of what is happening and what can be done in relation to the publication of the results. That does not require legislation, but it should be invested in. Again, it is a small amount in the overall scheme of things.

I also share some of the concerns about the operation of the Common Platform. We have to accept that that is not necessarily a silver bullet; virtually no public sector IT system ever is. We have to continue to invest in it, but we cannot ultimately get around the fact that criminal justice—in fact, all justice systems—ultimately depends on the quality of the individuals in it. The technology is there to help, but ultimately, it is the good-quality lawyers, good-quality judges and good-quality probation professionals who help.

[James Daly]

My hon. Friend is making an excellent speech. On the justice system and quality individuals, does he, like me, welcome Sir Christopher Bellamy’s report and recommendations, and would he encourage Front Benchers to take a very favourable view of them?

[Sir Robert Neill]

I know we are straying towards the edge of the topic, Madam Deputy Speaker, but I think this is germane, because to make these reforms to the court system work, we have to invest in the professionals who operate in it. I welcome Sir Christopher’s report; it is immensely well researched and immensely well written. The truth is that within the uplift in the Department’s funding, there is scope, I say to the Minister, to implement Bellamy over the period of the spending round. I know that he has had constructive engagement already with Sir Christopher, and I urge him and his colleagues to continue to do so. We should thank Sir Christopher for his work.

I hope, therefore, that we will support the Government amendments. I hope that the Opposition will not press their amendments to a vote, but they raise legitimate issues that the Government should take on board. We all want to co-operate on having a court system that works. Efficiency should not be a matter of partisan debate, because justice must continue to be there, and the more settled arrangements we have across the House, the better confidence will be.

Finally, I express my thanks to magistrates. I have many friends who have served as magistrates. They do a very great public service, but the more magistrates we can get who are younger, the better. We have done pretty well on gender diversity, but we need to do more about recruiting magistrates from ethnic minority communities. That must continue to be a priority. I hope that that will be done by valuing the job; by giving them the resources, and that includes the physical resources and the buildings they sit in, many of which are pretty woeful; by a more imaginative approach to local justice—to where custody cases, for example, are not necessary and to listing cases nearer to people’s homes—by making it easier for witnesses to get to courts, because that was a concern that we raised in our report on access to justice some years ago; and by encouraging the best-quality people to go into the work that is done at the sharp end. That work, actually, is largely in the solicitors’ profession—I say that as a member of the Bar—because they are the people who do the police station call-outs, the early advice and the first appearances in front of magistrates. That is why Sir Christopher’s report, in that regard, is very important.

[Anne McLaughlin]

You will be pleased to know, Madam Deputy Speaker, that most of the SNP’s objections are around judicial review, so I have only two amendments that I want to speak to and I can do that within a couple of minutes to give other people time to speak.

The online procedure rule committee will potentially cover wide areas of law and will sometimes make rules applicable in completely distinct legal jurisdictions. The SNP is concerned about the lack of representation on the committee from Scotland. Amendments 40 and 41 would therefore ensure that someone with knowledge and experience of the Scottish legal system will be appointed to the committee and that appointment should be made by the Lord President of the Court of Session in Scotland. I cannot see any reason to say no to that. That would address the imbalance in the representation of the Scottish legal system and allow the Government to keep up their pretence about respect for Scotland ahead of an independence referendum.

I say to Labour colleagues—I do so gently because the Labour Members present were on the Committee and we very much enjoyed working collaboratively with them—that I was a little disappointed that, with one notable exception, they abstained on amendments that would in effect have allowed Cart judicial reviews, or Eba judicial reviews as we call them, to remain in Scotland. I ask them to consider voting for this simple little measure so that we would have someone with experience and knowledge of the Scottish legal system to represent our system on the committee.

New clause 7 in my name would ensure the Bill’s compatibility with article 6 of the European convention on human rights: the right to a fair trial. To return to the example I gave earlier about the employment tribunal fees judgment in 2017, if the Bill had been in place when that landmark ruling was handed down, no one would have had fees refunded, everyone would have continued to pay the unlawful fees and, going forward, the Government could have simply changed the unlawful so that it was lawful: in other words, there would be no point whatsoever in taking the Government or other public bodies to court. The chilling effect would be widespread. That is surely a breach of article 6, which gives people the right to a fair trial and an effective judicial remedy. The new clause would allow judges a way to disapply the Bill if they considered there was a breach.

Let me give one more example of a group of people who may be refused their rights to a fair trial if the Bill passes: those who require legal aid. To secure legal aid, applicants must be able to demonstrate a tangible benefit if their case is successful. As I and others have demonstrated, if the Bill is enacted, there will regularly be no tangible benefit. If the Government are trying to keep people on average and low incomes away from being able to bring judicial reviews and access justice, they are doing a very effective job, but they should at least be honest about that. They have said and will keep saying that the Bill is compatible with article 6, but surely that begs the question: why do they continue to resist any amendment to ensure compatibility?

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[Andy Carter]

My experience is that the overwhelming majority of magistrates will do everything they can to avoid passing a custodial sentence, and if a custodial sentence is required, a primary consideration is to look to suspend that sentence. Of course, all magistrates, no matter their length of service, sit with an experienced legal adviser who guides them through every step of the process from a legal perspective, so I absolutely agree with my hon. Friend that it will not make a significant difference in that respect.

I know that the idea of changing magistrates’ sentencing powers has polarised opinions, with some saying that lay members of the judiciary should have no powers at all to impose custodial sentences. I am afraid I do not agree: magistrates play an important part in the sentencing process and the role of legal advisers in the courts ensures that the right sentence is given in the overwhelming majority of cases. The Minister mentioned that less than 1% of cases that go into magistrates courts appear in the Crown court for an appeal. I serve on a Crown court appeals panel and there are very few occasions on which I feel that something is wrong and the sentence given should be overturned.

The Minister mentioned that the increase in the retirement age for magistrates is covered in another Bill, but it is important that all these steps are taken together. My hon. Friend the Member for Eddisbury (Edward Timpson) introduced an excellent private Member’s Bill to address the issue, which the Magistrates Association has looked at carefully. Many good, experienced magistrates —presiding justices who chair the benches—are approaching 70 or have gone over that age but can contribute significantly to the work of the courts.

I am delighted that the Government have addressed the issue and look forward to welcoming back colleagues with whom I have served who can bring their experience back into the courthouse. We must remember that when new magistrates are recruited they can sit as wingers for the first five years of their time in the court, and it is important that they sit with experienced magistrates. If we did not address that issue and all the magistrates were reaching retirement age, we would have a serious problem in respect of experienced presiding justices in the magistrates courts, so I am pleased that that increase is to happen.

I wish to touch for a moment on the proposal to make changes to local justice areas. I recognise the importance of local justice and defendants, victims and witnesses not having to travel too far to attend a courthouse, but from a magistrate’s perspective there are some perverse issues with local justice areas. Let me give the House a couple of examples. I live on the border of Greater Manchester but operate in the Cheshire and Merseyside area. The courthouse in Greater Manchester is closer for me to get to, but because I am not in the Greater Manchester local justice area, I cannot sit in that court. That makes no sense at all, so I urge the Minister to look into new ways of thinking about local justice areas for magistrates so that they can sit in whichever courthouse is closest to them, no matter what local justice area might apply.

I was recently given another example by a magistrate who sits in Highbury but lives in Hertfordshire. His court in Highbury does not sit at the weekend—it has no operation at the weekend at all—so he is a working magistrate who is available to sit in the courthouse on Saturdays but, because he does not operate in the Hertfordshire local justice area, he is not able to sit at the weekend, when he is most available. It would be really valuable to create the flexibility for magistrates to sit in areas that are convenient for them and where they understand the pertinent local issues.

As I said, it is important that we recognise that defendants, victims and witnesses should not have to travel long distances and rack up travel costs. It is really important that justice is done locally and I would not want to see trials and cases listed for courts many miles away from the local area.

I want to talk briefly about technology. I have seen a number of different technologies used in courtrooms, and a number of different systems trialled—Common Platform has been mentioned—and one thing I have seen is that, whatever system is put in place, the legal advisers are brilliant at adapting how they operate, particularly in magistrates courts. I know that magistrates courts have had to make some changes recently and that some things are not quite as quick as they used to be, as legal advisers are recording cases at the same time. I think the Opposition spokesman talked about paper files. Any suggestion that we want to go back to using paper files in courthouses is really not the way forward. When I first started as a magistrate, we all had a big book containing all the sentencing guidelines. Everything is computerised now, and the ability to look up sentencing guidelines or to calculate fines on a laptop is really valuable. I think that all magistrates would recognise that, despite some early hesitancy, we now have a far better system.

My final comments on the changes in magistrates courts reflect the point I made earlier to my hon. Friend the Member for Bromley and Chislehurst about younger magistrates. The Young Magistrates Network has made some really good inroads into understanding the perspective of being a JP while holding down a full-time job. I welcome the extension of the retirement age, but we also need to think about how we have as wide a talent pool as possible. We should have on the bench hard-working members of society who are in employment. If we are getting to a situation where only retired people have the time to sit on the bench and are selected, that is really dangerous.

Importantly, I also think that parents should be encouraged to sit on the bench, particularly in youth courts, because the knowledge and experience of being a mum or dad can be so very valuable when talking to a young person appearing before a youth court.

[Sir Robert Neill]

My hon. Friend makes an important point about the youth courts. Does he agree that it is often not appreciated that the youth courts deal with very serious matters which, if they involved adult offenders, would undoubtedly go to the Crown court, and that requires not only the best possible lawyers, but the most experienced and diverse magistracy available to deal with those important cases, just as we would expect for a jury, with the same level of experience of the world that is brought to bear across the piece?

[Andy Carter]

My hon. Friend is absolutely correct. The sentencing powers of youth courts are already far greater than those in magistrates courts for criminal offences. I do not sit in youth courts, but I have observed them and I know that the conversation and dialogue that takes places between the bench and the young person who finds themselves in court is very different. We do need a really broad, balanced bench in the youth court. I encourage the Minister to look at what support he can give to encourage employed people and young people to come into the magistracy.

The Young Magistrates Network—it is co-ordinated by a young magistrate, Luke Rigg, who has done a marvellous job of looking at this area—has made some very good recommendations, which I think HMCTS is now considering as part of its review. We need to ensure that any recruitment campaign is targeted, using social media, in the right places. I encourage the Minister to look at the school governors’ network, which has done a really good job of talking to employers about the value that somebody who is a school governor can bring to their business. I think that magistrates can also bring a tremendous amount to a business.

Since coming to this House, I have pushed for a number of things to happen in relation to the magistracy. I have raised three or four issues many times, so it is absolutely brilliant that the Minister is putting them all in the Bill. It is like all my birthdays coming at once: everything is happening on the right day. I am very supportive of the Bill. I thank the Minister for engaging with the magistracy and the Magistrates Association, for listening to JP colleagues and for the progress that we are making.

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[Sir Robert Neill]

I have great respect for the hon. Member for Stockton North (Alex Cunningham), but I am afraid I have to disagree with his characterisation of the Bill. It makes modest reforms, which seem sensible. Although I accept that the changes to judicial review are not uncontroversial, they are not a wholesale attack. I would not support them if they were. It is important to recognise that judicial review is fundamental. We need to get that on the record. It is an absolutely necessary part of the checks and balances. It can be refined, but it must never be undermined in principle. I do not believe that the Bill does that.

It is important that we properly fund the system that enables the courts to deal with judicial reviews and other matters. In fairness, there is a missed opportunity. I agree with the shadow Minister about funding for families of bereaved persons at inquests. The Justice Committee’s report advocated that and I hope that the Government will not give up on it, but revisit it because there is an equality of arms argument here. That is not a reason to vote against the Bill, but I think that the Government have missed a trick and I hope they will reconsider that.

The changes to the criminal justice system are worthwhile in themselves, but it is important that the Government did not go greatly beyond the report by Lord Faulks, whom we should congratulate again. I hope the Government will adopt the same approach to the review by Sir Peter Gross. Sometimes less is more.