The Parliamentary Under-Secretary of State for Justice (Mr Jonathan Djanogly)
I beg to move,
That this House takes note of European Union Document No. 11497/11 and Addenda 1 and 2 relating to the Draft Directive of the European Parliament and of the Council on the right of access to a lawyer in criminal proceedings and on the right to communicate upon arrest; and supports the Government’s recommendation not to opt into the Directive in accordance with Protocol (No. 21) on the position of the United Kingdom and Ireland in respect of the Area of Freedom, Security and Justice to the Treaty on European Union and the Treaty on the Functioning of the European Union.
I commend the European Scrutiny Committee for calling this debate. As set out in the coalition agreement, the Government approach criminal justice legislation case by case, with a view to maximising our country’s security, protecting Britain’s civil liberties and preserving the integrity of our criminal justice system. The Government recommend that the UK should not opt into this proposed measure at the start of negotiations, not because we do not think that minimum standards of defence rights, including access to a lawyer, and the right to communicate on arrest, including with consular authorities, are important—of course, we do—and not because we disagree in principle with the setting of common, minimum standards across the EU in respect of certain aspects of criminal proceedings. On the contrary, we see the benefit of appropriate minimum standards. For that reason, the UK opted into the first two measures on the procedural rights road map on interpretation and translation and the right to information in criminal proceedings. We are not making this recommendation because we fear that our law does not meet the minimum standards required by the European convention on human rights—it does.
The reason we do not propose to opt into this measure at the outset of negotiations is that we think that the directive as published by the Commission would have an adverse effect on our ability to investigate and prosecute offences effectively. It is important that action is taken to ensure that the standards of procedural rights across the EU are adequate. That is necessary for two reasons: first, to ensure that, as people travel through the EU, they can be confident that in the event that they are unfortunate enough to become subject to the criminal justice system of another member state, they will be dealt with fairly and in accordance with robust minimum standards; and, secondly, the EU has chosen to develop a series of mutual recognition measures designed to promote security by helping to combat crime and ensuring that suspected offenders cannot use European borders as a way to escape justice.
Mr William Cash (Stone) (Con)
The Minister has twice used the words, “at the outset of proceedings”. Being something of an old hand at this sort of thing, I wonder whether that means that he proposes to opt in later. Perhaps he will bear in mind the problem that some other member states have judicial systems that are, quite frankly, below par.
Mr Djanogly
Indeed they do have systems that are below par, which is why we are keen for the measure to proceed across the EU. We will decide at a later date whether Britain opts in, subject to the negotiations that will take place. If my hon. Friend listens to what I have to say a bit further, he will hear how we propose to look at that process.
This is a good, practical idea that has delivered some notable results, provided that it does not put suspects at risk of less-than-adequate criminal proceedings. Such instruments of mutual recognition were never intended to operate on their own. It was intended that they should be supported by a series of criminal procedural rights, enforceable at EU level, that would build on the rights already guaranteed by the ECHR and provide additional reassurance that the rights were being given practical effect in all member states. These standards will not only protect British nationals when they are arrested elsewhere in the EU but will provide greater trust and confidence among the courts of all EU states that judgments handed down, which they may be expected to recognise, have been made on the basis of sound procedural standards.
Standards of procedural rights are high in the UK. The right of access to a lawyer, both before and during police interview, has been provided in England and Wales and Northern Ireland since the mid 1980s. A similar right was provided for in Scotland last year. However, despite the fact that we see value in the Commission tabling such a measure, we have considerable concerns about the detail of the directive and the impact its drafting would have on the UK’s criminal justice systems.
The procedural rights directives are intended to draw on the jurisprudence of the ECHR and to flesh out what those rights mean in practice. Certain provisions of the Commission’s proposal, however, go far beyond the minimum standards that stem from the convention. While there is no problem in principle with going beyond the standards of the convention if there are good practical and policy reasons to do so, we do not see such reasons in this case. On the contrary, we think that there would be some quite adverse and costly impacts on the ability effectively to investigate and prosecute offenders were the Commission proposal to be adopted.
Examples of that include the fact that the directive as drafted by the Commission may require access to a lawyer to be provided in some stages in the investigatory process where currently a lawyer is not provided, such as at a police search of a property or where a person’s fingerprints are taken when they are booked into a custody suite. We do not consider it necessary or proportionate to provide a lawyer in those situations.
In addition, the directive requires that a person should always be able to meet his lawyer face to face, whereas we provide, in some minor cases, for telephone access, which detained persons often prefer as it can mean that they are held for a shorter period as it is not necessary to wait for a lawyer.
Kelvin Hopkins (Luton North) (Lab)
The Minister has covered the point that I want to make. We permit defendants to telephone for immediate advice from a lawyer. It is quick, cheap, easy and very accessible for defendants.
Mr Djanogly
The hon. Gentleman makes a good point. That is exactly the case, and if it is to be under threat we should be concerned.
The directive also requires absolute confidentiality of meetings and communications between a lawyer and a suspected or accused person. While confidentiality of such discussions is of course a fundamental principle, there are some limited circumstances in which confidentiality should not be guaranteed. The most obvious example is where the authorities have reason to believe that the meeting or correspondence is being abused to further criminal activity. In such circumstances, which are exceptional but none the less extremely serious, the communications ought not to be privileged and the authorities might need to monitor them.
We also believe that member states should be allowed to derogate from other rights set out in the directive, in certain exceptional circumstances. For example, it might not be appropriate to allow a person in custody to contact a particular individual if the police might have reason to believe that he will ask that person to conceal or destroy evidence. The ECHR case law has been clear that restrictions can be imposed on access to a lawyer for an accused person if there are compelling reasons to do so.
We do not think that the drafting allows enough discretion for judges to decide case by case whether evidence should be admissible if it has been obtained in breach of any of the rights set out in the directive.
Jim Shannon (Strangford) (DUP)
In some of the documentation and information that Members received before the debate, there seemed to be a question about whether citizens of the United Kingdom would be disadvantaged with regard to the high level of legal representation that they have compared with that in the other 26 EU countries, which seem to have agreed on a method and the way forward. As a Member of the House, I would have to ensure that my constituents had that high level of legal representation, such that it was equal to that in the rest of the EU and that we were in no way disadvantaged.
Mr Djanogly
The straightforward answer is that if the other states were to go ahead with the directive and we did not opt in, British subjects travelling abroad would, I suppose, have the advantage of the minimum standards whereas other EU citizens would not have the benefits in this country. However, that is not the basis on which we are negotiating, because it would not be a good position from which to negotiate. That is the technical position.
The changes that the directive in its current drafting would require us to make to our domestic law would not only be unnecessary, but would be highly resource- intensive. Our initial analysis suggests that the directive as drafted by the Commission could cost upwards of approximately £32 million to £34 million per year. I stress that the UK is not alone in having these concerns about the directive. The early negotiations made it clear that our concerns are shared by a good many other member states. The incumbent Polish presidency is taking a sensible and pragmatic approach to negotiations, and we can expect that the final product may be very different from the text we are looking at now and that many of the concerns that we have highlighted will be dealt with.
Because of that, and because of the value we attach to ensuring fair trial rights across the EU, we intend to work very closely with other EU partners to develop a text that takes greater account of the practical realities of investigation and prosecution and allows for greater flexibility in meeting the requirements of ECHR jurisprudence. Given the extent of our concerns with the current text, we cannot at this stage be entirely confident that all of them will be taken into account, and it is for that reason that we are seeking not to opt in at the outset. However—I say this to my hon. Friend the Member for Stone (Mr Cash) in direct reply to his question—if our concerns are taken into account in the process of negotiation, we will be able to consider opting in at a later stage, as our protocol allows. Given the importance that we attach to this dossier, that is something to which we will give serious thought.
Mr James Clappison (Hertsmere) (Con)
My hon. Friend is setting out the situation with great care and extremely competently. If we were to take the decision to opt into the directive, would we then be subject to the European Court of Justice’s jurisdiction in respect of what he described as very wide ranging matters to which we had opted in?
Mr Djanogly
The European Court of Justice has jurisdiction in determining how European law is to be applied, but it is not an appeal court so it would not constitute any type of court of appeal.
I look forward to hearing the views of hon. Members on this recommendation and I commend the motion to the House.
Mr Djanogly
This has been a constructive debate, and it has provided a timely opportunity to place the Government’s position on the record. Let me reconfirm, not least for my hon. Friends the Member for Stone (Mr Cash) and for Bury North (Mr Nuttall), that we believe it is important that action is taken to ensure that the standards of criminal procedural rights across the EU are adequate—I stress the word “adequate”. That will help to ensure that British nationals in other member states receive the rights that underpin a fair trial. It will also help to provide the level of mutual trust necessary to support European legal instruments that require competent authorities to accept and act upon decisions or judgments given in other member states.
The Government see clear benefit in setting minimum standards across the EU in respect of certain aspects of criminal procedure. As many Members have noted, standards of criminal procedure in relation to access to a lawyer and the right to communicate upon arrest are high in the UK. We see benefit in an effective and workable directive which would raise standards in this area.
The Opposition spokesman, the hon. Member for Hammersmith (Mr Slaughter), asked a number of questions. He asked why the UK had opted in to the previous two directives on the procedural rights road map, but not this one. The Government believe it is important that action is taken to ensure that the standards of criminal procedural rights across the EU are adequate. The previous Government opted in to the directive on interpretation and translation in criminal proceedings, and this Government opted in to the victims directive. The hon. Gentleman asked why we opted in to that directive, but not this one as well. The Government have decided to opt in to the victims directive establishing minimum standards for the rights, support and protections of victims of crime because it meets the criteria set out in the coalition agreement with regard to EU justice and home affairs measures and is more in line with existing UK practice. I can confirm to the hon. Gentleman that we currently intend to retain free legal advice in police stations, as I have said publicly in the past, and he will hear more on that in Committee tomorrow.
The hon. Gentleman and my hon. Friend the Member for Stone mentioned individual examples of process, on which the Government cannot comment. However, I noted the disappointment of the hon. Gentleman and the hon. Member for Oldham East and Saddleworth (Debbie Abrahams) about the fact that we do not intend to opt in at the outset.
I also understand the disappointment of Members who have set out the difficulties faced by constituents who have faced trial in certain other EU member states. However, the directive as published by the Commission goes very much beyond what we see as the minimum standards of the European convention on human rights and would have an adverse and exceptionally costly impact on our ability to investigate and prosecute offences effectively. We do not think it would be sensible to opt in to the directive at this stage because it is not possible to be completely confident that all these difficulties could be mitigated through negotiation.
I thank my right hon. Friend the Member for Carshalton and Wallington (Tom Brake) for his supportive remarks, and I can confirm that we intend to negotiate and win on our positions. In order to do so, we intend to work very closely with our European partners—that work is already under way—to develop a text that takes greater account of the practical realities of criminal investigations and prosecutions. We are not alone in our concerns, and we are optimistic that the directive that is finally adopted might look rather different from that published by the Commission.
Our aim during negotiations will be to amend the text constructively, so that the UK might be in a position to contemplate participating in the final directive, and we have three months from the proposal in which to opt in. We can be part of the negotiations if we do not opt in, but we would not have a vote, so we intend to participate in, and influence, negotiations to make the directive better. We would opt in post-adoption only if our criteria were met, and following appropriate consultation in Parliament. I can confirm to my hon. Friend the Member for Stone that there is no inevitability to opting in, and I understand many of the concerns he raised. At the same time, I have to tell him that there is no presumption against opting in unless there are profound reasons for doing so, such as he suggested.
Mr Clappison
If the decision is taken to opt in—which I would regret, for reasons I have explained—I hope it will be made clear that our Government are opting in to a major piece of criminal justice legislation and choosing to hand over to the EU and the European Court of Justice jurisdiction over a wide swathe of our criminal procedure.
Mr Djanogly
We will still have jurisdiction over criminal procedure, and subsidiarity would apply as well, but my hon. Friend makes his point.
Any decision to opt in at a future date will be taken on the basis that the Government approach legislation in the area of criminal justice on a case-by-case basis, with a view to maximising our country’s security, protecting Britain’s civil liberties and preserving the integrity of our criminal justice system. Any decision to opt in at a future date would also be subject to scrutiny in Parliament.
Question put.
The Deputy Speaker’s opinion as to the decision of the Question being challenged, the Division was deferred until Wednesday 14 September (Standing Order No. 41A).