Sarah Champion
Main Page: Sarah Champion (Labour - Rotherham)Department Debates - View all Sarah Champion's debates with the Home Office
Immigration Bill (Fourth sitting)
Sarah Champion Excerpts(9 years, 2 months ago)
Public Bill CommitteesRead Full debate Read Hansard Text Read Debate Ministerial Extracts
Keir Starmer
Q 244 Back in 2008, Mr Duncan Smith—obviously he is now in a different role—described it as a “failed policy”. That may explain why it has not been used since the pilot. Do you disagree with that conclusion?
Councillor Simmonds: It manifestly did not work at the time. Therefore, if we were to revisit that as an approach, we would need to think very carefully about how it could be made effective. That would require a different approach on many, many levels.
Paul Greenhalgh: I agree with that comment. We have been working with the Home Office to explore areas in which we wonder whether further safeguards might make such an approach more effective.
Sarah Champion (Rotherham) (Lab)
Q 245 On that point, Mr Greenhalgh used the phrase behavioural change. I think we all understand what the Government are trying to achieve, but you do not believe that the Bill does that. What should be in the Bill to get the behavioural change that the Government are trying to achieve?
Paul Greenhalgh: One of the difficulties with the Bill as currently framed is that there will be a number of what we would perceive as unintended consequences. They are twofold, mainly around our duties to provide support and care in certain circumstances arising from the Children Act 1989 and the Care Act 2014. Mainly, section 17 of the Children Act is something that would come into play in these sorts of cases.
At the moment, 80% of those cases are funded by no recourse to public funds arrangements as a result of a Children Act assessment. As a result of the current drafting of the Bill, a lot of families who would receive no further support as a result of their asylum status being confirmed would come to the local authority if they were about to become destitute. The local authority would be bound to make a human rights assessment and, if there are children involved, a children in need assessment. Those assessments take some time, so if a family are at immediate risk of destitution, we would have to put immediate measures in place.
So the first of our significant concerns is that this could result in a huge increase in demand on local authorities, which would in effect be a cost shunt from the Home Office to local authorities in an unfunded way. The other consequence is the danger that people will not come to local authorities but will go underground, and therefore be more at risk of exploitation and less able to be supported by the authorities.
If those are our concerns, we think some measures need to be put in place to provide appropriate safeguards. First, there should be a clarification of assessment processes, to reduce the burden falling on local authorities and the difficulty for families of having to go through what at the moment are two assessment processes. If the assessment process could be streamlined, that would be one improvement to the Bill.
The other significant issue is funding and the extent to which, however we frame the Bill, it will result in more cost to local authorities to support people on an interim basis. If there is recognition that those costs are a new burden, and if there is engagement between local authorities and the Home Office to work together on a practical level to support those families and help them to engage, we could see some of the intention of the Bill working more effectively.
The Minister for Immigration (James Brokenshire)
Q 246 Perhaps I could just pick up on that last point and ask the witnesses about that engagement. Are you engaging with the Home Office and working through some of those details that you suggest may be needed?
Paul Greenhalgh: We are. We had meetings with Home Office officials during the consultation period. We put in a joint response, and 48 local authorities sent in individual responses. The feedback from Home Office officials is that there was a consistent response from local authorities. We made it clear that we were very happy to continue to work with Home Office officials, and we have been doing that. We have had three technical meetings so far, and we are trying to work through how we can try to address together those issues that I have raised.
Councillor Simmonds: I thank the Minister for making himself available for those discussions. The one challenge that we have found at a political level is that there are sometimes differences of opinion between officials in different Government Departments. For example, on Children Act duties, traditionally we have had feedback from the Home Office that broadly says, “We are seeing people through our role in asylum and immigration, which we are here to manage.” Those in the Department for Education would say, “We’re not interested in that. We see them as vulnerable children, and therefore the duties are absolutely and unambiguously clear, and at the highest possible level.” The more consistency that we can get on some of those challenges, the better.
Craig Whittaker
Q 253 So the cases that you are primarily dealing with do not apply to the Bill, because the Bill talks about removing support for those who have gone through the process and are deemed to be unlawful immigrants.
Henry St Clair Miller: It is both. Sorry—I will try again and then I will give up. It is both, because you are also looking at measures to tackle illegal migration in the UK such as landlord checking and the rest, which might give rise to more of those.
Paul Greenhalgh: Our concern is about families who have been given that status in terms of how the Bill is currently drafted. The onus will be on the families to leave rather than there being an enforcement to their departure. While they are still in this country, local authorities still have legal duties to them under the legislation that we have previously cited.
Councillor Simmonds: It is probably worth giving you some figures. When we look at the numbers for local authority responsibilities in providing support to irregular migrants, around 80% of those who are supported are those under the section 17 Children Act responsibilities. The remaining group tend to be with care needs under the Mental Health Act and the Care Act, so the vast majority will be entitled to support through their status as families with children, and there will always be further legal avenues by which they can regain that entitlement should one avenue be closed off.
Sarah Champion
Q 254 I have just a small question. Currently, when someone has failed their last appeal, what is the average time before they actually get deported? I just want an idea of the timescale in which they would be destitute.
Henry St Clair Miller: I have not learnt of that particular statistic, so I do not have an answer.
Sarah Champion
Q 255 Ball park. Is it hours, weeks, months?
Henry St Clair Miller: It is tentatively months. The main thing, whether it is data from our NRPF Connect database or independent research, is that the time on support for an individual case is currently well above two years. That is a statistical fact. I cannot determine the exact timescales from an actual refusal or how many claims are made within that period. I guess there is a concern for local authorities that, if we have to engage these safety net responsibilities, there should not be an assumption that it will be just short term. Obviously, we are very keen to work with the Home Office to try and reduce the time. I think we are making progress and I think the Home Office has been good in respect to hearing about our difficulties, so this may change, but I can only give the stats that we have currently.
Sarah Champion
Q 256 So, to clarify, if this legislation is enacted, your assumption is that a family would be without any support for a couple of months.
Henry St Clair Miller: It is hard to define this. I am saying that, when support is engaged under the safety net, historically it has not been something that is over and done with in a couple of months. Historically, it has taken longer to resolve the issues.
Chloe Smith (Norwich North) (Con)
Q 257 Does the Committee have any reason not to accept the figures in the Home Office’s August consultation document? I am referring to the public consultation on reforming support for failed asylum seekers and other illegal migrants. I am looking at the figures given for the scale of the situation: an estimated 15,000 refused asylum seekers with an estimated cost of £73 million. Do you accept those figures or have any concerns about them?
Paul Greenhalgh: We broadly accept those figures, yes.
The Chair
Q 270 We will now hear evidence from the Office of the United Nations High Commissioner for Refugees and the British Red Cross. I am afraid that for this session we only have until 3.15 pm. Will the witnesses introduce themselves for the record?
Peter Grady: I am Peter Grady, legal officer at UNCHR.
Karl Pike: I am Karl Pike, the refugees and asylum policy and advocacy manager at the British Red Cross.
Andrew Hewett: I am Andy Hewett, the refugee development manager at the British Red Cross.
Sarah Champion
Q 271 I have three questions. What types of non-asylum cases would be affected by the repeal of section 4(1) of the Immigration and Asylum Act 1999 and can you quantify the number of cases potentially affected?
The Chair
No conferring.
Andrew Hewett: I do not have the exact figures but our understanding is that the majority of people on section 4 are asylum cases. We could come back to you with some figures and an update on that if that would be helpful.
Sarah Champion
That would be very helpful.
Peter Grady: I do not have figures for you but it is our understanding that stateless persons could also be affected by the section 4(1) revisions.
Sarah Champion
Q 272 What could the consequences be?
Peter Grady: For stateless persons, if they are denied support?
Sarah Champion
Yes.
Peter Grady: They could be driven to destitution. There is that risk, just as there is for others. One of the concerns we outlined in our briefing is that there appear to be no replacement support provisions for stateless persons under section 95A, for example. There is a concern that if section 4 is withdrawn, there would not be a replacement form of support or a dedicated support that could benefit stateless persons in the UK.
Sarah Champion
Q 273 So there would be no other avenues for them?
Peter Grady: There might be other forms of support, as we heard recently, through local authorities in their obligations to individuals, including on human rights grounds, but not through section 4.
Sarah Champion
Q 274 What obstacles to leaving the UK do refused asylum seekers and other irregular migrants face? Which of those should justify eligibility for the proposed section 95A support?
Andrew Hewett: We see examples every day. The British Red Cross supports over 7,000 destitute people a year, some of whom will be able to apply for section 4 support. Some of them will then experience real practical barriers to leaving the UK. I have got some examples. One real, very recent example: a Palestinian male claimed asylum in 2004. He became appeal rights-exhausted the following year, 2005. He applied for assisted voluntary return through the voluntary return scheme; he applied for section 4 support. He was not able to progress his application for voluntary return because there is no direct route into Palestine. Therefore, he was not eligible for section 4 support. He cannot find a solicitor to make a stateless application, so he is really stuck. He has literally spent the last 10 years homeless and destitute in the UK, having pursued every legal avenue. So there are some real practical barriers with challenges to returning people from particular countries that have no embassies in the UK or those with no viable route of return or other practical challenges with documenting or proving their nationality. Where people have proved that they have done as much as they possibly can to effect their own voluntary departure and there are some obstacles in their way, absolutely that needs to be considered.
Sarah Champion
Q 275 The Bill allows extension of support where there is a genuine obstacle, so how do you think genuine obstacles should be defined in the Bill?
Andrew Hewett: We can provide some examples, but I think it would be more useful for the Home Office to consult on what the genuine obstacles should be and define them. At the moment, genuine obstacle is not really defined anywhere, so it is open to interpretation and we see some cases approved, but others are refused because they have not met that threshold. We need further clarification, but certainly where people have tried to pursue voluntary return and there is a bureaucratic or embassy issue, that is one credible example. There are others and we can come back to you with those, but that is the one that springs to mind.
Sarah Champion
That would be helpful.
Karl Pike: There is a list of countries where assisted voluntary return is not possible, which I imagine you have seen. It is fairly extensive—there are quite a few countries on it. That would be a good place to start for the people who should definitely get support. There is also a common problem that Andy knows quite a lot about, which is embassies that will not provide travel documents to a person on the basis that they no longer have original ID. Ethiopia is one.
Andrew Hewett: If you are an Eritrean national and the Home Office contests that you are from Eritrea—perhaps it says that you are from Ethiopia—you would be expected to attend both the Eritrean and Ethiopian embassies and almost go through the process of applying for a passport. Then the Home Office would want to see written confirmation from that embassy as to why it cannot issue you with a passport.
Practically, you could make an appointment at the embassy, go down there and go through the process, but neither of those embassies currently provides any written confirmation. So some of those people are in positions where they have to take an independent witness with them and then that person provides a witness statement to say, “Yes, the person did attend. This is what happened at the embassy” because there is no viable way of getting that confirmation from the embassy. The Home Office does not commonly accept those witness statements. These people are in an incredibly difficult situation. They have done everything humanly possible and followed every instruction, but there is some other barrier preventing them from meeting that very high threshold.
Sarah Champion
Q 276 So, for clarity, you think that that needs defining either in guidance or in the Bill?
Andrew Hewett: Absolutely, it needs crystal clear clarification and definition.
Karl Pike: We would like “genuine obstacle” to be defined in the legislation rather than allowing it to be subject to the regulations after the Bill has been voted on.
Rebecca Harris (Castle Point) (Con)
Q 277 I want to ask you the question that I missed the opportunity to ask this morning. We have a lot of problems with our immigration service—it sounded terrible at some stages this morning—and I wondered whether you had any relative knowledge of immigration procedures and enforcement in other countries. How do we compare with some of our European partners?
Peter Grady: Which aspect of immigration and enforcement procedures?
Simon Hoare
Q 302 Can I come back very briefly? I was interested in what you were saying because you made that point in an earlier submission. You are right to be worried about the social cohesion perspective. I suppose I look at it from the other end of the telescope. Do you agree that if everybody in society, irrespective of colour or creed—I put that in inverted commas—had safe knowledge that their neighbours and the people who lived in their communities were all bona fide, were all legitimate, were all citizens, or had right to remain in this country, it would ease the growing tension in many communities? That, in fact, of itself eases what in many communities is a growing tension—a tension between the settled, legal immigrant community and the illegal immigrant community. In my judgment, that is causing quite a lot of tensions in towns and cities across the country.
Saira Grant: You raise a very interesting and valid point, but I do not think that the answer is to create more suspicion and mistrust among members of civil society. It goes back to border control at the start; it is the Home Office’s responsibility, not that of civil society to be policing each other’s immigration status. We need to go back to the beginning. If the Home Office was making correct decisions, issuing correct visas and making it easier for people to lawfully go through the process, we would see a reduction in the numbers of those who are now irregularly here.
Sarah Champion
Q 303 Ms Grant, have you or your organisation had time to assess the west midlands pilot on landlords? Are you able to come up with some recommendations of how the pilot could be strengthened or any weaknesses in the Bill?
Saira Grant: Sure. You will be aware—I hope that Members are aware—that our organisation did an independent study of its own as well. We have sent copies of the report around. I have had a chance to go through it, although not in as much detail I would have liked, because it only came out on Tuesday, but looking at the evidence that they provided in the evaluation, it matches and mirrors a lot of the claims we have been making.
The first point to make is that the terms of reference are very different from our evaluation, because the emphasis is not on tenants; it is about landlords and the understanding that landlords have. Discrimination that we found has been alluded to—cases through mystery shoppers of indirect or potential discrimination—but that has not been the focus, and the tenants who are part of the survey are again a very low number, mainly students, so a very different group of people.
Something that really strikes me is to do with whether the reason behind these provisions is to ensure that those who do not have status do not stay in the UK and are encouraged to leave. If enforcement is the aim, look at what the results show: the claim is that 109 people have been “caught”, if you like, as a result of the right to rent checks, but break that down and at best you are looking at 15 people who directly came through the right to rent checks inquiry line and who came to the Home Office’s attention. That in itself is a very interesting statistic, because, of the 109 people, 94 actually had status and the right to remain, but the inquiry was made because landlords could not understand the complexity of immigration status. From the 15, it is really interesting. That is direct, but then we have a breakdown of the 109: 25 people had barriers to removal, 15 were progressing family cases, nine were granted leave by the Home Office and a further four had judicial reviews.
Whichever way you look at it, all of those who have outstanding legal cases need to reside somewhere. Because of the way we have changed our immigration rules, people might not have section 3C leave, which continues their leave, but if they have outstanding legal cases and therefore a barrier to removal, what is supposed to happen to them? Are they now just supposed to be destitute?
Going through their evidence, I would say that there needs to be a longer evaluation period; it needs to be not over the winter period, when no one really moves tenancies; and it needs to look at the impact on tenants, not just landlords. How can we possibly have a roll-out announced on the same day as the publication of this evaluation?
Rebecca Harris
Q 304 It is not particularly on this point. Within the provision of the Bill, do you think that there is sufficient resource and support for landlords to be able to make the assessment?
Saira Grant: No, quite the opposite; the Bill is now going to criminalise landlords, which will exacerbate the sense of “I don’t want to rent to anyone who looks or appears different.” Landlords have said that the code is hard to understand. I understand that the code is being revised—I see the Minister shaking his head, but I am looking at the evaluation and quoting from it, Minister. So no, there is not any further provision, but what we do have is a situation that will exacerbate discrimination, and that is not being tackled at all in the Bill. And I am not quite certain why the haste. Why are we rushing to strengthen the provisions before the provisions of the 2014 Act have bedded down and we have even looked at the impact properly?
Sarah Champion
Q 305 My final question is about immigration officers. Their remit is being extended, so that they will become more police-like in their areas and in their reach. Do you think that there is enough oversight and independent scrutiny of immigration officers in the Bill or existing legislation to ensure that they act responsibly?
Saira Grant: No, I do not and that is a real worry. So many enhanced powers are given—arrest without warrant, especially the driving licence provisions, no warrant needed to enter premises and to search people—and it was interesting that in your earlier evidence session when the police were talking about it. These powers are not just given to the police, but given to immigration officers and to anyone designated by the Secretary of State. There is no regulatory framework for immigration officers that I can see. It is extremely concerning that ever increasing powers are given to immigration officers, with no checks in place to prevent any kind of abuse of those powers.
Sarah Champion
Q 306 Do the rest of the panel members share those concerns?
Steve Symonds: I do. I would add this: I have followed immigration legislation over many years in different capacities, and I cannot think of a Bill over the last 15 to 20 years that has not extended the powers of immigration officers. I cannot think of a time when that has not been questioned in Parliament, and when the answer has not been that there will be better oversight, training and supervision this time. Actually, I cannot think of a time when it has resulted in a more efficient and effective system, let alone fewer concerns about instances of abuse of those powers.
It strikes me as inappropriate to be constantly expanding powers when, as has been referred to in an earlier session—the first session you had this morning—even the inspectorates themselves constantly refer to lack of management records of how the powers are used, inconsistencies in how they are used and inconsistencies about the guidance to officers about how they should be using the powers. We should stop giving more powers and concentrate on the ones that have been given now, at a minimum, and get those right before thinking ahead to expanding the range of powers given to officers and the expectations on those officers, who are much pressed and who no doubt find it difficult, given the range of legislation and guidance pressed on them. Sort out what they have got now before thinking of moving ahead. Oversight is not going to be the answer. I am not criticising oversight, by the way—I am all for it—but it will not provide the answer.
Rachel Robinson: Can I come in on the point about enforcement powers? I echo many of the points made by other speakers, but I add the very serious nature of the problems with the use of enforcement powers identified by the Independent Chief Inspector of Borders and Immigration. A report covering an inspection period ending in 2013 found that in terms of, for example, the power to enter business premises without a search warrant, officers in 59% of cases lacked the required justification to exercise that power. In a further 12% of cases, there was not sufficient information to determine whether justification was there, so in only 29% of cases was the power being used properly. Yet, in the Bill, we see a massive extension in how intelligence is used by immigration officers.
We have had similar concerns from the Independent Chief Inspector of Borders and Immigration about the approach to so-called intelligence. One example given in a recent report involved a raid on a fast food restaurant. The intelligence for that raid was that previous raids on fast food restaurants had uncovered irregular workers. That is not intelligence; that is a generalisation and a stereotype. We have serious concerns about how the powers are being used, and we urge the Government to consider looking again at those powers, how they are being used and whether there are ways to make them more effective, safer and more accurate, rather than giving immigration officers a whole range of new powers.
Rebecca Harris
Q 307 You might want to reassure our witnesses that we had a housing officer as witness who thought that giving housing officers the responsibility to ask anyone to verify who they were might reduce problems with prejudice and so on. My question to all of you, with your expert knowledge of this area, is what measures you think we should be introducing to encourage people with no right to remain in this country to leave, or ensure that they do so when they refuse. What would be your solutions to that problem, if this is not the answer?
Rachel Robinson: What we see in the Bill is a shifting of responsibility from the Home Office to private citizens, when what we should be seeing is an improvement in processes within the Home Office. I think that the Committee has had ample evidence that the provisions in the Bill are liable to undermine enforcement of the immigration rules by making it more likely that people will abscond. The Committee has heard ample evidence on the provisions on asylum support.
We would say that the solution is not to foist immigration powers on members of the community with no training or expertise and expect them to carry out the functions that the Home Office has failed to carry out effectively itself. The solution is for the Home Office to do its job better.
Rebecca Hilsenrath: We start by wishing that an equality impact assessment had been produced; it might have helped to look through the draft provisions with a closer eye on equality impact. In terms of general proportionality, you could take the same approaches and consider whether, in fact, the same measures could be looked at through the lens of greater compliance with human rights legislation. If we look, for example, at the provisions giving private landlords eviction powers where tenants have been found to be disqualified from renting, we do not really understand why that process cannot involve a review by the court instead of being, as it is at the moment, enforceable as a court order.