Police, Crime, Sentencing and Courts Bill (Eighteenth sitting)

Sarah Jones Excerpts

Committee stage
Tuesday 22nd June 2021 Public Bill Committees

[Alex Cunningham]

I beg to move, That the clause be read a Second time.

The new clause makes a very simple amendment to the current discharging regime from the prison, which the Opposition believe would ensure that those leaving prison have the support that they need as they transition into the community.

May I begin by thanking Nacro for its invaluable help in drafting the clause and its essential work to support people leaving prison? The new clause would give prisons the option to release people who need community support and are due for release on a Friday or the day before a bank holiday period on an earlier day in that same week, to ensure that support is put in place ahead of the weekend. That would support rehabilitation and resettlement. It would allow release to be spread from the Monday to the Thursday to prevent a significant increase in releases on the Thursday, which could be difficult for prisons to manage. Similar legislation has already been passed in Scotland in the Prisoners (Control of Release) (Scotland) Act 2015, and we think that it is time to introduce similar provisions for prisoners in England and Wales.

Many people released from prison on a Friday face an almost impossible race against the clock to get all the support that they need in place before the weekend. Getting all the correct support in place can prove a challenge on any day of the week, but it is especially difficult on a Friday because many community services have reduced service on Fridays, and reduced or no service exists over the weekend. Prison leavers have a very limited time window in which to make all the necessary arrangements that are vital to their resettlement before services close up shop for the weekend. If the prison leaver is unable to access those services, the likelihood of their reoffending is significantly increased.

Another issue is that there is actually a spike in releases on Friday. The national data show that more than a third of custody leavers are released on a Friday, and that includes releases that were scheduled for the Friday as well as those who have release dates over the weekend or on a public holiday. This peak in releases adds significant pressure to service staff and can consequently lead to late releases and pressure on services in the community.

Our new clause addresses that by giving the governor of the prison discretion to spread releases over the previous five days so that we do not simply end up shifting the Friday spike into a Thursday spike. We know that the release day is critical for putting in place the foundation blocks for life outside prison. As well as needing to attend mandatory appointments with probation, prison leavers may need to attend the local housing office to secure somewhere to live.

[Sarah Jones (Croydon Central) (Lab)]

Does my hon. Friend share my experience as a Member of Parliament, which is that many people have come to my door on a Friday afternoon who have been made homeless for a particular reason or are in some kind of crisis, because they have found it almost impossible to get through to any services because people go home on a Friday? It is a very real thing. A question I always ask when I interview somebody to be a case worker is: “What would you do if someone comes to you on a Friday afternoon at half-past 4 and has nowhere to go?”. Although this seems such a simple new clause, it is incredibly important and could be the difference between someone slipping back into old ways or getting a bit of support that they need to rehabilitate themselves.

[Alex Cunningham]

That is most certainly the case. I may not have encountered as many as my hon. Friend, but I have had people in that situation who have nowhere to go. We find ourselves turning to local charities, but when it gets to 4.30 or 5 o’clock and somebody shows up, it is far too late to access even those sorts of support services.

Of course, the person may need to visit the jobcentre to make a universal credit claim or other benefits claims. They may need to see their GP or to attend community mental health or substance misuse services. No doubt there are many individuals who would have to do a number of things on that list. If they are unable to find somewhere to live, or to sort out necessary medication or financial support on the day, they may be left homeless over the weekend without vital medication and with only £46 to last until Monday when they can try to access services again. That can sadly lead to them falling back into old networks or habits just to get by.

It is therefore entirely in the Government’s interest to make resettlement as seamless as possible, to minimise any possible lapse into reoffending. There is a window of opportunity when people are released from prison, when they are most motivated to move forward in their lives. That can pass by if the barriers to resettlement and rehabilitation are too high. Nacro has said that it often hears from staff and professionals in other agencies working with people on release from prison how Friday releases have a huge impact on levels of hope and motivation. It has provided me with a few case studies that well illustrate the problems that Friday prison releases can cause.

The first is the case of M:

“M was released on a Friday before a bank holiday weekend after serving a year in custody. He has an addiction to heroin but, when released, was not given the prescription charts from the prison which were needed to determine the dose of methadone he needed. He was also not given a bridging prescription.

As it was late afternoon on a Friday, the GP from the substance misuse service had left and M and his resettlement broker were unable to get his medication.

M was vulnerable and entitled to priority housing. However, the local authority did not deem him to be priority need and, as it was a Friday afternoon, M didn’t have time to gather the further evidence needed to prove this before the weekend.

M spent the weekend sleeping in a known drug house and ended up using heroin. As part of his licence conditions, he was required to give blood samples and tested positive for drug use.

Releasing M earlier in the week would have meant faster access to the medical services and the medication he needed and increased his chances of finding a housing a solution more quickly.”

Something as seemingly small as the discharge day being a Friday had seriously disastrous consequences for M and put his rehabilitation and resettlement in serious jeopardy.

Nacro also shared the story of C:

“C was released from prison after serving a three-week sentence. On release, his Through the Gate mentor met him and went with him to present himself to probation, a train ride away.

On presenting to the local housing authority to make a homeless application, C was told to make an online application to receive an appointment with a housing officer for the next week.

C’s mentor contacted a local charity to which he could also make a homeless application and they asked him to come down on the following Monday. C also had to wait until the following Monday to go to the Jobcentre Plus to enquire about getting a deposit for a flat.

C slept rough that weekend. Had C been released earlier in the week, he would have been able to access these services faster without a three-night gap in which he had to sleep rough, which increased his chances of reoffending.”

--- Later in debate ---

[Victoria Atkins]

It is a complicated answer to a complicated question. We know, for example, that some forms of crime are increasing, and there is ongoing academic research into some of those, but we have reason to believe that more women are reporting facing violent acts within sexual relationships. That encompasses a range of relationships, from intimate, long-term relationships to first dates. That is precisely why, on the Domestic Abuse Act 2021, we worked across the House with colleagues to clarify the law on the so-called rough sex defence, because we knew that women in intimate, long-term relationships and in shorter relationships were experiencing that. Through that Act, we also brought in the prohibition on non-fatal strangulation, and again we worked on a cross-party basis. There is emerging evidence, particularly on the latter, that more and more victims of domestic abuse, but also those in other types of relationships, are facing these acts within—to use shorthand—the bedroom. We very much wanted to put a marker in the sand to say, “This sort of behaviour is not healthy, and it is now not lawful.”

The thinking is that those sorts of behaviours have increased over recent years. The thinking behind that is that online pornography has had an impact. However, I refer the hon. Lady to the research that I commissioned when I was Minister for Women and Equalities on the impact of online pornography and attitudes towards women and girls. The Government published that a few months ago. It is fair to say that there are not quite the clear lines that some would expect, but there are common themes there, if I can put it as broadly as that. Online pornography is a factor with some crimes, but sadly violence against women and girls is—dare I say it?—as old as time. The ways in which a minority of men—I make that absolutely clear—see fit to behave towards women and girls is part of the Gordian knot that we must try to untie. It will be a longer-term process than this Bill or the next Bill that comes along when legislation is appropriate. It will require a cultural education journey, as well as shorter-term fixes.

I am very pleased that the hon. Member for Stockton North raised the Law Commission research. As part of our work on ensuring that the law is keeping up to date with modern practices, we have commissioned a lot of work from the Law Commission recently. I do not apologise for that. In fact, it gives me the opportunity to thank the Law Commission for the work it conducts, often looking into very complex areas of law and trying to find ways through in order to assist this place and the other place in updating the law.

The current investigation into hate crime illustrates that point very well. In 2018, we asked the Law Commission to consider the current range of offences and aggravating factors in sentencing and to make recommendations on the most appropriate models to ensure that the criminal law provides consistent and effective protection from conduct motivated by hatred towards protected groups or characteristics. The Law Commission published its consultation document in September. It was an enormous document—more than 500 pages and 62 separate questions. The Law Commission has been very clear that the consultation document was exactly that; it was not a report or a set of conclusions. It does not represent the Law Commission’s final position on any of the issues raised.

I make that point because the new clause invites Parliament to adopt those recommendations wholesale, and I think we are all duty bound to acknowledge that what we have had so far from the Law Commission is a consultation document. It is not its final report. Indeed, the Law Commission hopes to report in October, and of course the Government will give that report very, very careful consideration. I do not believe, however, that it would be appropriate for this Government, or indeed any Government, or any Parliament, to sign what is effectively a blank piece of legislation without seeing what the Law Commission is going to recommend.

We do not know what the consequences may be of the recommendations, nor what would be required to enact and enable them. It may be, for example, that changes to primary legislation would be required. I have to say that I feel uncomfortable at the prospect of the Bill permitting other parts of primary legislation to be overwritten—overruled—by virtue of the super-affirmative procedure. We must surely ensure that significant changes to the law should be properly debated by both Houses of Parliament in the normal way, with any Bill going through all the normal processes and stages.

I gently suggest to the Opposition that perhaps they should be careful what they wish for, because in this very Bill clause 59 gives effect to the Law Commission’s recommendation relating to the common law offence of public nuisance. It made that recommendation in 2015 and recommended that it be put into statute. If I recall our deliberations correctly, the Opposition opposed that very clause. I cannot imagine what the reaction would have been had we attempted to have this super-affirmative procedure imposed in relation to clause 59.

[Sarah Jones]

The Minister points to the risks of legislation being passed that defines something that is as yet undefined, and that being a blank cheque. Does she agree that our concerns about the protest element of the Bill, which gives the Home Secretary the right to define vast sections of the Bill after the legislation has been passed, relate to the same principle?

--- Later in debate ---

[Alex Cunningham]

The record will show that the Conservative members of this Committee voted against a minimum sentence of seven years for rape. The Minister pointed out some of our votes, and I am happy to put that on the record, too.

I again thank my right hon. and learned Friend the Member for Camberwell and Peckham, my hon. Friend the Member for Rotherham and my right Friend the Member for Kingston upon Hull North (Dame Diana Johnson) for their support on this new clause. New clause 24 would require the Lord Chancellor, within 18 months of the commencement of this Act, to commission a review of the effectiveness of current legislation and sentencing policy surrounding domestic abuse. The review, conducted by a senior member of the judiciary, would have a particular view to increasing sentences for domestic homicide, and reducing the gap in sentence length between domestic homicide and other homicides. The review would also examine the effectiveness of sentencing more broadly for domestic abuse.

It is a stain on our society that the number of female victims of murder in England and Wales is the highest that it has been since 2006, some 15 years ago. Rather than things getting better, things are getting dramatically worse. Staggeringly, almost half of female homicides––48%––take place in the family home. This flies in the face of the commonly held myth that murders take place away from the safety of the family home and are predominately committed by strangers.

As I set out earlier, while the Opposition fully support the Government’s introduction of clause 103, which increases the custodial sentence for murder committed by a person under the age of 18, we feel there is much more that could be done in this area. This is particularly the case when it comes to the staggering difference in sentence lengths between those who murder within the home and those who murder a stranger in the street. Once again, I will repeat Carole Gould’s words which I feel really ring true on this point:

“Why should a life taken in the home by someone you know be valued less than a life taken by a stranger in the streets?”

Even under the proposals set out in the Bill, a child aged 10 to 14 who commits murder after taking a weapon to the scene, say a public place, would be liable to a minimum of 13 years imprisonment. For a child of the same age who committed murder using a weapon in the family home, the minimum sentence would be eight years.

That gap exists not only for children, but for adults. As I have told the Committee before, Joe Atkinson was 25 when he murdered his 24-year-old ex-girlfriend in a jealous rage. For those who take a knife or weapon to the scene, such as those who stab someone to death on the street, the normal starting point for sentencing is 25 years, but Joe Atkinson was sentenced to just 16 years and two months, partly because the murder was committed using a weapon found in the victim’s home. But that is just one piece of legislation that new clause 24 would seek to review. The review would also examine the effectiveness of sentencing more broadly for domestic abuse in general.

As Committee members will no doubt be aware, we have seen a staggering increase in appeals for help during the pandemic from those suffering domestic abuse. Between April 2020 and February 2021, Refuge recorded an average of more than 13,000 calls and messages to its national abuse helpline each month, a truly horrifying number. This is an increase of more than 60% on the average number of monthly contacts at the start of 2020. The crime survey for England and Wales showed that 1.6 million women and 757,000 men had experienced domestic abuse between March 2019 and March 2020, with a 7% growth in police-recorded domestic abuse crimes. Each of those figures suggests that the current measures the Government are taking to address domestic violence and domestic homicide simply are not working.

In order to truly tackle these issues, we need a root-and-branch independent review of how our criminal justice system responds to domestic abuse and domestic homicide. This is too important a point to ignore, and I hope the Minister will support new clause 24 today.

[Sarah Jones]

I will not try to remake my hon. Friend’s argument, which was compelling. I shall speak to new clauses 48 and 55, which have been grouped with new clause 24. I have spoken previously in Committee about the importance of learning the lessons of homicides. The relevant clauses would introduce offensive weapon homicide reviews, and we are debating the Bill at a time when serious violence is at record levels. Of all homicides in the latest year, 37% were knife-enabled crimes. A large proportion of homicides involved offensive weapons: in the year ending March 2020, 275 homicides involved a sharp instrument, 49 involved a blunt instrument and 30 involved shootings. We welcome this part of the Bill. It is important that lessons are learned.

It is incredibly important that the pathways that lead people to be involved in homicides can be understood and that the knowledge is shared with the bodies that can make preventive interventions and changes. Every homicide review that is carried out has a life behind it, and at the heart of every review is a person who has lost their life, each with a complex set of circumstances that can help to inform multi-agency bodies to prevent another death and provide better protections for those left behind. We owe it to the families of victims to ensure that any lessons are learned.

The domestic abuse charity Standing Together recently reviewed domestic homicide review processes in London boroughs, and its report highlighted that not enough knowledge sharing is happening. With new clause 48, we are seeking to put in the Bill a requirement on the Secretary of State to ensure that data is collected and reported on for all homicide reviews. The new clause requires the Secretary of State to collect and report annually to Parliament data on child death reviews involving homicide, on domestic homicide reviews, and on offensive-weapon homicide reviews. It would also require the Secretary of State to commission and lay before Parliament a lessons learned review of the data.

New clause 55, which was tabled by my hon. Friend the Member for Pontypridd (Alex Davies-Jones), would modify the Domestic Violence Crime and Victims Act 2004 to force the Secretary of State to automatically direct a domestic homicide review in circumstances as outlined in section 9 of the Act. We also aim with the new clause to improve data collection methodologies around domestic homicide reviews.

New clause 55 would bring about a really important change. Section 9(4) of the 2004 Act states:

“The Secretary of State may in a particular case direct a specified person…to establish, or to participate in, a domestic homicide review.”

However, those should not just be particular cases at the Secretary of State’s discretion; it should be the norm that when a person aged 16 or over has died, and their death has or appears to have resulted from violence, abuse or neglect by a person who they were related to, in a relationship with, or in the same household, a domestic homicide review should be automatically directed.

There are some serious gaps in data that a more common application of domestic homicide reviews would help to bring to light. Unless I am wrong, in which case the Minister can correct me, the Home Office does not publish a record of the number of domestic homicide reviews taking place across the UK, the number of victims with a history of domestic abuse who have gone or remain missing, or the number of unexplained or sudden deaths of victims with a history of domestic abuse. In the UK, the Office for National Statistics provides an annual homicide report for England and Wales, while Scotland has its own similar dataset, but those figures only scratch the surface. The ONS finds that over the last decade in England and Wales, an average of 85 women a year are killed by a partner or ex-partner. That is 44% of all homicides against women, while in Scotland the proportion is 49%.

Although Government data tells us the number of victims, their gender and their relationship to the perpetrator, there is no further information around the crimes and their nature. Some cases may also be lost because the killer’s gender is not noted. Crucially, there is no information about the perpetrator’s history of domestic abuse. That makes it hard to understand the relationship between domestic abuse and homicide, even on the most basic level.

Eight women were killed in the first three days of 2012, and in the same year, Karen Ingala Smith, chief executive of the domestic violence charity Nia, began to name them on her WordPress page to count dead women. She trawled through articles, police reports and domestic homicides reviews to collect and memorialise the cases. In 2015, Ingala Smith and Clarrie O’Callaghan launched the Femicide Census following their work on the count. Their 10-year report, released in November 2020, paints a stark picture of homicide against women in the UK. According to their report, there has been no improvement: women are being killed by men at the same rate as a decade ago, averaging 143 deaths a year when including all killers, not just intimate partners.

The Femicide Census provides crucial context for each killing, providing data on everything from the location to the method of the killing to the perpetrator’s history of abuse. Femicide Census findings published in November 2020 show that over the past decade, 62% of cases encountered were of women who died at the hands of an intimate partner. Nearly two thirds of perpetrators were currently or had previously been in an intimate relationship with the victim, and 72% of female homicide victims died in their homes. The census also begins to link domestic abuse and femicide: 59% of cases involved a history of coercive control or violence, and almost half the perpetrators were known to have histories of abuse against women.

--- Later in debate ---

[Victoria Atkins]

New clause 24 seeks to establish a review into sentencing in cases of domestic homicide, following many tragic cases, including those of Ellie Gould and Poppy Devey Waterhouse, among others, where there remain concerns about the sentences handed down by courts. The Government recognise those concerns, which is why my right hon. and learned Friend the Lord Chancellor has already announced a review of sentencing in domestic homicide cases.

We are carrying out a targeted review of how such cases, focused on those that involve fatal attacks on intimate partners or ex-partners, are dealt with in our justice system, including how such cases are sentenced. It is the Lord Chancellor’s intention to make quick progress on this and to conduct the review while the Bill is making its way through the legislative process. The first phase of the review is under way to gather data and relevant information, following which the Lord Chancellor will consider the best form for the next phase of the review.

As for a review of domestic abuse legislation more generally, Parliament has just finished scrutinising, at length and in depth, the Domestic Abuse Act 2021. The Act contains many important reforms and proposals for the future, and our focus must be on implementing those reforms before reviewing their impact.

Turning to new clauses 48 and 55, clause 27(7) requires the Secretary of State to publish or make arrangements to publish the report of an offensive weapons homicide review, unless publication is considered inappropriate, in which case the Secretary of State must publish as much of the report as is considered appropriate for publication. Beyond that statutory requirement, we want to ensure that the recommendations from offensive weapons homicide reviews are shared, considered, debated and, where appropriate, implemented locally and nationally in England and Wales. We will therefore set up a new Home Office homicide oversight board to oversee the introduction of offensive weapons homicide reviews to monitor implementation of any findings and to support dissemination of learnings locally and nationally. We will set out further details about the board and how it will operate in due course.

We have already undertaken to create a central repository to hold all reports from DHRs. Once introduced, all historical reports will be collected to ensure that there is a central database on domestic homicides. That is a significant move forward. We are working closely with the domestic abuse commissioner on the detailed arrangements for that central repository so that it can be effective in helping all relevant agencies to access and apply the lessons learned from DHRs.

Finally, in relation to child death reviews, the “Working together to safeguard children” guidance sets out the statutory requirements regarding child death reviews. Established processes are already in place to collate and share learning from such reviews, and it is a statutory requirement that child death review partners make arrangements for the analysis of information from all deaths reviewed and that learnings should be shared with the national child mortality database. The database analyses the patterns, causes and associated risk factors for child mortality in England and disseminates data and learning from the reviews via its annual and thematic reports.

We are not persuaded that new clause 55 is necessary. The statutory guidance for DHRs makes it clear that where the criteria for a review are met a review should be conducted. The power in section 9(2) of the 2004 Act to direct that a review be undertaken is a backstop and, in practice, is rarely needed. However, when it is needed, it is exercised. Indeed, the Home Secretary exercised it recently in the case of the death of Ruth Williams, because Torfaen Council had refused to progress a DHR. Furthermore, we have introduced a process whereby the DHR quality assurance panel reviews all cases where a decision has been made not to conduct a review. The quality assurance panel is made up of members representing statutory bodies and expert organisations, and they are well placed to consider whether a DHR is necessary and to offer appropriate feedback. That process ensures that DHRs can commence as soon as practicable, without needing the Home Secretary to intervene in every case.

In summary, we agree that the lessons for all the homicide reviews must be learned and applied locally and nationally. Mechanisms are already in place, or are indeed being put in place, to ensure that that happens, so we are not persuaded that the two new clauses are necessary at this stage.

[Sarah Jones]

I am interested in the homicide board to which the Minister referred. We would appreciate more details about how that would work, and it would be nice if we could get them before Report. I am reassured about the number of databases that there are, because we know that violence breeds violence, and I suspect that there are themes across all these areas from which we could learn more. I ask the Minister to keep pushing the issue.

[Alex Cunningham]

I am not sure how the dual thing in one set of clauses works in protocols, but we have managed anyway.

Sir Charles, you will be thinking that if you got a fiver for every time you heard the words “review”, “survey” or “commission”, you would be able to fund your fishing fees for a week on the River Tweed. Here we are, asking for a further review, so that is another fiver in the pot towards your fees.

We believe that the Government are doing well across the domestic abuse agenda, but we think that much more could be done, in a much more positive way. I suppose the report card would say, “Could do better,” and we think that the best way to do that is through a formal review, captured in the legislation. That would compel things to happen, and then we would get the information we need on which to act. For that reason, I want to vote on new clause 24.

Question put, That the clause be read a Second time.

Police, Crime, Sentencing and Courts Bill (Fifteenth sitting)

Sarah Jones Excerpts

Committee stage
Thursday 17th June 2021 Public Bill Committees

[The Chair]

Thank you; that is very helpful.

Clause 139

Serious violence reduction orders

[Sarah Jones (Croydon Central) (Lab)]

I beg to move amendment 101, in clause 139, page 128, line 42, at end insert—

“(9A) If the order is made before regulations have been made under section 175(1) of the Police, Crime, Sentencing and Courts Bill for the coming into force of section 139 of that Act for all purposes and in relation to the whole of England and Wales, the court must, in every case where the prosecution makes an application under paragraph (b) of section 342A(1) for a serious violence reduction order to be made, set out in writing its reasons for making, or not making, such an order.”

This amendment would require the court, during any pilot of serious violence reduction orders, to set out in writing its reasons for making or not making such an order.

[The Chair]

With this it will be convenient to discuss the following:

Amendment 103, in clause 139, page 133, line 43, at end insert—

“(3A) Guidance under this section must include guidance on the intelligence, community information and risk factors that are to be considered before an application is made for the imposition of a serious violence reduction order.”

Clause stand part.

Amendment 99, in clause 140, page 134, line 33, leave out “and (3)” and insert “(3) and (3A)”

Amendment 98, in clause 140, page 134, line 42, at end insert—

“(3A) The report under subsection (3) must include—

(a) information on the ethnicity of people made subject to a serious violence reduction order;

(b) information on the number of people made subject to a serious violence reduction order where there is no evidence of their having handled a weapon, either in the incident resulting in the imposition of the order or previously;

(c) information on the number of people stopped by a police officer in the belief that they are subject to a serious violence reduction order, broken down by ethnicity (collected on the basis of self-identification by the person stopped), and including information on the number of times any one individual is stopped;

(d) analysis of the distribution of serious violence reduction orders in relation to the ethnic make-up of the population;

(e) an equality impact assessment including an assessment of the impact of the pilot on the groups mentioned in the equality statement produced before the pilot is commenced;

(f) analysis of data assessing the extent to which the pilot has reduced serious violent crime and reoffending by comparison with other areas;

(g) an assessment by the Sentencing Council of the proportionality of the distribution of the imposition of serious violence reduction orders;

(h) analysis of (i) the impact of the length of time for which a serious violence reduction order is imposed on reoffending and (ii) the extent to which the length of time for which a serious violence reduction order is imposed has harmful impacts on the life of the individual who is subject to it;

(i) an assessment of the impact of the imposition of serious violence reduction orders on the use of ‘stop and account’ in the pilot area or areas;

(j) feedback from Community Scrutiny Panels on scrutiny of body-worn video of all stops of people subject to, or believed to be subject to, a serious violence reduction order;

(k) analysis of any adverse impact of the imposition of serious violence reduction orders, undertaken on the basis of interviews with (i) people subject to a serious violence reduction order and (ii) organisations working with young people, in addition to any other information considered relevant by the person conducting the analysis;

(l) analysis of who is made subject to a serious violence reduction order, what evidence is relied on to justify the imposition of such orders, and whether there is any bias in the decision-making process;

(m) analysis of information on the reason for each breach of a serious violence reduction order;

(n) analysis of the extent to which searches made under the powers granted by this Part could have been carried out under other powers.

(3B) Statistical information collected for the purposes of section (3A) from different pilot areas must be collected and presented in a form which enables direct comparison between those areas.”

Amendment 100, in clause 140, page 134, line 42, at end insert—

“(3A) The condition in this subsection is that consultation on the report under subsection (3) has been undertaken with anyone the Secretary of State considers appropriate, including—

(a) representatives of the voluntary sector, and

(b) representatives of communities disproportionately represented in the criminal justice system.”

Amendment 102, in clause 140, page 135, line 2, at end insert—

“(4A) Regulations under section 175(1) which bring section 139 into force only for a specified purpose or in relation to a specified area—

(a) must include provision bringing into force section 342J of the Sentencing Code (Guidance); and

(b) must provide that section 139 may come into force for other specified purposes or in relation to specified areas only once guidance has been issued under section 342J of the Sentencing Code.”

This amendment would require the Secretary of State to issue guidance on serious violence reduction orders before any pilot could commence.

Amendment 104, in clause 140, page 135, line 2, at end insert—

“(4A) The powers under section 342A(2) of the Sentencing Code are exercisable before the power in section 175(1) has been exercised so as to bring section 139 into force for all purposes and in relation to the whole of England and Wales only if every officer of any police force in an area in relation to which section 139 has been brought into force has completed the College of Policing two-day training on stop and search.”

This amendment would require all police officers in a pilot force area to have completed the College of Policing training on stop and search before the power to impose serious violence reduction orders could be used.

Clause 140 stand part.

[Sarah Jones]

It is a pleasure to serve under your chairmanship again, Mr McCabe. Part 10, chapter 1, introduces serious violence reduction orders. Officers would be allowed to search people with an SVRO without reasonable grounds and without authorisation, which would be an unusual stop-and-search power. In effect, SVROs are not only a new court order, but a new stop-and-search power.

Clauses 139 and 140 specifically encourage officers to search people with previous convictions. The only safeguard in the Bill is the fact that the court decides whether to apply an SVRO on a conviction or not. Once an individual has an SVRO, officers would not have to meet any legal test in order to search them for an offensive weapon.

The context is that, on this Government’s watch, there have been record levels of serious violence. Despite the fall in violent crime during the first lockdown, it exceeded the levels of the previous year by the summer; between July and September 2020, it was up 9% compared to the same period in 2019. Violent crime has reached record levels, with police dealing with 4,900 violent crimes a day on average in the last year. The police have recorded rises in violence nationally since 2014, and violence has more than doubled in the past five years. In the year ending September 2020, violence against the person reached 1.79 million offences—its highest level since comparative records began in 2002-03.

Even during the last year, knife crime increased in 18 out of the 43 forces—44% of forces—despite the effects of lockdown. In the last year, violence made up nearly a third of all crime dealt with by the police; it was up from 16% when the Tories took office and 12% in 2002-03. Reports of violent crime have increased in every police force in the country since 2010. In four fifths of forces, violent crime has at least doubled, and knife crime reached its highest level on record in 2019-20, having almost doubled since 2013-14. There is clearly much to be done.

On the flip side, more and more violent offenders are getting away with their crimes; charge rates for violent offences have plummeted from 22% in 2014-15 to just 6.8% in 2019-20. While the total number of violent crimes recorded has more than doubled in the last 6 years, the number of suspects charged has fallen by a quarter, and the number of cases where no suspect is identified at all has nearly trebled. It is clear that the Government have a serious problem; they have let serious violence spiral out of control.

Earlier in Committee, we discussed the prevention of serious violence, and I put forward various amendments to improve clauses that we broadly welcomed. We talked about the way that violence drives violence, and said that if the Government want to properly follow a public health approach to tackling serious violence, they cannot treat it as though it happened in a vacuum. We need a proper public health approach to tackling violence that addresses the root causes of why people fall into crime, with early intervention to significantly impact the lives of vulnerable young people and communities.

It is hard to be persuaded that more sweeping powers to stop and search people with previous convictions will reduce serious violence. There is little evidence that stop-and-search is an effective deterrent to offending. That is not to say that it is not an important tool; it absolutely is and we all agree with that—nobody is saying otherwise. It is part of the police’s armoury when it comes to tackling crime.

Stop-and-search is more effective at detecting criminals, but most searches result in officers finding nothing. The key figure, which it is always important to look at, is the proportion of searches that actually result in finding something. Only around 20% of searches in 2019-20 resulted in a criminal justice outcome—an arrest or an out-of-court disposal—linked to the purpose of the search.

While evidence regarding the impact on crime is mixed, the damaging impact of badly targeted or badly conducted stop-and-searches on community relations with the police is widely acknowledged, including in my community in Croydon, where the police have put a lot of work into building community relationships to try to bridge that gap.

[Sarah Champion (Rotherham) (Lab)]

Is my hon. Friend interested, as I am, to see what the Government plan to do to rebuild that trust with communities, which has, unfortunately, unravelled over the last few years?

[Sarah Jones]

My hon. Friend makes an important point. We should remind ourselves of this: if I faced a crime, I would immediately call the police—they are the people I trust to fix it—but there are communities in our country who do not have that trust, and who do not think that calling 999 will help them, or keep them safe. We must act on that. Following Black Lives Matter and the death of George Floyd, the police in Croydon have reached out to the young black men in our community to try to build relationships. That is exactly what we should do, and it is something that all the national police organisations are looking to do.

The Library states that

“Available statistical analysis does not show a consistent link between the increased use of stop-and-search and levels of violence”.

I do not often point to the Prime Minister as an example of good practice, but in every year while he was Mayor of London, the number of stop-and-searches went down in London, as did violent crime. Interestingly, he was following a slightly different course from the one he now advocates as Prime Minister.

The College of Policing has concluded that stop-and-search should be used “carefully” in response to knife crime. The Home Office’s research found that the surge in stop-and-search during Operation Blunt 2 had

“no discernible crime-reducing effects”.

A widely cited study that was published in the British Journal of Criminology and analysed London data from 2004 to 2014 concluded that the effect of stop-and-search on crime is

“likely to be marginal, at best”.

The research found

“some association between stop-and-search and crime (particularly drug crime)”,

which I will come back to, but concluded that the use of the powers

“has relatively little deterrent effect”.

Most searches result in officers finding nothing. Officers found nothing, as we have talked about, in nearly 80% of searches in 2019-2020. Searches for drugs were more successful than average, with about 25% linked to an outcome.

The Prime Minister and the Home Secretary, when they talk about stop-and-search, talk about getting knives off the streets. However, the searches for offensive weapons and items to be used in burglary, theft or fraud were the least likely to be successful—9% were linked to a successful outcome. The results are even lower for pre-condition searches, or section 60 searches, as they are called, although the only reason officers can use the power is to search for a knife or an offensive weapon. This is a very stark statistic: in 2019-20, only 1.4% of pre-condition searches led to officers finding a knife or offensive weapon. Nearly 99% of searches did not find an offensive weapon, and obviously that has taken a huge amount of police time and resources.

In February 2021, Her Majesty’s inspectorate of constabulary and fire and rescue services published the findings of a review of 9,378 search records, 14% of which had recorded grounds that were not reasonable, and the inspectorate said the vast majority of search records had weak recorded grounds. There is a real lack of clarity on both the success of stop-and-search, and the Government’s messaging on it. They say it is to tackle knife crime and break the cycle of weapon carrying, in the interests of keeping our community safer, but actually the figures for finding a weapon are really low. The Government need to be clear about what the purpose of stop-and-search is. It seems to be that most of the positive results are in finding drugs, yet in communications they say it is about protecting families from the scourge of knife crime.

Around 63% of all reasonable-grounds searches in 2019-20 were conducted to find controlled drugs. HMICFRS says,

“The high prevalence of searches for possession of drugs…indicates that efforts are not being effectively focused on force priorities.”

What the Government do not talk so much about is the outcome of these searches; if only 20% last year resulted in an outcome, what were the Government doing with this data—what are the results? What are they doing to try to measure and improve outcomes?

It is, of course, imperative that we pass legislation to keep the public safe, but these measures are not a proportionate way of protecting the public. They risk further entrenching disparities, and there is little evidence that they would have the crime reduction impact that the Government intend. The worry is that introducing more stop-and-search powers without reasonable grounds will only serve to stoke division, and not necessarily have the intended outcome.

We have sought to amend clauses 139 and 140, and I will get to the amendments later, but first I want to set out a number of problems that could arise if these clauses were to become law. The inspectorate and the Independent Office for Police Conduct both raised concerns about reasonable grounds not being used or recorded properly. As the College of Policing recognises, requiring that objective and reasonable grounds be established before police can exercise their stop-and-search powers is key to their decision making. However, the serious violence reduction orders in these clauses will require no reasonable grounds or authorisation. When Nina Champion from the Criminal Justice Alliance gave evidence to this Committee, she said:

“Of course, we all want to reduce knife crime, but…We worry about these very draconian and sweeping police powers to stop and search people for up to two years after their release without any reasonable grounds. Reasonable grounds are an absolutely vital safeguard on stop and search powers, and to be able to be stopped and searched at any point is a very draconian move that, again, risks adversely impacting on those with serious violence reduction orders. For young people who are trying to move away from crime, set up a new life and develop positive identities, to be repeatedly stopped and searched, labelled and stigmatised as someone still involved in that way of life could have adverse impacts. It could also have impacts on the potential exploitation of girlfriends or children carrying knives for people on those orders. There could be some real unintended consequences from these orders.”––[Official Report, Police, Crime, Sentencing and Courts Public Bill Committee, 18 May 2021; c. 156, Q265.]

Many different organisations have raised concerns about the measures in clauses 139 and 140. When I have spoken to police officers about them, they say that the clauses almost came out of the blue; it does not seem that these clauses come from the police, and they do have concerns about how they will enforce them.

[Allan Dorans (Ayr, Carrick and Cumnock) (SNP)]

Does the hon. Lady agree with the Metropolitan Police Commissioner and me that stop-and-search powers used properly and effectively can save lives, especially among young black men?

[Sarah Jones]

Stop-and-search is an important tool; I would not argue with that. The key is to make sure that it is used effectively, in conjunction with good local intelligence about where crimes may have been committed. In some of our black communities in London, and some of those I visited in Glasgow, and in certain estates or postcodes, people are experiencing the same overuse of stop-and-search. Where it goes wrong is where there is not intelligence—when people are stopped simply because of how they look. That is the risk. If, under section 60, police find one knife out of every 100 people stopped, that is a lot of resource; perhaps it is not the most effective way for the police to reduce violent crime. There are concerns about how stop-and-search is implemented, but the hon. Gentleman is right: it is very important.

Clause 139 permits a court to impose an SVRO when it

“is satisfied on the balance of probabilities that a bladed article or offensive weapon was used”

during the offence, or if the offender

“had a bladed article or offensive weapon with them.”

An SVRO may be imposed in response to an incident in which a person did not use an offensive weapon, but

“another person who committed the offence”

had such a weapon on them, and the first person

“ought to have known that this would be the case”.

This means that that power to stop and search someone anywhere at any time can be imposed on a person despite no evidence of their ever handled a weapon before.

The Bar Council says:

“These proposals place onerous obligations on individuals and may generate significant questions of law in regard to liability for the conduct of others. For example, do the proposals impose a duty of care on individuals to ensure that those with whom they commit criminal offences do not carry knives? How this would be determined as a question of law is unknown. Any such measures ought to be subject to consultation or piloted before being brought into force—it would be important to monitor the extent to which any orders made are based on the ‘ought to have known’ test rather than proven use/knowledge of a weapon on the part of the individual made subject to the order.”

Even section 60, which remains controversial, can be used only for a set period of up to 24 hours in a defined area. However, proposed new section 342D provides that an SVRO can be issued for two years and no less than six months. These orders can be renewed indefinitely, during which time they can run continuously, whenever the person is in a public place.

Clause 139 also creates a new offence of breaching an SVRO, for example

“by failing to do anything required by the order, doing anything prohibited by it, or obstructing a police officer in the exercise of any power relating to it. This would carry a maximum sentence of 12 months imprisonment on summary conviction, two years imprisonment on conviction on indictment, and/or a fine in either case.”

Can the Minister provide assurances on how people who question their search, who ask for the legal authority for subjecting them to stop-and-search, or who may not understand the instructions given by a police officer and therefore fail to comply, for whatever reason, will be safeguarded from the offence of breaching an SVRO?

I quote from the written evidence provided by Liberty on clause 139:

“Clause 139 allows the Secretary of State to impose by regulation any ‘requirement or prohibition on the offender for the purpose of assisting constables to exercise the powers conferred’ by the Bill, as long as the court considers it ‘appropriate’. This is remarkably broad. The orders can impose both positive and negative obligations and neither we, nor Parliament, know what they will be, as they will be made in the future by the Secretary of State. This is made more concerning by the lower standard of evidence needed for a court to impose an SVRO.”

The Bill makes it clear that it does not matter whether the evidence considered in deciding whether to make an SVRO would have been admissible in the proceedings in which the offender was convicted. Despite this, a person subject to an SVRO may face criminal penalties if they breach it, even if they breach the yet unknown requirements made by the Secretary of State through regulation.

The Bill would insert proposed new section 342J of the sentencing code, which provides the Secretary of State with the power to issue guidance to the police about the exercise of their function in regards to SVROs. The police must have due regard to this guidance. Statutory guidance on stop-and-search is in code A of the Police and Criminal Evidence Act 1984, which is underpinned by a formal scrutiny process, but here we have the publication of separate statutory guidance on SVROs. That is unusual and worrying. PACE code A is not being used as statutory guidance for this incredibly sensitive power.

There is nothing in the Bill about what the guidance will be like or how it will be drawn up and approved. The Bill does not provide the Secretary of the State with the power to issue guidance to other actors in the SVRO process. All relevant persons will be required to have regard to upcoming guidance relating to knife crime prevention orders. A relevant person is defined as one who

“is capable of making an application for a knife crime protection order”;

that, as is set out in section 1.3 of the draft KCPO guidance, includes the police and the Crown Prosecution Service.

Like KCPOs, SVROs will be applied to an offender only when an application for one has been made to the court. Only the prosecuting lawyer can apply to the court for an SVRO to be issued. However, the Bill does not provide the Secretary of State with the powers to issue guidance to the CPS on its function to apply for an SVRO to be attached to an offender’s conviction. Can the Minister say why? It is vital that guidance be published before the pilots of these orders go ahead.

We are all aware of the impact stop-and-search has on police-community relations. These new sweeping powers will be difficult for the police to apply practically on the ground. Once again, the Government are proposing a law that could lead to a lot of challenges for the police. The Government’s response to the consultation on SVROs noted that

“several responses from police forces and officers noted potential challenges around identifying individuals subject to an SVRO”.

That is where the guidance becomes incredibly important, but we do not have the detail yet. These searches will be less intelligence-led and risk increasing the chances of police stopping the wrong person.

A major concern we have with these powers is that they could increase disproportionality. The code of practice for statutory powers of stop-and-search, PACE code A, states:

“Reasonable suspicion can never be supported on the basis of personal factors”,

and notes that police cannot use, alone or in conjunction, as a basis for stop-and search,

“A person’s physical appearance with regard, for example, to any of the ‘relevant protected characteristics’ set out in the Equality Act 2010…or the fact that the person is known to have a previous conviction”.

[Alex Cunningham (Stockton North) (Lab)]

Does my hon. Friend agree that this is yet more evidence that the Government ought to carry out a full impact equality assessment for the whole Bill, never mind the provisions she is addressing?

[Sarah Jones]

My hon. Friend is right. These issues are very difficult and complex, and we have to make sure we get them right, or the impact on our communities will be great.

Black and minority ethnic people were four times more likely to be searched than white people in 2019-20. Black people in particular were nine times more likely to be searched than white people. In September 2020, the Joint Committee on Human Rights heard evidence that an estimated 85% of black people in the UK were not confident that they would be treated the same as a white person by the police. As I am sure most of us with mixed communities have, I have been in primary school assemblies where I have been asked by young boys why it is that they are being stopped and searched. They are even told by their parents to expect these things, and they learn that this is something that happens. We have to address that, stop it, and make sure we do not make it worse through these orders.

HMICFRS says no force fully understands the impact of the use of stop-and-search powers, and no force can satisfactorily explain why ethnic disproportionality persists in search records. Badly targeted stop-and-search serves to reinforce and create the mistrust between those subjected to it and the police. It is clear that the lack of trust and confidence in the police felt by black and minority ethnic people is related to the persistent disparities in stop-and-search rates by ethnicity.

The House of Commons Library says:

“There is no evidence to suggest that BME people are more likely to carry items that officers have powers to search for. Neither is there evidence that suggests they are more likely to be involved in criminality associated with stop and search enforcement…Societal racism and its effects…appears to explain most of the disparity in stop and search rates by ethnicity.”

For a recent Channel 4 documentary, 40 black men who had all experienced stop and search were surveyed. More than half of them had been stopped at least 10 times, and 39 of them had experienced their first stop and search before they turned 18. Three quarters of them had repeatedly been stopped and said that it had negatively affected their mental health. Nearly half of them had previously complained to the police about their treatment, and just three had had their complaints upheld. Jermaine Jenas, who made the documentary, said:

“Take what happened to Jamar, a kid I met, who is respectful and talented. Aged 16, he was walking home from a party when the police stopped him, looking for a young black man reportedly carrying a sword. Jamar was wearing grey jeans, white trainers and a light jacket; the description was of a guy wearing a black tracksuit.

Officers forced him on to his knees in the middle of a road and searched him at gunpoint, a Taser pressed to his neck. Of course, nothing was found. His black friends were handcuffed and held up against a wall; his young white mate walked around filming the whole thing, the police not interested.”

That is a very extreme example, I think we would all say. Like a lot of hon. Members, I have been out with the police when they have done stop and search, and in many cases it is done properly, but we have to watch these things very carefully. During the first lockdown, when the police were much more proactive in going out to try to tackle the crimes, as they had the time to do so—other things were closed, and they had less work—we saw in London a huge increase in stop and search. In itself, that is okay, but London MPs began to see an increase in people coming to us saying that they were being handcuffed as a matter of course at the beginning of the search. We met Cressida Dick and talked about it in Croydon. My local police officers said that something had absolutely happened, and that it was becoming the norm that they were handcuffing people, which they are not supposed to do when they first stop them. The Met is working on that. The IOPC has highlighted it, and the Met has acknowledged it. It is an issue. The point is that people can slip into behaviours that are not right, and we need to keep a really close eye on how stop and search is done.

It is vital that the use of stop and search is monitored properly so that the police can better understand the consequences and reasons for disparities in rates by ethnicity. That is important, and it has been repeatedly raised as a concern by Her Majesty’s inspectorate. In February 2021, it reported that, on average, 17% of force stop and search records were missing ethnicity information. The proportion of search records ranged by force from 2% to 34%. HMICFRS says that the disparity in search rates by ethnicity is likely being underreported as a result, and that no force fully understands the cause. It has repeatedly called on forces to do more to monitor and scrutinise their use of powers.

The Government’s proposed serious violence reduction orders risk further increasing disproportionality in the criminal justice system. Our concern is that they will be pushed through without proper evaluation. Labour wants to ensure that there is a proper consideration of disproportionality before serious violence reduction orders can come into force. The Government should be recording data on the ethnicity of people subject to the orders and analysing the adverse impact of them. They must ensure that all police officers complete the College of Policing training on stop and search before the power can be used in pilot A areas. It is crucial that the pilot is evaluated before any decision to permanently roll out SVROs is taken, and that should include full consultation with the voluntary sector in the communities that are disproportionately represented across the criminal justice system. The courts should have to set out their reasons in writing for issuing an SVRO.

[Hywel Williams (Arfon) (PC)]

Does the hon. Lady share my concern that neither of the proposed pilots will be held in Wales, given the distinct landscape in Wales after devolution and the fact that it has a much higher proportion of incarceration of black people than England?

[Sarah Jones]

The hon. Gentleman makes a very good point. Perhaps the Minister will respond to the point about where the pilots will be and whether there should be one in Wales.

Our amendments seek to make those changes. Amendment 102 would require the Secretary of State to issue guidance on serious violence reduction orders before any pilot could commence. Amendment 103 would ensure that guidance under this clause must include guidance on the intelligence community information and risk factors that are to be considered before an application is made for the imposition of a serious violence reduction order.

--- Later in debate ---

The Government are determined to do all we can to deter people from becoming involved in knife crime and prevent them from falling victim to it. There must be transparency in how SVROs are used, and there are already safeguards in the Bill, which we will develop to ensure the orders are being used appropriately and effectively. We will reinforce that message in the guidance and during the pilot, which will be the subject of a robust and thorough evaluation. In the light of the assurances that I have given about the conduct and evaluation of the pilot, and the content and timing of the statutory guidance, I hope the hon. Lady will be content to withdraw the amendment.

[Sarah Jones]

I thank the Minister for that response, which gives reassurance on a number of areas. In particular, having the draft guidance before the Lords Committee is very helpful. We can look at it and see what it says, and then the Lords can take a view about whether they will support it. I am also reassured by what the Minister said about the College of Policing training during the pilots, and about the content of the pilot and what it will look at. There is support for lots of the elements that we put in the amendments. We still have serious concerns that the provisions could be problematic and might not tackle violence, which is the point of them. However, with the reassurances that the Minister has given me, I will not seek to divide the Committee. I beg to ask leave to withdraw the amendment.

Amendment, by leave, withdrawn.

Clauses 139 and 140 ordered to stand part of the Bill.



Clause 141

Locations for sexual offender notification

Question proposed, That the clause stand part of the Bill.

[The Chair]

With this it will be convenient to discuss the following:

Clauses 142 and 143 stand part.

New clause 65—Registered sex offenders: change of name or identity—

“(1) The Secretary of State must commission a review of how registered sex offenders are able to change their name or other aspects of their identity without the knowledge of the police with the intention of subverting the purpose of their registration.

(2) The review must consult persons with expertise in this issue, including—

(a) representatives of police officers responsible for sex offender management,

(b) Her Majesty’s Passport Office, and

(c) the Driver and Vehicle Licensing Agency.

(3) The scope of the review must include consideration of resources necessary for the long-term management of the issue of registered sex offenders changing their names or other aspects of their identity.

(4) The review must make recommendations for the long-term management of the issue of registered sex offenders changing their names or other aspects of their identity.

(5) The Secretary of State must report the findings of this review to Parliament within 12 months of the day on which this Act is passed.”

This new clause would ensure that the Secretary of State must publish a review into how registered sex offenders are changing their names or other aspects of their identity and propose solutions for how the government aims to tackle this issue.

I remind the Committee that if the Whip is seeking to adjourn at 1 o’clock, he will not be able to interrupt a speaker, so if we are going to proceed with that, we will need whoever is speaking to finish just before 1 pm so the Whip can do what he might wish to do.

Police, Crime, Sentencing and Courts Bill (Sixteenth sitting)

Sarah Jones Excerpts

Committee stage
Thursday 17th June 2021 Public Bill Committees

[The Chair]

With this it will be convenient to discuss the following:

Clauses 158 to 161 stand part.

That schedule 18 be the Eighteenth schedule to the Bill.

Clause 162 stand part.

[Sarah Jones]

I want to speak briefly to the clauses, which we support. I begin by paying tribute to Saskia Jones and Jack Merritt, whose lives were so tragically cut short at the Fishmonger’s Hall attack. Protecting the public is the overall and overriding priority for us all, and clauses 157 to 162 would help law enforcement and counter-terror policing to better manage and monitor the risks when terrorist offenders are released on licence.

Lone attackers intent on causing carnage have taken the lives of innocent people, injured more and caused enormous suffering to all those affected. In the year ending June 2020, 34 sentenced terrorist offenders were released from prison custody. Between July 2013 and June 2020, 265 terrorist prisoners were released from a custodial prison sentence, but the statistics do not show which of those were released on licence. It would be helpful if the Minister had any statistics on the number of terrorist prisoners released on licence in recent years.

As we know, this is an issue of heightened importance since the atrocities at Fishmonger’s Hall and Streatham. The perpetrators were terrorist risk offenders or were on the authorities’ radar to a certain degree. The Opposition have repeated called for a review into lone actor terrorism and the need for a clearer strategy to tackle it.

It emerged in the spring that the Home Office had in fact conducted a review of that kind but through an internal unit, so few details are known about it. My hon. Friend the Member for St Helens North (Conor McGinn) pressed Ministers for more details about the review and for its key findings to be shared confidentially with us, but we have had no response. All along, we have said that we want to work with the Government to get these crucial matters right and to strengthen national security, which is our top priority. We can do that better if we have the right information and if there is full transparency by the Government about where the system needs to improve.

Overall, we welcome the provisions in clauses 157 to 162 that will insert four new sections into the Terrorism Act 2000, providing for new powers to manage terrorist offenders. We were pleased that the Government asked the Independent Reviewer of Terrorism Legislation, Jonathan Hall, QC, to review multi-agency public protection arrangements regarding the management of terrorist offenders and other offenders of terrorism concern. In the joint letter by the Justice Secretary and the Home Secretary to Jonathan Hall, QC, they wrote that

“officials consulted all operational agencies, including counter-terrorism, police and the National Probation Service, which confirmed how useful the new powers would be and in what circumstances they might be used.”

Labour welcomes this statement.

In the evidence sessions for the Bill Committee, Jonathan Hall, QC, made some important points, one about a specific safeguard, which I would like the Minister to respond to. Jonathan Hall, QC, said on the power in clause 159 to apply for a warrant to search the premises of a released offender, which he supports, that

“it would be possible to apply to a judge for a warrant that would allow you to enter on any number—potentially an infinite number—of occasions. If you think about released terrorist offenders on licence, their licences can last a very long time—for example, 10 or 15 years—so perhaps the Committee may want to think about whether it is appropriate to have a power that would authorise multiple entries into a person’s premises throughout 10 or 15 years. The power of multiple entry under warrant does exist when you are talking about a live operation, and the police find that quite useful. I am not quite sure whether it is justified in the context of this particular risk.”––[Official Report, Police, Crime, Sentencing and Courts Public Bill Committee, 18 May 2021; c. 51.]

Since this is our first chance to discuss small points of detail in the Bill, it would be helpful if the Minister could respond to the point that Jonathan Hall, QC, made.

Furthermore, on clause 158 Jonathan Hall, QC, had a question about the purpose of this search, in that the clause is drafted in a way that makes its scope wider than that of the Terrorism Prevention and Investigation Measures Act 2011. Can the Minister say what precisely is the purpose of the search, and can she respond to the point made by Jonathan Hall, QC, that it may be that the purpose of the search goes a bit wider than necessary?

Finally, Jonathan Hall, QC, said in March that the Government have not taken any steps in the Bill to address the fact that there is no proof that the desistance and disengagement programme for released terrorists is working. Can the Minister point us to anything in the Bill or elsewhere that addresses that point?

Draft Misuse of Drugs Act 1971 (Amendment) Order 2021

Sarah Jones Excerpts

Wednesday 16th June 2021 General Committees

[Sarah Jones (Croydon Central) (Lab)]

It is a pleasure to serve under your chairship, Dr Huq. I thank the Minister for his remarks. The Opposition support the proposals of this instrument, which brings three benzodiazepines—the compounds known as flualprazolam, flunitrazolam and norfludiazepam, under control as class C drugs under the Misuse of Drugs Act 1971. We are committed to working with the Government, the police and other public bodies to tackle drug misuse, strengthen controls on dangerous substances and widen the availability of treatments to prevent overdose deaths and get drug users clean. Clearly, where drugs cause harm, they must be classified and enforcement action must be taken.

On the three benzodiazepines covered by this order, the Advisory Council on the Misuse of Drugs provides some statistics, some of which the Minister highlighted, and background information. On flualprazolam, the report states:

“In the UK, several identifications of the compound have been reported from seizures and samples analysed by National Crime Agency…as well as anecdotal reports of use from clients in receipt of treatment from Postscript360, a Bristol-based charity”—

the Minister referred to it—

“providing treatment solutions and referral pathways for people with benzodiazepine dependence. This indicates significant availability of this compound in UK markets…As of March 2020, there have been 12 flualprazolam-associated deaths in the UK recorded by regional statistical agencies...In October 2019, an unknown number of deaths were reported in Stockton-on-Tees where flualprazolam was the only psychoactive substance present.”

The report goes on:

“Norfludiazepam has been notified in the UK from a police seizure of 14 pale-blue tablets in March 2017 and one sample analysis by TICTAC”,

which the Minister referred to,

“in December 2017. Small-scale seizures of a mixture of tablets and powders have also been”

identified in several other European countries. However, no deaths related to norfludiazepam have been reported in the UK as of March 2020.

On flunitrazolam, the report goes on,

“there is limited information about doses, effects, safety and tolerability available. However, based on its structural similarity to other triazolo-benzodiazepines, it is likely that the potency of flunitrazolam is greater than of the already highly potent flunitrazepam”,

which is Rohypnol.

“As of March 2020, no deaths or other harms associated with flunitrazolam have been reported in the UK. However, the specialist benzodiazepine charity, Postscript360, have reported that clients in receipt of treatment for benzodiazepine dependency had anecdotally reported either the use or purchase of flunitrazolam.”

Adding these drugs to the class C list is important, but it must come alongside a robust preventive approach to drugs misuse.

While the three benzodiazepines relevant to this SI are of no medicinal use, it is important to mention the issue of prescribed drug dependence in the UK, as general benzodiazepines are prescribed in the UK. The Advisory Council on the Misuse of Drugs 2020 report states:

“Prescribing of benzodiazepines by General Practitioners in the UK has been discouraged and has fallen progressively in recent years. Prescription items issued in primary care in England fell from 16.3 million in 2015-16 to 14.9 million in 2018-19”.

Despite the numbers falling, that is still a very large amount. The report says that

“deaths where a benzodiazepine was implicated have increased over the past decade across the UK...consistent with an increased role of illicitly manufactured benzodiazepines. There is evidence of this in Scotland”—

which the Minister referred to—

“where ‘street’ or unlicensed benzodiazepines were involved in 85% of the 792 deaths in 2018 where a benzodiazepine was implicated, while medicinal ‘prescribed’ benzodiazepines were reported in only 30%”.

It is important that the Government strengthen withdrawal services so that those with addictions to prescribed drugs can get the support they need to manage it. The Government’s explanatory note states:

“A full impact assessment has not been produced for this instrument as no, or no significant, impact on the private, voluntary or public sectors is foreseen.”

However, making these benzodiazepines controlled drugs should prompt the Government to consider the private, voluntary and public sectors, and to take preventive action to tackle the use of these drugs through advertising, educational campaigns about the dangers of drugs misuse, support for voluntary support services and investment in drug treatment services.

Since David Cameron’s Government took drug treatment services out of ring-fenced NHS funding, they are now a postcode lottery and have faced successive cuts by Government. A lack of proper drug treatment services risks driving up acquisitive crime and drug lines. The Government have introduced Project ADDER—addiction, diversion, disruption, enforcement and recovery—which we welcome, but this kind of investment is needed across the country, not just in five areas.

We welcome this statutory instrument, but I want to take this opportunity to remind the Minister of his Government’s record on tackling the problem of illegal drug use. Illegal drugs are a huge issue in this country, and the Government must do more to tackle the problem. A Home Office review concluded that drugs were

“a major driver of the national increases in serious violence over recent years”,

mainly as the crack and heroin markets were taken over by county lines gangs. Part 1 of Dame Carol Black's 2020 drugs review provided detailed analysis of the challenges around drug supply and demand, and noted:

“The illicit drugs market is big business, worth an estimated £9.4 billion a year. Around 3 million people took drugs in England and Wales last year, with around 300,000 in England taking the most harmful drugs (opiates and/or crack cocaine).

Drug deaths have reached an all-time high and the market has become much more violent”,

with the total costs of drugs to society estimated at

“over £19 billion, which is more than twice the value of the market itself.”

Most illegal drugs consumed in the UK

“are produced abroad. The supply of drugs has been shaped mostly by international forces, the activities of Organised Crime Groups and advances in technology.”

The report continues:

“The heroin and crack cocaine retail market has been overtaken by the county lines model, which is driving increased violence in the drugs market and the exploitation of young people and vulnerable drug users.”

The Government’s failure to dismantle organised criminal gangs and the supply of drugs has led to a rampant rise in illegal drug use. The National Crime Agency’s latest annual plan, for 2020-21, revealed that more than 3,000 deal lines were identified in 2019, of which 800 to 1,000 lines are estimated to be active during a given month. The Children’s Commissioner for England has estimated that 27,000 children are gang members, and modelling done by Crest identified 213,000 vulnerable children. The strongest and most dangerous drugs are becoming more accessible, and the drug networks are driving violence and child criminal exploitation.

The Government are failing to get a grip on the misuse of the most serious drugs, including class As. Class A drug use was on a downward trend between 1996 and 2011. Since then, class A drug use has increased every year, and the Home Office’s own research admitted that it was slow to notice rising levels of crack use beginning in 2013-14.

Despite drug use and violence increasing, the Government have drastically cut spending on treatment by underfunding local government budgets as well as central Government funding. The Government have not provided the necessary resources for drug treatment and recovery, which has meant that they have been unable to break the cycle of drug misuse and offending. In May this year, we passed the 50th anniversary of the Misuse of Drugs Act 1971. Research by the Transform Drug Policy Foundation has pointed out that when that Act was first introduced by Prime Minister Heath, there were under 100 drug-related deaths a year in England and Wales; now, there are 2,883. Our country is in the middle of a drugs crisis. Legislation that says, “Using or selling these harmful drugs is a criminal offence” is really important, but we must also have a health approach from this Government, so that people understand the risks and can get the help they need to deal with addiction problems.

We all know the terrible impact that drugs can have on individuals, families and communities. Increasing enforcement of drug misuse and stamping out the organised criminal drugs gangs that drive and profit from it is incredibly important, but it is only one part of the solution. The other must be drug treatment and preventive services to properly break the cycle of drug misuse.

[The Chair]

I imagine that the Minister will want to respond.

Daniel Morgan Independent Panel Report

Sarah Jones Excerpts

Tuesday 15th June 2021 Commons Chamber

[Priti Patel]

I respect and acknowledge the hon. Lady’s points. She is right to highlight timeframes, bearing in mind the painful period of time that the Morgan family have had to wait for the publication of this report. I can, at this stage, reiterate the comment that I made earlier, which is that I will come back to the House at the earliest opportunity with the information. That is absolutely right, and it is also important for the family that that information is shared with them, and that we learn the lessons associated with this independent report.

[Sarah Jones (Croydon Central) (Lab)]

Daniel Morgan junior, Daniel Morgan’s son, lives in my constituency. The Morgan family have been waiting 34 years since Daniel Morgan’s death to see any kind of justice. Will the Home Secretary acknowledge the criticism of the Home Office in this report? I have been in touch with the family since they have had a chance to look at the report following its publication, and they are looking to the Home Secretary to implement its the key findings, particularly on the statutory duty of candour. If the Home Secretary is unable to support that today, is she at least able to guarantee that she will come back before the summer recess with a response?

[Priti Patel]

I thank the hon. Lady for her question and her comments. I recognise that Daniel Morgan junior lives in her constituency and understand what a difficult time this is for the Morgan family.

First of all, there is criticism of the Home Office in this report, and it is important to acknowledge that, as the right hon. Member for Torfaen (Nick Thomas-Symonds) highlighted earlier. For the record, I was not privy to discussions that took place prior to publication between officials in the Home Office and the panel itself. My responsibility was very much to ensure the publication of this report and that, in doing so, my statutory duties were met.

Like many right hon. and hon. Members in the House, the hon. Lady asked me about the duty of candour. I state again that we will look at this across Government, because this is relevant not just to this particular inquiry but to future inquiries, for example on covid, and to how the state and the institutions of the state are held to account.

Oral Answers to Questions

Sarah Jones Excerpts

Monday 7th June 2021 Commons Chamber

[Kit Malthouse]

I know from conversations with my hon. Friend that he is a powerful supporter of the police, particularly in his own constituency, and he wants more of his constituents to meet more of the police officers who are being recruited into his local force at some rate of knots. While it is true that having the police officers will make a huge difference, so will giving them exactly the kind of tools that he has talked to me about in the past to do their job, as will the support of Members of Parliament such as him. Police officers out on the frontline doing an incredibly difficult and challenging job need to know that we stand with them in defending them and promoting them.

[Sarah Jones (Croydon Central) (Lab) [V]]

The latest figures from the National Police Chiefs Council show that on this Government’s watch, assaults on police officers have been rising since 2015 and there has been a 26% increase in assaults on emergency workers in the months leading to April 2021 compared with the same period in 2019. There have been 30,000 assaults on police officers in England and Wales in a year. I am glad that the Government have finally listened to calls from Labour to increase sentences for people who assault emergency workers, but why are they doing absolutely nothing to stop the assaults in the first place? If I was in government, I would commission Home Office research into exactly who is assaulting our officers and why, I would tackle single-crew patrols, and I would make sure that officers have the right kit to be protected. Will the Minister do the same?

[Kit Malthouse]

You will have to advise me, Mr Speaker, on whether it is in order for a Member to speak in support of something she voted against, but I welcome the hon. Lady’s belated support for the doubling of sentences for assaults on emergency workers, which was included in the Police, Crime, Sentencing and Courts Bill, against which the Opposition voted. She is right, though, to raise the issue, which has been of serious concern to us for some time, of the rise in assaults on emergency workers, and particularly on police officers. Sadly, during the pandemic we saw, in particular, the awful phenomenon of people coughing or spitting at police officers and claiming that they were infectious when they did so. Happily, we saw a number of significant sentences handed out for that particular offence and the courts dealt with them quickly. But there is always much more that we can do. Under the police covenant, which again the hon. Lady voted against, one of the key planks of the work that we will be doing is looking at safety, welfare and support for police officers.

Police, Crime, Sentencing and Courts Bill (Seventh sitting)

Sarah Jones Excerpts

Committee stage
Thursday 27th May 2021 Public Bill Committees

[The Chair]

With this it will be convenient to discuss clauses 24 to 35 stand part.

[Sarah Jones (Croydon Central) (Lab)]

It is a pleasure to be back here today. Before I get into the detail of the clauses, I want to put some questions to the Minister, to reflect on the importance of reviews when there have been homicides or unexplained deaths and to give an example.

I was reading the serious case review about Child Q, who was aged 16 when he died following a moped crash. One might think, “There’s a child who died following a moped crash. End of story.” but because he was a vulnerable adolescent there was a comprehensive serious case review into his life, his death and what happened.

At the time of his death, he was a looked-after child in children’s services and was living in the midlands with members of his extended family. On the day of the collision, he had been released on conditional bail from a remand court for breach of his court order. Family members and professionals had requested that he be made the subject of a curfew and tagging, but that, for whatever reason, was not put in place and he returned to London, where the fatal accident occurred.

He started his life as an aspirational boy and had wanted to be a professional footballer. His first conviction ended those aspirations and the motivation to play football. Throughout his life he lived with various family members and foster carers. He was often missing and was both a victim and a perpetrator of various offences. He was involved in high-risk behaviour and believed to be a gang member. When interventions were made, he appeared to understand that his life was very high risk, but seemed almost resigned to the inevitable risks that he was facing. During the latter stages of professional involvement, Child Q asked the professionals, “Where were you when I was six?”

This 16-year-old died because of a moped crash, but because of this review we can learn that bail conditions and tagging would have helped him to make the decision not to travel to London. We have learned that this child was in and out of care and often went missing, that interventions were not made and that the problems started very early. Although that could not in itself have prevented that death, there is a story behind that child that we can learn from.

[Sarah Champion (Rotherham) (Lab)]

My hon. Friend may not know that I used to run a children’s hospice. Child deaths are very rare, but a review such as this enables the family to have the closure that they need to move on, enables the lessons to be learned and enables the whole community to grieve and draw a line under something. Of course it is important to understand the failings that occurred so that they never happen again, but also in the broader context, conducting a review is a really important thing to do. In terms of costs and resources, these deaths are not that common; this does not happen that often, but when it does, it destroys a community, not to mention the family.

[Sarah Jones]

I thank my hon. Friend for that intervention. She speaks with great experience, and she is absolutely right: doing these reviews has wider benefits. Reading the review on Child Q and hearing the stories from the father, mother and family members about him, we can see, hopefully, some form of the beginnings of closure from the review. Therefore we are very much in favour of extending homicide reviews in the way provided for under the Bill. We have some amendments, but they come later, so I will not speak to them now.

To do the victims and their families and friends justice, we need to ensure that the lessons are learned. Part 2, chapter 2 of the Bill will require police, local authorities and clinical commissioning groups to conduct offensive weapon homicide reviews when an adult’s death involves the use of an offensive weapon. Police recorded 625 homicide offences in the year ending December 2020. Of all homicides recorded in the last year—the latest year that we have information for—37% were knife-enabled crimes. A large proportion of homicides involve offensive weapons. In the year ending March 2020, 275 homicides involved a sharp instrument, 49 involved a blunt instrument and 30 were homicides involving shooting. It is therefore absolutely right that the Government look to learn the lessons from those homicides not currently reviewed by multi-agency partners.

In my constituency, there have been incidents in which adults have been killed and an offensive weapon was involved. In one instance, there were incidents in the same area within weeks of each other. Those cases were not linked together, but actually, when people looked into the background and how those murders occurred, it turned out that they were linked.

It is therefore important that the pathways that lead people to be involved in homicides, whether as victims or perpetrators, can be understood and the knowledge can be shared. Offensive weapon homicide reviews will be similar to the domestic homicide reviews that already take place. Domestic homicide reviews are carried out when someone over the age of 16 dies as a result of domestic violence, abuse or neglect. The Government have committed to taking action to address homicide, but have not previously committed to introducing offensive weapon homicide reviews specifically.

Clause 23 will require an offensive weapon homicide review to be carried out when a qualifying homicide has taken place. A qualifying homicide occurs when an adult’s death or the circumstances or history of the person who has died meet conditions set by the Secretary of State in regulations. In accordance with clause 27, the purpose will be to identify lessons to learn from the death and to decide on actions to take in response to those lessons.

Clauses 24 to 35 do a number of things, including giving the Secretary of State the power to specify the relevant review partners in regulations and which of the listed public bodies will need to carry out the review in these circumstances, and to clarify when offensive weapon homicide reviews do not need to be carried out. Importantly, review partners must report on the outcome of their review to the Secretary of State. In addition, there are other key regulations about the obligations of offensive weapon homicide review partners.

Clause 33 is important, as it will require offensive weapon homicide reviews to be piloted before they are brought into force. The Secretary of State will be required to report to Parliament on the pilot. It is vital that offensive weapon homicide reviews are piloted before being rolled out nationally, but the provisions are fairly light on detail. It would be helpful if the Minister could provide any further information on the piloting. Can she clarify how many local authorities or police forces they will work with to pilot the reviews?

Standing Together, a domestic abuse charity, recently reviewed domestic homicide review processes in London boroughs. Its 2019 report identified several areas for improvement, including how domestic homicide reviews are stored and retrieved, how chairs are appointed, and how appropriate funding is secured. It also highlighted that not enough sharing of knowledge is happening.

We are glad that the pilot partners will report on these reviews before they are implemented, but could the Minister explain in a bit more detail what those reports will include? Will there be regular reporting and evaluation of these offensive weapons homicide reviews once they are implemented? Where there is an overlap, and a homicide fits into two different categories—for example, if there is a domestic homicide review and an offensive weapons homicide review—how will the lessons be learned? Will there be two reviews, or just one? I am also keen to hear how the lessons from all existing homicide reviews can be better understood and shared between partners to ultimately make our streets safer and save lives.

The Secretary of State is given the power to make regulations on offensive weapons homicide reviews, to provide information on how to identify which local services are relevant to the review and how local services can negotiate who carries out the review when the circumstances are not clear. This is defined in regulatory powers, not on the face of the Bill; perhaps the Minister could explain why, and also explain what her expected timeframe is for these powers. If the duty to conduct these reviews will not be carried out until the criteria are defined in regulation, will there be a delay? What period of time is the Minister expecting that to be—because those regulations will need to go through Parliament—and what will happen after the regulations are published? Can she provide any data on how many more homicide reviews this change will actually bring; what expected number of reviews will need to be undertaken? Finally, what are the plans for budgets to cover local safeguarding partners’ costs for the delivery of these reviews? That question was raised in evidence from the Local Government Association, so will the Home Office be submitting a case to increase the funding for local authorities? If not, how does it envisage that these reviews will be funded? I will leave it there.

[The Parliamentary Under-Secretary of State for the Home Department (Victoria Atkins)]

It continues to be a pleasure to serve under your chairmanship, Mr McCabe. I am very grateful to the hon. Member for Croydon Central for setting out some of the background to these clauses. Through the clauses relating to offensive weapons homicide reviews, we want to tackle the growing proportion of homicides that involve offensive weapons, for all the reasons that one can imagine: for communities, and for the families affected. As the hon. Lady has set out, there is at the moment no legal requirement to review such homicides unless they are already subject to review: if, for example, the victim is a child or a vulnerable adult, or the homicide has happened in a domestic setting. As such, we want to introduce these offensive weapons homicide reviews to ensure that local agencies consider the circumstances of both victims and perpetrators, and identify lessons from these homicides that could help prevent future deaths.

Taking a step back and looking at the Bill as a whole, this work will form part of the local authorities’ work on the serious violence duties. I hope there will be much cross-learning between those duties and the homicide reviews that may occur in local areas, as part of a joined-up approach to tackling such homicides. All persons, bodies and organisations with information relevant to the decision to conduct a review or to identifying lessons, such as schools and probation services, will be legally required to provide information deemed relevant to the review.

The hon. Member for Croydon Central has understandably asked where these reviews fit in with existing homicide reviews: child death and adult safeguarding reviews in England, and their equivalents in Wales, as well as domestic homicide reviews. To avoid duplication of work, the Bill provides that these new offensive weapons homicide reviews will be required only where there is not an existing statutory requirement to review the homicide, which I hope answers her question.

--- Later in debate ---

[Victoria Atkins]

I am very pleased to confirm that the Home Office will provide funding for the relevant review partners to cover the costs of the reviews during the pilot stage, and will meet the cost of the Home Office homicide oversight board. If the policy is rolled out nationally, funding arrangements will be confirmed after the pilot, but in that initial period that is certainly the approach.

I am trying to see whether I have further details about the pilots that I can assist the Committee with. Clause 33 requires that a pilot of the reviews takes place for one or more purpose, or in at least one area. We intend to pilot reviews in at least three areas and are currently in discussions to enable that to happen. We will announce the pilot areas in due course. We want to pilot the reviews in areas that have high levels of homicide and in areas that have low levels, and that represent regions in both England and Wales.

We will also specify in regulations the length of time that the pilot will last. We currently intend to run the pilot for 18 months to ensure that the review process can be tested properly in each of the pilot areas, but clause 23 allows us to extend the length of the pilot for a further period, which may be useful if further test cases are needed. Our approach is to ensure that the pilot provides us with the greatest insight and information as to how the reviews would work if we roll them out across the whole of England and Wales. In the interests of transparency, clause 33 also requires the Secretary of State to lay before Parliament a report on the operation of the pilot before the reviews can come fully into force across England and Wales.

Question put and agreed to.

Clause 23 accordingly ordered to stand part of the Bill.

Clauses 24 to 35 ordered to stand part of the Bill.

Clause 36

Extraction of information from electronic devices: investigations of crime etc

[Sarah Jones]

I beg to move amendment 94, in clause 36, page 29, line 5, at end insert—

“(c) the user who has given agreement under subsection (1)(b) was offered free independent legal advice on issues relating to their human rights before that agreement was given.”

This amendment would ensure that users of electronic devices were offered free independent legal advice before information on their device could be accessed.

[The Chair]

With this it will be convenient to discuss the following:

Clause 36 stand part.

Government amendment 63.

Clauses 37 to 42 stand part.

Amendment 115, in schedule 3, page 198, line 29, leave out

“A person appointed as an immigration officer under paragraph 1 of Schedule 2 to the Immigration Act 1971.”

This amendment would remove immigration officers from the list of authorised persons who may carry out a digital extraction.

That schedule 3 be the Third schedule to the Bill.

New clause 49—Extraction of information from electronic devices—

“(1) Subject to Conditions A to D below, insofar as applicable, an authorised person may extract information stored on an electronic device from that device if—

(a) a user of the device has voluntarily provided the device to an authorised person, and

(b) that user has agreed to the extraction of specified information from the device by an authorised person.

(2) Condition A for the exercise of the power in subsection (1) is that it may be exercised only for the purposes of—

(a) preventing, detecting, investigating or prosecuting an offence,

(b) helping to locate a missing person, or

(c) protecting a child or an at-risk adult from neglect or physical, mental or emotional harm.

(3) For the purposes of subsection (2) an adult is an at-risk adult if the authorised person reasonably believes that the adult—

(a) is experiencing, or at risk of, neglect or physical, mental or emotional harm, and

(b) is unable to protect themselves against the neglect or harm or the risk of it.

(4) Condition B for the exercise of the power in subsection (1) is that the power may only be exercised if—

(a) the authorised person reasonably believes that information stored on the electronic device is relevant to a purpose within subsection (2) for which the authorised person may exercise the power, and

(b) the authorised person is satisfied that exercise of the power is strictly necessary and proportionate to achieve that purpose.

(5) For the purposes of subsection (4)(a), information is relevant for the purposes within subsection (2)(a) in circumstances where the information is relevant to a reasonable line of enquiry.

(6) Condition C as set out in subsection (7) applies if the authorised person thinks that, in exercising the power, there is a risk of obtaining information other than information necessary for a purpose within subsection (2) for which the authorised person may exercise the power.

(7) Condition C is that the authorised person must, to be satisfied that the exercise of the power in the circumstances set out in subsection (6) is strictly necessary and proportionate, be satisfied that there are no other less intrusive means available of obtaining the information sought by the authorised person which avoid that risk.

(8) Condition D is that an authorised person must have regard to the code of practice for the time being in force under section [Code of practice] in accordance with section [Effect of code of practice] below.

(9) This section does not affect any power relating to the extraction or production of information, or any power to seize any item or obtain any information, conferred by or under an enactment.

(10) In this section and section [Application of section [Extraction of information from electronic devices] to children and adults without capacity]—

‘adult’ means a person aged 18 or over;

‘authorised person’ means a person specified in subsection (1) of section [Application of section [Extraction of information from electronic devices] to children and adults without capacity] (subject to subsection (2) of that section);

‘child’ means a person aged under 18;

‘agreement’ means that the user has confirmed explicitly and unambiguously in writing that they agree—

(a) to provide their device, and

(b) to the extraction of specified data from that device.

Such an explicit written confirmation can only constitute agreement for these purposes if, in accordance with the Code of Practice issued pursuant to section [Effect of code of practice], the user—

(a) has been provided with appropriate information and guidance about why the extraction is considered strictly necessary (including, where relevant, the identification of the reasonable line of enquiring relied upon);

(b) has been provided with appropriate information as to (a) how the data will or will not be used in accordance with the authorized person’s legal obligations and (b) any potential consequences arising from their decision;

(c) has confirmed their agreement in the absence of any inappropriate pressure or coercion;

‘electronic device’ means any device on which information is capable of being stored electronically and includes any component of such a device;

‘enactment’ includes—

(a) an Act of the Scottish Parliament,

(b) an Act or Measure of Senedd Cymru, and

(c) Northern Ireland legislation;

‘information’ includes moving or still images and sounds;

‘offence’ means an offence under the law of any part of the United Kingdom;

‘user, in relation to an electronic device, means a person who ordinarily uses the device.

(11) References in this section and sections [Application of section [Extraction of information from electronic devices] to children and adults without capacity] to the extraction of information include its reproduction in any form.

(12) This section is subject to sections [Application of section [Extraction of information from electronic devices] to children and adults without capacity] and [Application of section [Extraction of information from electronic devices] where user has died etc].”

New clause 50—Application of section [Extraction of information from electronic devices] to children and adults without capacity—

“(1) A child is not to be treated for the purposes of subsection (1) of section [Extraction of information from electronic devices] as being capable of—

(a) voluntarily providing an electronic device to an authorised person for those purposes, or

(b) agreeing for those purposes to the extraction of information from the device by an authorised person.

(2) If a child is a user of an electronic device, a person who is not a user of the device but is listed in subsection (3) may—

(a) voluntarily provide the device to an authorised person for the purposes of subsection (1) of section [Extraction of information from electronic devices], and

(b) agreement for those purposes to the extraction of information from the device by an authorised person.

(3) The persons mentioned in subsection (2) are—

(a) the child’s parent or guardian or, if the child is in the care of a relevant authority or voluntary organisation, a person representing that authority or organisation,

(b) a registered social worker, or

(c) if no person falling within paragraph (a) or (b) is available, any responsible person aged 18 or over other than an authorised person.

(4) The agreement of persons listed in subsection (3) further to subsection 2(b) should only be accepted where, if it is appropriate, the child has been consulted on whether such agreement should be provided and the authorised person is satisfied those views have been taken into account.

(5) An adult without capacity is not to be treated for the purposes of section [Extraction of information from electronic devices] as being capable of—

(a) voluntarily providing an electronic device to an authorised person for those purposes, or

(b) agreeing for those purposes to the extraction of information from the device by an authorised person.

(6) If a user of an electronic device is an adult without capacity, a person who is not a user of the device but is listed in subsection (7) may—

(a) voluntarily provide the device to an authorised person for the purposes of subsection (1) of section [Extraction of information from electronic devices], and

(b) agreement for those purposes to the extraction of information from the device by an authorised person.

(7) The persons mentioned in subsection (6) are—

(a) a parent or guardian of the adult without capacity,

(b) a registered social worker,

(c) a person who has a power of attorney in relation to the adult without capacity, or

(d) if no person falling within paragraph (a), (b) or (c) is available, any responsible person aged 18 other than an authorised person.

(8) The agreement of persons listed in subsection (7) further to subsection (6)(b) should only be accepted where, if it is appropriate, the adult without capacity has been consulted on whether such agreement should be provided and the authorised person is satisfied those views have been taken into account.

(9) Nothing in this section prevents any other user of an electronic device who is not a child or an adult without capacity from—

(a) voluntarily providing the device to an authorised person for the purposes of subsection (1) of section [Extraction of information from electronic devices], or

(b) agreeing for those purposes to the extraction of information from the device by an authorised person.

(10) In this section and section and [Application of section [Extraction of information from electronic devices] where user has died etc]—

‘adult without capacity’ means an adult who, by reason of any impairment of their physical or mental condition, is incapable of making decisions for the purposes of subsection (1) of section [Extraction of information from electronic devices];

‘local authority’—

(a) in relation to England, means a county council, a district council for an area for which there is no county council, a London borough council or the Common Council of the City of London,

(b) in relation to Wales, means a county council or a county borough council, and

(c) in relation to Scotland, means a council constituted under section 2 of the Local Government etc (Scotland) Act 1994;

‘registered social worker’ means a person registered as a social worker in a register maintained by—

(a) Social Work England,

(b) the Care Council for Wales,

(c) the Scottish Social Services Council, or

(d) the Northern Ireland Social Care Council;

‘relevant authority’—

(a) in relation to England and Wales and Scotland, means a local authority;

(b) in relation to Northern Ireland, means an authority within the meaning of the Children (Northern Ireland) Order 1995 (S.I. 1995/755 (N.I. 2));

‘voluntary organisation’—

(a) in relation to England and Wales and Scotland, has the same meaning as in the Children Act 1989;

(b) in relation to Northern Ireland, has the same meaning as in the Children (Northern Ireland) Order 1995.

(11) Subsections (10) and (11) of section [Extraction of information from electronic devices] also contain definitions for the purposes of this section.”

New clause 51—Application of section [Extraction of information from electronic devices] where user has died etc—

“(1) If any of conditions A to C is met, an authorised person may exercise the power in subsection (1) of section [Extraction of information from electronic devices] to extract information stored on an electronic device from that device even though—

(a) the device has not been voluntarily provided to an authorised person by a user of the device, or

(b) no user of the device has agreed to the extraction of information from the device by an authorised person.

(2) Condition A is that—

(a) a person who was a user of the electronic device has died, and

(b) the person was a user of the device immediately before their death.

(3) Condition B is that—

(a) a user of the electronic device is a child or an adult without capacity, and

(b) an authorised person reasonably believes that the user’s life is at risk or there is a risk of serious harm to the user.

(4) Condition C is that—

(a) a person who was a user of the electronic device is missing,

(b) the person was a user of the device immediately before they went missing, and

(c) an authorised person reasonably believes that the person’s life is at risk or there is a risk of serious harm to the person.

(5) The exercise of the power in subsection (1) of section [Extraction of information from electronic devices] by virtue of this section is subject to subsections (2) to (8) of that section.

(6) Subsections (10) and (11) of section [Extraction of information from electronic devices] and subsection (9) of section [Application of section [Extraction of information from electronic devices] to children and adults without capacity] contain definitions for the purposes of this section.”

New clause 52—Code of practice—

“(1) The Secretary of State must prepare a code of practice containing guidance about the exercise of the power in subsection (1) of section [Extraction of information from electronic devices].

(2) In preparing the code, the Secretary of State must consult—

(a) the Information Commissioner,

(b) the Scottish Ministers,

(c) the Welsh Government,

(d) the Department of Justice in Northern Ireland,

(e) the Victims Commissioner,

(f) the Domestic Abuse Commissioner,

(g) any regional Victims Champion including the London Victims Commissioner,

(h) persons who appear to the Secretary of State to represent the interests of victims, witnesses and other individuals likely to be affected by the use of the power granted in subsection (1) of section [Extraction of information from electronic devices], and

(i) such other persons as the Secretary of State considers appropriate.

(3) After preparing the code, the Secretary of State must lay it before Parliament and publish it.

(4) The code is to be brought into force by regulations made by statutory instrument.

(5) The code must address, amongst other matters—

(a) the procedure by which an authorised person must obtain and record confirmation that a device has been provided voluntarily;

(b) the procedure by which an authorised person must obtain and record confirmation that agreement has been provided for the extraction of specified information, including the information which must be provided to the user about—

(i) how long the device will be retained;

(ii) what specific information is to be extracted from the device and why, including the identification of the reasonable line of enquiry to be pursued and the scope of information which will be extracted, reviewed and/or retained;

(iii) how the extracted information will be kept secure;

(iv) how the extracted information will or may be used in a criminal process;

(v) how they can be kept informed about who their information is to be shared with and the use of their information in the criminal process;

(vi) their right to refuse to agree to provide their device and/or to the proposed extraction in whole or in part and the potential consequences of that refusal; and

(vii) the circumstances in which a further extraction may be required, and what will happen to the information after the case has been considered;

(c) the different types of extraction processes available, and the parameters which should be considered in defining the scope of any proposed extraction from a user’s device;

(d) the circumstances in which the extraction of information should and should not be considered strictly necessary and proportionate;

(e) the considerations to be taken into account in determining whether there are less intrusive alternatives available to extraction for the purposes of subsection (7) of section [Extraction of information from electronic devices];

(f) the process by which the authorised person should identify and delete data which is not responsive to a reasonable line of enquiry and/or has been assessed as not relevant to the purposes for which the extraction was conducted; and

(g) the records which must be maintained documenting for each extraction or proposed extraction, including—

(i) the specific information to be extracted;

(ii) the reasonable lines of enquiry pursued;

(iii) the basis upon which the extraction is considered strictly necessary, including any alternatives considered and why they were not pursued;

(iv) confirmation that appropriate information was provided to the user and, if applicable, agreement obtained;

(v) the reasons why the user was not willing to agree to a proposed extraction.

(6) A statutory instrument containing regulations under subsection (4) is subject to annulment in pursuance of a resolution of either House of Parliament.

(7) After the code has come into force the Secretary of State may from time to time revise it.

(8) References in subsections (2) to (7) to the code include a revised code.”

New clause 53—Effect of code of practice—

“(1) An authorised person must in the exercise of the power granted under section [Extraction of information from electronic devices] have regard to the code of practice issued under section [Code of practice] in deciding whether to exercise, or in the exercise of that power.

(2) A failure on the part of any person to comply with any provision of a code of practice for the time being in force under section [Code of practice] shall not of itself render him liable to any criminal or civil proceedings.

(3) A code of practice in force at any time under section [Code of practice] shall be admissible in evidence in any criminal or civil proceedings.

(4) In all criminal and civil proceedings any code in force under section [Code of practice] shall be admissible in evidence; and if any provision of the code appears to the court or tribunal conducting the proceedings to be relevant to any question arising in the proceedings it shall be taken into account in determining that question.”

--- Later in debate ---

[Sarah Jones]

As more and more crimes take place online or are enabled through digital devices and the internet, the extraction of information from electronic devices has increasingly become a routine part of criminal investigations, but the way in which such information can be made available to law enforcement, prosecutors and the defence has rightly received a great deal of attention and scrutiny in recent years, particularly in rape cases. It has become the norm for rape complainants to be asked to hand over digital devices and for most or all of the material to be checked through in detail. The Victims’ Commissioner said in her excellent evidence to the Committee last week that, through her recent survey of rape complainants and her network of stakeholders, she had heard that

“the CPS frequently seeks a level of material straight away, before it charges, and if a complainant refuses, the case just does not get considered for charge. That is very, very troubling, and it has a chilling effect not only on current victims, but on reporting, and it could impact victim attrition.”––[Official Report, Police, Crime, Sentencing and Courts Public Bill Committee, 20 May 2021; c. 110, Q174.]

I will give some examples that have come to light and that reflect many people’s experience. These are the words of Courtney:

“After a two-and-a-half-year investigation into my sexual assault case, which had witnesses and a potential second victim, the police told me the CPS was going to drop my case if I didn’t give them a download of my phone. When I asked them what was the reasonable line of inquiry, they told me that I could be lying. There could be something that discredits me on there. I could be hiding something. And to me, that’s not reasonable. I was asked why I was concerned, but actually it’s totally rational to fear giving your phone over to the police. I think most people would not want to give the contents of their phone to their mother”—

I certainly would not—

“let alone the government or the person who attacked them who may, because of rules around disclosure, get access to it. When I refused my case was immediately dropped.

The CPS turned its back on me and treated me as a suspect—they made it so clear that I was alone and I was powerless. That anyone can rape me with impunity unless I submit to the court’s illegal demands.

And it became clear to me that I needed to work to change that, because it can’t go on. I had my power taken away from me from the assault, I had my power taken away from me from the criminal justice system. I was left in a really bad place. There were times, you know, I didn’t want to be here anymore. But taking up this case, working with the Centre for Women’s Justice, it’s been so important for my mental wellbeing. I feel like, for the first time in a while, I’m coming to terms with everything that happened to me.”

A woman who was raped by a stranger in London told The Independent newspaper that she dropped her case after the police demanded access to her mobile phone. She said:

“It made me very angry, it made me feel like I was the one on trial and they were trying to seek out ways it was my fault.”

She added that she was concerned that evidence of past one-night stands could be used against her in court. Another woman who faced the same demand after the Metropolitan police had identified her attacker using DNA told that paper that the investigation felt like “one intrusion after another”. She said:

“I’m not actually sure I would have gone ahead with the case if I’d known what was part of the process.”

In another case, the CPS demanded to search the phone of a 12-year-old rape victim despite the fact that the perpetrator had admitted the crime. The case was delayed for months as a result. Finally, a different woman reported being drugged and then attacked by a group of strangers, but the case was dropped after she refused to hand over seven years of phone data.

Analysis of a rape crisis administrative dataset conducted by the office of the Victims’ Commissioner showed that one in five victims withdrew complaints at least in part because of disclosure and privacy concerns. Victims in 21% of cases had concerns about digital downloads, about disclosing GP, hospital, school and employment records, and about a combination of negative press coverage. Home Office data also shows an increase in pre-charge withdrawal of rape complaints. In the year ending December 2020, 42.8% of rape offences were closed as part of what is called the “evidential difficulties” category—where the victim did not support further police action against a suspect—compared with 25.6% in 2015. As we know, the charge rate for sexual offences is just 3.6%, and for rape it is 1.6%.

Such stark figures will not help with the concerns of many senior police chiefs that there has been a fall in public and victim confidence in the police in relation to rape cases, in particular. The issue of digital data extraction plays a big role in that, which is why we have tabled amendments. I am sure the Minister will say that clause 36 is required to tidy up the law so that it is clear about what the police can and cannot do, but with our amendments we are seeking to define and improve the rights of victims so that it is clearer to them when data should and should not be extracted.

Amendment 94 would ensure that users of electronic devices are offered free, independent legal advice before information on their device could be accessed, and it was recommended by the Victims’ Commissioner. It is vital that victims understand their rights so that they can make an informed decision on whether to agree to handing over their device for digital download.

[Sarah Champion]

I can only speak from my constituency experience, but many women have come to me having gone to report offences against them in childhood or rape offences against them. They are not in a position to give consent; they are not even in a position to understand what is going on—they are in a highly traumatised state. Walking into a police station is a very shocking thing. They go up to the front desk, get a meeting—one hopes—with an officer, and they are then told to hand over their phones or the police cannot proceed. Will my hon. Friend comment on that inherent power imbalance and the vulnerability of people in that situation—they were all women in those cases—who are expected to make an informed choice?

[Sarah Jones]

My hon. Friend makes an excellent point about that power imbalance. I have not been in that situation myself, but I can only imagine the bravery that it would take for someone just to take those first steps into a police station and recount what has happened to them, given how awful that would make them feel, let alone potentially handing over everything on their phones.

We were all watching Dominic Cummings yesterday—well, some of us were. [Interruption.] Whatever we think of him, right or wrong, he commented, “Well, I would not just hand my phone over so you could look, just to fish to see if there was anything on it that you thought might be relevant.” It is the same situation here. If people have past sexual history, which most people have, the idea that that would be used against someone in that vulnerable position—

[Maria Eagle]

My hon. Friend referred to a fishing expedition. Generally speaking in the criminal law, fishing expeditions are not encouraged, and court rules generally seek to discourage them and to prevent information gathered in that way from being used at trial. Is this any different?

[Sarah Jones]

That is completely right and why we think that having some advice would help in both directions. It would help be clear about when a phone should or should not be handed over, but it would also hopefully help give people confidence when handing it over is the right thing to do, because it is reasonable and proportionate for the police to ask for it, for whatever reason they have given. We hope that that legal advice and support at that stage would help stop anything from being just a fishing expedition, while also giving people confidence to hand over their phones when that is the appropriate thing to do.

I am grateful to the Home Office for funding a pilot of independent legal advice for rape complainants dealing with digital download in Northumbria. The Sexual Violence Complainants’ Advocate scheme pilot engaged local solicitors to provide legal advice and support to rape complainants in Northumbria, related to the complainants’ article 8 rights to privacy. The pilot demonstrated what was happening in practice and found that about 50% of requests were not strictly necessary or proportionate. Some police officers who participated in the scheme expressed concern about this culture. One said:

“I could talk all day about third-party material, and it is the real bone of contention. It’s one of the things that has given me sleepless nights over the years.”

They go on:

“I had a rape team investigator say to me on one occasion, or a former rape team investigator, say to me, ‘I had to like leave the rape team because of what I was asked to do, in relation to victims, I couldn’t do it’. And I think, you know, that, for me just spoke volumes. And lots of people were expressing their concerns, including me, but when that officer said that to me, I kind of thought, d’you know what, there’s something sadly wrong here.”

Another contributor said:

“I would love to see a document where somebody who has looked at third-party material has actually considered the Article 8 rights of the victim. ’Cos I don’t think you’ll find that anywhere.”

Furthermore, another said:

“In terms of the 3rd party material: I have obtained as much as I need from her phone. I have just received her Local Authority Records from [Council] and I am awaiting her medical records and school records. Once I have reviewed this material, I will be able to go to the CPS for a decision. Unfortunately, as you are no doubt aware, the CPS will not entertain any files for charging decision unless this material is reviewed without exception regardless of the circumstances.”

[Sarah Champion]

I think we all—well, most of us—got a fantastic briefing from Big Brother Watch, Amnesty, End Violence Against Women and so on. Within that, they refer to these things as digital strip searches, which tend to be carried out more often on women than men.

Perhaps I can read something out and ask for my hon. Friend’s opinion:

“The scale and depth of the police’s mobile phone searches are incomparable with the police’s legislative powers to carry out physical searches.”

An average phone

“would amount to police searching someone’s property and taking copies of all photographs, documents, letters, films, albums, books and files.”

Furthermore, some

“phones can contain over 200,000 messages and over 100,000 photos”,

and the information

“can run to many thousands of pages. An average individual’s mobile phone can contain the equivalent of 35,000 A4 pages of data.”

Will my hon. Friend, and indeed the Minister when she speaks, comment, first, on the relevance of that; secondly, on why, digitally, police have so much further reach, without the necessary applications to court in place; and, thirdly, on the impact—my hon. Friend rightly mentioned this—that that is having on court and CPS time, and the costs associated with it, in an already highly clogged-up court system?

[Sarah Jones]

My hon. Friend has made a series of correct points. Across the board, in the digital and the online worlds, when it comes to laws, we are behind what is happening in the real world. A significant number of changes need to be looked at to come up to date with what is already happening. We would argue that this is one of those examples.

As well as impacting victim attrition, this issue is a factor in deciding whether to even report a rape or a crime in the first place. The Victims’ Commissioner survey of rape complainants showed that, for some, scrutiny of their personal lives—including their digital lives—was a consideration in their decision not to report. For those who did report, the experience was felt to be “invasive” and “traumatic”, with many feeling that the process was not properly explained. The survey stated:

“Just 33% agreed that the police clearly explained why any request to access mobile phone and other personal data were necessary and 22% that they explained how they would ensure that data would only be accessed if relevant and necessary. Requests for these data were often considered invasive and intrusive, and survivors had serious concerns about this.”

A female is quoted as saying:

“I was also reluctant to do so because I felt my [F]acebook data and mobile phone information would not have supported my account as I had been friendly with the perpetrator before the incident.”

Another said:

“I was happy to provide my mobile phone for them to download all the vile messages that supported my assaults. The police said they would download all messages between me and my ex-husband but they actually downloaded all of my phone every message…and all my privacy was gone.”

Many respondents felt that they had no choice but to hand over devices for scrutiny, and that raises issues around what is meant by “voluntary” in the context of a police power. Arguably, it confirms the need for safeguards in legislation, which speaks to what my hon. Friend the Member for Rotherham said about the power balance and what “voluntary” means. The Victims’ Commissioner said:

“Many survivors said they wanted to help with the investigation and achieve a positive outcome. Some did not believe that they could refuse such requests, that they did not have anything to hide, or thought the request was simply part of normal investigation procedures. However, most survivors had concerns around the disclosure of personal data and access to records.”

A 2020 report by the Information Commissioner on mobile phone data extraction outlined that the way in which police were operating did not comply in a number of respects with data protection legislation, and argued that the gateway of consent that police had been reliant on was not open to them for a number of reasons. They could rely on “strict necessity” for law enforcement purposes, but that comes with a number of prior conditions that must also be met. The report also outlined concerns about the realities of such downloading and how it impacts on other’s rights to privacy, such as family and friends, whose sensitive data may also be contained on the complainant’s mobile, but from whom consent is never sought.

A great deal of work has been done at policy level to address some of the issues, but none of the work to date has sought to alter police powers to obtain and scrutinise a digital device. Existing case law legislation and guidance make it clear that agreement to digital extraction can be sought only if the officer believes that relevant material can be extracted from a phone for criminal investigations—that means that it is relevant to a reasonable line of inquiry.

[Sarah Champion]

My hon. Friend would be making an incredibly powerful argument if she was making it on behalf of the criminals, but she is actually making it on behalf of the victims of crime. Surely, this level of invasive behaviour as regards their most private and personal things, after they have been the victim of a crime, is truly shocking.

[Sarah Jones]

I completely agree. The issue of people having things on their phone that relate to their family or friends, which they feel it would be terrible for others to see, has not been thought through.

In the Bater-James Court of Appeal judgment, the judges were clear that there should not be speculative searches, and that there must be specificity based on a reasonable line of inquiry. The information should be extracted only in so far as it is strictly necessary and proportionate to the investigation, and the officer must be satisfied that there are no other, less intrusive means available to them of pursuing that line of inquiry. It is vital that the police can rely on “strict necessity” for law enforcement purposes from the perspective of data protection, but it is also vital that the victims agree to the download, meaning that they fully understand what is being sought, and that the agreement is freely given.

In an evidence session last week, we heard from Martin Hewitt of the National Police Chiefs’ Council that there is an ever-increasing

“volume of digital evidence that is required for almost every investigation.”

He said:

“That has created real pressure on the time limits of investigations and our ability to gather the evidence that we need to take an investigation forward. We have increased the capability. It is partly about equipment and having the right equipment to be able to extract digital evidence. It is also about having officers and staff who have the right capabilities to assess that evidence and produce it in an evidential form…However, the flip side and the really important point is making sure that what is being done is lawful, proportionate and necessary. Again, that side of the work is equally important…So we need the legal framework to allow us to do that properly and we then also need the resourcing and the capabilities to do it within the right time limits.”––[Official Report, Police, Crime, Sentencing and Courts Public Bill Committee, 18 May 2021; c.16, Q21.]

[Alex Cunningham (Stockton North) (Lab)]

My hon. Friend is making a very clear argument. She will recollect clause 36(10), which relates to the age of an adult. It suggests that in the context of extraction for information, an “adult” is someone who is 16 years old. Is it not all the more important that we have legal protections for children, if the Government insist that they are adults at the age of 16?

[Sarah Jones]

My hon. Friend makes a very good point, which was raised last week, and which I know the Minister has clocked. We have an amendment to shift the age from 16 to 18, but my hon. Friend is absolutely right to say that if the age remains that low, we need to make even more sure that we protect victims.

Police forces carry out digital data extraction from victims’ phones in kiosks. In the police forces that have kiosks—not all of them do—the police often have to queue and wait to download their information. Martin Hewitt’s point about time limits is crucial; the police clearly do not have the right equipment for the new power to be used in the way that the law says it should be used. The police do not have the technology to draw out specific information from people’s phones, and the risk of incriminating family or friends can prevent cases from going ahead. I know that the guidance from the College of Policing says that police must immediately delete all data that are not relevant, but there is a big problem, in that so many cases brought to them do not go ahead. Will the Minister provide assurances as to how the Government will provide the police with the resources and capacity that they need to enforce what they need to do with digital extraction?

In the evidence sessions, we also heard from Dame Vera Baird that

“The police have now done a lot of work to try to shift policy backwards, and this new power—which has no obvious nod, even, in the direction of the protection of complainants—came out of the blue from a different Department of the Home Office, and has absolutely none of the protections that, in policy terms, the police have been looking towards for quite some time.”––[Official Report, Police, Crime, Sentencing and Courts Public Bill Committee, 20 May 2021; c.111, Q174.]

New clauses 49 to 53, on the power to extract data from electronic devices, would protect the rights of complainants under article 8 of the European convention on human rights, particularly in sexual assault and rape cases. They would more clearly define that “agreement” in the legislation means informed and freely given agreement, to avoid abuse of this power. The new clauses would ensure that alternatives were considered before a request was made to a victim, and that only specified persons could agree and provide a device on behalf of children, who must be consulted before a decision is made. The same would apply to adults without capacity. The new clauses would oblige the code of practice to address a number of points about exercising the power, in order to better protect the rights and experience of victims.

I will run through the issues that we are seeking to correct through the new clauses. The first is that there is no definition of “agreement” in the legislation. As we have said, police all too often seek the agreement of complainants of sexual violence in circumstances where they are not fully informed—sometimes they are being coerced—so it is really important that the primary legislation defines “agreement”, which means agreement that is informed and freely given. Linked to agreement is the need for the police to be specific about what data they are seeking. Only if the police are specific can the data owner give informed agreement to extraction.

The second issue is that a reasonable line of inquiry is not clearly defined in the legislation. It nods to that by using the word “relevant”, but material sought from a suspect or complainant for the purposes of investigating and prosecuting crime will be relevant only inasmuch as it is part of a reasonable line of inquiry. It is vital that that be clearly defined in the legislation. Without a clear definition, the legal hoop for police is merely reasonable belief and relevance. This risks further embedding a culture of wholescale downloads and intrusion into privacy.

[Sarah Champion]

My hon. Friend talks about the being able to access the device only if there is a reasonable line of inquiry. Should the police or investigating body also look to follow that reasonable line of inquiry through other methods, rather than automatically making a call on that digital device?

[Sarah Jones]

My hon. Friend is absolutely right: other means of investigating should be pursued before there is that intrusion of taking people’s phones. The Victims’ Commissioner has recommended that guidance be issued mandating that a record be made of the decision-making process of the authorised person in identifying a reasonable line of inquiry, so that it can be scrutinised at a later date.

The next problem is that clause 36(5)(b) states that an authorised person using the power should be

“satisfied that exercise of the power is necessary and proportionate to achieve that purpose.”

The Victims’ Commissioner advises that the test should be that the authorised person is satisfied that exercise of the power is strictly necessary and proportionate to achieve that purpose, and we have incorporated that language into our new clauses. Statute and case law insist on strict necessity as the only appropriate test in circumstances where sensitive data—such as health data, sexuality data, or information about others—will be processed. A complainant’s phone will nearly always contain such information, and as such will automatically require sensitive processing. In their clauses, the Government have removed “strictly” from the test, creating a far lower threshold than the one that the Data Protection Act 2018 intended for processing this type of material, and meaning that victims’ article 8 rights are less protected.

The next problem is that the phrase “reasonably practicable” in clause 36(7)(b) is incompatible with the data protection legislation, and there are concerns that this gives police a means of easily dismissing other options. The term

“strictly necessary for the law enforcement purpose”

under the Data Protection Act places a higher threshold on processing based on this condition. As my hon. Friend the Member for Rotherham said, controllers need to demonstrate that they have considered other, less intrusive means, and have found that they do not meet the objective of the processing. The test does not ensure that. Under the clauses, police could decide, having considered alternative means, that it is not practical to get the information via those means. The risk for rape victims is that, both culturally and due to operational constraints, the most practical or easiest path to obtaining the information sought will nearly always be the victim’s phone. Again, normal practice is being bolstered by this legislative power, and there are limited safeguards for victims.

The final point of concern for the Opposition is that in the clauses, as my hon. Friend the Member for Stockton North said, the authorised person has no obligation to obtain the views of children and those without capacity when seeking to obtain information from their phones. Neither the police nor the person giving agreement in those people’s stead is obliged to ensure that their views are considered.

[Sarah Champion]

This relates to amendments of mine that will be debated later. I wonder whether something needs to be inserted about language competency. My amendments deal with asylum seekers who do not have English as their first language. Should language competency also be a consideration, so that we ensure that people actually understand their rights?

[Sarah Jones]

Yes. Whenever people hand over personal information, they need to know why they are doing so, and the implications. That is as important for a child as for an adult, and we need to make sure that principle is enshrined properly in law.

It is important to safeguard the human rights of children, and to ensure that only specified persons can agree to handing over information and providing a device on behalf of children, who must be consulted before a decision is made. The same should apply to adults without capacity, and we have effected this principle in our new clauses.

Another issue—the Minister was looking at this last week —is that for the purposes of this chapter, clause 36(10) defines an adult as a person aged 16 or over, and a child as a person under 16. Hazel Williamson, chair of the Association of Youth Offending Team Managers, said in evidence to us last week:

“We should treat children as children until they are 18 and they should be sentenced as a child until they reach the age of 18. In an ideal world, we would look beyond that, because many people do not develop fully, in terms of brain development, until they are in their mid-20s.”––[Official Report, Police, Crime, Sentencing and Courts Public Bill Committee, 20 May 2021; c.136, Q223.]

Our amendments would change the age from 16 to 18. I would like to learn from the Minister why the Government chose to define “adult” in that way.

While we welcome the code of practice attached to this legislation, there is no detail yet about what it may contain, and there is no duty on the Secretary of State to consult victims’ representatives or champions in creating it. Our new clause would require the Secretary of State, when preparing the code of practice, to consult a range of parties, including the Information Commissioner, the Victims’ Commissioner, the Domestic Abuse Commissioner and other regional and national bodies.

Our new clauses also list matters that the code of practice should address, because protection for victims should be in the Bill. Clauses 36 to 42 provide the police with a wide-ranging power to obtain and scrutinise victims’ phones, with virtually no safeguards for victims. It is said that some protections are intended to be put into the code of practice, but the police will not be obliged to follow it. There are concerns that the clauses will provide the police—and the Crown Prosecution Service, via the police—with a legal basis for carrying on as they have been. The police accept that the Victims’ Commissioner’s proposals are appropriate for their purpose, and would give a better balance as regards victim protection. I thank the Victims’ Commissioner and her team for all their work to guide us though this tricky area of law. I hope that the Minister will listen to the concerns we have raised.

[Sarah Champion]

I thank my hon. Friend for all the points she made, which, to be quite honest, are common sense, but would cause a huge shift in victims’ and survivors’ perceptions of their rights. I have questions for the Minister.

On data storage and security, I am sure we were all pretty shocked and disgusted to hear that images relating to Sarah Everard were not secure in the police system. While I have a very high regard for the police, they can be a leaky sieve—let us be honest. Why do we not simply clone phones at the point of taking them? Why is it months, or usually years, before the victim gets their phone back? Would it be possible to put in legislation or guidance a timeframe on how long that phone can be held for? Having spoken to officers, it seems that cloning a phone is complicated and geeky; it tends to be put in a back drawer until they absolutely have to do it. A timeframe would give a lot of comfort to victims and survivors; they would know it was only a week until they got their photos back, for example.

Finally, a myth has been perpetuated that victims and survivors have to hand over their phone or mobile data to the police or their case will not be taken forward. I have heard examples of victims and survivors being told expressly that if they do not hand it over, they are withholding evidence and could be prosecuted. At that point, unfortunately, a number of survivors drop out of the process and withdraw their charges altogether. If the Minister is able to give reassurance on that, that would be hugely appreciated.

I turn to amendment 115, on the list of people who may extract data. The list is pretty extensive, but one group stood out: immigration officers may request a mobile phone. A few months ago, I went to a large asylum hospital in my constituency, where there were 50 to 100 men—I do not know how many—and what concerned them most was that, literally as they entered the country, their mobile devices and indeed clothes were taken off them. There was no debate or explanation; it is just part of the process.

I completely understand the argument that very bad people, such as gangmasters, who come into the country may have a lot of contacts that are relevant to police inquiries. The police and transport police are already on the extensive list of people who may access electronic devices, so if an immigration officer was concerned, they could get a police officer to take the digital device away. That is not a problem. Extracting data is a complex process that requires specialist experience, and it ought to be managed under the law. I am concerned that we are asking immigration officers to be incredibly mindful, and to be trained and resourced, and to have all the skills, to request that device.

The people I met fell into three camps: economic migrants, who have paid to come over here; people who have been trafficked over here; and those brought in specifically for modern slavery. All the men I spoke to wanted to see pictures of their loved ones. They wanted those memories from home, and a mobile phone may be the best way to hold those memories and connections.

I do not know anyone’s telephone number aside from my parents’—it was the one I grew up with. I can call the police, the NHS helpline and my mum, but everything else is stored on my phone. If I lost it, I would not know how to respond—and I have back-ups that I can access, and English as my first language. When I changed phones, I did not download properly and lost five years of photos. That was so painful. Imagine someone being trafficked into this country, and probably horrifically abused on the way in. The one thing they can hold on to is their memories on that digital device, but that is taken away. They have no information about why it was taken, or when it will be returned, and all their contacts have been lost.

All the points that my hon. Friend the Member for Croydon Central made apply in this case. Immigration officers are one of the groups who may take these devices—this is not a dig against immigration officers, who do a difficult job—but in any other situation a police officer or a court order would be required to take such detailed data. I ask the Minister please to remove immigration officers from the list.

--- Later in debate ---

[Victoria Atkins]

I will come to that later, but the hon. Lady knows that I am in listening mode on this. The Bill includes requirements to obtain agreement to extract information; to ensure there is reasonable belief that the required information is held on the device; and, before using this information, to consider whether there are less intrusive means of obtaining it. That is an important point that I know hon. Members have focused on. The clauses will ensure that the victim’s right to privacy will be respected and will be at the centre of all investigations where there is a need to extract information from a digital device.

The Bill also includes a new code of practice. This will give clear guidance to all authorities exercising the power. It will address how the information may be obtained using other, less intrusive means; how to ensure that agreement is freely given, and how the device user’s rights are understood. All authorised persons will have a duty to have regard to the code when exercising or deciding whether to exercise the power. The clauses are also clear that the code is admissible in evidence in criminal or civil proceedings and that a failure to act in accordance with it may be taken into account by the court. It will give up-to-date, best practice guidance for selectively extracting data considering existing technological limitations. That will be updated as and when further capabilities are developed and extended to all authorities able to use this power.

[Sarah Jones]

The Minister is outlining how important the code of practice is. Is she therefore sympathetic to the view that we have put forward in our new clauses that that code of practice should be pulled together with a list of eminently sensible and professional organisations and people, and that we should define in the Bill some of what that should include because it is so important?

[Victoria Atkins]

We are going to be even more ambitious than that. We aim to publish a draft on Report, which means the House and the other place will be able to scrutinise the draft code of practice during the scrutiny of the Bill as a whole. Once the Bill receives Royal Assent, we will consult formally on the code of practice, including with the relevant commissioners, to enable a more detailed draft to be laid before the House. Again, we are in listening mode on the ways in which the code of practice should be drafted, because we understand how important it is and how important it is that victims, the police and the Crown Prosecution Service, among others, have confidence in the document.

--- Later in debate ---

[Victoria Atkins]

I am very cautious about distinguishing between different victims. Perhaps the hon. Lady is alleging that the person she is talking about is a victim. The framework is about consistency and clarity, and I would be concerned about having caveats here and there in order to fit individual facts. Part of this test is about relevance, necessity and proportionality. Those are the tests that we are asking officers to apply, and we would have to apply them across the board.

There are situations within the framework whereby the power can be used without agreement, such as to locate a missing person where the police reasonably believe that the person’s life is at risk. Under clause 36, the police may have good reason to believe that a device has information that will help to locate the person. In such circumstances, clearly the person is not available to give their consent, so clause 36 ensures that officers can extract data, if it is necessary and proportionate, to protect the privacy of the user. That also applies in relation to children who need to be protected.

New clause 49 raises the bar for the exercise of the power in clause 36(1). The necessity test under new clause 49 is one of strict necessity. I am not persuaded that adopting the phrase, “strictly necessary and proportionate”, instead of “necessary and proportionate”, will make a material difference. This phrase is well used in the Bill. I note that article 8.2 of the European convention on human rights—the very article that people are relying on in relation to the framework—permits interference with the right to respect for private and family life. Such interference is permitted where it is necessary to achieve various specified objectives.

[Sarah Jones]

I understand what the Minister is saying. The review in Northumbria showed that about 50% of requests were not strictly necessary and proportionate. That must be wrong, and we are trying to make sure that people know what they are giving over, that they do it voluntarily and that it is absolutely necessary that such information is requested. Apart from trying to be clear about what is proportionate and necessary, what solution can the Minister put in place to make sure we do not have 50% of cases involving asking for information where it is not necessary and proportionate?

[Victoria Atkins]

On what the hon. Lady has described, I am not sure what difference it would make. I am trying to put myself in the boots of a police officer. Would a police officer ask for data if they read the words, “strictly necessary”, but not if they read the word, “necessary”? Actually, the problem that has been identified by the figure quoted by the hon. Lady is police officers’ understanding of the legislation, which comes back to training. Article 8, on which many rely in this context and in this part of the Bill, refers to “necessary” interference, and I am not clear what “strictly necessary” would add to that.

New clause 49 seeks to provide that information may be extracted only for the purpose of a criminal investigation

“where the information is relevant to a reasonable line of enquiry.”

There are safeguards within the clauses to ensure that information is not extracted as a matter of course, and they have been drafted with respect for victims’ privacy in mind. They include a requirement that the authorised person has a reasonable belief that the device contains information that is relevant to a purpose for which they may extract information, and that the exercise of the power is necessary and proportionate to achieve that purpose.

Police, Crime, Sentencing and Courts Bill (Eighth sitting)

Sarah Jones Excerpts

Committee stage
Thursday 27th May 2021 Public Bill Committees

[Victoria Atkins]

I thank the hon. Lady. As I say, we will reflect on the issue.

New clause 50 would provide that, where the user of a device was a child or adult without capacity, their views were sought and taken into account when someone else was making a decision on their behalf regarding the extraction of information from their device. We agree on the point about children. Indeed, clause 37(4) makes an equivalent provision, so we are not sure there is much between us on this point. We rely on clause 37(4) to ensure that the views of the child are taken into account.

We do not, however, agree that it is appropriate to include equivalent provision for adults without capacity. With such people, it is the capacity of the individual user that is relevant, and that is determined on the basis of a case-specific assessment. It is only if, as a result of that assessment, the person is deemed not capable of making the decisions that someone else is asked to make it. Authorised persons using that power will still have to comply with their existing responsibilities under the Mental Capacity Act 2005 and the associated code of practice or equivalent provisions in Scotland and Northern Ireland. We will, however, include guidance and direct authorised persons to the relevant statutory responsibilities in the code of practice.

New clause 52 seeks to expand the list of statutory consultees in respect of the code of practice to include the Victims’ Commissioner, the Domestic Abuse Commissioner and representatives of victims and witnesses, but clause 40 already places a duty on the Secretary of State to consult

“(a) the Information Commissioner,

(b) the Scottish Ministers,

(c) the Department of Justice in Northern Ireland, and

(d) such other persons as the Secretary of State considers appropriate.”

We believe this last line affords sufficient flexibility to capture those other persons listed in new clause 52. I can assure the Committee that we will work closely with the Victims’ and Domestic Abuse Commissioners, and other relevant groups, as we develop the code.

The new clause also lists matters to be addressed in the code of practice. We do not dispute the relevance of many of the matters listed in new clause 52(5), but putting such a list in the Bill is unnecessary. The code needs to be comprehensive and fit for purpose, and it will be prepared in consultation with interested parties and subject to parliamentary scrutiny.

Amendment 94 seeks to provide for independent legal advice for device users. Ensuring that victims are properly supported is a priority for this Government. The code of practice will make it clear that investigators should inform people about the use of the power, and ensure that they are fully aware of their rights. This information will include: why they are asking for agreement, what will happen to the individual’s device, what information will be extracted from the device, how long it may be retained for, and what will happen to any irrelevant material found on the device.

We are aware of the impact that requests for personal information can have on victims of sexual violence, and we believe that individuals should be supported in the process. We are fully committed to giving support to victims of crime, including access to independent sexual violence advisers, who we believe have a role in helping to explain the power to victims; as I have said, we are investing in 700 more of these posts this year.

We are exploring the findings of the sexual violence complainants’ advocate scheme, piloted in Northumbria, as part of the rape review, which will be published shortly. We do not think that chapter 3 of part 2 of this Bill is the right place to address this broader issue about the provision of legal advice to victims and witnesses, given the wider impact across the criminal justice system.

Amendment 115 to schedule 3 seeks to exclude immigration officers from the list of persons authorised to carry out a digital extraction. Immigration officers play a vital role in protecting vulnerable people, particularly those who may be victims of trafficking, and it is important that they are able to obtain information that may be vital in those and other investigations. The power in schedule 3 ensures that all authorities extract information in a consistent way, and put the needs and privacy of the user at the forefront of any request. Any person being asked to provide a device will be made aware of their rights, including their right to refuse.

The hon. Member for Rotherham asked about a parliamentary question that the Under-Secretary of State for the Home Department, the hon. Member for Croydon South, answered. I am told that mobile phones are seized under statutory powers where there is a reasonable belief that evidence of a criminal offence will be found. The subsequent examination of the device will be conducted in forensic conditions, and in such a way as to target only the relevant material. The handset will be retained for as long as is required to support any criminal proceedings before being returned to the owner.

Finally, there is also a Government amendment in this group: amendment 63, which ensures that the definition of the common council of the City of London is used consistently throughout the Bill. The City of London Corporation has both public and private functions, and it is therefore appropriate that public legislation applies to the corporation only in respect of its public functions. Government amendment 63 provides that the reference to the common council relates to

“its capacity as a local authority”,

which brings clause 37 into line with other provisions in the Bill referencing the common council.

To sum up, this is the first time that a clear and consistent approach to the extraction of information from digital devices with the device user’s agreement has been written into primary legislation. The provisions remove legal ambiguity around the practice and, for the first time, enshrine the protections and safeguards that authorised persons must adhere to when exercising that power. It is a significant step forward in driving a consistent approach across the Union for the law enforcement authorities that exercise these powers, and for victims and witnesses in the criminal justice system. Of course, there is more to do outside the Bill in a range of areas, but we are committed to working with victims and survivors and with charities and commissioners to ensure that when implemented, the provisions command the trust and confidence of victims and witnesses. Many of the issues raised in the new clauses can and will be addressed through the code of practice, so I hope that the hon. Member for Croydon Central will feel able to withdraw her amendments and support Government amendment 63 and clauses 36 to 42 standing part of the Bill.

[Sarah Jones (Croydon Central) (Lab)]

We all agree on the problems here; we have suggested some solutions and the Minister has explained why she is not convinced. I think it would be hard for the Minister not to agree with quite a lot of what Vera Baird said when giving evidence. We will have to come back to some of those new clauses and decide how we vote at an another time.

Given what the Minister said on three points—first, that she would look at the age issue and the definition of an adult; secondly, that there would be a draft code of practice by Report, and that she would incorporate some of the measures we discussed into that; and thirdly, that the rape review will be published soon, and that in it, the Government are looking at work such as that done in Northumbria, and at police training—I am content not to push the amendment to a vote. I beg to ask leave to withdraw the amendment.

Amendment, by leave, withdrawn.

Clause 36 ordered to stand part of the Bill.

Clause 37

Application of section 36 to children and adults without capacity

Amendment made: 63, in clause 37, page 31, line 35, after “London” insert

“in its capacity as a local authority”.—(Victoria Atkins.)

This amendment clarifies that the reference in clause 37(11) to the Common Council of the City of London is to the Common Council in its capacity as a local authority.

Clause 37, as amended, ordered to stand part of the Bill.

Clauses 38 to 42 ordered to stand part of the Bill.

Schedule 3 agreed to.

Clause 43

Pre-charge bail

Question proposed, That the clause stand part of the Bill.

[The Chair]

With this it will be convenient to discuss the following:

Amendment 95, in schedule 4, page 203, line 33, leave out

“If it is reasonably practicable to do so”

and insert

“Unless there is an exceptional reason not to”.

Amendment 96, in schedule 4, page 203, line 38, at end insert—

“(4AA) If it is reasonably practicable to do so, the investigating officer must consider the personal situation and the needs, as they appear to the investigating officer given all the circumstances of the case, of the alleged victim (if any) of the relevant offence on—

(a) whether any of the conditions that are relevant conditions should be varied under subsection (1), and

(b) if so, what variations should be made to those conditions.”

Amendment 97, in schedule 4, page 203, line 40, at end insert “and (4AA)”.

That schedule 4 be the Fourth schedule to the Bill.

New clause 54—Offence of breach of conditions of pre-charge bail—

“(1) The Police and Criminal Evidence Act 1984 is amended as follows.

(2) After Section 37 insert—

“37ZA Offence of breach of conditions of pre-charge bail

(1) Where a person has been arrested and released on pre-charge bail under subsection 37(7), that person commits an offence if they breach any condition attached to that pre-charge bail.

(2) A person guilty of an offence under this Section will be liable on summary conviction to a fine not exceeding level 3 on the standard scale.””

[Sarah Jones]

The full package of these reforms will be named “Kay’s law” in memory of Kay Richardson, who was murdered by her ex-partner following his release under investigation despite evidence of previous domestic abuse. No conditions were imposed and the police gave Martin the keys back to the home he had shared with Ms Richardson. Martin let himself into the house and waited for Ms Richardson, who was 49, before attacking her with a hammer and strangling her. Kay’s mother Audrey Richardson said:

“They might as well have gone and opened the door for him”.

I think we will all want to keep in mind Kay and her family, and all victims of perpetrators who have caused harmed while on RUI, as in Kay’s case, or while continually in breach of bail conditions.

We are all largely pleased with the provisions on pre-charge bail, in that they reverse what amounted to mistakes made in the 2017 reforms, but it is important, if we want to achieve justice that is fair and efficient, that it comes alongside the Government investing in every part of our criminal justice system and tackling some of the many challenges that it faces.

To set the context, the reforms pursued by the Government in 2015 to 2017 introduced the presumption against the use of pre-charge bail. These reforms also introduced strict time limits on the use of pre-charge bail. They were designed to reduce both the numbers of individuals subject to, and the average duration of, pre-charge bail. That was supposed to address concerns that unconvicted individuals were being subjected to pre-charge bail conditions for long periods of time without due process.

The House of Commons Library says:

“There is no official data about who is released from police custody and how they are released. However, data obtained from various freedom of information requests suggest that the number of suspects released on pre-charge bail fell substantially following the 2017 reforms.”

The use of RUI

“increased rapidly as a result.”

A BBC investigation found that in one three-month period, 12 forces released more than 3,000 suspects of violent crime, murder, rape and sexual offences. Officers use RUI when they want more time to gather evidence and when the preconditions for pre-charge bail have not been met. There is no requirement for RUI suspects to report to the police, and the police have no power to place conditions on their movements or activities—although some RUI suspects will voluntarily attend further questioning at the request of the police. There are no time limits within which officers must conclude their investigations against RUI suspects and the police are under no obligation to keep them informed about the progress of their investigation.

Many stakeholders from across the criminal justice system have been critical of these 2017 reforms. The use of RUI, particularly in cases involving violent and sexual offences, puts vulnerable victims at risk because pre-charge bail conditions are not imposed on suspects. There are also concerns that the rights of RUI suspects are being undermined. Investigations against RUI suspects, on average, take longer and the police are not required to inform suspects about their progress while investigations are ongoing.

Zoë Billingham of Her Majesty’s inspectorate of constabulary said in December 2020, on the police and Crown Prosecution Services’ response to the changes, that the full consequences

“had not been thought through”.

The report said that of 140 cases examined, in 62 cases a suspect was released under investigation when bail with restrictions should have been used. The inspector said:

“These cases included domestic abuse, sexual offences and offences against children—serious crimes. This is extremely worrying, especially for the victims in these cases, who had no bail conditions in place to keep them safe.”

The report found one case where a suspected paedophile was arrested and, after three months, the bail restrictions lapsed. This was because delays in getting digital evidence from the suspect’s devices meant police feared they would fall short of meeting the threshold to get bail extended. The report also raised particular concerns about domestic abuse cases. Billingham said:

“It has a profound effect on victims’ confidence that they are being taken seriously and staying with cases that can drag on for months and years.”

We welcome the changes, but have suggested some amendments; I will talk about amendment 95 first. Part 3 of schedule 4 would impose a duty on officers to seek the victim’s views on whether pre-charge bail or street bail should be applied, and their views on what conditions should be attached, when it is reasonably practical to do so. Amendment 95 simply strengthens that wording, so that the views of victims must be sought by the investigating officer when setting pre-charge bail conditions, not

“if it is reasonably practical to do so”,

but unless there is an exceptional reason not to do so; it tilts the balance in favour of seeking the views of a victim. It is vital that there be greater consideration of the needs of the victim in setting bail conditions, to protect them and ensure that they are able to continue through the criminal justice process safely and with full confidence.

Amendments 96 and 97 would ensure that the personal situation and needs of the victim, as well as all the circumstances, are taken into account to ensure that any variations necessary to the conditions can be put in place to protect the victim. The needs and situation of the victims must be taken into account when setting pre-charge bail.

It has, sadly, often been the case that victims—largely female victims of rape, domestic abuse or sexual exploitation—are hesitant to provide complete evidence of their personal situation or needs due to fear that the perpetrator will find out and put them, or their family, at risk. It is not right that victims do not feel that the police can protect them enough. Pre-charge bail can be broken and, as this is not a specific criminal offence, the custody clock can currently be run down by continuous breaches of pre-charge bail conditions.

I will talk about the measures in the specific context of domestic abuse, which represents one third of violent crime recorded by the police, and approximately one fifth of all adult homicides—half of all adult homicides when the victim is female. It affected 2.3 million adults in the last year. The criminal justice system still has a long way to go in bringing perpetrators to justice and in providing a consistently good response for domestic abuse survivors.

Over the past couple of years, there has been a notable decline in the number of offences prosecuted by the CPS relating to domestic abuse, despite there being no reduction in prevalence and an increase in offences recorded by the police. Between April 2014 and March 2020, the annual number of domestic abuse-flagged cases referred to the CPS by the police fell by 37%, with similar declines in prosecutions and convictions. In the year ending March 2020, only 9% of domestic abuse-related crimes recorded by the police led to a charge or summons, and the CPS convicted 47,000 domestic abuse cases, compared to 758,000 police-recorded offences relating to domestic abuse.

As incidents of domestic abuse often take place in private, the complainant may be the only witness. CPS guidelines for prosecutors state that:

“Giving evidence may be very difficult for them, or may cause additional difficulties (for example, fear of reprisals; safety of their children; increased family pressures or serious financial repercussions; fear of being 'outed'; fear of a lack of support by the criminal justice system, or specialist support organisations; or, an emotional attachment or loyalty towards the defendant), leading to uncertainty about the course of action they should take.”

[Sarah Champion]

I support the amendments that my hon. Friend is putting forward, because the intention is to put the victim at the absolute centre of all of this. Does she agree that we also need the resources to enable the police to back that up, and to enable the voluntary sector and social workers to put in place the support that she is talking about?

[Sarah Jones]

My hon. Friend is absolutely right. Nearly 5,000 women are turned away from refuges each year, because the support just is not there and so much provision has been taken away. That applies across all kinds of different aspects of the support that should be in place.

It is well known that separation and reporting to police are periods of heightened risk in abusive relationships, and the effectiveness of bail conditions can be critical. The Centre for Women’s Justice has said that it hears from frontline women’s services that breaches of bail are extremely common, and that women often cease to report them once they find that nothing is done by the police after their initial reports. Some victims withdraw support for prosecution in such situations and sometimes disengage from the domestic abuse service. In its briefing, the Centre for Women’s Justice says that

“in the worst case scenarios women feel so unprotected that they reconcile with suspects and return to abusive relationships, because the separation has increased the dangers they face in the short term. As the only power available to police following a breach of pre-charge bail is to arrest the suspect and release him again on bail, officers sometimes say there is nothing they can do. Police often don’t contact a victim until some time has passed since the reported breach, and many breaches are by phone or electronic communications. In these situations there is little purpose in arresting and releasing the suspect on bail again, and it is understandable that officers take no action.”

New clause 54 has been tabled to probe the Minister and to seek some clarifications and assurances on a number of problems that the police deal with and that have been brought to my attention by several police organisations. New clause 54 would make a breach of any condition of pre-charge bail, such as not being allowed to go to someone’s house, to turn up at the school gates or to visit a certain restaurant, a criminal offence. That would prevent the custody clock being run down by purposeful breaches of bail, and it would particularly protect victims in domestic abuse cases, so that abusers are less likely to breach conditions by returning to the home of the victim. If the enforcement around breach of bail could be strengthened, it would likely drive down the number of offenders who breach bail conditions, and it would allow the police to focus on the worst offenders. It is a straightforward amendment, which was drafted with victims in mind but was recommended to us, as I say, by senior members of the police.

The Police Superintendents Association has spoken to us about making the breach of pre-charge bail conditions a stand-alone criminal offence. Paul Griffiths was clear about this in the evidence session. He said that the PSA has concerns about breach of police bail and that

“bail conditions are imposed and then suspects continue to breach those bails. Of course, those bail conditions would be there to protect victims or even the wider public. It could be extremely useful to us for that to be an offence in its own right. I note that there is an introduction to prevent the start of the custody clock, which was another risk that we thought may come from somebody who would consistently breach their bail, risking an impact on the investigation custody time limits for other aspects for which they were under investigation. The Bill suggests that three hours is sufficient to deal with that breach of bail, and that seems appropriate, but it could be beneficial to the police service for that to be an offence in its own right in terms of processing individuals for such breaches.”––[Official Report, Police, Crime, Sentencing and Courts Public Bill Committee, 18 May 2021; c. 30-31, Q45.]

Could the Minister give us her views on that opinion and on the problem that we are seeking to overcome?

I appreciate that part 5 of schedule 4 would make amendments to the functions of the PACE clock, as it would suspend a detention clock for three hours when someone is arrested for failure to comply with bail. The amendments are supposed to prevent suspects from running down their PACE clock by repeatedly breaching bail. However, the view of many senior police whom I have met is that it is not long enough and that they would prefer the breach of pre-charge bail conditions to be a separate offence. I am aware that the Minister might say that to make the breach of pre-charge bail conditions a stand-alone offence could create an imbalance whereby the breach of post-charge bail conditions is not a stand-alone criminal offence, but I would appreciate her giving her views on how we can tackle this issue.

The Centre for Women’s Justice had a slightly different proposal, which is a two-stage process whereby a breach of bail conditions triggers a presumption that the police will impose a domestic abuse protection notice and apply for a domestic abuse protection order. Once the order is in place, a further breach would be a criminal offence, so it creates a “two strikes and you’re out” process. Perhaps the Minister will give us her view on that.

I reiterate that we very much welcome these much-needed reforms to pre-charge bail. Can the Minister talk us through what plans the Government have to monitor the changes to ensure they are effective and how they will ensure that the data on how each police force deals with suspects after they have been released from custody is clear and can be sufficiently reviewed so that victims across the country can be better protected?

--- Later in debate ---

[The Chair]

I think you are just one step ahead of me, Mr Cunningham. We now come to amendments 95 to 97 for schedule 4, which have already been debated. Do you wish to press the amendments?

[Sarah Jones]

I will not press the amendments on the basis of what the Minister said on those ones. I was also pleased to hear that there is going to be better data gathering—she might come to that in a minute, I am not sure—on whether it should be a separate offence. I understand the point that we need more data about what is happening before we take a view on that. I therefore ask that the Minister keep an eye on that situation as the data emerges and keep an eye on the fact that the police are concerned about that.

Schedule 4 agreed to.

Clause 44

Arranging or facilitating commission of a child sex offence

Question proposed, That the clause stand part of the Bill.

[The Chair]

With this it will be convenient to discuss the following:

New clause 37—Retrial for child sexual offences—

“(1) Schedule 5 of The Criminal Justice Act 2003 is amended as follows.

(2) After paragraph 14, insert—

‘Sexual assault of a child under 13

14A An offence under section 7 of the Sexual Offences Act 2003.’

(3) In paragraph 15, leave out from ‘where’ to the end of the paragraph.

(4) After paragraph 15, insert—

‘Sexual activity with a child

15A An offence under section 9 of the Sexual Offences Act 2003.

Causing or inciting a child to engage in sexual activity

15B An offence under section 10 of the Sexual Offences Act 2003.

Indecent assault against a child under 16

15C An offence under section 14 or 15 of the Sexual Offences Act 1956 where it is alleged that the assault was against a child under 16 by a person over 18.’”

New clause 39—Aggravated child sexual offences—

“(1) The Sexual Offences Act 2003 is amended in accordance with this section.

(2) In section 14—

(a) in subsection (4), at the beginning, insert ‘Subject to subsection (5),’; and

(b) after subsection (4), insert—

‘(5) If one or more of the following applies, a person guilty of an offence under this section is liable, on conviction on indictment, to imprisonment for life—

(a) the child has a mental impairment at the time of the offence;

(b) the child is subjected to inhuman or degrading treatment in connection with the offence;

(c) the child dies as a result of physical harm suffered in connection with the offence;

(d) as a consequence of the offence the child is forced to engage in sexual activity with another child;

(e) as a consequence of the offence the child is forced to engage in sexual activity with a family member;

(f) more than 500 pounds were paid in aggregate for the commission of the offence or related offences.’

(3) In section 48—

(a) in subsection (2), at the beginning, insert ‘Subject to subsection (3),’; and

(b) after subsection (2), insert—

‘(3) If one or more of the following applies, a person guilty of an offence under this section is liable, on conviction on indictment, to imprisonment for life—

(a) the child has a mental impairment at the time of the offence;

(b) the child is subjected to inhuman or degrading treatment in connection with the offence;

(c) the child dies as a result of physical harm suffered in connection with the offence;

(d) as a consequence of the offence the child is forced to engage in sexual activity with another child;

(e) as a consequence of the offence the child is forced to engage in sexual activity with a family member;

(f) more than 500 pounds were paid in aggregate for the commission of the offence or related offences.’”

New clause 40—Communication for the purpose of causing or inciting sexual exploitation of a child—

“(none) Section 48 of the Sexual Offences Act 2003 (Causing or inciting sexual exploitation of a child) is amended by the insertion of the following subsection after subsection (1)—

‘(1A) A person commits an offence if he communicates with another person, whether in person or remotely via electronic communication through the internet or other telecommunications, for the purpose of committing an offence under subsection (1), regardless of whether the sexual exploitation takes place.’”

New clause 41—Causing or inciting a child under 13 to engage in sexual activity—

“(1) Section 8 of the Sexual Offences Act 2003 (Causing or inciting a child under 13 to engage in sexual activity) is amended in accordance with sections (2) and (3).

(2) In paragraph (1)(a), leave out ‘to engage in an activity’ and insert ‘, having communicated with B by any means, to engage in an activity in any part of the world’.

(3) After subsection (1), insert—

‘(1A) For the purposes of this section “by any means” includes, but is not limited to—

(a) in person, and

(b) remotely via electronic communication through the internet or other telecommunications.’”

--- Later in debate ---

[Sarah Champion]

The Minister is nodding. The IJM is leading the way in working collaboratively with international justice departments, police departments and local voluntary organisations around the world. It gave me one example from its recent work in the Philippines, where it has been spending a lot of time. Recently, Philippines police rescued a three-month-old baby in an operation to free children from online sexual exploitation, and weeks later they brought a two-year-old to safety. This is what we are talking about when we talk about online abuse.

The International Justice Mission reports that children it has helped to rescue have been abused by family members. It has been supporting children who have, for example, contracted sexually transmitted diseases as a result of their abuse. Online sexual exploitation includes creating, possessing or distributing child sexual exploitation material such as photos or videos. Traffickers livestream the exploitation to satisfy the online demand of child sex offenders paying to direct the abuse in real time. That crime has been growing internationally, particularly during the covid pandemic, as online offenders have been at home with greater access to the internet and with fewer eyes on them, while victims have been locked into the same environment as their traffickers.

The National Crime Agency has stated its belief that the UK is the world’s third largest consumer of livestreamed abuse. That means that people here are sat in their homes directing the abuse of a child in another country. We must strengthen our criminal legal framework for apprehending those offenders in the UK. They may not physically not carry out the act, but they are directing it, and as far as I am concerned, that is as good as.

The International Justice Mission research shows a trend of relatively lenient sentencing for sex offenders in the UK convicted of abusing children in the Philippines, for example. Offenders serve on average only two years and four months in prison, even though they spent several years and thousands of pounds directing the sexual abuse of children. Those sentences do not represent justice for the survivors and, probably just as important, they do not deter the perpetrators. Prevention is vital, but a framework must be in place to give law enforcement the tools they need to act effectively.

I welcome some of the changes in the Bill, which will really help to deal with the problem, including clause 44 and the positive shifts on sentencing for those convicted of arranging or facilitating sexual abuse. We could go further simply by including online offences.

[Sarah Jones]

I cannot really argue with the points my hon. Friend makes, which seem completely correct. At the bottom of my road was the Shirley Oaks home, which was the scene of massively severe child abuse decades ago. Victims are still coming forward and being compensated for it. The internet now makes it possible for huge numbers of people to be involved in that kind of awful activity, so it is even more important not only that we catch up and stop seeing online offences as different criminal offences, but that we ensure that our response to that crime and our sentencing are such that we can stem the tide. We need to go even further, because that kind of abuse is so widely available that perpetrators can abuse children in any country around the world.

[Sarah Champion]

My hon. Friend makes absolutely the right point. I am talking about UK offenders abusing children internationally, but hon. Members, particularly the Minister, will also be very aware of the rapid escalation of abuse of UK children through online means.

I remember when I first started to research the issue. Simon Bailey, the National Police Chiefs’ Council lead for child protection, said, “Sarah, what you need to understand is that when a family is sat down watching ‘Antiques Roadshow’ on a Sunday night, and the six-year-old is there playing on their iPad, they could be being groomed and abused in the same room as the parents, and the parents just don’t understand that.” It always chills me. If I may deviate very slightly, Chair, it frustrates me enormously that the Government’s legislation for mandatory relationship education for all children from primary school age, which should have been introduced in September, still has not been brought forward. We have to address that because covid has really escalated the abuse faced by children in this country and internationally.

--- Later in debate ---

[Alex Cunningham]

Indeed it would be good information to have to hand, but I do not know the answer to the question. Perhaps we can discuss the issue in a future debate.

If data on those instances of abuse is collected, even in the Crime Survey for England and Wales, why do the Government not think that the law should recognise the activity as criminal?

[Sarah Jones]

I worked for six months at Addenbrooke’s Hospital. That happened to be when things were coming to light about a doctor called Myles Bradbury, who had abused many, many children. Part of what I had to do was put together the plan for how we would go to the parents of children who had died of cancer, having been treated by that doctor. We will never know how many people he managed to abuse; he abused many children. He was an abuser. If he had not been a doctor, he might have been a driving instructor. If he had not been a driving instructor, he might have been a football coach. He was intent on abusing young people and he would always have found a position of trust to do so.

Does my hon. Friend agree that it makes no sense to list certain things and exclude others when we are talking about perpetrators who will find the means to do these things if they want to?

[Alex Cunningham]

Indeed I do. People say, “It doesn’t matter what laws you pass; people will find a way.” That is one of the terrible things in our society.

Having heard what both my hon. Friends have said, I reflect on the parents and the trauma that parents face when they realise that they have allowed their child—their daughter—to be tutored by a particular person to learn the piano, or entrusted them to a sports coach working with 20 children, who goes on to abuse them. The parents have that guilt—guilt they have to live with. It is not their fault, but they still have to live with the guilt.

We must strengthen the law as much as possible, so that if such cases come to light the perpetrators face the full force of the law, and we must not allow any loopholes whatever to protect any of those people.

The figures from the NSPCC that I mentioned come from a series of freedom of information requests on all local authority children’s services in England and Wales between 2014 and 2018. The NSPCC found that over a four-year period there were 653 complaints about adults who were not covered by the criminal law having sex with 16 and 17-year-olds in their care. That compares to 1,025 criminal offences of abuse of a position of trust of a sexual nature in the same period.

The NSPCC also asked local authorities to provide information about the fields of work of the referrals: 26% were cases in sport and leisure settings; 12% were in religious group settings; 11% were cases involving transport or involving drivers—my hon. Friend the Member for Croydon Central referred to cases involving driving instructors; 5.7% were in settings of voluntary or charity work; and another 5.7% were in cadet organisations. That is 653 cases where our law did not protect vulnerable young people.

We have a chance to extend that provision to protect children in those settings future and I urge the Government to take it—please do not lose the opportunity. Those figures are deeply disturbing, but statistics alone do not convey the impact that abuse of a position of trust has on children and young people, including the truly devastating impact when someone is told that what happened to them is not a criminal offence and nothing can be done about it. Too many young victims are being given the message that the adult who abused their position did nothing wrong and that to have prevented it from happening the young person should not have consented.

With support from the NSPCC, “Hannah”, whose name has been changed, and two other brave young women directly affected by that form of abuse wrote directly to the Lord Chancellor and Secretary of State for Justice. “Hannah” told the NSPCC, “When I turned 16, ‘Jeff’, my swimming coach, began to comment on my appearance. He would tell me that I looked nice or that clothes looked good on me. No one had ever said these things to me before, and I wasn’t sure how to feel. Soon he started pushing the boundaries. Initially he would just give me a hug. Then one day he gave me a hug and put his hand on my bottom. ‘Jeff’ spent a long time making me feel comfortable. I remember the first time we kissed. After training, we started to be intimate in that way a couple would. After some time, we started having sex. This was my first sexual experience. ‘Jeff’ told me to keep this a secret. I was under the impression when ‘Jeff’ told me not to tell anyone that it would be for the best for my swimming, and this would develop into a proper relationship and we could tell everyone. I wanted to tell my friends, but I knew I couldn’t. When this relationship came tumbling down, I changed with it. I was left feeling really angry, I was a difficult person to be around. It took me a long time to trust friends and family, to let them hug me again.”

Hearing the devastating impact of that horrific abuse is absolutely heartrending. I want to put on record the great debt of gratitude that we as parliamentarians owe to the courageous young people, such as “Hannah”, who work with the NSPCC to lobby the Government on the issue. Their civic-mindedness in the wake of such dreadful abuse is so very admirable, and because of their work, alongside others, the law will be improved to protect more young people.

In the event that the Government do not support my hon. Friend’s excellent amendment, will the Minister say how the risks associated with positions that remain outside the definition—for example, private music tutor or cadet leader—will be monitored? The consistent collection and monitoring of data relating to the implementation and effectiveness of clause 45 are vital if it is to protect the full range of young people who may come into contact with personal abusers. If the Minister will not do what the Opposition consider the right thing, will he please provide clarity on the review mechanisms the Government will put in place to decide whether further extensions of the definition of “positions of trust” in clause 45(2) should take place?

I want to consider some of the Government’s previous objections to the extension of the ambit of the “positions of trust” definition. In March 2020, during a Westminster Hall debate on sports coaches in positions of trust, the Under-Secretary of State for Justice, the hon. Member for Cheltenham (Alex Chalk), said:

“What is at stake here is a need to balance the legal right, as prescribed by Parliament, for young persons aged 16 and over to consent to sexual activity, with the proper desire to protect vulnerable young people from manipulation.”

Although I agree that it is not our place to deny age-appropriate rights as prescribed by Parliament, this is not an attempt to raise the age of consent by stealth. It is an attempt to offer extra protection to young people when they are specifically in a context where there is a disproportionate power imbalance.

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[Victoria Atkins]

Very quickly, I just want to put on the record a point about clauses 50, 51 and 52, and schedule 6. Their background is, as my right hon. Friend the Home Secretary said on Second Reading, the horrific case of Keith Bennett and the Moors murderers, which brought to light the need for new powers to search for material that may relate to the location of human remains.

In 2017, the police believed that they had a further lead to assist Keith’s family in finding his body, when it was discovered that Ian Brady had committed papers to secure storage before his death. However, the existing law would not allow the police to obtain a search warrant to seize the papers, because there was no prospect of them being used in criminal proceedings, as Brady was dead.

These new powers will build on the existing law and enable officers to seize material that may help them to locate human remains outside criminal proceedings. As well as cases such as Keith’s, where a homicide suspect has been identified but cannot be prosecuted, these powers could be useful for the police in missing persons cases, or suicides where there is no indication that criminal behaviour has taken place.

These are terrible circumstances that lead to the need for this law, but we very much hope that passing these measures will bring a small crumb of closure and comfort to the Bennett family and others.

[Sarah Jones]

The Opposition support these clauses, for exactly the reasons the Minister has outlined. The case of Keith Bennett was incredibly awful. Today we saw the news about the ongoing search for remains in a Gloucester café. Mary Bastholm was 15 when she went missing in 1968. She is a suspected victim of Fred West. That search, for various legal reasons, was able to go ahead. Unfortunately, the police have today said that they have not found any human remains, so for Mary’s family the ordeal goes on, to try and get some kind of closure. However, for that family at least we were able to look for remains, but in the case of Keith Bennett the law did not allow the police to look. Therefore, it is absolutely right that we correct the law.

Question put and agreed to.

Clause 50 accordingly ordered to stand part of the Bill.

Clause 51 ordered to stand part of the Bill.

Schedule 6 agreed to.

Clause 52 ordered to stand part of the Bill.

Clause 53

Functions of prisoner custody officers in relation to live link hearings

[Chris Philp]

I beg to move amendment 64, in clause 53, page 44, line 33, leave out “and (4)” and insert “to (4A)”.

This amendment and Amendments 65 to 67 ensure that the references to live audio links and live video links in clause 53(3) are consistent with the provisions made about live links in clause 168 of, and Part 3 of Schedule 19 to, the Bill.

Police, Crime, Sentencing and Courts Bill (Fifth sitting)

Sarah Jones Excerpts

Committee stage
Tuesday 25th May 2021 Public Bill Committees

[Sarah Champion]

Yes, but the case study from NARPO shows that that does not always happen. I am grateful to the hon. Gentleman for raising that point, but we ought to extend that support to retired officers. That will not have a massive cost implication, but it is our duty to them for all they have done. We have a fantastic veterans covenant in place. The police covenant provides the opportunity to deliver something similar, in recognition of that incredible service that the police have given us. We should do something when they are serving as an officer and once they have left. The fact that it is voluntary and sometimes it happens and is piecemeal is just not good enough. That is not acceptable. We have the opportunity to change that.

[Sarah Jones (Croydon Central) (Lab)]

My hon. Friend is making an incredibly powerful point. We are looking to introduce the covenant now. Now is the perfect time in many ways, because we lost many police—21,000—over the past 10 years, but there is now a period of significant recruitment, so a lot of officers are coming into the force. Does she agree that now is the perfect time to make sure that we do that early intervention and training, so that those thousands of new officers do not go through the same experience as many others in the past?

[Sarah Champion]

I completely agree. Now is the perfect time for those reasons, and also because hopefully we are coming out of the pandemic. The service that the police gave during the pandemic was exceptional. We should recognise the personal trauma that caused to them, by ensuring that the need for trauma support is recognised in the police covenant. That would be the greatest respect we can show.

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[Sarah Jones]

It is a pleasure to serve under your chairman- ship, Sir Charles. As we are debating amendments 2, 77 and 76, clause 1 stand part and new clause 44, I will speak to all the issues in the round. I will start by thanking Sarah Thatcher and Huw Yardley from the Public Bill Office, who have given so much guidance to us all in preparation for the Committee. We start this debate at the end of a difficult and turbulent year, but one in which people across the country have come together and there are many lessons that we can learn. I hope we can apply those lessons to the progress of the Bill. It is a year today since George Floyd was murdered, and I know that the lessons from that will also guide much of what we talk about today.

It is a pleasure to begin our line-by-line consideration of the Bill by debating the introduction of the police covenant, which we all agree with and support. We all probably believe it is long overdue. The tone set by my hon. Friends the Members for Rotherham and for Garston and Halewood shows the nature of our approach and how we want to try to support the changes, but we also want to work to improve them as much as we can.

The Bill creates a statutory duty for forces to support police officers and places a requirement on the Home Secretary to report annually to Parliament. It focuses on protection, health and wellbeing and support for families. It applies—correctly—to serving and former police personnel. It is an appropriate acknowledgement of the sacrifices made by the police service and the need to provide better support. The Police Federation has campaigned for the introduction of a covenant for several years, and I salute it for the campaigning work that it has done. I am pleased that the Government are taking action.

It is appropriate to take a moment to thank, on behalf of the Opposition, the police and all those who have given incredible service working on the frontline through the covid crisis: our police officers, firefighters and other emergency services, health and social care workers, shopworkers and transport workers, who have all shown incredible bravery and dedication. Those who put themselves in harm’s way to keep us safe are the very best of us, and we thank them for their service.

We support clause 1. We are pleased that the covenant will focus on

“the health and well-being of members and former members of the police workforce”—

their “physical protection”, and—

“the support required by members of their families”.

Amendment 2, tabled by my hon. Friend the Member for Rotherham, is extremely important. I congratulate her on tabling it and agree with everything she and others have said this morning. It helps to expand on what is an absolutely crucial element of the covenant.

We heard today that a Member of this place has had to take several weeks off because they are suffering from PTSD. The surprise with which we hear that reflects how we do not talk about these issues enough. We do not support people enough who have these conditions, and we are not enabling a lot of different professions to tackle these issues.

In preparation for this debate, I talked to the National Police Chiefs Council, the Police Federation, the Police Superintendents’ Association, and many police across the country who have talked about mental health and how it is a significant and growing issue. Some forces deal with it extremely well and some do not, which is the premise of where we are starting from. Some support out there is absolutely first rate and some really is not. There is no consistency across the country.

Working with traumatised survivors, as my hon. Friend set out, has a huge impact on the wellbeing and morale of police officers and staff, but the impact of running into danger and serving the public goes beyond that. I recall when I first became an MP talking to a police officer who had to stem the blood of a young boy who had been stabbed as he waited for the ambulance to arrive. The trauma of that cannot be underplayed.

I have talked to officers in the custody suite in Croydon where, only last year, Sergeant Matt Ratana, a police officer approaching his retirement after 30 years’ service in the police force, was shot dead in front of his colleagues by somebody who had been brought in for questioning. The impact of that on the entire community of police officers cannot be underplayed. The officers who were there had to intervene and try to help their colleague before the emergency services arrived. All the other people who worked in that area who were his friends and colleagues were also affected. Think also of colleagues in the Independent Office for Police Conduct who did the investigation and had to watch repeatedly the CCTV footage of what happened and see a police officer in that situation again and again. That is real, brutal trauma.

[Sarah Champion]

I support everything my hon. Friend is saying. The examples that she and I and Members here have given are the big trauma incidents that we recognise as likely to have an impact, but I also think it is important to recognise it might involve going to a domestic abuse case and seeing a child who is the same age as your child. A seemingly small case could have the most profound impact. Putting the provision for support in the police covenant, regardless of the incident, is the key to the amendment. It should be up to the individual to know and recognise when something has an impact and is starting to unravel—to see the early signs, whatever the trigger.

[Sarah Jones]

I completely agree with my hon. Friend. We do not always know what is going to trigger those kinds of responses. I met recently with Sam Smith, who some people will know. He is an ex-police officer who served on the frontline for three years. He said:

“You’re thrown into a job where, within weeks of starting, you’re spat at, fighting people, rolling over dead bodies—your adrenaline levels are so high”.

The job quickly became his life. A chronic shortage of staff meant that Smith did a lot of overtime, spending his time-off sleeping and barely seeing his friends. He started having nightmares. He said:

“I probably wasn’t the nicest to my girlfriend—I became irrational and unreasonable. When I look back now, I’m surprised she stayed with me.”

After two and a half years of service, Sam realised he was suffering from PTSD and did not feel he had the support he needed to stay in the job.

Since leaving the force, Sam has been running a campaign calling for better mental health support for police officers, as he is concerned about inconsistencies in support across the 43 different police forces. He says that at the moment the main mental health welfare service for police officers is a programme called Oscar Kilo. Many would argue that the money provided is not well spent, the provisions are entirely optional and nothing is mandatory for any forces. Because of that, and ever-tightening budgets within the police, the service can be underused, and many officers had never even heard of it.

Sam is calling for us to go further than the Bill and the amendment. He is calling for a national standard of wellbeing support for police officers and hopes that the Government will back his Green Ribbon Policing campaign. I know he would appreciate it if the Minister would look at the campaign for a national standard of wellbeing support, and perhaps she might consider meeting Sam and talking about how those proposals could be taken forward.

There are some aspects of the Bill on which we will inevitably disagree, but I think we can all, across the House, agree on the importance of the mental health of members and former members of the police workforce. In that spirit, I hope the Minister will support amendment 2 and potentially pledge to go further and consider wider reform to wellbeing standards for police officers.

I will move on to amendments 76 and 77 and new clause 44. As I mentioned, the Police Federation has been campaigning for many years for a covenant, through its “Protect the Protectors” campaign. All the police bodies are in favour. It is a good thing. To be the best it can be, we need to make some improvements and make sure that we do not miss this opportunity.

The covenant comes after a year where the police have had to carry out the enormous challenge of policing the draconian emergency covid legislation, with limited guidance, in some cases, or notice when laws would be changed. The police absolutely rose to that challenge and got the balance right overall. The covenant also comes within the context of significant cuts to the police, as well as the nature of crime changing, with violent crime high, terrorism and historic child abuse cases taking up more of police time, and a high proportion of crimes now online. The number of assaults on police officers has rocketed to more than 35,000 assaults in the last year, a subject we will return to in our debate on clause 2.

As my hon. Friend the Member for Rotherham mentioned, the number of police officers leaving the service with mental health problems is too high. Research from a team of sociologists at Cambridge University showed that nearly one in five police officers have symptoms consistent with PTSD. It is widely recognised that mental health issues are widespread and under-detected, and a proper response is patchy across police force areas.

Morale is at an all-time low. The Police Federation’s 2020 survey revealed that 86% of respondents said that they did not feel fairly paid in relation to the stresses and strains of the job. Some 65% of respondents reported that the covid-19 crisis has had a negative impact on their morale and 76% felt unfairly paid for the risks and responsibilities of their job during the pandemic.

[Alex Cunningham]

My hon. Friend will recollect the evidence given by John Apter during the evidence sessions. He quoted Martin Hewitt:

“You heard from Mr Hewitt that assaults on officers, staffers and other emergency workers have increased by 19% during the pandemic—some horrific levels of attacks—and very often, my colleagues say that they feel they are treated as a second-class victim.”––[Official Report, Police, Crime, Sentencing and Courts Public Bill Committee, 18 May 2021; c. 21, Q33.]

Does my hon. Friend agree that, having seen that surge, what she is trying to achieve is all the more important?

[Sarah Jones]

My hon. Friend is absolutely right. Throughout the period of covid, I have been talking to John Apter, Martin Hewitt and others. The impact on police staff—the exhaustion—of not being able to take leave for long periods of time and of those increased assaults has been significant. We need to reflect that.

As of March 2020, there were 2,578 police officers on long-term sick leave. More than half of long-term police officer absence is due to sick leave. In 2019, the national police wellbeing survey identified some worrying mental health data, which we have heard about. Some 18,066 police officers and 14,526 police staff responded to the survey, and 67.1% of respondents reported post-traumatic stress symptoms that would warrant an evaluation for PTSD. The average anxiety score for police officers was moderately high and their average depression score was moderate. They were not given the vaccine as a priority, so they were running into danger with that threat, and they have also had a pay freeze. This is an opportunity to show that we appreciate the work that they do, and to acknowledge that we can do better in giving them more support in the job that we ask them to do.

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[Sarah Champion]

I support the amendment. To be quite honest, if I am on a train and something kicks off, I do not really care what police force the officer comes from. If they are a member of the British Transport police and can sort the incident out, I am just incredibly grateful. They ought to get the same recognition and levels of support as any other police officer.

[Sarah Jones]

My hon. Friend is completely right. The fact that those police are the responsibility of another Department is neither here nor there. They should absolutely be front and centre as part of the covenant. We want to ensure that all the wider police family is covered by the police covenant. The amendment would extend the covenant to the British Transport police, the Civil Nuclear Police Federation and the Ministry of Defence police.

The British Transport police are the specialist police force for Britain’s railways, providing a service to rail operators, their staff, and passengers across the country. They respond to and investigate all crimes committed on or related to the railway network, including the most serious. They also have a significant role to play in protecting the many vulnerable people who use the railway network and stations as refuge when in crisis.

The nature of the work of the British Transport police means that officers regularly deal with the most traumatic incidents, and I would like us to reflect on that. Around 300 people take their own lives on the railways every year. British Transport police are the ones who attend and manage all those scenes, so every year, 40% of British Transport police are affected by people taking their own lives on the railways. More than 1,000 staff are affected by two or more cases.

The British Transport police often do incredible work on county lines. The criminals are savvy to that and are increasingly using taxis and recruiting young people in the towns themselves, rather than putting them on trains, as the British Transport police are so good at spotting those vulnerable young people on trains carrying drugs to other towns. There is a lot of knife crime on the transport system because people might be moving from place to place and through transport hubs. Last year, at East Croydon station, which is a major transport hub in my constituency, there was a murder when two lads from different gang networks bumped into one another and one murdered the other, and the British Transport police were there to respond.

I will give one other example. Please forgive me for talking about Croydon—I know I am a Front Bencher, but it is hard not to bring my own examples. Last week was the start of the inquest into the tram crash in Croydon, when seven people died and many more were injured as a tram toppled over after going too fast around a steep corner. The nature of that horrific incident—the windows shattered and people came out of the tram—meant that many bodies could not be identified. Again, it was the British Transport police who were there as the first responders to that crisis.

[Sarah Champion]

I did not realise until I started working on child abuse that there is an amazing charity called the Railway Children based in Liverpool and in India. The train network is often the first point at which runaway children are identified, and it is the British Transport police who are there to offer them support. My concern is that if an officer is experiencing trauma themselves, it is much more difficult for them to give the necessary sensitivity to a runaway. I agree that it seems bonkers therefore to separate British Transport police and tag it on as an afterthought.

[Sarah Jones]

I agree. When we consider the severe and significant impact of such crashes and traumas, as well as the day-to-day experience, as my hon. Friend said, of trying to deal with people fleeing county lines or fleeing crisis, we need to ensure that the British Transport police are as strong as they can be in response.

British Transport police officers are often victims of assault when carrying out their duties. On average, 21.5% of British Transport officers and police community support officers—about one in five—are assaulted each year. In the previous year to date, there were 470 assaults on British Transport police officers and community support officers. In the last year, during covid, even though the number of people using the trains went right down, assaults increased marginally. I guess that is understandable given the nature of what those officers are trying to enforce: disputes over wearing face masks or coverings on a train. There have been several incidents resulting in spitting or coughing as a method of aggravation towards either the victim on the train or the British Transport police. The Opposition’s key argument is that the British Transport police’s service is no lesser just because it happens to sit with the Department for Transport. Surely we could bring them in as part of the covenant and give them the same status as those in other police forces.

In the initial conversations about why the British Transport police, the Civil Nuclear constabulary and the Ministry of Defence police were not included, we were told that it was not feasible to put them in the Bill because they sit in different Departments: the Department for Transport, the Ministry of Defence and the Department for Business, Energy and Industrial Strategy. However, they are included in other parts of the Bill such as the clauses that refer to police driving standards. If we can include them there, presumably we could include them here.

The key point about the police covenant, which we heard in our evidence last week, is that we do not want it to be just warm words; we want it to make a tangible difference to the experience of those in the police service. It is possible to include all police forces in the Bill, and it is surely the right thing to do. I would be grateful for the Minister to confirm that she has heard and understands that and perhaps will take steps to address it.

I turn to new clause 44. We want our police to have proper mental health support, as we have heard, but we want local health bodies to have due regard to the principles of the covenant, instead of the Secretary of State reporting on these issues and presenting back to police forces. New clause 44 emulates part of what the Government have provided for the military in the Armed Forces Bill, which puts a legal duty on local healthcare bodies. The words, “due regard”, have previously been used in other legislation, such as the public sector equality duty contained in section 149 of the Equality Act 2010, which requires public authorities to have due regard to several equality considerations when exercising their functions.

We think it would be good to enshrine these measures into the police covenant and in law, particularly on an issue as crucial as health. By emulating the wording of the relevant section of the Armed Forces Bill, new clause 44 does not specify the outcomes but simply ensures that the principles of the police covenant are followed and that police officers, staff and relevant family members are not at a disadvantage. I am aware that this is one of many issues, but the stark figures that we have all been talking about this morning mean there is not really a reason why adequate healthcare support for police and retired police would not be included in the covenant.

Clause 1(7) says:

“A police covenant report must state whether, in the Secretary of State’s opinion”.

I want to pick up on that, because it is important to remember that the covenant should be about providing the police with support that has a meaningful impact on their situation. Chief Superintendent Griffiths put it well when he said at the evidence session last week that

“a police covenant is almost the sector asking the Government for additional support or assistance, or to rule out any adverse impact on police officers, and for the Government to play their role across all other public agencies to try to level the ground and make sure everything is fair and supportive for policing.”––[Official Report, Police, Crime, Sentencing and Courts Public Bill Committee, 18 May 2021; c. 29, Q44.]

I hope the Minister will consider supporting new clause 44, which I am sure would have the full backing of the House.

Finally, I turn to amendment 77, which is absolutely crucial and goes to the heart of how the covenant should work going forward. The amendment would set up an oversight board for the covenant, with an independent chair and membership of police organisations that would review the annual report before it is laid before Parliament. The amendment would also allow the Secretary of State to appoint other people to the oversight board as they deem appropriate. In essence, the amendment would ensure that the covenant does not have Ministers marking their own homework. The point of the covenant is not for the Home Secretary to decide whether the police are doing what they should be doing; the point is that the police should be working with the Home Secretary to make sure the police are getting the support that they need.

[Alex Cunningham]

I always think of the expression, “do with”, rather than “do to”, and I am sure my hon. Friend agrees that working closely with the different organisations outlined in the clause will add considerable value to what the Government are trying to achieve. Better than that, it will have better outcomes for the police officers involved.

[Sarah Jones]

My hon. Friend is exactly right in how he describes what the covenant should be about and how it should work.

[Maria Eagle]

Does my hon. Friend agree that by including a broad spread of representative organisations at all levels of the police, whether trade unions or staff associations, and at all levels, from the most junior officer to more senior officers, it is much more likely that the kinds of events that lead to the outcomes that we were discussing earlier in the debate will be identified and can be tackled via the covenant, if those things are talked about across the whole range of organisations before fixing the report? Is that not the point of the amendment?

[Sarah Jones]

I thank my hon. Friend for her intervention. She is absolutely right, and all the police organisations have been really clear that this is how we get the best outcome from the covenant, and that this is how we can best define it. I mentioned the death of George Floyd, and all the major police organisations have been working together on black lives matter issues—for example, by looking at issues around discrimination across the police force. I have had many conversations with Martin Hewitt, John Apter, police supers and others in which they talk about how absolutely fascinating it has been to talk to police officers lower down in the force, understand what is holding them back and what changes need to be made, and drive that change forward. By bringing in all these organisations, we can deliver better policy.

John Apter, in an evidence session last week, said that

“in order to make the covenant meaningful for our members, retired colleagues and volunteers, I think that level of independence on the oversight programme, the oversight board and the delivery board, which would then lead in to the Government, is really important…It is not just the federation calling for this; collectively, we all believe very strongly in it.”––[Official Report, Police, Crime, Sentencing and Courts Public Bill Committee, 18 May 2021; c. 30, Q44.]

That is a powerful case, which I am sure the Minister understands. I hope that she will support our amendments.

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[Sarah Jones]

Does the Minister acknowledge that the reason we want to put the board on a statutory footing is that at the moment it falls to the Home Secretary to provide a report to Parliament only once a year? The power balance of who the covenant is for, who should be driving the improvements and who should be leading what is needed within the police is wrong. We believe that that balance could be put right if the Bill stated that it should be those police organisations, under an independent chair. If the Minister for Policing chairs the board, inevitably he will be marking his own homework. The whole purpose of the covenant is to enable the police to get the support they need in a way that is driven by the police for the police. It is not about the Minister deciding whether what is being done suits him.

[Victoria Atkins]

I am so pleased that the hon. Lady raises that, because the very first subsection of the Bill sets out the Secretary of State’s accountability. It is the Secretary of State who lays a report before Parliament, so they are accountable to Parliament for the contents of that report. I do not have a crystal ball, but I imagine that when the first report is laid, hon. Members from across the House will ask the Secretary of State searching questions about, for example, its observations and provisions in relation to mental health and trauma. In drafting the covenant, we have tried to keep the Secretary of State’s accountability absolutely on the face of the Bill. Just as the Secretary of State is accountable at the Dispatch Box, so too must the board be chaired by the relevant Minister, so that the flow of accountability to the Dispatch Box is there.

There are other important boards across Government that are not on a statutory footing but that assist and hold Ministers to account when it comes to how particular work is developed. The accountability point is that the Secretary of State must lay this report before Parliament, and then Parliament will hold the Secretary of State to account.

[Sarah Jones]

If the board is not on a statutory footing, it does not much matter who is chairing it, because there is no statutory line of accountability. If it is not on the face of the Bill, it does not matter. The Minister could agree to have an independent chair of the board if it is not going to be on a statutory footing. Her argument does not follow, in that sense.

[Victoria Atkins]

This is very speculative, so forgive me, but let us follow the hon. Lady’s example. If the board has an independent chair, and to everyone’s surprise they make recommendations to the Secretary of State that do not include measures relating to mental health, the Secretary of State is then in a very difficult position, because she is accountable to Parliament for the contents of the report, yet the work of the report, driven by a committee that is not chaired by one of her Ministers, has come to a set of results that she may not agree with and cannot account for. This is about the trail of accountability from the covenant through to the Dispatch Box. That is why—[Interruption.] I am so sorry; I have just been handed a note but cannot read the writing. I think I can get it. We have that chain of accountability through to the Dispatch Box, which is precisely what we are trying to achieve. We do not want the report or the Minister not to be accountable.

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[The Chair]

Before I call Sarah Champion, would the shadow Minister like to say anything in response?

[Sarah Jones]

indicated dissent.

[Sarah Champion]

The Minister is clearly in listening mode, and it is deeply appreciated how much time and consideration she has clearly given to the amendment. I am reassured by what she has said. If possible, I would like to have some more of the detail that she was talking about. At this point, I will not push the amendment to a vote, because of the chance to do so at a later date.

[Sarah Jones]

I thank the Minister for her responses. On amendments 76 and 77, I stress again how keen the police world is that we make some progress on those two issues. I noted that she said on clause 77 that there will be a review in six months that will consider the independence of the chair. I think it makes sense to have an independent chair and believe it is appropriate, given that we are suggesting that the board should review the annual report before it is published. It cannot say what it is—it cannot control that—so having an independent chair would give comfort. However, I heard what she said on that, so I will not push that amendment to a Division. On amendment 76, which she briefly responded to after she got the note that we should hurry up, she said that work is ongoing. I cannot stress enough how strongly the different organisations feel about that. Again, I will not test the view of the Committee on that.

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[Maria Eagle]

I do not wish to detain the Committee for long; I have just a couple of points. The Minister set out that the consultation has gone on. It was obviously a manifesto commitment of his party, and I generally approve of manifesto commitments being implemented. Even if I might not agree with all the ones that were in his manifesto, I can see the point, but am I not right that the original intention of my hon. Friend the Member for Rhondda (Chris Bryant), who introduced the Assaults on Emergency Workers (Offences) Act, was to have a two-year maximum, but it was reduced during the passage of the legislation to one year as a consequence of the Government of the day wanting it to be one year?

I understand that there have been consultations and a manifesto commitment since, but from where does this Damascene conversion come? It seems to me that the Government originally said, “We’ll support the legislation if the maximum is one year,” and within months of it being implemented they were saying, “It’s got to be two years,” which was what my hon. Friend actually wanted. He cut it in order to get Government support. I am interested to find out where that conversion came from. Was there some sudden bit of evidence that convinced the Government that my hon. Friend was correct, in which case I congratulate the Government on being willing to change their mind. I would be interested to hear from the Minister where that change of heart came from.

Secondly, I notice that the British Association of Social Workers and the Social Workers Union have submitted a petition to the Government, which I understand has quite a few thousand signatures, asking them to amend the legislation to include social workers in the definition of emergency workers. No doubt there are arguments for and against that, but I wonder whether the Minister has anything to say about whether the Government have any intention of doing that.

[Sarah Jones]

Clause 2, as the Minister, who is my parliamentary neighbour, has outlined, increases the maximum penalty for assaulting an emergency worker from 12 months to two years. We absolutely support that provision. As my hon. Friend the Member for Garston and Halewood highlighted, the Opposition have been calling for it for years. On Second Reading of the Assaults on Emergency Workers (Offences) Act 2018, which my hon. Friend the Member for Rhondda introduced, he eloquently said:

“An assault on anyone is wrong, but an attack on any emergency worker—whether that is a police constable, a paramedic, an ambulance driver, an accident and emergency doctor or nurse, a fire officer, a prison officer, someone working in search and rescue, or someone working on a lifeboat—is an attack on us all. And when we are all attacked, we all stand firm together.”—[Official Report, 20 October 2017; Vol. 629, c. 1103.]

Many Members, including the Under-Secretary of State for the Home Department, the hon. Member for Louth and Horncastle, were present on Second Reading, and I remember well the huge support for that private Member’s Bill, with many Members wanting to speak.

During the covid pandemic, which has happened since that legislation was passed, there has been a shocking increase in the number of attacks on frontline emergency service workers, with a 31% increase compared with 2019. Over the last five years, attacks on frontline police officers have gone up by 50%. It has been clear through the pandemic that emergency services and shopworkers have been right at the forefront, risking their own health to serve their communities. Many have faced unacceptable attacks as they have worked to keep us safe, from being spat at and punched to being verbally abused and intimidated. Those attacks should be met with swift, meaningful punishment.

As I mentioned earlier, Sergeant Matt Ratana was murdered doing the job that he loved last year. All of us, I hope, would do everything that we can to honour his memory by campaigning to stop assaults on our police as best we can. The NHS figures are disturbing. Between January and July last year, there were more than 1,600 physical assaults on UK ambulance workers. In London, there were 355 physical assaults on ambulance workers and 239 incidents of verbal abuse. I experienced it myself when I rode out with some police officers, and we had to arrest people who were on drugs and being highly abusive. The ambulance workers arrived and were sexually assaulted by the two men. It is a daily occurrence, and we should not accept it.

The Government’s impact assessment states that over 11,250 cases of assault on an emergency worker were proceeded against in 2019, with around 9,050 resulting in a sentence. Of those, 1,900 cases received a fine, 3,600 a community sentence, 950 a suspended sentence and 1,550 an immediate custodial sentence. Of those receiving an immediate custodial sentence, most—67%—were sentenced to three months or less, 27% were given a sentence of three to six months, and only 6% received an immediate custodial sentence of six months or more.

We should pay tribute to my hon. Friends the Members for Halifax (Holly Lynch) and for Rhondda for all their work campaigning to achieve the change. My hon. Friend the Member for Halifax originally drafted the “Protect the Protectors” Bill and campaigned relentlessly with the Police Federation for its introduction. The Bill was later picked up as a private Member’s Bill by my hon. Friend the Member for Rhondda, and received universal support to be passed into law.

As has been mentioned, my hon. Friend the Member for Rhondda had originally pushed for a two-year maximum sentence in his Bill, but the Government had wanted 12 months, to which he agreed in order to ensure that the Bill passed. It is a shame that the Government did not agree to it at that time and it would be useful to understand what the change in view is down to. There are still concerns around the stronger sentence only applying to convictions in the Crown court, and some in the police have raised concerns that it should come alongside effective sentencing guidance: magistrates should be able to sentence for longer to avoid clogging up the Crown court. Sentencing guidance has not yet been published in relation to section 2 of the 2018 Act, and while the increased sentence is welcome in the Bill, it would be good to hear from the Minister about his plans for new sentencing guidance.

[Mr Goodwill]

Is it also the case that, because we introduced the ability to appeal against lenient sentences, if judges and magistrates do not use the powers in the Bill available to them, it is open to the Government or law officers to challenge those sentences?

[Sarah Jones]

I thank the right hon. Gentleman for his intervention. It would be good to hear the Minister’s view on that in his response.

To finish my remarks on clause 2, which recognises the bravery of emergency workers and appreciates that there should be increased sentences for those who assault them, the Government could take many other actions that may also reduce the number of assaults against emergency workers. We should not lose sight of them. Being alone on a patrol increases the risk of assault, and that tends to be down to resources. The Government need to tackle that issue. We also have a woefully small amount of evidence as to why assaults are increasing. What is the evidence around what is happening, and why it is happening? What analysis has been done by the Home Office on where these assaults are taking place, and why?

Linked to that is the issue of protective equipment. There has been a big increase in body-worn cameras and spit guards in policing, but what lessons are actually being learned from covid, and from the experience suffered by our police officers and other emergency workers during this time, to ensure that we are doing everything we can to protect them in the future? In conclusion, clause 2 is a welcome step in the right direction.

[Sarah Champion]

Covid has obviously changed everything, including our definition of “emergency worker”. Several MPs have pointed out that emergency workers are not the only group suffering from frequent violent attacks, and provisions should be extended to all staff in the NHS and social care, as well as to shopworkers. In 2020, the Union of Shop, Distributive and Allied Workers found that the vast majority of shopworkers—88%—were victims of verbal abuse in 2020. They were largely trying to implement the covid restrictions. Nearly two thirds were threatened, and nearly one in 10 were assaulted. Can the Minister explain what the Government are doing for those workers? They were on the frontline of the pandemic and should be given the same level of protection as emergency workers.

--- Later in debate ---

[Victoria Atkins]

Sir Charles, noting that there are no amendments, I do not propose to speak to the clause, which I commend to the Committee.

[Sarah Jones]

I was proposing to say a few words.

[The Chair]

Which is absolutely your right, shadow Minister.

[Sarah Jones]

Thank you, Sir Charles. Clause 3 would allow police specials—volunteer police officers—to become members of the Police Federation, a proposal that we support. I wanted to say a few words because special constables play a vital role in keeping our communities safe. They have been of huge value to communities across the country, particularly through the pandemic. The special constabulary has a long and proud history and has made an immeasurable contribution to policing our communities.

Sir Robert Peel is often quoted:

“The police are the people, and the people are the police.”

That cannot be more applicable than to our special constables who volunteer to make our communities safer while working at other jobs. It is important that special constabulary officers feel valued and that their contribution is recognised. It is imperative that they have the support and opportunities to thrive and feel they have the protections they deserve for doing such an important job. I know this clause is close to the Police Federation’s heart and to that of former special John Apter, who has campaigned for police specials to join the federation.

The number of police specials has significantly declined. There were 9,126 specials in England and Wales in September 2020. That is 10,500 fewer than in 2012, a drop of more than 15%. John Apter argues that including the specials in the Police Federation will help increase numbers, as the representation that the change will bring may encourage more people to volunteer with the police. It would give specials a legal status, like that of police officers who are members of the federation. Putting the change into law will formalise that support for specials. In a survey about federation membership, 94% of respondents who were specials said that they wanted to join the Police Federation.

In Scotland, police specials are already part of the Scottish Police Federation. Scottish specials have the same legal status in the force as their regular officer counterparts. Both are appointed to office by the chief constable of Police Scotland, so there is no legal barrier to specials joining the Scottish Police Federation. The inclusion of specials in the Scottish federation has been uncontroversial, as far as I can see.

The Association of Special Constabulary Officers is supportive of specials being given greater access to the federation’s legal advice and assistance services. It says:

“As frontline volunteer police officers we are exposed to the same risks of complaints and injuries and conduct investigations, and the Federation has an unrivalled local network of capability on those issues already in place, which is required under police regulations and funded by forces. In this respect ASCO is supportive of the ongoing work.”

However, ASCO has voiced concerns about how much it will cost and the risk of specials losing their independent voice. ASCO wants to retain its role as the representative association and professional body for police specials, with the federation being the lead and expert organisation in respect of the elements of formal representation that it is funded to undertake.

The cost will be around £3 million, which is not being covered by the Home Office. If the number of specials increase, as we hope, back to 2012 levels, that would possibly rise to £6 million or £7 million. The chair, workforce lead and “citizens in policing” lead for the Association of Police and Crime Commissioners have agreed in principle to fund membership for specials. They wrote to all current PCCs in June 2020, asking them to indicate their willingness to pay specials’ subscription fees. Although we support the relatively uncontroversial clause, will the Minister confirm that that £3 million cost is accurate? Does she think the cost of membership is proportionate? Is it appropriate for taxpayers to cover that amount out of the police precept, especially if the number of specials rise and the cost goes up to £6 million or £7 million?

[Victoria Atkins]

I note the time. Our special constables make a vital contribution to keeping communities safe, through their professionalism, dedication and sacrifice, increasingly fulfilling a range of specialised and frontline roles. They often face the same risks as regular officers while on duty and have the same powers as regular officers.

Police, Crime, Sentencing and Courts Bill (Sixth sitting)

Sarah Jones Excerpts

Committee stage
Tuesday 25th May 2021 Public Bill Committees

[The Chair]

With this it will be convenient to consider clauses 5 and 6 stand part.

[Sarah Jones (Croydon Central) (Lab)]

We support clauses 4 to 6, which relate to police driving standards. The Opposition have been calling for some years for proper legal protections for police officers when they pursue suspects on the roads. We know that the police put themselves in incredible danger to ensure that suspects are caught, and they should not be criminalised for doing that job. One of the first events I attended as an MP was an event organised by the Police Federation, and this issue was part of the first conversation that I had with it. I pay tribute to the Police Federation and others who have campaigned for this change.

Clauses 4 to 6 amend the Road Traffic Act 1988 so that qualified police drivers are compared to what is expected of a competent and careful trained police driver, rather than what is expected of competent and careful drivers, for the offences of dangerous and careless driving. It makes a lot of sense to give the police these added protections when they are driving for police purposes.

For those who may have concerns about these clauses, it is important to consider the context in which this change is being made. The Independent Office for Police Conduct publishes an annual report on deaths during or following police contact. In 2019-20, 24 people died in road traffic incidents involving the police: 19 were pursuit related; three were emergency response related; and the two remaining incidents were classed as other police traffic accidents. The number of road traffic fatalities involving the police in 2019-20 was the fifth lowest figure since records began in the early 2000s.

The Police Federation has been campaigning since 2012 for the skills of police officers to be considered in dangerous and careless driving cases. John Apter of the Police Federation, giving us evidence last week, said:

“All that we are seeking is for the training and the purpose of the journey to be recognised in law, because I think the public watching this would be astounded if they were to see a police vehicle engaged in a pursuit or an emergency response and that driver is then judged as any other member of the public. So, you take away the blue lights and the police markings, and that vehicle is treated as one being driven by any other member of the public. That is bizarre; that should not be allowed to happen.”––[Official Report, Police, Crime, Sentencing and Courts Public Bill Committee, 18 May 2021; c. 22, Q34.]

The Police Federation says that the

“current legislation leaves drivers vulnerable”,

and that subjecting drivers to conduct and criminal investigations as a result of being held to the same standards as a normal driver caused significant distress and impeded their careers. The Home Office’s review of the law, guidance and training governing police pursuit in September 2019 concluded that it is not appropriate to hold officers to the same standards as regular guidance, and set out to consult on possible changes.

[Mr Robert Goodwill (Scarborough and Whitby) (Con)]

Is the hon. Lady aware that police forces have in place strict guidance on how police officers can use their driving skills? In particular, if a hot pursuit were to put members of the public at risk, they would have to desist from the pursuit.

[Sarah Jones]

The right hon. Gentleman is right; there are many other processes in place for when an accident occurs. As soon as an accident occurred, the IOPC would investigate why it happened. Measures are in place to ensure that the police do not do things that we would not expect of them. The amendment aims to make sure that it is very clear what is expected of them and what is not. When I spoke to the National Police Chiefs Council lead on those issues, it was clear to me that we have to enable the police to do what they need to do without fearing that they will be taken to court. There also need to be checks and balances to ensure that they do not overstep the mark.

The Government review was welcome. The IOPC concluded:

“Any change to legislation must not have the unintended consequence of reducing public safety or undermining the ability to hold the police to account effectively”.

That is very important. The change is welcome; it is not about the police driving without fear of scrutiny, but it is important that police are not prosecuted for doing what they have been trained to do.

It is also important to discuss an issue related to clause 4, which a number of police officers have raised with me. We tried to craft some amendments around this, but it was problematic, so I am just raising the issue. There was a concern that the number of officers who have undertaken the full level of driver training varies between forces, because there are various different levels of driving training, and what officers have will depend on where they are. Officers who do not receive the full training worry that they will be hesitant to do what may be required of them in the circumstances. For instance, if they were on a motorway and needed to ram a vehicle in order to save someone’s life on the road, would an officer take that risk if they could end up subject to a criminal investigation?

The police clearly have to strike a fine balance in the circumstances they are presented with. I have no doubt that, in the main, they will do what is expected of them. Subsection (3) states that

“the designated person is to be regarded as driving dangerously… only if)—

(a) the way the person drives falls far below what would be expected of a competent and careful constable who has undertaken the same prescribed training, and

(b) it would be obvious to such a competent and careful constable that driving in that way would be dangerous.”

Can the Minister provide some assurance? If a police officer who has done the basic level of police driver training finds themselves in a situation where they have to respond to an emergency incident that would require higher levels of training, how would they be protected?

On a matter related to clauses 4 to 6, the College of Policing has said that it would be “highly desirable” for police vehicles involved in pursuits always to be fitted with black boxes, which monitor the performance of drivers. Some forces, such as the Metropolitan police, fit all vehicles with those devices, but that is not the case everywhere. Could the Minister look into that? The cost might be prohibitive, but what would it take for all vehicles used in police pursuits to have those black boxes? What safeguards will be in place to protect drivers who have not had the highest level of driver training? Will that lead to more IOPC and court referrals, or can we be comfortable that the clauses as drafted will provide that protection?

[Sarah Champion (Rotherham) (Lab)]

I am broadly supportive of the measures. When I go out with South Yorkshire police, I am always incredibly impressed by the amount of planning and expertise in the force, but I need to raise concerns made by the IOPC, which I hope the Minister will respond to. It, too, is broadly supportive, but it has raised a couple of reservations, including the fact that the lack of detailed information on the number and outcomes of investigations involving police road traffic incidents made it difficult to understand the full context of the proposed legislative change, and therefore how big the current problem is. It also says that any change to legislation must not have the unintended consequence of reducing public safety or undermining the ability to hold the police to account effectively. I wonder whether the Minister could comment on those points.

[Victoria Atkins]

Clauses 4 to 6 provide a new test to assess the standard of driving of a police officer. Should an officer be involved in a road traffic incident, this new test will allow courts to judge their standard of driving against a competent and careful police constable with the same level of training, rather than against a member of the public, as at present. Clause 4 applies the new test to the offence of dangerous driving, while clause 5 makes similar provision in respect of the offence of careless driving.

We believe that police officers need to be able to do their job effectively and keep the public safe. We are aware of concerns among some police officers over the legal position when pursuing suspected offenders or responding to an emergency. The hon. Member for Croydon Central asked about different standards of training. The proposed changes seek to strike the right balance between enabling the police to keep the public safe on the roads and pavements, apprehending criminals around the country who would otherwise pose a threat, and effectively holding to account the minority of officers who drive inappropriately.

The National Police Chiefs’ Council has worked closely with police forces to standardise police driver training across England and Wales. This will ensure that police drivers are trained to a similar standard, depending on their role, and that the legal test for police drivers will have a fairer comparator. This will also include different levels of training to reflect the training and skills that each role requires.

[Sarah Jones]

The NPCC made exactly that point: people will have different levels of training. It just wants reassurance about officers who are not trained to do something that they end up having to do in the line of duty. Will they be affected because they have not had a very high level of training when, for example, pursuing somebody?

[Victoria Atkins]

This will include different levels of training to reflect the training and skills that each will require, so that difference is reflected. We are pleased to introduce these clauses. There is a careful balancing act between the interests of the law-abiding public and police officers while ensuring that standards are maintained on the road. These provisions will also extend, I am happy to say, to police driving instructors when they carry out advanced police driving techniques for the purpose of teaching trainee police driving instructors and trainee police drivers in the territorial police forces and other police forces. We believe that this new test strikes that balance, so I commend the clauses to the Committee.

Question put and agreed to.

Clause 4 accordingly ordered to stand part of the Bill.

Clauses 5 and 6 ordered to stand part of the Bill.

Clause 7

Duties to collaborate and plan to prevent and reduce serious violence

[Sarah Jones]

I beg to move amendment 78, in clause 7, page 7, line 33, after “violence”, insert “and safeguard children involved in serious violence”

This amendment, together with Amendments 79, 80, 83, 84, 85, 86, 88 and 89, would ensure specified authorities involved in the “serious violence duty” safeguard children at risk of or experiencing from harm.

[The Chair]

With this it will be convenient to discuss the following:

Amendment 79, in clause 7, page 7, line 38, after “violence”, insert “and safeguard children involved in serious violence”

See explanatory statement to amendment 78.

Amendment 92, in clause 7, page 8, line 4, at end insert—

“(d) prepare and implement an early help strategy to prevent violence and support child victims of violence and prevent hidden harm.”

This amendment would add a duty on specified authorities to prepare and implement an early help strategy.

Amendment 80, in clause 7, page 8, line 4, at end insert—

“(d) safeguard children involved in serious violence in the area, and

(e) identify and safeguard children who are involved in serious violence in the area as a result of being a victim of modern slavery and trafficking offences under the Modern Slavery Act 2015.”

See explanatory statement to amendment 78.

Amendment 93, in clause 7, page 8, line 10, at end insert—

“(d) any children’s social care authority for the area which is not a specified authority for the area.”

This amendment would ensure that any children’s social care authority which was not already involved in the strategy would be consulted in the preparation of the strategy.

Amendment 82, in clause 7, page 8, line 30, at end insert—

“(7A) The local policing body for the area must provide an annual monitoring report for local safeguarding partners on actions undertaken as part of a strategy.”

Amendment 83, in clause 8, page 9, line 3, after “violence”, insert “and safeguard children involved in serious violence”

See explanatory statement to amendment 78.

Amendment 84, in clause 8, page 9, line 6, after “violence”, insert “and safeguard children involved in serious violence”

See explanatory statement to amendment 78.

Amendment 85, in clause 8, page 9, line 11, after “violence”, insert “and safeguard children involved in serious violence”

See explanatory statement to amendment 78.

Amendment 86, in clause 8, page 9, line 11, at end insert—

“(d) identify and safeguard children who are involved in serious violence in the area as a result of being a victim of modern slavery and trafficking offences under the Modern Slavery Act 2015.”

See explanatory statement to amendment 78.

Amendment 88, in clause 9, page 10, line 30, after “violence”, insert “and safeguard children involved in serious violence”

See explanatory statement to amendment 78.

Amendment 89, in clause 9, page 10, line 32, after “violence”, insert “and safeguard children involved in serious violence”

See explanatory statement to amendment 78.

New clause 17—Child criminal exploitation—

“At end of section 3 of the Modern Slavery Act 2015 (meaning of exploitation), insert—

‘(7) Another person manipulates, deceives, coerces or controls the person to undertake activity which constitutes a criminal offence and the person is under the age of 18.’”

This new clause introduces a statutory definition of child criminal exploitation.

New clause 47—Duties to collaborate and plan to prevent and reduce child criminal exploitation and safeguard affected children—

“(1) The specified authorities for a local government area must collaborate with each other to prevent and reduce child criminal exploitation in the area and safeguard affected children.

(2) The duty imposed on the specified authorities for a local government area by subsection (1) includes a duty to plan together to exercise their functions so as to prevent and reduce child criminal exploitation in the area and safeguard affected children.

(3) In particular, the specified authorities for a local government area must—

(a) Identify the kinds of child criminal exploitation that occur in the area,

(b) identify the causes of child criminal exploitation in the area, so far as it is possible to do so, and

(c) prepare and implement a strategy for exercising their functions to prevent and reduce child criminal exploitation and safeguard affected children in the area.

(4) In preparing a strategy under this section for a local government area, the specified authorities for the area must ensure that the following are consulted—

(a) each educational authority for the area;

(b) each prison authority for the area;

(c) each youth custody authority for the area.

(5) A strategy under this section for a local government area may specify an action to be carried out by—

(a) an educational authority for the area,

(b) a prison authority for the area, or

(c) a youth custody authority for the area.

(6) Once a strategy has been prepared under this section for a local government area, the specified authorities for the area must—

(a) keep the strategy under review, and

(b) every two years, prepare and implement a revised strategy.

(7) A strategy prepared under this section may be combined with a strategy prepared in accordance with section 7 (Duties to collaborate and plan to prevent and reduce serious violence) or section 8 (Powers to collaborate and plan to prevent and reduce serious violence).

(8) For the purposes of this section, “child criminal exploitation” means activity which would constitute an offence under section [Child criminal exploitation] of this Act.”

New clause 58—Training on child criminal exploitation and serious youth violence—

“(1) The Secretary of State must, within three months of the day on which this Act is passed, publish a strategy for providing specialist training on child criminal exploitation and serious youth violence for all specified authorities to which Chapter 1 of Part 2 of this Act applies.

(2) Before publishing the strategy the Secretary of State must consult such bodies with expertise in providing relevant training as the Secretary of State considers appropriate.”

[Sarah Jones]

This is a really important part of the Bill. The Minister knows that I came into this House in 2017 absolutely determined to tackle the scourge of rising levels of serious violence, particularly youth violence, and she knows that I set up and chaired the all-party parliamentary group on knife crime and violence reduction, which relentlessly champions the need to prevent violence through strong policing, of course, but also through prevention. We have been in many debates together, and she has kindly met constituents of mine who have lost family members to knife crime, and she has also spoken to the APPG.

There has been a long conversation in Parliament about bringing organisations together to look at the stories behind the headlines, and to look at the evidence of what causes violence, in order to understand that it is not inevitable and that it is something we can affect. There is plenty of evidence from many places on how to reduce violence. Many other hon. Members across the House have campaigned on this, not least my hon. Friend the Member for Lewisham, Deptford (Vicky Foxcroft), who has done so much cross-party work on the issue.

Clauses 7 to 22, which place a duty on local authorities to plan, prevent and reduce serious violence, are welcome. At their core is the new duty on specified authorities to identify the kinds of serious violence that occur in a relevant place; to identify the causes of serious violence in the area; and to prepare and implement a strategy for exercising their functions to prevent and reduce serious violence in an area. That is significant. Although there are many “buts”, which we will come to as we go through the amendments, it is important to recognise that that is a good thing and will make authorities work better together and make them look to prevent as well as reduce violent crime.

Of course prison is absolutely crucial in terms of justice and punishing those who have wronged, but we know that it does not stop overall levels of crime increasing. Although policing is absolutely vital, at the heart of everything we are talking about, we know that an increase in resources and focus leads to a reduction in violent crime, but it goes up again over a couple of years. We can look at how knife crime goes up and down. It goes up, there is a significant intervention from the police, there are more resources, and it goes down. People are locked up, but then a few years later it starts rising again. We know that the real long-term solution is prevention, as evidenced in many parts of Scotland—the example often given—and in other parts of the world as well.

We have talked about this before, but we know that the approach to prevention and tackling violence is more effective when it is tackled in the way that the last Labour Government tackled teenage pregnancies. We had the highest teenage pregnancy rates in Europe. It was a massive problem and everyone was very concerned about it. There was a moral panic about why so many were getting pregnant. There was a 10-year intervention that looked at the causes of why these things were happening, so it was not just about trying to stop girls having sex; it looked at why on earth their aspirations were so low. Their education and ambitions were not what they could have been. A broad approach, targeted from the centre and delivered locally over a 10-year period, reduced teenage pregnancy by 50%—a huge, long-term reduction that has remained pretty static. It has delivered a societal change because of the nature of the approach.

It is argued that we can do the same thing with violence, as has been done in Scotland. Over a long period of time we can reduce violence, and those levels can become the societal norms. We can shift the norms and reduce violence. That is what many of us have campaigned for, and it is at the heart of this new part of the Bill.

I will give another example. In Croydon, there was a review of 60 cases of serious violence among young people, which involved people who were murdered, people who were imprisoned for murdering other people, and people who had been victims or perpetrators of the most serious cases. They looked at all those cases and where the similarities were, and it turned out that half of those young people were known to social services before they were five years old. That tells us everything we need to know about how the duties should operate. If someone is in care, is vulnerable, has experienced domestic abuse in the home, has parents with addiction or does not have parents at all, there are things that make them more vulnerable to getting involved in violence later in life. If we intervene at the earliest possible stages, we can have a significant impact not just on the lives of those young people, but on society and on the cost to society. Figures about the cost of a murder are bandied around, although I am sure they are now outdated. People used to say a murder costs about £1 million, but it probably now costs the public purse significantly more.

[Sarah Champion]

I just wanted to congratulate my hon. Friend on making such a powerful and relevant speech. I also wanted to give her a moment to get a glass of water

[Sarah Jones]

I thank my hon. Friend for allowing me to get a glass of water.

[Alex Cunningham (Stockton North) (Lab)]

I am really pleased that my hon. Friend has raised the issue of looked-after children. When I was the lead member for children and young people in Stockton, there was forever a group of young people whom we knew needed extra support, yet we found out that many of these young people ended up in the prison system later in life, which was a terrible tragedy. More power to her elbow, because we really need to tackle the problem early. I am sure she agrees with that.

[Sarah Jones]

I completely agree.

When we talk about violent crime, there is often a moral panic about what is happening, and we often see very polarised responses. Either it is all about more policing and more resources, or it is about tougher sentencing—throwing people in prison and throwing away the key. Actually, we need to have a much more grown-up conversation about the causes of these issues and what the solutions are. I hope, and I think we all hope, that this part of the Bill is a step in the right direction towards doing that.

Moving on to the amendments that we have tabled, having held roundtable discussions and spoken to policing organisations, charities and others, I am concerned that, as currently drafted, the Bill will not deliver the results that we intend. There is a lot of talk of the need for a public-health approach to tackling serious violence that seeks to address the root causes, and we welcome the Government’s acknowledgement of the need to shift the focus towards that. However, we do not believe that, as currently drafted, the proposals amount to a public health approach. We, along with several agencies, are concerned that there could be a number of unintended consequences for both children and the agencies involved if the statutory public-health duty is created without achieving the desired result of reducing the number of children who are harmed by serious violence.

A vision for tackling serious violence that does not also help to protect children from harm, does not include the full range of partners and interventions needed, and does not consider some of the more structural factors that contribute to violence, will not deliver the outcome that we want. We need a broader strategy that equips the safeguarding system and the statutory and voluntary services to protect children from harm, with the resources and guidance to do so. It should embed a response that takes account of the context in which children are at risk and that is trauma-informed, as we were discussing this morning. A duty for serious violence that presents these issues as distinct from wider safeguarding duties could lead to a more punitive approach to those children, which evidence suggests is inadequate to reduce violence. Of course, implementation of a new duty without additional resources will be difficult for services that are already tasked with rising demand and crisis management options, and have low staff retention.

Amendment 78, and the amendments to other clauses, make the specified authorities involved in the serious violence duty safeguard children at risk of or experiencing harm. In particular, amendments 80 and 86 refer to children involved in serious violence in the area as a result of being a victim of modern slavery and trafficking offences under the Modern Slavery Act 2015. The point we are trying to make is that the statutory duty to reduce violence cannot be effective on its own, without a statutory duty to safeguard children.

As an example, I met police from Exeter because there is a county line from London to Exeter, and the police had been working to tackle that issue. A senior police officer told me that there had been a number of occasions on which they had picked up a child at the coach station because they can quite often tell if someone is bringing drugs to the area, as they will get off the coach on their own with just a rucksack—the police pick up young children who are doing that. On several occasions, that senior police officer had to sit with the child in his office for hours because nobody would come to collect them. Perhaps the child is in foster care, which is very often the case, and because they have been found with drugs, the foster parents will not have them back. The local authority might not have any emergency foster carers and so cannot take the child back, and nobody will come to look after them. That child is committing a crime, but they are also a child who ends up sitting there playing computer games in a senior police officer’s office in Exeter because nobody has worked out how to join things together and look after them.

[Sarah Champion]

Does my hon. Friend agree that those children are symptoms and casualties of crime, rather than the cause? We need some sensitivity in the Bill to recognise that.

[Sarah Jones]

My hon. Friend is exactly right. We do not disagree with the premise of what is in the Bill, but we think those two things need to come together. I am sure we all have examples of cases where children are manipulated and groomed into committing criminal offences. They sometimes have no choice whatever, or they feel that they have no choice. Those things have to be looked at together or this will not work.

Amendment 92 would add a duty on the specified authorities to prepare and implement an early help strategy to prevent violence, support child victims of violence and prevent hidden harm. The Minister may say that that could be part of the wider duty, but we have tabled the amendment because that early intervention is crucial to prevent violence before it occurs, and that really ought to be in the Bill.

We in this place will all have spoken to and had presentations from people talking about ACEs—adverse childhood experiences—whether domestic abuse or a violent death, for example. Violent death in particular causes significant problems for young people and has not really been looked at enough. We know about all those ACEs, and we know that the systems and structures in place at the moment often intervene at the point of absolute crisis rather than intervening earlier and more effectively by trying to break the cycle of violence. Including an early help strategy in the Bill would ensure that that crucial element is not forgotten. That is part of a much wider issue that is out of scope of the Bill, including Sure Start, the importance of schools and intervention, and the funding of child social services, but we want the principle of early intervention to be included in the Bill. It is important that the Government, local authorities, the police and the voluntary sector have a joined-up approach to preventing, recognising and responding to violence. Central to that must be the need to prevent the criminalisation of children, as well as early intervention to prevent young people from becoming involved in violence in the first place.

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[Sarah Champion]

This point is more to do with new clause 47, but it is appropriate now. Does my hon. Friend agree it is vital that the serious violence duty and accompanying strategy interact with local authority strategies to tackle child exploitation, the national violence against women and girls strategy and the national tackling child sexual abuse strategy as well as others?

[Sarah Jones]

Yes, my hon. Friend is right. They all need to join up, but some organisations have asked questions about how such things will join up effectively to ensure that offshoots of activity are pulled together as one whole.

New clause 47 would ensure that the bodies under the duty collaborate and plan to prevent and reduce child criminal exploitation and safeguard affected children. The new clause takes the definition of modern criminal exploitation from new clause 17, tabled by my hon. Friend, which would amend the Modern Slavery Act 2015 to introduce this statutory definition of child criminal exploitation:

“Another person manipulates, deceives, coerces or controls the person to undertake activity which constitutes a criminal offence and the person is under the age of 18.”

The definition would cover activities such as debt bondage and GPS tracking by gang leaders of those coerced into running county lines. When I was in Birmingham a few weeks ago, I heard about very young gang members. Yes, they were scared, but they were so invested in their criminal gang leaders, whom they saw as their family, that they were prepared to commit crimes that would put them in prison for very small amounts of money. They genuinely believed that was the most sensible choice available to them. They were clearly exploited, but there is not necessarily a definition in place to respond appropriately to that.

As my hon. Friend said, children who are groomed and exploited by criminal gangs are the victims, not the criminals. Many different organisations have flagged, as witnesses said last week, the fact that the absence of that statutory definition makes it harder for agencies to have a co-ordinated and effective response to vulnerable children.

The serious violence duty is a unique opportunity to bring together all the relevant authorities for training and action at a local level. In the past decade, county lines drug dealing has been a major driver of serious violence across the country. I am afraid that since the National Crime Agency’s first county lines assessment in 2015, the Government have been slow to respond, and cuts across the public sector have made things worse. Sadly, county lines drug networks rely on the grooming of vulnerable children to act as drug runners. They are badly exploited, then abandoned when they are no longer of use to the gang leaders. The Children’s Commissioner for England has estimated that 27,000 children are gang members. Modelling done by crime and justice specialists, Crest Advisory, identified 213,000 vulnerable children.

Children and vulnerable young people experiencing serious violence require a different response from that given to adults, and being involved in violence is often an indicator that children are experiencing other significant problems in their lives, such as being criminally exploited. Despite growing recognition of child criminal exploitation, there are still concerns that many children and young people involved in exploitation are not being identified or sufficiently supported by statutory services. Too often, these young people only come to the attention of the authorities when they are picked up by the police, caught in possession of drugs or weapons, or through involvement in a violent assault.

I should also mention the important issue of young girls who are involved in gang activity. I met a young girl who had been involved and had been injured as a result. She was in a hotel room with several gang members, who had money and drugs. The police had raided the hotel and arrested all the boys, but told the girl to be on her way because they did not know how to respond to her. She was in danger and was being exploited, but the police response was not there because they were not used to dealing with girls in that situation. Presumably they thought they were being kind, but they were actually leaving a girl who had been exploited to potentially still be in danger.

[Alex Cunningham]

When I was a member of the Education Committee, we carried out an inquiry around support, particularly for girls, and we had an evidence session with young people. A 16-year-old girl, who had been a victim of exploitation, had been placed in an out-of-town YMCA somewhere in Kent, to live there until the authorities sorted out what needed to happen with her. She told stories of men braying at her door at night asking her to come and party. That is all the more reason why we need a multi-agency approach, so that girls like her are properly protected.

[Sarah Jones]

Sadly, that tale is probably not uncommon. I am sure that the response of agencies to girls is better than it was, but it is still not joined up in a way that provides the support that is needed.

Children and young people who are victims of child criminal exploitation and gang violence are not being identified in time to save their lives, literally, and to save other people’s lives, despite frequent opportunities to do so. Communications between agencies and the recording and sharing of data is often poor, and support for at-risk children is inconsistent. As the 2019 report on gangs and exploitation by the previous Children’s Commissioner found, only a fraction of children involved in gang violence are known to children’s services.

The experience of being criminally exploited is extremely traumatising to children, and it is unlikely they will be able to escape these abusive experiences and rehabilitate without significant professional support. The approach to tackling child criminal exploitation must combine effective enforcement with long-term safeguarding and support strategies that are focused on managing long-term risks as well as the immediate ones. Too often vulnerable children receive crisis-driven care, not the long-term trust that they need, which would be provided by preventative support.

As part of criminal exploitation, children may be threatened into carrying knives or perpetrating violence against rival groups. It is important to understand the underlying causes of why children might be involved in violence and for these underlying causes in a child’s life or in the lives of children within a certain area to be addressed. This would involve adopting a more universal understanding of how children are coerced, controlled and threatened into serious violence, taking disruption action against those who coerce and control children, and ensuring that the response to children is centred on addressing their needs, fears and experiences.

[Sarah Champion]

I was struck by and am still musing on the fact that, earlier, when the example of a child carrying out a crime was given, the word “choice” was used. Does my hon. Friend agree that, in the situation she describes, these children have no choice unless we add to the Bill the measures that she argues for?

[Sarah Jones]

I agree that they do not have a choice, but I have met young people who committed crimes as a child who believed that they did have a choice and that they were making the right choice because their parents had no money and they wanted to pay the bills. They believe that they are making sensible decisions, but they are children and they are vulnerable, and they are not. We need to provide support if we are going to stop them spiralling into a life of crime in the future.

New clause 58 was tabled by my hon. Friend the Member for Vauxhall (Florence Eshalomi), who now co-chairs the all-party parliamentary group on knife crime and violence reduction, and who worked with Barnardo’s on the new clause. It would require the Government to publish a strategy for providing specialist training on child criminal exploitation and serious youth violence for all specified authorities to which chapter 1 of part 2 of the Bill applies. It is really important that all bodies involved in safeguarding children and the prevention of serious violence receive proper training in looking out for and preventing child criminal exploitation. The training of professionals can make all the difference when identifying children who have been criminally exploited and in understanding the dual nature of a child being an offender and a victim.

I have had trauma training, as I am sure have several people in this room. I cannot tell hon. Members how useful it has been to understanding the issues children deal with and which levers might be used. I was in a meeting with police recently, talking about a 15-year-old boy who had just committed quite a serious crime. The police officers, who had had trauma training, had a relationship with this child because they had been playing football with them for several months before the crime occurred. They were able to appreciate that the child had an alcoholic mother who was abusive, and we were able to talk to some charities about getting some support for that child. The police understood what interventions were needed to try to pull the child out of criminal activity and pushed towards a life of non-criminal options. It was amazing to see. Having that training and understanding some of these underlying issues is really important. I am grateful to my hon. Friend the Member for Vauxhall for tabling the new clause, which we will support.

[Sarah Champion]

I want to express my gratitude to my hon. Friend the Member for Croydon Central for the amendments and new clauses she has tabled. Effectively, my new clause 17 underpins and provides the impetus for the work that she detailed, and I am grateful to the Children’s Society for helping me to develop it.

I start from the position of being the MP for Rotherham, where 20 years ago it was not uncommon for girls to be raped, abused by gangs or forced into carrying out crime on behalf of those gangs. They would get a criminal record and would be told that they were child prostitutes, and their lives were destroyed accordingly. We now have a definition of child sexual exploitation. That completely changed the attitudes of all the agencies, including the police and the social services, and the general population to the fact that exploitation of those children was happening.

It is clear that child criminal exploitation is going on, whichever heading we put it under, but we are quite a long way behind in our understanding of what that actually means. New clause 17 would place a statutory definition of criminal child exploitation in law for the first time by amending the Modern Slavery Act 2015. For it to be truly effective, the Modern Slavery Act must adapt as new forms of exploitation are recognised. Child criminal exploitation is the grooming and exploitation of children into criminal activity. There is a strong association with county lines, but it can also include moving drugs—I am grateful to my hon. Friend the Member for Croydon Central for adding to my knowledge; I now know what “plugging” is, which children are forced to do—financial fraud and shoplifting. Obviously, that has been around for decades, but we are only just waking up and realising the harm and damage that those criminals are causing children. The true scale remains unknown, as many children fall through the cracks of statutory support.

The Children’s Commissioner estimated that 27,000 children are at high risk of gang exploitation. During 2020, 2,544 children were referred to the national referral mechanism due to concerns about child criminal exploitation, and 205 of those cases involved concerns about both criminal and sexual exploitation. My hon. Friend rightly highlighted that girls are criminally and sexually exploited by the same gang.

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[Sarah Champion]

My hon. Friend is absolutely right to raise that. I am going off on a slight tangent, but The Times is tomorrow coming out with an article about child sexual exploitation. One of the key indicators of that is children going missing, and it cites the case of one girl who went missing 197 times, each time being reported to the police—this is recently—but the police still did not act. Just having the definition is not enough. This is about the issues that my hon. Friend the Member for Croydon Central described. It is about the training, public awareness, and all the agencies working together when they see that child. What I have found with the CSE definition is that having that hook does really sharpen and focus professionals’ minds around it. We have taken huge strides when it comes to child sexual exploitation, because we have that definition in place and because there is a level playing field when talking about it.

[Sarah Jones]

I congratulate my hon. Friend on the very powerful case she is making. It reminds me of a conversation that I had recently with police officers, who were talking about the number of children who go missing but are not reported to the police as missing, because the family have other children, siblings of the missing child, and are nervous that if they report that one child has gone missing—who will probably come back, because he is doing county lines—the other children might be taken into care. That underlines the case for training and understanding of these issues beyond just policing. It is through education and terminology that everyone can understand that all the different organisations involved in trying to reduce this can understand some of the issues and intervene when they need to.

[Sarah Champion]

Exactly. Once people have the definition, they have a list of the indicators, and going missing would of course be one of those, so the first thing that would cross the social worker’s mind, rather than “Oh, this is bad parenting,” would be, “Could the child be being sexually exploited? Could the child be being criminally exploited?” It really shifts the mindset of the professionals. I thank my hon. Friend for that intervention.

There is another potential nervousness that the Minister may have. I know that a statutory definition of child criminal exploitation was explored when the Modern Slavery Act was reviewed in 2019. I note that the reviewers’ main concern was about a narrow definition of child criminal exploitation that would not be future proof as the exploitation adapted. That is why the definition that I am proposing is broad and simple, focusing on the coercive and controlling behaviour that perpetrators display in relation to their victims, not on the very specific criminal act itself.

I know that the Home Office has raised concerns with regard to use of the section 45 defence in the Modern Slavery Act and children being able to take advantage of that. I am aware that colleagues have also raised concerns about unintended consequences that this definition might have for the use of that defence, but I do not believe that there would be those unintended consequences. A clear definition of child criminal exploitation would guide a jury far better than is the case now, as jurors would need to weigh up the evidence and consider the defence but would be aided by a much clearer definition of what constitutes relevant exploitation. That would in fact reduce the risk of the section 45 defence being used spuriously, which is a concern that colleagues have raised with me. This definition would not change the provisions under section 45, but I hope that the awareness raising that would come with a statutory definition of child criminal exploitation would enable genuine victims of exploitation to use the defence more routinely.

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[Victoria Atkins]

I do not assume that the duty and the draft statutory guidance preclude that consistency of standard; but in this arena and also with other crime types that are hidden and which prey upon vulnerable people, I am very keen that we encourage innovation. We are seeing some really interesting work being conducted through the Youth Endowment Fund. The hon. Gentleman may be familiar with that; it is a fund that stretches over a decade. It is protected money of £200 million that is being invested across the country and is evaluated very carefully in order to build a library of programmes that work—and also programmes that do not work: we need to know both those things, to help local commissioners make good decisions about what they should be funding with taxpayers’ money. I am keen that we enable that sort of innovation.

Of course, consistency of standards is one of the reasons why we want to introduce the duty—precisely because we are aware that those areas that have VRUs may well be a few steps ahead of other parts of the country that do not have them because they do not suffer the same rates of serious violence as London or Manchester, for example. I very much take the point about consistency, but we believe that that can be addressed through the duty itself and the draft statutory guidance.

I am going to come to an end soon, Sir Charles. There is a requirement to include how inter-agency training will be commissioned, delivered and monitored for impact in the published local safeguarding arrangements. That is relevant to the point that the hon. Member for Stockton North just made. Safeguarding partners must also publish an annual report on their safeguarding arrangements, which should include evidence of the impact of the work of the safeguarding partners and relevant agencies, including training.

I am pleased that the Committee has had the opportunity to debate this duty. We have more debates ahead of us, I suspect. We believe that the three safeguarding partners already in place, through the multi-agency safeguarding arrangements that came into being in 2019, are the way to address some of the important issues raised by hon. Members in this part of the debate.

[Sarah Jones]

Sir Charles, I am sorry about turning my back previously. It was a very appealing amendment and it is hard not to look.

[The Chair]

It is a great debate, and I do not want to stop anyone. I totally appreciate that.

[Sarah Jones]

I thank the Minister for her response. In many ways, we are in the same place. We are trying to make this new duty as effective as it can be. I would like to test the will of the Committee on amendment 78, because it is important that, when we are trying to prevent and tackle serious violence, we safeguard children. I understand the Minister’s point about duplication, but not to have that in the Bill would be a huge loss.

The Minister talked about the Home Office funding that goes to the Children’s Society and the St Giles Trust for their incredibly important work. They are the advocates of this; they are the organisations saying to us that this is what we need to do. The Minister gives them money but should also listen to their argument, because it is fundamental and important. On the other amendments, I appreciate that the Minister is doing what she can through the guidance and other means.

Question put, That the amendment be made.

Division 1

Ayes: 5

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Labour: 4
Plaid Cymru: 1

Noes: 8

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Conservative: 8

[Sarah Jones]

I beg to move amendment 50, in clause 7, page 8, line 4, at end insert—

“(3A) Specified authorities which are housing authorities must have particular regard to their housing duties when performing their duties under this section.”

[The Chair]

With this it will be convenient to discuss the following:

Amendment 52, in clause 7, page 8, line 10, at end insert—

“(d) each registered provider of social housing in the area.”

Amendment 53, in clause 7, page 8, line 15, at end insert—

“(d) each registered provider of social housing in the area.”

Amendment 51, in clause 8, page 9, line 11, at end insert—

‘(3A) Specified authorities which are housing authorities must have particular regard to their housing duties when performing their duties under this section.”

Amendment 54, in clause 8, page 9, line 18, at end insert—

“(e) each registered provider of social housing in the area.”

Amendment 55, in clause 8, page 9, line 23, at end insert—

“(d) any registered provider of social housing in the area.”

Amendment 56, in clause 9, page 10, line 45, at end insert—

“(f) a registered provider of social housing.”

Amendment 57, in clause 15, page 15, line 5, at end insert—

“(f) a registered provider of social housing.”

Amendment 58, in clause 16, page 15, line 37, at end insert—

“(e) a registered provider of social housing.”

Amendment 59, in clause 17, page 16, line 19, at end insert “or registered provider of social housing”

Amendment 60, in clause 17, page 16, line 22, after “authority”, insert “or provider”

Amendment 61, in clause 18, page 17, line 3, at end insert—

“(g) a registered provider of social housing.”

Amendment 62, in clause 19, page 17, line 10, at end insert—

“(1A) In section 5 (Authorities responsible for strategies)—

(a) after subsection (1F) insert—

(1G) Responsible authorities which are housing authorities must have particular regard to their housing duties when exercising the functions conferred by or under section 6 or section 7.”

(b) in subsection (2), after paragraph (d), insert—

“(e) every registered provider of social housing in the area.””

New clause 28—Provision of accommodation to reduce or prevent risk of serious violence—

In the Housing Act 1996, section 189, after subsection (d), insert—

“(e) a person at risk of serious violence, if the provision of accommodation would reduce or prevent the risk of that person becoming a victim of serious violence.”

This new clause amends the Housing Act 1996 to add those at risk of serious violence to the list of those who have a priority need for accommodation, if the provision of accommodation would reduce or prevent the risk of that person becoming a victim of serious violence.

New clause 29—Code of practice on application of section 177 of the Housing Act 1996: prevention and reduction of serious violence—

“The Secretary of State must, before the end of the period of 3 months beginning with the day on which this Act is passed, issue a code of practice under Section 214A of the Housing Act 1996 on preventing serious violence to provide—

(a) that the application of section 177 of the Housing Act 1996 is to be applied to those at risk of serious violence so as to ensure that it is not deemed reasonable for a person to continue to occupy accommodation if the provision of alternative accommodation would prevent or reduce the risk of serious violence against that person;

(b) for the Homelessness Code of Guidance for Local Authorities to be updated to include a new chapter on the duties of local authorities under subsections 7(3A) and 8(3A) of this Act, with particular reference to preventing and reducing serious violence and safeguarding young people at risk of serious violence;

(c) that the police shall be responsible for timely collaboration with housing providers on the reduction of the risk of serious violence to individuals where the exercise of housing duties may reduce or prevent the risk of serious violence; and

(d) guidance on the disclosure of information in accordance with regulations under section (9)(2) of this Act by and to specified authorities which are housing authorities to prevent and reduce serious violence in a prescribed area, with particular reference to assisting the housing authority with the prevention and reduction of serious violence in the exercise of its duties under part 7 of the Housing Act 1996.”

[Sarah Jones]

These amendments have been tabled by my hon. Friend the Member for Walthamstow (Stella Creasy). They are supported by a vast array of very sensible organisations, from Redthread to Shelter, from the St Giles Trust to Barnardo’s. This section of the Bill sets out the Government’s ambition to reduce violent crime and address the root causes of serious violence by making sure that public bodies work together to stop serious violence. The amendments seek to protect young people and their families from the growing problem of gang grooming, harassment and violence.

Many young people, including children in their early teenage years, experience serious violence and harm as a direct result of being groomed by criminal gangs in their neighbourhood. The common factor in these cases is the need for families and young people to be moved urgently to a suitable home away from the area of gang activity to mitigate the risk of harm. The Government’s serious violence strategy in 2018 identified homelessness as a risk factor for being a victim or perpetrator of violent crime and highlighted the significant growth in vulnerable populations, such as those facing homelessness, over the past decade.

In communities across the country, a lack of suitable and affordable housing options and difficulties in accessing alternative accommodation in a timely manner mean that vulnerable victims are at risk from serious violence and exploitation and have no way of escaping. Too often, desperate pleas by families to social landlords and local housing authorities to move a household to safety are not addressed. Housing providers are not part of planning, with either the police or social services, for the safety of their tenants, even when they hold vital information to help. I have sadly experienced several times in my relatively short time as a Member of Parliament a family coming to me and saying that they feel that their son is at risk of being attacked. They want to move, and the police support the move, but they feel that there is nowhere for them to move to, or there is no mechanism for them to be moved in an emergency. On two occasions, a child has ended up being stabbed because they were not moved away as quickly as they should have been, and in one case, before I became an MP in Croydon, a family who were desperate to move were not moved and the child ended up being stabbed and killed.

We see this in communities across the country—it is not only in London—but in areas of acute housing need it is particularly acute, as Members would expect. The amendments tabled by my hon. Friend the Member for Walthamstow address these challenges, learning from the way in which domestic violence victims have been prioritised for housing to keep them safe, and ensuring that housing providers are statutorily required to play their part in tackling serious violence.

Research by Centrepoint in 2019 highlighted the links between youth violence and homelessness. Violence and exploitation drive homelessness and housing insecurity, and the experience of homelessness increases vulnerable young people’s exposure to criminality and risk. A survey of 227 young people with experience of homelessness in England and Wales found that one in six had taken part in criminal activity, such as selling or preparing drugs, in order to access a place to stay. The London charity, New Horizon Youth Centre, found that, of a sample of 102 young people accessing its specialist youth violence outreach programme, 95% had been or were currently homeless. Shelter has documented the fact that stable accommodation has long been linked to success in reducing reoffending and supporting rehabilitation. This is not new; I worked for Shelter years ago and we used to have the same debate on the impact of homelessness and bad housing. It is significant, and the likelihood of offending increases significantly if someone is homeless.

Two recent serious case reviews of 14-year-old children who were killed as a result of gang violence highlighted the failings in safeguarding them with regard to housing. In the case of one, an offer of accommodation made to his mother was withdrawn shortly before he was shot dead in a children’s playground in Newham in September 2017. The serious case review into his death found that there were

“clear gaps in risk assessments and risk management plans for Chris”,

including the failure to update the housing manager of the need to relocate Chris out of the area, and that

“there was a significant missed opportunity in the absence of a referral to access the Pan-London Reciprocal Housing Agreement. There were also significant gaps in information sharing between Children’s Social Care, the Police and the Youth Offending Team in relation to risk information that could have triggered such a referral.”

Chris’s mother has spoken of how she struggled to get housing outside the area where he was at risk:

“When it came to help, there was not much help. I was scared for him and he was scared for himself. It was just me and him left to sort this out. The most important one for me was housing, to get us out of the area. To be out of the clutches of the gangs so he could continue being a child.”

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[Mr Goodwill]

When the hon. Lady talks about poor-quality housing, would she say that some of the appalling housing in Croydon—for example, in the Regina Road block—is an example of the sort of housing that we should be trying to improve?

[Sarah Jones]

I congratulate the right hon. Gentleman on his political jibe. He is correct to say there are examples of bad housing in Croydon, as there are in other parts of the country. It has a massively serious effect on people’s lives. [Interruption.] I can hear the hon. Member for Croydon South muttering about it from a sedentary position.

I will move on to the issue that we are talking about. When an urgent move is required because of gang violence, temporary accommodation is often the only realistic option. The law currently does not prioritise families in this situation, in contrast with the requirement for victims of domestic abuse to be treated as a priority for rehousing. Section 189(1) of the Housing Act 1996 gives victims automatic priority need, so that victims fleeing domestic abuse are moved urgently and thus protected. That is not the case when the threat of violence is external, which means that families are often forced to choose between giving up a secure tenancy and making a homeless application to their local authority, or keeping their secure tenancy and staying somewhere where they are in danger. The child safeguarding practice review published last year notes a case where a family moved back to an area where they were at risk in order to prevent the loss of their right to permanent housing. Within months, their son was killed.

The problems do not stop there. Evidence from practitioners shows how people at risk of violence who approach their local authorities are often not given adequate support due to their not being categorised as priority need under section 189(1) of the Housing Act. Youth workers who work with victims of gang violence often try to identify mental or physical health needs in the family in order to create a workaround. This shows that the system is not responding to the needs of victims of violence because of their status as victims. Support workers at New Horizon Youth Centre in London state that when young people are found in priority need, it is often as a result of any mental health conditions that they have managed to have diagnosed during the centre’s work with them following a serious incident of violence—it is not on the basis of being a victim or being at risk of such violence. In most cases, there is police evidence of risk, but the support workers have found that this is not enough to secure a positive priority need decision.

Kate Bond, the youth outreach project manager at New Horizon Youth Centre, explains: “We have seen so many cases where violence or the threat of violence is rejected as a reason for young people to be seen in priority need under the Housing Act. We have cases where even though there is clear evidence that someone’s life is at risk—not only because of their current injuries, hospital letters and police reports, but also proof from a range of other relevant services—they are not found in priority need. Too often, we end up having to pay for these young people in emergency accommodation and spend a long time gathering proof under other grounds for priority need, keeping the young person in limbo. Traumatised young people are further demotivated by this process and the sense that their lives being at risk is not enough to secure them somewhere safe to live. This continues to put lives and communities at unnecessary risk. However, even that threshold for proof required by local authorities before they will place young people in temporary accommodation can be difficult to reach. Often, for example, young people cannot go to their GP because it is in an area where they feel unsafe, so securing medical proof becomes more challenging and the diagnosis of mental health conditions more difficult.”

Under sections 177(1) and 177(1A) of the Housing Act, a person is legally homeless if violence or the threat of violence means that they cannot be reasonably expected to remain in their current accommodation, but the homelessness code of guidance for local authorities currently provides no guidance for local authorities on how to consider whether an applicant might be in priority need because their current home puts them at risk of gang violence, harassment or grooming. Currently, there is only general advice on the assessment of violence in paragraph 8.36, whereas the assessment of domestic abuse is dealt with in some detail by the statutory guidance. The guidance also says that a shortage of housing could be taken into account when considering whether a family should be moved.

Housing providers such as local authorities or housing associations may also hold critical information that can be used as evidence to support the homelessness application, safeguarding, or police investigations. They may be able to support young people and families to access alternative accommodation. Practitioners are reporting, however, that housing representatives are often not included in relevant case forums and discussions on families at risk of harm. Similarly, when people fleeing violence present at their local authority for rehousing, there is currently no duty on the local authority to seek information from the police to ascertain the level of risk when assessing the housing application.

As I said, amendments 50 to 62, and new clauses 28 and 29, were drafted by my hon. Friend the Member for Walthamstow in collaboration with the co-chairs of the Housing Law Practitioners Association and Garden Court Chambers, and with the backing of many organisations such as Centrepoint, New Horizons Youth Centre, Shelter, Crisis, Barnardo’s, the Big Issue Foundation, St Basils, Catch-22, Redthread, Homeless Link, Nacro, the Revolving Doors Agency, Fair Trials and the St Giles Trust.

New clause 28 would ensure that we learn from best practice of housing support services for victims of domestic violence, and that those who are at risk of violence owing to gang behaviour are prioritised for rehousing away from harm. For children and adults affected by and at risk of serious violence, seeking support to secure a safe place to live can be extremely difficult. Evidence from practitioners shows how young people, care leavers, people with multiple needs, and families facing threats of violence are not given adequate support when approaching their local authorities to seek help moving out of harmful situations because, despite meeting the threshold for vulnerability, given that they have fled violence or threats of violence, they are not seen as in priority need. In many cases, they do not receive the initial duties and assessment to which they are entitled under the Homelessness Reduction Act 2017. New clause 28 is designed to remove that hurdle and set outs clearly that anyone at risk of violence is in priority need, whether the violence takes place inside or outside the home.

New clause 29 would ensure that the current homelessness code of guidance is updated to take into account the specific needs of those fleeing gang violence and exploitation. Serious cases reviews have shown that the current guidance is not sufficient and young people are paying the price with their lives. Victims of serious violence are often forced to choose between remaining in an area where they are at risk or making a homeless application and giving up a secure tenancy. In the financial year 2019-20, more than 7,000 households were recognised as being at risk of or experiencing non-domestic violence and abuse and seeking homelessness support. It is right that the departmental guidance provides specific guidance for people in that situation.

Homelessness and housing precarity are significant contributing factors to children and adults becoming vulnerable to violence as they respond to offers of accommodation from those seeking to exploit them. Prevention of that trend and early intervention to reduce the harm they may face requires their housing needs to be met quickly and appropriately. The current homelessness code of guidance highlights certain vulnerabilities faced by groups such as young people, care leavers and victims of trafficking, who should be considered as part of the housing application, but there is little guidance around young people at risk of violence and exploitation. By enhancing the current code of guidance so that local authorities take into account the needs of people at risk from serious violence, the Government would ensure that the needs of that vulnerable group specifically are considered by local housing authorities to protect them from further risk of violence. Amendments 50 to 62 would ensure that registered social landlords are involved and consulted in local efforts to reduce serious violence, and that there is timely co-operation between the police and local housing authorities to prevent serious violence.

Part 2 of the Bill outlines the model for multi-agency working to prevent serious violence. The horrific cases in the serious case reviews tell us that there is no effective multi-agency response to preventing serious violence that does not include housing. These amendments will ensure that registered social landlords are included in the new duty and ensure that there is timely information sharing between the police and RSLs for the purpose of preventing serious violence. By supporting effective multi-agency working between all partners, the Government can ensure that housing is considered as an essential part of a comprehensive public health approach to tackling and preventing the serious use of violence.

As I have said, there is provision in law and in practice for people fleeing domestic violence to have a route out of that violent situation, through their local authority and the definition of priority needs. There is not the same route out for those at risk of gang violence in their area, and I have seen the consequences of that. These amendments would put those at risk of serious violence on the same footing as those at risk of domestic violence. I would be grateful if the Minister could consider these amendments.

[Victoria Atkins]

We very much recognise the valuable contribution that local authorities and housing associations are able to make as part of local efforts to prevent and reduce serious violence. Local authorities are responsible for the delivery of a range of vital services for people and businesses in a local area, including housing and community safety. It is expected that such responsibilities will be key to the role they play in local partnership arrangements as they contribute to the development and implementation of the duty. As such, they will be best placed to provide a strategic overview of and information about housing and associated issues in the local area.

The statutory guidance for the duty makes clear that such duties are relevant and should be considered as part of the work to meet the requirements of the serious violence duty. We therefore do not consider it necessary to stipulate in legislation that such authorities must have due regard to their housing duties when meeting the requirements of the serious violence duty, as there will be a requirement for them to have due regard to the statutory guidance in any case.

Moreover, existing legislation is already designed to ensure that social housing is prioritised for those who need it most. The Ministry of Housing, Communities and Local Government will continue to work with the relevant sectors to ensure that the guidance is clear and fit for purpose, in relation to this crucial point, ahead of the duty provisions coming into force. When it comes to recognising and protecting the groups of people most at risk of involvement in serious violence, we are aware that housing and risk of homelessness are factors to be borne in mind, but we remain to be persuaded that an explicit reference to registered providers of social housing within the provisions for the duty is the correct approach to take in this instance.

One of the key requirements of the serious violence duty will be for specified authorities in a local area to work together to identify the causes of serious violence and, in doing so, ascertain which groups of people are most at risk locally. Legislation already dictates that, where a local housing authority requests it, a private registered provider of social housing or registered social landlord shall co-operate to such extent as is reasonable in the circumstances in offering accommodation to people with priority under the authority’s allocation scheme. That includes lettings allocated to those in priority need and those requiring urgent rehousing as a result of violence or threats of violence. Statutory guidance on allocations was issued in 2012, and local authorities must pay due regard to it.

Furthermore, the Regulator of Social Housing’s tenancy standards make clear that private registered providers of social housing must co-operate with local authority strategic housing functions. Those who are at risk of violence should already receive support if they are in need of social housing and/or if they are at risk of homelessness. However, it is important that local authorities are able to respond according to the needs of the specific local area and of the particular person. We are concerned that the amendment, which applies only to the social housing sector and not the private rental sector, may inadvertently single out and potentially stigmatise social tenants as being associated with serious violence, which I am sure nobody wants to flow from that.

--- Later in debate ---

The Department is therefore of the view that to introduce another code of practice that local authorities must follow, in addition to the existing code of guidance, could lead to confusion among local authorities. It is also important that local authorities are able to adapt their service delivery model to respond to the needs of their local areas and that, of course, is consistent with the aims of the serious violence duty. In the light of the measures above, I invite the shadow Minister to withdraw the amendment on behalf of the hon. Member for Walthamstow.

[Sarah Jones]

It is unusual for housing and the Home Office to be in the same conversation, which is possibly why the Minister was using strange terminology more akin to the MHCLG.

[Victoria Atkins]

Yes!

[Sarah Jones]

That is something that we need to try and shift over the long term and that is the point of the clauses and amendments.

I understand the Minister’s points. On new clause 28, there is a clear argument that there is provision on domestic abuse but not a provision for violence outside of the home in a similar way. Now is not the time to press the new clauses to a vote, because that comes at the end of the Bill’s time in Committee, and I am happy to leave the amendments. However, I hope the Minister will encourage housing organisations, through the process of the new duty, to be part of the conversation because they are absolutely crucial, as I have seen for myself. I beg to ask leave to withdraw the amendment.

Amendment, by leave, withdrawn.

[Sarah Jones]

I beg to move amendment 116, in clause 7, page 8, line 10, at end insert—

“(d) the local voluntary sector and local businesses.”

This amendment would create a duty to consult the voluntary sector and local businesses in preparing a strategy to prevent and reduce serious violence in an area.

[The Chair]

With this it will be convenient to discuss the following:

Amendment 81, in clause 7, page 8, line 30, leave out “from time to time” and insert “every two years,”.

This amendment would require the specified authorities for an area to prepare and implement a revised strategy every two years.

Amendment 87, in clause 8, page 10, line 4, leave out “from time to time” and insert “every two years,”.

This amendment would require collaborating specified authorities for an area to prepare and implement a revised strategy every two years.

New clause 59—National Serious Violence Oversight Board—

“(1) The Secretary of State must appoint a board, to be known as the National Serious Violence Oversight Board.

(2) The Board will be comprised of the Secretary of State, who will be the chair of the Board, and such other people as the Secretary of State considers appropriate.

(3) The duties of the Board are—

(a) to review local serious violence strategies,

(b) to share relevant data relating to such strategies, and

(c) to share good practice in the preparation and implementation of those strategies.

(4) Not later than two years after the date on which this Act is passed, and every two years thereafter, the Secretary of State must lay before Parliament a report from the Board on the progress of the duty to collaborate and plan to prevent and reduce serious violence.”

[Sarah Jones]

Amendment 116 would create a duty to consult the voluntary sector and local businesses in preparing a strategy to prevent and reduce serious violence in an area. As part of the new duty, several public authorities are required to consult each other, but some agencies are missed out, including the voluntary sector and local businesses. The amendment was tabled by my hon. Friend the Member for Vauxhall (Florence Eshalomi). It comes from the all-party group on knife crime, who worked with Barnardo’s on this amendment.

The voluntary sector holds crucial information and intelligence about what really happens in families and communities. The sector includes organisations that directly support victims and offenders and can help to bring their voices and experiences into policy making. They often know what works and what does not. Local areas will not be able to tackle serious violence without engaging with the voluntary sector’s knowledge and local intelligence.

Local businesses are also crucial in tackling serious youth violence. If we have learned anything from our work in child sexual exploitation, places are just as important to safeguarding as people—shopping centres, cafés, taxi ranks and gyms. Preventing violence cannot be done without their input.

[Sarah Champion]

I appreciate that my hon. Friend is making that point because, when it comes to Rotherham and what happened in child sexual exploitation, the community did know about it and did try to report it at the time, but to very little effect, unfortunately. Crucially, the voluntary sector stepped up, with much of the work done through charitable funds to try and support the young people. That needs recognition in the Bill, not least so that some resources will flow through afterwards, because the voluntary sector has its arms around the community. It is the eyes and ears of the community. We ought to embrace that, and the statutory bodies ought to have a duty to negotiate, engage and listen to and respond to the voluntary community’s wishes.

[Sarah Jones]

I thank my hon. Friend for her intervention and for her points about Rotherham. It is absolutely clear that the voluntary sector and local businesses are part of the solution and should therefore be part of the conversation and strategy. Their kind of preventive work will make the serious violence partnerships effective. Local businesses and the voluntary sector are a crucial part of that type of safeguarding.

Amendments 81 and 87 are straightforward. We felt that the language in the Bill was rather loose. For instance, it states that the specified authorities for an area must “from time to time” implement a revised strategy. Quite a lot of the organisations that we spoke to felt that “from time to time” could mean “not really ever at all” if they do not fancy it. Although I appreciate that the Minister might say that she wants local organisations to do what is right for them, “from time to time” felt too loose, so we suggested that the strategies should be refined every two years.

New clause 59, tabled by my hon. Friend the Member for Vauxhall, would require the Government to establish a national serious violence oversight board. The duties of the board would be to review local serious violence strategies, to share relevant data at a national level in relation to such strategies, and to share good practice in the preparation and implementation of those strategies. The board should be fed into by individual strategies for each local area to take into account the different patterns of risk, crime, vulnerability and exploitation found across the country. The oversight board could then feed in the relevant information across different Departments to achieve a joined-up approach to preventing serious violence.

[Sarah Champion]

The Minister has not said that the door is closed on the definition of child criminal exploitation. To take that one particular example: we would be looking at a range of definitions to which the local authority serious crime board could respond, meaning that we would again be in the dark days of a postcode lottery. Does my hon. Friend agree that, unless these definitions are in place, something like she is proposing makes absolute sense in order to get that uniformity of service? We are trying to prevent crime and support victims, so a simple measure would be to have an oversight body to make sure it happens.

[Sarah Jones]

I agree with my hon. Friend. It is always good to look back at what has worked in the past, and I go back to the example I cited earlier of the teenage pregnancy strategy. There was a defined strategy from central Government that was overseen centrally but delivered locally, so that there was room for local flexibility according to what was needed. However, there was also a clear set of parameters within which people should be operating, and an expectation of what they should be delivering with what was actually quite a targeted approach. The Prime Minister used to receive daily data on what was happening in each local area. I am quite a fan of gathering data centrally and trying to push change as much as possible, so I agree with my hon. Friend.

Similarly, a national serious violence oversight board would be able to analyse national trends and provide real scrutiny of what is and is not working across the country. Strategies need to feed into somewhere central so that the national landscape can be understood and that good and bad practice can be shared. The Minister talked earlier about that balance between what we allow local police authorities to do and what we set nationally. That conversation about how much we control from the centre and how much we allow people to feed in locally is always happening. The change suggested by new clause 59 is for a local and national mechanism in which at least the information can be gathered and analysed, so that we can see who is doing well and who is not doing well, and then respond appropriately.

Serious violence inevitably crosses boundaries. Effective responses to child exploitation, for example, are often hampered by the fact that it is a form of abuse that takes place across the boundaries of all the different police forces and local authorities in England and Wales. That creates inevitable fragmentation.

While the National County Lines Co-ordination Centre has helped to deliver a more joined-up approach to policing of child exploitation, the same joined-up approach is not found between the police and other agencies, or between different local authority areas. It would be impossible to tackle serious violence without some form of national oversight of the strategies. Learning and best practice can be shared at a national level. We see from the findings of the serious case reviews that sharing is still not effective, resulting in the same failings occurring again and again. We do not want that to happen with the serious violence partnerships as well.

Under the previous Prime Minister there was a serious violence taskforce, which was disbanded and replaced with the National Policing Board, but the National Policing Board looks at all parts of the policing system and has a different function altogether. We need some oversight that specifically addresses serious violence. When the right hon. Member for Maidenhead (Theresa May) was Prime Minister, a unit to tackle violence was set up in the Cabinet Office, but I am unsure whether it still exists. Does the Minister know? Either way, she might consider the amendments suggested by my hon. Friend the Member for Vauxhall and consider a kind of national co-ordination of the strategies to ensure that they are as effective as possible.

[Victoria Atkins]

We very much agree that voluntary and community sector organisations and local businesses are key to working with young people to tackle issues relating to serious violence and crime, and indeed to offering alternative opportunities to young people. One of the non-legislative measures that I am working on at the moment is bringing together the private and public sectors to offer opportunities by way of training, work placements and so on to young people who at the moment may believe that their life chances involve joining a gang and earning their money that way. We have to give young people a range of alternatives, so I very much agree with the motivations behind all these amendments, but particularly those that seek to involve charities and businesses.

I should point out that clause 9—“Power to authorise collaboration etc. with other persons”—is very much intended to include charitable organisations in the serious violence duty. We did not feel that it was right to put a duty on charities, but we did very much want to reference their ability to be included and involved in both the drawing up and the implementation of the strategy.

We are not persuaded that amendment 116 is necessary, because of the way it is drafted. It would potentially create significant new burdens if specified authorities were required to consult all voluntary sector organisations and businesses in the local area, as opposed to those that they considered to be most relevant to the local strategy for preventing and reducing serious violence.

I will shamelessly take this opportunity to mention, by way of example, the wonderful Louth Navigation Trust in my constituency. Wonderful charity though it is, I think it would itself accept that it is probably not able to assist in the drawing together of a serious violence duty in the way that specialist charities, such as St Giles Trust, Redthread and the other organisations that we all know and work with. will be able to do. That was a flippant example—forgive me—at 4 o’clock on a Tuesday afternoon.

Turning to amendments 81 and 87, we very much agree that it is important for serious violence strategies, required by chapter 1 of part 2 of the Bill, to be kept under review to ensure that they remain relevant and address the current issues affecting local areas at the time when they are being implemented. However, we are concerned as to whether an explicit requirement for revised strategies to be prepared and implemented every two years is the correct approach to take.

The duty is a key part of our work to prevent and reduce serious violence, focusing very much on prevention and early intervention, and informed by the evidence. We have been clear that a key focus of the duty, as I have said, should be on early intervention and prevention. That is why we have included a requirement for specified authorities to identify the kinds and causes of serious violence in the local area and the work that flows from that. It is therefore clear that local strategies should include a combination of short-term as well as longer-term initiatives aimed at preventing and reducing serious violence.

The draft statutory guidance for the duty makes it clear that local partnerships should review their strategy on an annual basis. Such reviews should consider how the interventions and solutions have affected serious violence in their area—considering, for example, crime statistics, and accident and emergency data. A review may well highlight the need for a refreshed strategy, for example where new and emerging crime types are identified—there may be the emergence of a new county line in their area—but we do not expect that to be the case every time.

We know that specific initiatives and actions that focus primarily on early intervention may not have a discernible effect on serious violence levels immediately. An assessment of the effectiveness of a local strategy conducted only two years after the strategy is first prepared may not capture the potential long-term impact and, therefore, may render it ineffective and in need of revision. Perhaps there would be a fairer analysis if a little more time were permitted to enable the interventions to take hold.

We want to ensure that local area resources are directed towards delivering on the strategies that they have prepared, instead of being diverted towards the preparation of revised strategies because there is a calendar they must keep to. I am reminded of a phrase about being driven by data and not dates, and wonder whether it is appropriate here.

I believe that specified authorities in local areas will be best placed to determine the necessary frequency of revisions in their own strategies, and that the existing requirement for strategies to be kept under review will ensure that a revision will be necessary and timely, rather than simply a formality. I see a role for hon. Members in that. I hope that they will watch closely what their areas are doing under this duty, and they will be able to highlight any concerns they have about the appropriateness, timeliness and so on of strategies and their revisions.

Finally, new clause 59 would require the creation of a statutory national serious violence oversight board, to be appointed and chaired by the Secretary of State. There will need to be a system in place to monitor progress in relation to the duty. There may be a useful role for the Government to support the process, but we question whether it is necessary to include the detail of such arrangements in the Bill. We will consider non-legislative options, which will in all likelihood feature in our statutory guidance for the duty. That will ensure that specified authorities are able to have a say in the arrangements, through a public consultation, following Royal Assent, including any proposed role for central Government, before they are established.

We expect to detail any role for Government in monitoring progress and activity in relation to the requirements of the serious violence duty to be included in the version of the draft statutory guidance, to be consulted on following Royal Assent. It is worth noting that specified authorities will already be expected to monitor their own progress, through the requirement to keep their strategy under review. Police and crime commissioners and those areas where mayoral offices have responsibility for policing will also have the discretionary power to monitor the performance of the specified authorities against their shared objectives.

Furthermore, community safety partnerships have a statutory requirement to keep the implementation of their strategies under review, for the purposes of monitoring effectiveness and to make any changes to strategies where necessary or expedient, and to publish the outcomes of each review. In the light of the explanations I have given, I ask the hon. Member for Croydon Central to withdraw her amendment.

[Sarah Jones]

I heard what the Minister said, in particular about amendments 81 and 87. She said that she did not want to push organisations towards having to prepare revised strategies all the time. She also said that the guidance advises them to review their strategies on an annual basis. We are in the position of having both things at the same time.

I hear what she says and am reassured by the need to look at it on an annual basis. I do think the phrase “from time to time” is slightly too loose to be in the Bill. We have seen the need for both short-term and long-term planning and we need to get that balance right. A lot of the violence reduction units, within PCC areas, say they want to be able to plan and get money beyond a year. At the moment, their money is given annually, which is very prohibitive. That is worth bearing in mind.

I heard the Minister say that there will be systems in place to monitor success and that she will look at what such systems could be. I was reassured by that and hope that she will ensure they have the teeth and resources to analyse what is happening across the country. On that basis, I beg to ask leave to withdraw the amendment.

Amendment, by leave, withdrawn.

Question proposed, That the clause stand part of the Bill.

[The Chair]

With this it will be convenient to discuss the following:

Clauses 8 to 10 stand part.

That schedule 1 be the First schedule to the Bill.

Clause 11 stand part.

That schedule 2 be the Second schedule to the Bill.

[Sarah Jones]

As I said, the Opposition welcome the intention behind the serious violence duty, which is to facilitate that multi-agency response to tackling and responding to violence in a local area. However, we have concerns about how the duty will operate in practice and how it will instruct local partners to respond, in particular to vulnerable children. As has been said in the Committee today and by a number of organisations, the duty as drafted will not facilitate a safeguarding response to children experiencing serious violence. I hope that the Minister will build and reflect on our debate on that.

I will take this opportunity to thank all the organisations that have attended so many meetings and done so much work in this area, particularly the Children’s Society, which helped draft several of the safeguarding amendments. Safeguarding and protecting children and vulnerable young people from harm should be the first priority of statutory agencies and any subsequent duty for these agencies to co-operate with one another. If a young person is found to be at risk of or experiencing serious violence, any responsible adult is duty bound to report that to child protection. Clauses 7 to 11, which set out the duty, do not mention the word “safeguarding” once, and nor do they signal the need for the specific involvement of children’s social care teams in creating a strategy to prevent violence in a local area.

It remains unclear what activity the Government want to see flowing from the duty to co-operate. Three measures of success identified in the guidance are homicide rates, hospital admissions for knife or sharp object assaults, and police-recorded knife crime. Having just those measures might have a short-term impact, but that will not address the underlying drivers of serious violence and therefore might not have the long-lasting impact we are hoping for.

The duty is clearly framed as a crime reduction initiative, and it is right that it should be, but it is not a safeguarding tool, and the Opposition believe that it must focus on both. As we know, violence drives violence, and if the Government want properly to follow a public health approach to tackling serious violence, they cannot treat violence as if it happens in a vacuum.

Improving children’s safety and the wider safeguarding of children are integral to tackling the drivers of serious violence. The Opposition believe that without that focus, the Government risk those well-intentioned measures leading to a more punitive approach to vulnerable children. It would be good if the Minister reflected on our points about safeguarding and perhaps thought again about that work as well as the child criminal exploitation points made so well by my hon. Friend the Member for Rotherham and supported by so many.

Without enough funding for this work to take place, it will be very difficult for local authorities, whose resources are already very squeezed, to put in place strategies that will have an impact on the likelihood of children getting involved in violence. One example that the all-party parliamentary group on knife crime and violence reduction looked at a lot was youth services, which on average have been cut by about 40% across the country. It is possible to map a correlation—we did this work with Barnardo’s—between those areas that have made the largest cuts to youth services and those with the largest increase in knife crime. Obviously, we cannot point to an immediate cause and say that a violent crime occurred because a youth centre closed, but there is a correlation between those areas with the highest cuts and those with the fastest increases in knife crime. With the wider issues of funding and supporting local authorities, whether that is children’s social services or youth work—all that important work—it will be difficult for the Government to achieve what they want.

[Mr Goodwill]

As a former Children’s Minister, I know that there is no direct correlation between funding and outcomes. Indeed, some of the most cost-effective local authorities in terms of children’s services are those that do not use a lot of agency work, which is cheaper than some of the least effective, which tend to spend more in some cases.

[Sarah Jones]

The right hon. Gentleman makes an interesting point. I can provide the evidence that maps those areas that have made the largest cuts to youth work and the areas that have seen the largest increase in violence. There was not a direct causation, but there was a pattern and a trend. Although these things are not absolute, the evidence for every local authority shows that there was an impact. Youth work is known to be effective as an adult intervention with young people who perhaps do not have parental involvement in the way that we would want.

[Mr Goodwill]

I understand the hon. Lady’s point, but often it is the local authorities that are failing, with a big backlog of work, that find they cannot recruit, and therefore have to rely on agency social workers and foster carers. That means they are spending a lot more money. Some of the better ones, such as North Yorkshire, have very few agency workers because they can keep it in house and delivery it cost-effectively.

[Sarah Jones]

Yes, that is a separate point that the right hon. Gentleman is right to make. Agency workers are not invested in the organisation they work for; they do not know the area; they are more expensive and often not as effective. My point is that the significant reduction in funding for local authorities will inevitably have an impact on their ability to implement this duty. I hope that the Minister and the Home Office will push forward the argument for more funding for local authorities.

--- Later in debate ---

[Victoria Atkins]

Very much so. Criminal gangs are very adept at spotting Government and local priorities and adjusting their behaviours. During the global pandemic, still some county lines were adjusting their methodology to evade detection when they were moving around the country. It is disgraceful, disgusting behaviour, and I hope that this duty and the requirement to collaborate will help to address that.

On the point that the hon. Member for Croydon Central made about housing priority need and the comparison with domestic abuse dealings in the Domestic Abuse Act 2021, I will arrange for a letter to be written to her on that point. Unless there are any more interventions, I will sit down.

Question put and agreed to.

Clause 7 accordingly ordered to stand part of the Bill.

Clauses 8 to 10 ordered to stand part of the Bill.

Schedule 1 agreed to.

Clause 11 ordered to stand part of the Bill.

Schedule 2 agreed to.

Clause 12

Preventing and reducing serious violence

[Sarah Jones]

I beg to move amendment 91, in clause 12, page 12, line 34, at end insert—

“(5) In exercising their functions under this Chapter, specified authorities must have particular regard to reducing serious violence against women and girls, including street harassment, and reducing instances of hidden harm resulting from serious violence.”.

[The Chair]

With this it will be convenient to consider clause stand part.

[Sarah Jones]

Clause 12(4) states that the duty introduced in chapter 1 will predominantly be focused on the most serious forms of violence, which are marked by:

“(a) the maximum penalty which could be imposed for any offence involved in the violence,

(b) the impact of the violence on any victim,

(c) the prevalence of the violence in the area, and

(d) the impact of the violence on the community in the area.”

While those are all extremely important, we would like the Government to emphasise in the duty protection and support for women and girls. It should be in the Bill that violence against women and girls counts as serious violence. We know that women are more likely to be victims of hidden harm and domestic abuse, which does not conspicuously contribute to the prevalence of violence or the impact of violence on the community in an area. During covid, we saw an increase in domestic abuse. I spoke to a primary school head in my constituency who said that in a year they would usually deal with one or two cases of domestic violence affecting their pupils, but at that point they were dealing with seven family cases. Those issues are often hidden and so, as I say, do not necessarily impact on the community in an area in the same way as violent street crime would.

[Sarah Champion]

Does my hon. Friend agree that some violence is gendered, and that recognition of that in the Bill is a necessary inclusion?

[Sarah Jones]

I thank my hon. Friend for that point, which is exactly the point I was about to make. She is completely right. This is in some senses an addition. Perhaps the Minister will say it is for local organisations and agencies to decide what to prioritise, but the reality—this is not a criticism—is that this duty was conceived at the height of concerns about street violence, violent crime and knife crime, and we may all be a little bit to blame for not focusing as well on the gendered violence and hidden violence that does not make the headlines in the same way, but is equally important. One feeds the other: if there is violence in the home, there is often more violent behaviour from children because they learn that behaviour. Gendered violence is just as important but is perhaps not as highlighted and talked about as it should be.

Women from all parts of the country, from all backgrounds, young and old, are killed every week. Last year, the number of female homicide victims in England and Wales reached its highest level since 2006, up 10% on the previous year. That is true of not only murder but all kinds of violence against women and girls. For the year ending March 2020, the crime survey for England and Wales estimated that 7.1% of adults aged 16 to 74 years had experienced sexual assault by rape or penetration. Domestic violence, already endemic across Britain, increased significantly during the covid pandemic, with 260,000 domestic abuse offences between March 2020 and June 2020 alone.

Amendment 91 would ensure that specified authorities have particular regard to reducing serious violence against women and girls, including street harassment, and reducing instances of hidden harm resulting from serious violence. I hope that the Minister will consider the amendment in the spirit in which it is presented. This would be a very useful thing for local agencies to do. It is incredibly important and is part of the wider violence picture and should therefore be included in the Bill.

[Victoria Atkins]

As hon. Members will be aware, tackling violence against women and girls is one of the Government’s key priorities. These abhorrent crimes have no place in our society. This Government are committed to ensuring that more perpetrators feel the force of the law and to improving our support for those who suffer at the hands of abusers.

We have taken action to tackle all forms of violence against women and girls by introducing legislation around forced marriage, female genital mutilation and the disclosing of private sexual photographs. More recently, the landmark Domestic Abuse Act 2021 will bolster our response to domestic abuse at every level. The Act includes placing a duty on local authorities to provide support to victims of domestic abuse and their children in refuges and other safe accommodation, as well as many other things. What I have said about here it does not do justice to the Act, but we recognise also that legislation is not the only answer. Local authorities and others have a role to play in tackling violence against women and girls, which is why we provide funding to support victims of such crimes.

We have refrained from including in the duty set out in the Bill a specific list of crime types that must be included in a serious violence strategy for a local area. We have also refrained from prioritising one type of victim over another. This is to allow local strategies to take account of the most prevalent forms of serious violence in the locality, and the impact on all potential victims. Forms of serious violence will vary between geographical areas and we want to enable partners to adapt and respond to new and emerging forms of serious violence as they develop and are identified. That could include domestic abuse or others forms of violence against women and girls, but the Government believe, as set out in the duty, that it should be for authorities to determine what their specific priorities should be for their area. That is consistent with the model of police and crime commissioners and mayors who have policing responsibilities for setting priorities for policing.

In making any such determinations, they must consider the maximum penalty that could be imposed for any offence involved in the violence, the impact of the violence on any victim, the prevalence of the violence in the area and the impact of the violence on the community in the area. It is anticipated that work to answer these questions would form part of the development of a strategic needs assessment and strategy. The approach of including a specific offence, as is urged in the amendment, is not consistent with the wider approach.

We are committed to going further in our efforts to tackle violence against women and girls, which is why we will be publishing a new cross-Government strategy tackling violence against women and girls, which will be followed by a complementary domestic abuse strategy. I look forward to their publication to set out our approach to tackling all forms of violence against women and girls, including street harassment.

I hope these assurances and our commitments to future work in this area mean that the hon. Lady will be content to withdraw her amendment.

[Sarah Jones]

I hear what the Minister is saying and I applaud the work that has been done thus far on violence against women and girls, but I believe that the list in clause 12(4) that she just read out steers the whole process in the direction of serious street violence and youth violence, without a nod to the incredibly point about violence against women and girls, so I would like to test the will of the Committee on amendment 91.

Question put, That the amendment be made.

--- Later in debate ---

[The Chair]

Then I will turn to the shadow Minister. Is it Mr Cunningham or Sarah Jones?

[Sarah Jones]

I would be very happy for my colleague to speak, as I am slightly fed up of my own voice, but I will carry on.

[The Chair]

You seem to be carrying a lot of the burden today.

[Sarah Jones]

I just wanted to raise a couple of concerns. We have not tabled amendments to the clauses, but I want to bring some issues that have been raised to the attention of the Committee.

Clause 14 would give the Secretary of State powers to make regulations regarding how PCCs or mayors can assist serious violence partnerships. It would allow education, prison and youth custody services to collaborate in order to prevent and reduce serious violence; it would also allow them to collaborate with SVPs. Subsection (5) places a duty on a relevant authority to collaborate with other relevant authorities for the purpose of preventing and reducing violence, if requested to do so by another relevant authority. The example provided in the explanatory notes is that

“a local young offenders’ institution may choose to collaborate with a secure children’s home located in the same area if they are experiencing similar issues with serious violence within their institutions.”

That makes sense, but we believe that there needs to be some nod in that process towards the focus on the safeguarding responsibility for children. It is important that the duty does not just become an intelligence-gathering exercise instead of a proper data-sharing exercise, so we want to ensure that people can be protected and prevented from getting involved in serious violence.

Clause 15 would impose a duty on education, prison and youth custody services to collaborate together and with SVPs when one partner organisation requests it, as long as complying with the request does not infringe on any of their existing legal duties. The explanatory notes call this a “permissive gateway” that

“would permit but would not require the sharing of information.”

The example given is that

“a clinical commissioning group could disclose management information about hospital attendances where serious violence was suspected, which could support the development of a local problem profile/strategic needs assessment.”

Again, that makes sense. However, the notes go on to say that

“any disclosure of information under this clause may be made notwithstanding any obligation of confidence or any other restriction on the disclosure of the information, save that disclosure would not be permitted if it would contravene the data protection legislation or the prohibitions on disclosure provided for in any Parts 1 to 7 or Chapter 1 of Part 9 of the Investigatory Powers Act 2016.”

We have talked to organisations that are concerned that the need not to uphold any obligation of confidence or any other restriction on the disclosure of information could undermine some of the trust that children, particularly those who are vulnerable or who are being criminally exploited, have with teachers and educators. Will the Minister talk through what any other restriction on the disclosure of information means in this context, particularly when applied to an individual child in a school setting? Will she set out the key difference between the “permissive gateway” of information sharing and the multi-agency structures—for example, referrals to children’s social care—that already exist for information sharing about individual children?

Overall, there is no question but that information sharing between agencies and police forces is vital to achieving a proper understanding of serious violence, particularly involving the county lines drug network and the many vulnerable children who have been swept into it, but it is also important that the objective of information sharing is about the safeguarding of vulnerable people and children, as well as crime prevention and reduction.

[Victoria Atkins]

I will deal straightaway with the point about information sharing, as it would seem to me that the other clauses are understood.

Clause 15 provides a new permissive information sharing gateway for specified authorities, including local policing bodies and education, prison and youth custody authorities, to disclose information to each other. Sadly, we know that information sharing between agencies is not always as full and as timely as we would like, because of concerns that they are not allowed to share information. We do not want those concerns to get in the way of preventing serious violence.

Of course, we must operate within the law, so the clause ensures that there is a legislative framework in place to enable information to be shared between all authorities exercising functions under chapter 1 of part 2 of the Bill. In doing so, the clause permits but does not mandate authorities to disclose information. I reassure the Committee that, as required by article 36(4) of the UK General Data Protection Regulation, my officials have consulted the Information Commissioner’s Office on the proposed provisions within this clause and clauses 9 and 16, and no concerns were raised.

To be clear, clause 15 does not replace existing data-sharing arrangements or existing protocols that are already working well, including those under the Crime and Disorder Act 1998. Through the clause we are simply ensuring that all the specified authorities—local policing bodies and education, prison and youth custody authorities—are able to share relevant information with each other for the purposes of the recipient of the information exercising their functions to prevent or reduce serious violence. Such bodies should already have arrangements in place that set out clearly the processes and the principles for sharing information and data internally. Examples of data that could be shared include hospital data on knife injuries, the number of exclusions and truancies in local schools, police recorded crime, local crime data, anonymised prison data, areas of high social services interventions and intelligence on threats such as county lines, including about the activities of serious organised crime gangs and about drugs markets.

An important element of the duty would be to establish the local problem profile, and data sharing between the duty holders would be a crucial part of that process. By virtue of this clause, the authorities I have mentioned would be able to share information freely, providing it does not contravene data protection legislation or the provisions of the Investigatory Powers Act 2016. I hope that reassures the Committee.

[Sarah Jones]

That is reassuring. I wanted to raise the point to ensure that we were all aware of that concern, which was raised to us by several organisations. I am grateful for the Minister’s response.

Question put and agreed to.

Clause 13 accordingly ordered to stand part of the Bill.

Clauses 14 and 15 ordered to stand part of the Bill.

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Supply of information to local policing bodies

[Sarah Jones]

I beg to move amendment 90, in clause 16, page 16, line 14, at end insert—

“(8) A local policing body must report annually on the requests made under this section, including information on the bodies the request were made to and the use of information provided.”

This amendment would require local policing bodies to report on requests for information made to specified authorities, educational authorities, prison authorities and youth custody authorities for the purpose of assisting with its functions under section 13.

The amendment would ensure that when information was shared between partners, the local policing bodies reported back to their partners to explain how they were using the information. That would in turn help the partners better to understand the wider context to the issues raised.

The Children’s Society has pointed out that clauses 15 and 16 raise questions as to what information will be collected about individual young people and how that information may be used. It is keen that additional information sharing requirements do not result for some children in a more punitive response instead of a response that balances safeguarding and the prevention of violence escalating.

I will end my comments by asking the Minister further questions on the issue of data collection. Will the information and data collected through the duty be strictly management-level data, or case-level data? Will police forces be able to request information on specific vulnerable young people, and will policing bodies be able to request from specified authorities such as schools case-level information on children at risk of or experiencing serious violence? If so, how will the police use that information?

[Victoria Atkins]

The hon. Lady asks a specific question—namely, will local policing bodies be able to request case-level information on children at risk and how will they use it? Police and crime commissioners and, in London, the Mayor’s Office for Policing and Crime, and the Common Council of the City of London, will have powers to work with the specified authorities to support multi-agency working. The specified authorities will need to co-operate with a local policing body when required to do so.

However, we will make it clear in guidance that the local policing body should consider the proportionality of additional requests and anticipated costs to specified authorities before making any such requests. That includes specific requests for data, which may be made only in order to fulfil its role of monitoring the effectiveness of local strategies. Such requests for data must relate only to the organisation that has generated it, except where functions are contracted out. Sufficient safeguards must be in place to ensure that information, including that which pertains to individuals, is disclosed in line with relevant data protection legislation.

Arrangements must also be in place to clearly set out the processes and principles for sharing information and data. Such arrangements should cover the sharing of information and data within the local partnership and with external bodies and should include the purpose of sharing the data, what is to happen to the data at relevant points, and clarity on respective roles. I hope that answers the hon. Lady’s questions.

[Sarah Jones]

I am pleased that that will be in the guidance. I think that issues flow from things such as the gangs matrix in London. There were concerns that information that was gathered in order to support people actually ended up being used as a way of profiling people—that the data was perhaps not used in the way in which people had thought it would be. That was the basis for the amendment. Given that that will be in the guidance, however, I am reassured that the purposes for which the information should be used should be clear. On that basis, I beg to ask leave to withdraw the amendment.

Amendment, by leave, withdrawn.

Clause 16 ordered to stand part of the Bill.

Clause 17

Directions

Question proposed, That the clause stand part of the Bill.

[The Chair]

With this it will be convenient to consider clauses 18 to 22 stand part.

--- Later in debate ---

Finally, will the Minister confirm that, irrespective of the Bill, the processes of the memorandum of understanding were carried out in full? If so, what steps did the Minister take as a consequence?

[Sarah Jones]

I will be brief. I have three questions for the Minister, just to get a bit of clarity. The first is on clause 17, which, according to the Library briefing, gives the Secretary of State

“powers to issue directions to any SVP member, education, prison or youth custody service it thinks is failing to discharge its duties to prevent serious violence.”

It would be helpful if the Minister could provide an example of what that means. What direction will the Secretary of State be issuing? What is envisaged by that clause?

Secondly, the amendments in clause 19 require community safety partnerships to have regard to

“preventing people from becoming involved in serious violence”,

and to

“reducing incidences of serious violence”

when assessing crime and disorder in their area and formulating their strategies. It would be helpful if the Minister explained how that differs from what their strategies are doing already. Will there be a bit of an overlap of strategies there?

My final point is one that has been raised by the Local Government Association and has been drawn to my attention elsewhere. The community safety partnerships have had their funding steadily withdrawn since 2010, which has had an impact on their resources and their capacity to do things. It would be helpful if the Government could review the impact of those funding reductions on community safety partnerships—perhaps with a view to increasing that core funding—and on the ability of councils to address the range of crime issues they are expected to assist other partners in tackling.

[Victoria Atkins]

Serious violence has a devastating impact on victims and their families, instils fear in communities and is extremely costly to society, as I have already said. I hope the Government’s intention is clear from the discussions we have had today, but it is crucial that there are consequences if some authorities are not focused on what we are trying to achieve through the duty. On the rare occasion when a specified authority or educational, prison or youth custody authority does not fulfil its requirements under the duty, thereby risking the success of the whole partnership, clause 17 provides the Secretary of State with the power to issue a direction to secure compliance.

This power does not apply to probation services provided by the Secretary of State or to publicly managed prisons, young offender institutions, secure training centres or secure colleges. For such authorities, existing mechanisms will be available to ensure they are meeting the requirements of the duty, so we are trying to get consistency across them all.

For any directions relating to a devolved Welsh authority, the Welsh Ministers must be consulted before a direction is issued. We are continuing to engage with the Welsh Government on the operation of the direction, as far as it relates to devolved Welsh authorities, and I will be writing further to Minister Hutt shortly.

I was asked for examples of when we envisage that a direction may be given. It is very much expected that these powers will be used infrequently—I hope never—but we must have this ability to ensure compliance if that situation were to arise. It is very much a matter of last resort when all other attempts to work effectively in partnership with an authority have failed. Where necessary, we must have this backstop mechanism to ensure that all relevant authorities comply with the duty and play their part in reducing and preventing serious violence.

A direction may include requiring authorities to take the necessary steps set out by the Secretary of State in order to comply with the duty. If necessary, to ensure an authority complies, a direction can be enforced by a mandatory order granted on application to the administrative court in England and Wales. We very much hope that this power will be used rarely, if at all, but if, for example, an authority refuses to provide information that it is required to provide under the Bill, it is available as a last resort when all other attempts to work effectively have failed.

Question put and agreed to.

Clauses 17 accordingly ordered to stand part of the Bill.

Clauses 18 to 22 ordered to stand part of the Bill.

Ordered, That further consideration be now adjourned. —(Tom Pursglove.)