Anti-social Behaviour, Crime and Policing Bill

Lord Paddick Excerpts

Wednesday 4th December 2013 Lords Chamber

[Lord Paddick (LD)]

My Lords, as the other ex-police officer in the House this evening, it would be remiss of me not to add my comments to those of other noble Lords. I fully support the amendment tabled by the noble Lords, Lord Blair of Boughton and Lord Condon. I believe the arguments they have made to be powerful and compelling. I do not think that the noble Lord, Lord Stevens of Kirkwhelpington, spoke for long enough to have that accolade but we obviously agree as well. I also agree with a lot of what the noble Lord, Lord Imbert, said but as a member of a party which is part of the coalition Government, perhaps I should not go as far as he has done.

Unlike my former colleagues, who say that they have no argument in principle with Clause 126 and the appointment of foreign nationals to senior police posts, in that it would be hypocritical as some UK police chiefs have taken posts in foreign forces, never having applied for such a post I do not feel myself to be hypocritical if I go against that principle. My argument is about the culture of policing. As in many professions and businesses, there is a major division between workers and bosses. It is even more marked in the police service than in other professions. That may be because rank and file officers perform shift-work—they go out at night and are on the streets—whereas we senior officers are comfortable in our offices and work more reasonable hours.

Whatever the reason, there is a divide, particularly between Association of Chief Police Officers’ ranks and those of the federation. However, the one thing that binds us together is that we all, without exception, performed the role of a patrol officer—a constable on the beat—at some stage. We could honestly say when we were ACPO officers that we knew and understood what those officers were facing, at least to some extent. If a foreign officer was appointed, I do not know whether they would have that credibility with rank and file officers.

The second issue is the uniqueness of police leadership. Almost uniquely, police officers perform the overwhelming majority of their duties without any direct supervision. Their leaders are almost never directly present when those officers are out on the street. Police officers therefore have to have far more credibility than other leaders in the eyes of their subordinates, if those subordinates are to follow the instructions of their leaders. While it may not be impossible, it would be very difficult for a foreign national who has not served as a patrol officer, or a bobby on the beat, in the UK—a country with a unique tradition of being almost exclusively unarmed and which has a tradition of policing by consent—to have credibility in the eyes of rank and file officers. We therefore need to think very carefully about appointing foreign nationals as police chiefs in this country, notwithstanding what message that sends to the excellent police leaders who we have in this country as it is.

Anti-social Behaviour, Crime and Policing Bill

Lord Paddick Excerpts

Monday 2nd December 2013 Lords Chamber

[Lord Paddick (LD)]

My Lords, I support my noble friends Lord Faulks and Lady Berridge, although I am not on the Joint Committee on Human Rights. At the time of the riots in London and across the country a couple of years ago, I supported severe punishment by the courts of otherwise minor relatively offences, because those offences took place during a riot. I do not support lenient treatment of minor offences committed during a riot. However, as my noble friends have indicated, the provision to order possession of a property when the offence has absolutely nothing to do with protecting neighbours, for example, from anti-social behaviour, is a step too far. It is politically motivated and is not driven by the needs of justice. Therefore, it should be no part of this Bill.

[Lord Rosser (Lab)]

My Lords, Clause 91 is headed “Offences connected with riot” and presumably the intention is again to put victims first. In that case, I come back to an earlier point: why are there two classes of victim of riotous behaviour? Riotous activity by a tenant of social housing or an assured tenancy can lead to eviction, but riotous activity by an owner-occupier cannot, and there is no redress of comparable severity that would apply to an owner-occupier but not to someone in rented accommodation. Will the Minister address this point? In a Bill intended to put the victim first, what is the thinking behind the Government’s apparent decision that there should be two classes of victim when it comes to action that can be taken against those who cause misery through the activity defined in Clause 91?

Under Clause 91, tenants, including the individual convicted of riotous activity, who have caused no nuisance, annoyance or harassment, alarm and distress to anyone living in their own locality could be evicted. Children could be evicted. This clause appears to have more to do with punishment over and above that handed down by the court for riotous activity. This additional punishment is not evenly applied, since it can affect only those in social housing and assured tenancies and not owner-occupiers. Is that fair and just?

Finally, Clause 91 refers to,

“an offence which took place during, and at the scene of, a riot in the United Kingdom”.

Could this include an offence unrelated to the riot, but at the scene of the riot, such as careless or dangerous driving, or a minor assault? If so, could a family in rented accommodation face eviction for such an offence as a result?

Police: Public Trust

Lord Paddick Excerpts

Thursday 28th November 2013 Lords Chamber

Moved by

[Lord Paddick]

To move that this House takes note of public trust in the police, its role in effective policing, and the system for investigating complaints into police conduct.

[Lord Paddick (LD)]

My Lords, the system of policing in this country is almost unique in that there are insufficient police officers to enforce the law by force and weight of numbers, they are predominantly unarmed and, by and large, the public work with them in that they act as the eyes and ears of the police, they co-operate with the police to enforce the law and maintain order, and they provide information and give evidence in judicial proceedings. The police should be “citizens in uniform” who act on behalf of, with the approval of and with the collaboration of the public. Were this not so, our police forces would have to be considerably larger and they would undoubtedly have to be armed.

Unlike other professions, the police’s ability to carry out their primary functions of improving public safety and preventing crime, harm and disorder is dependent on people trusting them. The more the public have trust and confidence in the police, the more likely they are to collaborate with them and therefore the more effective the police will be. For the police, reputation is therefore not simply a matter of professional pride but a matter of effectiveness in that, if there is a lack of trust and confidence in the police, they will be less effective, and that could inevitably result in a downward spiral.

As with many things in this world, that police chiefs want to cover up mistakes and misconduct is understandable but not justifiable. In the case of the police more than any other public body, there is a need for responsible journalism and, I have to say, responsible politics. Political grandstanding and media sensationalism when mistakes occur or misconduct is discovered not only compound the damage to the reputation of the police but make it less safe for all of us, because they unnecessarily undermine public trust and confidence and therefore police effectiveness. We need level-headed debate and objective and factual reporting.

There is evidence that public collaboration with the police is under threat, despite what the opinion polls may say. When I was a police constable in 1977 and we arrived at the scene of a fight, because the combatants were aware of our presence they used to stop what they were doing and we would arrest those whom we wanted to arrest. Nowadays, the combatants are likely to turn on the police. The riots in London and across the country in 2011 showed flagrant disregard for the law, for the maintenance of order and for the authority of the police. Research conducted after that rioting indicated that a lack of respect for the police was a major influence over the conduct of those taking part. While it is still true that trust and confidence in the police at a local level remain higher than for other public bodies, it is of growing concern that an increasing minority of citizens are refusing to accept that authority and refusing to co-operate with the police. So what is going wrong?

Clearly, there has been an erosion of respect in the attitude of some members of the public towards authority generally. Respect towards teachers, bankers, politicians and the police has shown signs of diminution in all cases. Some of the issues that specifically tend to undermine public trust and confidence in the police are what I would call “slow burn”; others are “big bang”. Almost all of them, I suggest, are the result of a less than ideal police culture and the failure of the systems designed to deal with that misconduct.

In the former category, there continue to be ongoing issues around the disproportionate stopping and searching of black and other minority-ethnic people. The propensity is for them to be arrested rather than warned, and to be charged rather than cautioned by the police. This is eroding communities’ willingness to collaborate with the police. The fact that a smaller proportion of black and other minority-ethnic people than of the white population is recruited into the police, that there are even fewer black and minority-ethnic senior police officers and that black and minority-ethnic police officers and police support staff are more likely to face formal misconduct hearings does not help black and other minority-ethnic communities to trust the police. Why has the police service not tackled these race-related issues and why have successive Governments not put pressure on the police service to put its house in order?

To deal with an issue, we have to admit that we have a problem. I believe that the police fear that if they admit that they have a problem with racism they will give their critics a field day, further undermine the morale of front-line officers and allow the unjustified stereotyping of all police officers as being racists. The statistics around stop and search and those other issues in policing that I have just mentioned continue to show that there is a problem that needs to be addressed. Why have politicians shied away from the problem? When the police were last accused of institutional racism, following the Macpherson inquiry into the tragic death of Stephen Lawrence and the attempted murder of his friend Duwayne Brooks, front-line officers disengaged from stop and search for fear of being accused of racism. Street robbery increased to such epidemic proportions that the then Prime Minister personally pledged to bring down the number of street robbery offences. Neither police officers nor politicians—or any of us—want to see such an increase in crime again.

I appear to be in the minority who believes that such a situation is not inevitable. I believe, and have believed since the time of the Macpherson inquiry, that these issues, particularly the disproportionate stopping and searching of black and minority-ethnic people, can be dealt with without condemning every police officer and without harming relations—indeed, I believe that it would improve operational effectiveness, and could reverse the continuing damage to police community relations. Of course, black and minority-ethnic people will not join the police if they believe that the police treat them unfairly on the streets.

In the big-bang category we have high-profile and much publicised examples of organisational failure and malpractice. The most alarming perhaps in recent times is what has been discovered by the Hillsborough independent panel. The evidence suggests a cover-up of the kind to which I have already referred—one designed to prevent the damage to the reputation of the police service generally, not just to spare the embarrassment of the senior officers responsible. This appears to be an attempt to protect the reputation of the police ordered by some senior police officers, not misconduct by the rank and file.

For those who wish to think that attitudes have changed, I must disappoint noble Lords. When I was the police commander in Lambeth in 2001 a small riot took place in Brixton. In the subsequent investigation closed circuit television was examined and revealed police officers apparently beating an unarmed man on the ground with their batons. When that was brought to my attention as the police borough commander, I called three people—my immediate boss, the head of the internal investigation and the chair of the local community police consultative group. A group of trusted community leaders convened at the police station, where I showed the CCTV footage and assured them that everything would be done to identify the perpetrators and bring them to justice. Apparently my bosses were apoplectic that I had revealed such malpractice to members of the community. I was told that next time I should not inform the community unless and until we had identified the perpetrators and had brought them to justice—presumably meaning that if we had not identified the individuals we should have kept the public in the dark. This is the understandable but unjustifiable mindset that still exists among some senior police officers, which is unhelpful, unhealthy and self-defeating. Openness at the time is far less damaging and can even be reassuring to the public, rather than attempting to cover up and being found out later. This culture of denial and cover-up, perpetuated and encouraged by some of those at the very top of the police service, inevitably impacts on those in the lower ranks, where there are additional reinforcing pressures.

Again while I was at Brixton, a young police officer told me that he was thinking of resigning from the police service. He said that the culture in the military, from where he had come, was very different. He said that in the military the most senior officer present when mistakes occurred took responsibility and, if necessary, faced a court martial. In the police, his experience was that mistakes were covered up, and if they came to light responsibility was pushed down to the lowest possible rank in order to protect senior officers. My 30 years of experience, albeit in one police force, absolutely chimes with the perceptions of this young police officer.

However, there are other factors at work that encourage cover-up, including the unfair way in which the police complaints system operates. When complaints are investigated, those investigating seem determined to get you for something. When a complaint was made about an incident in which I was involved, during which I scratched my hand, because they could not find anything else on me I was later criticised and formally sanctioned for failing to report an injury on duty.

A series of cases have been brought to my attention since I left the police in 2007, where officers have been open and honest about what took place and feel that they have been punished for their honesty. Their use of what they considered to be reasonable force resulted in them being sacked, while others who falsely denied touching anyone during the same incident escaped justice. I have been presented with evidence of biased and one-sided investigations where investigating officers, convinced of the guilt of individuals, have excluded, and even illegally withheld, evidence that might prove otherwise.

The perceived unfairness of the complaints investigation system is compounded further in the Metropolitan Police by the fact that each and every misconduct hearing, almost without exception, is chaired by the same senior police officer. The judge in these cases is effectively employed by the prosecution. When I sat on such hearings, I would sometimes be told afterwards by the Department for Professional Standards that I had wrongly acquitted a corrupt officer. My fear is that the fact that it has a tame judge might tempt the Department for Professional Standards to give such a briefing before the evidence is heard.

My noble friend Lady Doocey will have much to say about the IPCC. All I will say is that I refer to it as the so-called Independent Police Complaints Commission.

The major issue that needs to be tackled is the culture of blame and cover-up in the police, which must change. In my experience, there will be no change without political pressure from outside. In return there should be responsible debate and reporting of police activity, with as much airtime and column inches in praise of the good work and successes achieved by the overwhelming majority of decent, hard-working police officers as is given to the tiny minority whose conduct falls short of what is required.

We need a system for the investigation of incompetence, mistakes and deliberate malpractice that is both fair and independent and has the confidence of both the public and police officers. We still have the best police service in the world, but we need to bring about radical change if we are to preserve and enhance its hard won reputation. I beg to move.

--- Later in debate ---

[Lord Paddick]

My Lords, I thank my noble friend the Minister for his contribution and noble Lords for all their contributions to the debate. We have been reminded that public opinion is fickle but it is essential, for police effectiveness, that the public have trust and confidence in the police. The issue of crime figures is a very complex one, to which a degree of common sense needs to be brought to bear. I share the concerns that have been expressed about the independence, transparency and effectiveness of the IPCC. We have also been reminded of the perils of accountability and transparency. I was very grateful for the glimpse of another and positive side to the policing of the Hillsborough tragedy. I congratulate the noble Baroness, Lady Jones of Moulsecoomb, on her maiden speech. She is right about the importance of communication.

We have been reminded that one bad experience has a disproportionate impact on the reputation of the whole police service and should also note that trust and confidence in senior police officers appears to have shown the most marked decline. The code of ethics for the police is clearly a step in the right direction. It is out for consultation so there is time to change it for the better.

Motion agreed.

Anti-social Behaviour, Crime and Policing Bill

Lord Paddick Excerpts

Wednesday 20th November 2013 Lords Chamber

[Lord Hope of Craighead]

I add just a short point to what the noble Baroness has said. When one looks at the draft guidance at page 26, one can see what the Government are thinking of here. The point is made that making the public aware of the perpetrator and the terms of the order can be an important part of the process in tackling anti-social behaviour. One can follow the thinking behind that proposition. When one reads on, however, one sees that there will be circumstances in which either the police or the council may decide not to publicise the fact that an IPNA has been made. It seems to me that the power—or the discretion, perhaps one should say—to decide whether or not publicity should be given is being taken away from the court and given to the police or the council. Will the Minister explain why that is being done, bearing in mind the point that the noble Baroness has made about the discretion which exists within Section 49?

It is a very big thing to take away from the court the power to restrict publicity, bearing in mind the reach of the whole of Part 1, which is what we are concerned with, including Clause 5, which permits an application for an injunction to be made without notice being given to the respondent. The court would have no power to stop the press if they happened to be there reporting what had taken place. It would be a very serious matter to go as far as the clause goes without a full explanation why exercise of discretion is being taken away from the court and being given to the police or the council, who are not answerable to the court for what they do.

[Lord Paddick (LD)]

My Lords, I speak from personal experience of dealing with the previous regime under ASBOs. There was a tendency among some local authorities to publicise how many ASBOs they had been granted by publishing a rogues gallery of photographs of people against whom ASBOs had been granted. This was done for political purposes, not to pursue the ends of justice. Some young people thought that having an ASBO against them—or, in this case, an IPNA—was a badge of honour that they could show off to their mates. They were young people with a juvenile attitude. It almost encouraged them to breach the ASBO because their picture had been publicised and they had local notoriety. There is a danger that this provision could make what was a very unhelpful situation under the previous regime even worse.

Anti-social Behaviour, Crime and Policing Bill

Lord Paddick Excerpts

Tuesday 29th October 2013 Lords Chamber

[Lord Paddick (LD)]

My Lords, I think the noble Lord, Lord Ponsonby of Shulbrede, was confusing my name with my current state of mind. In 1977, when I was a police constable walking the streets of Holloway in north London, I never believed that I would ever come to say: “My Lords, it is an honour and a privilege to address this important and, from where I am standing right now, rather daunting place”. I thank your Lordships most warmly for the welcome that has been extended to me and for the support and help that I have received, which I am sure I will continue to receive, thanks to the generosity of the Members and staff of this place.

Now there may be some who, not for the first time in my life, consider me to be either brave or foolish on this particular occasion for making my maiden speech the day after my introduction. Indeed, I recall the rather dubiously encouraging words of the noble Lord, Lord Stevens of Kirkwhelpington, who, when he was my boss in the Metropolitan Police, said, “Brian, I like a man who takes a risk, provided it comes off”. However, I have some first-hand experience of the matters this Bill seeks to address, and I want to share some of that experience with your Lordships today. I am acutely aware of the conventions of the maiden speech, and while there are matters in the Bill that cause me some concern, on this occasion I will restrict myself to highlighting the positives.

My policing career spanned more than 30 years. During that time, I visited and dealt with the issues facing families on some of the most rundown council estates in London as well as the rich, the famous and the political elite. Those experiences have left me with the conviction that if everyone had a reasonable standard of living, a “living” rather than a “minimum” wage and a decent place to live that they could genuinely afford, there would be far less anti-social behaviour, far less crime and this country would be a far safer place for everyone.

In all that time, it was of great concern to me that anti-social behaviour was not always being addressed effectively. Many senior police officers, driven by centrally imposed targets, did not take the issue seriously enough and then latterly, albeit with the best of intentions, legislation blurred the distinction between the criminal and civil burden of proof. Senior police officers have to strike a difficult balance between giving priority to what some consider relatively minor offences that blight the lives of many people or concentrating on serious offences that affect relatively few. Where to focus time and resources is often a matter of professional judgment and, it must be said, this judgment sometimes goes awry.

However, there is no doubt that anti-social behaviour has very serious consequences for communities and, as we have heard this evening, individuals. What is more, when anti-social behaviour is allowed to continue unchecked, it is sadly all too common that those involved go on to be caught up in more serious crime. It is in the interest of the police, victims, communities and, indeed, the perpetrators themselves that we give police officers and other agencies the tools they need to tackle this behaviour.

As a Liberal Democrat, I also believe that we need to be responsive to the needs of our communities. That is why I am pleased that this Bill tries to ensure that the genuine concerns of decent people cannot be ignored by introducing a community trigger requiring action by local authorities, the police and others when anti-social behaviour occurs.

Although anti-social behaviour orders—ASBOs—helped to focus police attention, the fact that they were originally granted on the balance of probabilities but breaching them was a criminal offence undermined the safeguard in our judicial system that no one can be held to be a criminal, and perhaps even deprived of their liberty, unless their guilt is proved beyond all reasonable doubt. The Bill goes some way to addressing this concern through civil injunctions to prevent nuisance and annoyance without an automatic power of arrest if they are breached. Further, rather than simply imposing that injunction, the Bill proposes that the subject should be helped to comply and in the case of young people, that the local youth offending team is consulted. Providing this kind of positive support can help steer people away from negative behaviour and give them the direction they need to get on in life.

Another concern that I had as a senior police officer was that ASBOs were used in inappropriate cases, particularly those involving young people with underlying behavioural issues, such as hyperactivity or attention deficit disorder, which almost guaranteed their inappropriate criminalisation. Whether child or adult, the criminal behaviour orders proposed in this Bill when someone has been convicted of an offence can be granted only where it can be shown that the order will help to prevent reoffending.

Like my noble friend Lady Doocey, the other major issues in the Bill that I am particularly concerned about are the way in which the police are held to account and the role of the Independent Police Complaints Commission. I have very serious concerns about the whole process of the investigation and prosecution of complaints of police misconduct which I believe from my own experience serve neither the public nor police officers well. Strengthening the powers of the IPCC, as proposed in the Bill, is a necessary step in the right direction, but I believe we need to go much further.

I will have more to say on another occasion, but I am very grateful to have had the opportunity to address your Lordships today. I hope always to be helpful, informative, and respectful, and if I fail on any count I ask that your Lordships tell me directly. I promise that this former police officer will try his hardest not to get ideas above his station.