The Parliamentary Under-Secretary of State for Justice (Mr Shailesh Vara)
I congratulate the right hon. Member for Birmingham, Hodge Hill (Mr Byrne) on securing this debate, which is on a subject that we can all agree is extremely important. On behalf of the Government, I extend my condolences to the Butler family. It is bad enough that somebody should die—it is difficult for any family member to put up with that—but the circumstances in which Mr Butler died makes it even harder to accept.
I trust that the right hon. Gentleman will accept that I cannot comment in specific details about any case. I hope that the hon. Member for Slough (Fiona Mactaggart) will appreciate that, too. I can, however, speak in general terms. I will try to address as many of the issues that the right hon. Gentleman has raised as I can, and if there is anything left over, I will certainly write to him.
I understand that this case deals with legal aid legislation, but I hope that the right hon. Gentleman will appreciate that the Access to Justice Act 1999 was introduced by a Labour Government. It is under that legislation that decisions about exceptional funding cases concerning deaths in police custody, or during the course of police arrest, search, pursuit or shooting, are dealt with solely by the director of legal aid casework at the Legal Aid Agency, which is the successor body of the Legal Services Commission. Ministers have no role in those individual decisions. However, I fully appreciate the clear frustration of the right hon. Gentleman, which he has made abundantly clear to us, and the even greater frustration of Mr Butler’s family. It appears that a long time elapsed between the initial application and the final decision on funding. I believe that, along the way, there was also an inquiry conducted by the Independent Police Complaints Commission.
Fiona Mactaggart
My constituent’s family have been told that there will not be a decision about eligibility for legal aid until the opening of the inquest on 1 April. The Minister seems to imply that there could be a decision before that date. Will he explain why the coroner from Berkshire has said that no decision will be made on whether there will be a Middleton inquiry until the inquest is open?
Mr Vara
The hon. Lady seeks to tempt me into territory into which I cannot go. What I will say is that as far as her constituent’s case is concerned, the process is still ongoing. As I understand it, a decision on legal aid has not been made, and dialogue is still going on. I trust she will accept that.
Although I cannot comment on the decision concerning Mr Butler’s family, I understand from the Legal Aid Agency that there was an issue concerning financial eligibility and whether it was appropriate for the family to pay a contribution, which is something that the right hon. Gentleman mentioned. I hope I can assist the House by explaining how the means test is applied to inquest cases. Legal aid for the representation of bereaved families at inquests is means-tested, like nearly every other element of the civil legal aid scheme. It is important that we focus our limited resources on those who need them the most, and the means test is an important and long-standing part of the legal aid system which has been in place since well before this Government came to power.
There is discretion to waive the financial eligibility limits for inquests if, in all the circumstances, it would not be reasonable to expect the family to bear the full costs of legal assistance at the inquest. Whether that is reasonable will depend in particular on the history of the case, the circumstances, the issues raised against state institutions, the applicant’s assessed disposable income and capital, the other financial resources of the family and the estimated costs of providing representation. Contributions from the applicant can also be waived in whole or part.
That is the position under the Legal Aid, Sentencing and Punishment of Offenders Act 2012, but it was also the position under the Access to Justice Act 1999, the legislation that applied to Mr Butler’s case.
Mr Byrne
The Minister is replying in a courteous and thoughtful manner. He has given us a number of helpful words about the broad principles of the means-testing regime, but I hope he will not elide over the point that when we passed the 2009 Act we decided to include section 51, which accepted that there were wider public interests at play in inquests that delved into deaths in state custody and explicitly provided for full legal aid costs to be provided to families in such cases. The Lord Chancellor has not implemented section 51. The arguments about it have already been rehearsed and the House has passed it. When will it be implemented?
Mr Vara
Well, the previous Government made provision for it but they did not implement it. I do not know when it will be implemented, but I am happy to reflect on that matter and write to the right hon. Gentleman. Let me put on the record that the criteria under the Access to Justice Act still apply, as that was the Act that was applicable when Mr Butler’s case first arose.
Tessa Munt
I shall be brief. When the Minister is reviewing the situation, will he consider whether it is appropriate for applicants to be pressured—there is no other word to describe it—to seek local and non-specialist advice from solicitors and therefore barristers who have no knowledge about taking on something such as a police force, with all its expertise?
Mr Vara
I hope that the hon. Lady will appreciate that I cannot comment on pressures in the individual cases to which she is alluding or on specific cases.
Guidance issued by the Lord Chancellor under the 1999 Act says on contributions:
“Where it is appropriate for a contribution to be payable this may be based upon the applicant’s disposable income and disposable capital in the usual way ignoring upper eligibility limits. Contributions should always be based on what can reasonably be afforded by the applicant and his or her family in all the circumstances of the case.”
It is worth underlining that we do not have a red-line rule on financial eligibility for inquests in the same way as we do for most other categories of law for which civil legal aid is available. There are a large number of variables, as I have mentioned, that the Legal Aid Agency considers when deciding whether to exercise its discretion to waive the limits.
It is also worth making it clear that, contrary to certain reports, there has been no substantive change to legal aid provision for inquests as a result of the recent reforms to the system. On that issue, both the right hon. Gentleman’s party and mine are in agreement. Let me assure the House that legal aid for inquests has been protected by this Government.
Legal help—in other words, the advice and assistance level of legal aid—remains within the general scope of the scheme, subject to merits and means-testing. That can cover all the preparatory work associated with the inquest, which might include preparing written submissions to the coroner. Notwithstanding the pressure on the public finances, the Government made a clear commitment to bereaved families by ensuring that legal help was retained in inquest cases.
Legal aid for representation can also be provided exceptionally where certain criteria are met. Those criteria have remained largely unchanged from those that operated under the 1999 Act. Let me be clear that under the new statutory scheme all individual decisions on legal aid, including exceptional funding decisions, are taken by the director of legal aid casework at the Legal Aid Agency.
However, the Lord Chancellor has published guidance setting out the general circumstances in which he considers that exceptional funding may be required under section 10 of the Legal Aid, Sentencing and Punishment of Offenders Act 2012. The director of legal aid casework is not bound by that guidance, but he must have regard to it when reaching individual decisions, together with any representations made by applicants on the individual case or any new and relevant case law.
Under section 10 of LASPO, the director of legal aid casework can grant exceptional funding for representation at an inquest where it is required by article 2 of the European convention on human rights, to which the right hon. Gentleman referred. Article 2 confers a “right to life” and imposes on states a substantive obligation not to take life without justification and to establish a framework of laws, precautions and means of enforcement that will, to the greatest extent reasonably practicable, protect life. The other ground on which the director can grant funding for representation at an inquest is where representation for the family is likely to produce significant wider public benefits, meaning significant benefits for a class of person other than the members of the family involved.
On the coronial system, I know that concerns persist about the length of time some cases take to progress. The Coroners and Justice Act 2009 includes a number of provisions that will help to tackle delays in the coronial system, including a new power for the Chief Coroner to direct a coroner to conduct an investigation into a death. There is now greater flexibility on where post-mortem examinations and inquests can be held. They can now happen outside the coroner’s area.
The 2009 Act also requires coroners to notify the Chief Coroner of any investigation that has lasted more than 12 months. The Chief Coroner is then required to provide a summary of such cases in his annual report to the Lord Chancellor, which is laid before Parliament, together with reasons for the delays and any steps he is taking to prevent such delays from becoming unnecessarily lengthy.
While this debate has focused on legal aid, the coronial system and the police, there is, of course, a broader issue at stake. Let me be clear that the Government take deaths in custody extremely seriously. Deaths in custody are among the most scrutinised of all incidents. All deaths in custody are subject to a number of investigations, including, in the case of police custody, an independent investigation by the Independent Police Complaints Commission. Of course, an inquest is also held. Those investigations will usually involve the participation of the bereaved family.
I should like to acknowledge the ongoing work of the ministerial council on deaths in custody, which incorporates senior decision makers, experts and practitioners in the field. This allows for an extended, cross-sector approach to deaths in custody and is designed to ensure better learning and sharing of information. The council works to ensure that lessons learned in any area of state custody are disseminated across the police, prisons, approved premises, immigration, detention, and secure hospitals. The council commenced operation in 2009 and is jointly funded by the Ministry of Justice, the Department of Health and the Home Office. The House will want to know that funding has been extended until March 2015.
Let me again thank the right hon. Gentleman and all other hon. Members who have spoken. I hope that I have been able to offer some reassurance as to the position concerning legal aid, what the Government are doing to tackle delays in the coronial system, and the Government’s position on deaths in custody more generally. To the extent that there are matters outstanding, I am happy to write to the right hon. Gentleman and, indeed, to have a meeting with him as well, although, as I say, my ability to influence the Legal Aid Agency is somewhat limited.
Question put and agreed to.