Torture and the Treatment of Asylum Claims

Alistair Carmichael Excerpts

Thursday 2nd March 2017 Westminster Hall

[Dr Tania Mathias (Twickenham) (Con)]

I beg to move,

That this House has considered UK policy on torture and the treatment of asylum claims.

It is a pleasure to serve under your chairmanship, Mr Bailey. I thank the Backbench Business Committee for making time for this important debate. I also thank the co-sponsors of this debate, the right hon. Member for Orkney and Shetland (Mr Carmichael) and the hon. Members for Stretford and Urmston (Kate Green) and for East Kilbride, Strathaven and Lesmahagow (Dr Cameron). I am appreciative of the cross-party support for this debate. This debate on the UK’s policy on torture and the treatment of asylum claims is particularly important and critical right now.

Only last weekend we heard from the Home Secretary and from Max Hill, QC, the independent reviewer of terrorism legislation, that the current terror threat is severe. As we are all aware, that will probably continue for some time. My concern about our current level of terror is that there may be a concomitant rise in the idea that torture has a place and a use in our society. That came about, as people know, in January when the President of the United States was heard to comment on what is a deliberate near-drowning technique, also known as waterboarding. He declared his personal views, but used the phrase “fight fire with fire” and entertained the idea that torture can work.

I was therefore grateful that the Prime Minister very shortly and quickly afterwards stated that

“we do not sanction torture and do not get involved in it.”—[Official Report, 25 January 2017; Vol. 620, c. 291.]

That is a clear statement from this country and its Government. The next day, the Leader of the House also made a clear statement about the Government’s position, when he said the Government were “resolutely opposed to torture”. Again, it is important right now that the Government are clear and frequently reiterate that. I hope the Minister will take the opportunity today to reiterate our very clear position.

We are leading the way on standards against torture, but our standards can be higher. That means being against torture and all cruel, inhuman or degrading treatments and punishments.

[Mr Alistair Carmichael (Orkney and Shetland) (LD)]

I agree absolutely with what the hon. Lady says. Does she agree with me, however, that there have been occasions in the not-so-distant past when we have allowed our standards to slip? The Government could demonstrate their bona fides for future intentions by taking a more open and transparent approach in settling cases such as the Belhaj and Boudchar case.

[Dr Mathias]

I thank the right hon. Gentleman very much for that intervention. I am aware of Supreme Court cases, but I do not want to mention specific cases today because I want to find as much common ground as possible with the Government, and I do not want to presume judgment of any particular cases, but I absolutely agree that the present statements by the Prime Minister and the Leader of the House do not match our historical cases. That is why it is important today to be absolutely sure of where our standard is. I absolutely agree that in the past we have not lived up to our standards.

In view of the current global situation, I still believe we are the leaders, whether we choose to be or not. We absolutely need transparency about the past. Like the right hon. Gentleman, I am looking closely at the court cases. However, we must recognise that today we are not only the place to be against torture, but the place that can diagnose torture. People can get the best treatment for torture and can be rehabilitated to return to the community as fully participant members of society. That is the ultimate aim, and I do believe we lead on that.

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[Mr Alistair Carmichael (Orkney and Shetland) (LD)]

I, too, express my gratitude to the members of the Backbench Business Committee for allowing us the time to debate this subject. I commend the hon. Member for Twickenham (Dr Mathias) for her leadership in securing the debate. I note that, in a minor way, the pronunciation of the constituency of the hon. Member for East Kilbride, Strathaven and Lesmahagow (Dr Cameron) risks becoming, for some people, an instrument of torture in itself.

The hon. Member for Harrow West (Mr Thomas) posed some very relevant and pointed questions to the Minister regarding the training of caseworkers in the Home Office. I will not repeat them, but they were pertinent and ones with which I would very much wish to associate myself.

Like others, I place on the record my appreciation for the many non-governmental and campaign organisations that work in this field. Freedom from Torture was mentioned, and I was present in November at the launch of its most recent piece of work, “Proving Torture”. I have been associated with Reprieve for many years and have campaigned with Amnesty International in different parts of the world over the years, principally on the abolition of the death penalty but also on human rights concerns more widely.

Whenever I have been in other parts of the world, it has struck me that however much we may beat ourselves up about our past misdeeds, foreign policy failings and other things, we are still seen, by and large, as a force for good in the world. That goes to the point that the hon. Member for Tonbridge and Malling (Tom Tugendhat) made about the counterproductive nature of torture. It also touches on the point made by the hon. Member for Twickenham that we are a world leader in this area, and it is more important now than ever that we maintain that position.

At Foreign Office questions some time ago, I asked the Foreign Secretary whether he had raised the possibility of sharing intelligence with the Trump Administration in the event that they reverted to the use of torture, such as waterboarding or, as the President said during the campaign, something

“a hell of a lot worse”.

In the House, the Foreign Secretary said that that was an operational matter that he would not comment on —I think it is more a matter of policy myself—but in later correspondence he returned to the quote that the hon. Member for Twickenham offered us from the Prime Minister, who said that

“we do not sanction torture and do not get involved in it. That will continue to be our position.”—[Official Report, 25 January 2017; Vol. 620, c. 291.]

Those sentences should be on the desk of every Home Office and Foreign Office Minister. I would like to hear a more express statement about the possibility of sharing intelligence with any country in the world that uses torture, both because of our leadership position and because we must atone for some of our quite recent failings in this area.

[Tom Tugendhat]

The right hon. Gentleman heard me speak, I hope very clearly, about my views. I merely caution that we should use slightly more modified language than, “We share no intelligence with anyone who uses torture.” That would exclude so many people with whom we need a relationship built on trust. In many ways, our intelligence services, rather than NGOs or diplomats, are some of the best people to preach the message of freedom from torture.

[Mr Carmichael]

That is a fair point. I put it in those terms—I know the hon. Gentleman’s background—because we have some damage to repair.

I am mindful of your strictures about the sub judice rule, Mr Bailey. We now have the final Supreme Court judgment in respect of the Government’s preliminary points in the Belhaj and Boudchar case, which I referred to earlier. I will not talk about the substance of that case, because that would clearly be inappropriate and I would be ruled out of order, but it is a matter of public record that the Government so far have spent £750,000 pursuing those unsuccessful preliminary points. The case will presumably go through the courts to whatever conclusion is reached, but it is worth reflecting that we have got this far at the cost of £750,000 but we are just back at the starting line, and a lot more could still be spent on that case. The plaintiffs have offered to settle for £3—£1 each from the Government, the former Foreign Secretary and Sir Mark Allen, whose involvement in the case is fairly well documented.

The al-Saadi case, which was very similar, was settled out of court without any requirement for the case to be taken. More significantly, Belhaj and Boudchar want an apology as well as their £3. No apology was made in the al-Saadi case, but it cost the British taxpayer some £2.2 million. That is why it is important that as we enter a new phase of international relations with a new Administration in the White House, rightly or wrongly, we should have concerns about their approach to torture and put out there the highest possible standards. We should not forget—the Crown Prosecution Service has already said this—that Sir Mark Allen sought political authority for his actions in the al-Saadi and Belhaj cases, so it is difficult for us as a country to deny any knowledge or complicity in them.

Freedom from Torture’s “Proving Torture” report contains several highly concerning statistics from the sample of cases that it examined, and I will remind the House of some of those. Some 76% of the cases that Freedom from Torture studied in preparing that report eventually resulted in successful appeals. I take the Minister’s point that new information is sometimes provided on appeal that was not there in the first instance. Appeals may succeed for any number of reasons, but the fact that 76% of cases resulted in asylum being granted on appeal should concern Home Office Ministers. I suspect that if a judge sitting in a sheriff court in Scotland or perhaps a Crown court in England had 76% of his or her cases overturned on appeal, the Lord Chancellor would look carefully at the way that judge went about his or her business.

There is more context in that report to support my contention that the 76% figure is concerning. In 74% of the cases examined by Freedom from Torture, asylum caseworkers substituted their own opinion for that of clinicians, and in 30% of cases, asylum caseworkers disputed or queried clinicians’ qualifications or expertise. Those things should cause concern. They give context for the 76% of successful appeals that I referred to and relate to the points raised by the hon. Member for Harrow West.

The hon. Member for Twickenham was absolutely right to say that the Home Office has a duty of care towards people who do such enormously difficult and taxing work, from which significant political pressure is never far away and which is done in the professional context of an occasionally toxic debate. I worked as a public prosecutor for some years a long time ago. No one was supposed to work for more than six to 12 months at the very most on cases involving the sexual abuse of children, because they were such difficult and taxing cases, and the people who were involved in that sort of work ended up being burnt out. For that reason, I suspect that rotation among caseworkers who do asylum work should be taken a bit more seriously than it appears to be.

I am mindful of your strictures about time, Mr Bailey, so although I could probably say a great deal more about this subject, I shall conclude my remarks and allow others to take part.

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[Mr Goodwill]

I absolutely agree that it is important that staff get the relevant training. It is also important that staff with the most experience are directed to the cases where their experience can be most brought to bear. I will continue to engage with officials to ensure we are doing that as well as we can. I take this very seriously indeed.

When considering asylum claims made in the UK, it is absolutely right that we offer protection to those who face torture on return to their country. However, that does not mean that all survivors of past torture will automatically qualify for protection. An individual needs to show there is a real risk of serious harm or persecution on return to their country. In some cases, the situation in a country can become normalised and change. We welcome it when conflict finishes or particular situations are resolved in countries around the world.

I appreciate concerns about decision quality and how we consider medical evidence in practice, which was highlighted in the Freedom from Torture report published last year. However, I would point out that the sample of cases in that report represents less than 1% of all asylum decisions made last year, and some of the cases used are nearly three years old. That does not mean that I do not take those individual cases very seriously. I must stress that Home Office officials are committed to approaching cases involving allegations of torture with the utmost sensitivity.

My officials have also recently met Freedom from Torture representatives. While we believe the findings in the report are not representative of the wider asylum system, we are nevertheless taking steps to further improve the decision-making process. That will include forming a specialised team who will review and sign off all cases where a medical report is provided. We are also reviewing the training programme delivered to new decision makers. I can assure Members that we are committed to getting decisions right the first time and to working with expert organisations such as Freedom from Torture to ensure that survivors of torture get the support they need.

[Mr Alistair Carmichael]

I am pleased to hear about the engagement with Freedom from Torture, and I encourage the Minister to consider that. I think that Freedom from Torture acknowledged when it launched the report that it was a small sample of cases. Its finding that 76% of asylum cases involving torture were granted on appeal is something that the Minister’s Department should be able to confirm or contradict. Is he able to do so?

[Mr Goodwill]

I will see what stats we have on that. I am aware that where there are judicial reviews against us in such cases, we win virtually every one—I think the last figures I saw showed that we have lost 45 cases out of 18,000. It is not always the case that cases brought to us are successful.

The right hon. Member for Orkney and Shetland (Mr Carmichael) mentioned medical reports from specialists. We do not restrict who can provide a medical report for the purposes of submitting evidence in support of an asylum claim. There are accepted international legal standards, as set out in the Istanbul protocol, “Manual on the Effective Investigation and Documentation of Torture and Other Cruel, Inhuman or Degrading Treatment or Punishment”, which applies to the documentation of torture. We believe it is appropriate that, as a minimum, those guidelines are followed in preparing reports.

All asylum decision makers receive extensive training on how to consider asylum claims. That includes vicarious trauma training for caseworkers, to guard against hardening. We are well aware of how people can become—dare I say—used to hearing stories such as these, which is really worrying. As previously highlighted, we are committed to continuous improvement.

Let me be clear: torture has no place anywhere in the world, and we must do all we can to stamp it out. The UK Government consistently raise concerns about the use of torture, enforced disappearances and alleged police abuses, and will continue to do so. I am sure Members will be aware that my hon. Friend the Under-Secretary of State for Foreign and Commonwealth Affairs, the Member for Bournemouth East (Mr Ellwood), regularly raises human rights concerns in his dealings with overseas Governments and officials.

My hon. Friend the Member for Twickenham raised the position of the Prime Minister. The Prime Minister’s position is clear: the UK stands firmly against the use of torture, cruel, inhuman or degrading treatment or punishment, and so-called enhanced interrogation techniques. In no circumstances would we consider approving a request from a foreign Government to conduct an extraordinary rendition through the UK or one of our overseas territories.

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[Mr Goodwill]

Interestingly, I have asked the same question myself, and the answer is not quite as simple as it may seem, because in some cases multiple reasons are given for an asylum claim, and in other cases in which asylum has been refused on one ground, a new ground has then been put forward. Sometimes the figures are not quite as easily come to as perhaps we would like. I will certainly see what I can do, but I have been asking the same question myself and have been told, “It isn’t as simple, Minister, as you would like to think.” There are often quite complex cases involving a number of different reasons that may have been submitted at different times during the legal process.

[Mr Alistair Carmichael]

I sense that the Minister is perhaps trying to get to his peroration, but if I may, I shall take advantage of the time remaining. In the course of my remarks, I referred to the Belhaj case. I am mindful of all the strictures on that, but does the Minister agree that it is in the national interest now, given the judgment of the Supreme Court, that we have an early resolution of it?

[Mr Goodwill]

I am always very cautious about commenting on specific cases. The right hon. Gentleman is smiling, probably because he is getting the answer that he expected, but he has certainly raised the issue, and it is particularly important that we ensure that all the legal processes that we are involved in are conducted in the best interests of the taxpayer and the best interests of those who are vulnerable and need our support.

We are clear, as we make these informed decisions, that those who would face torture if returned will be granted protection here in the UK. I believe that our current policy delivers on these important goals: it supports those genuinely in need of protection in the UK because they are at risk of torture if returned, and it is absolutely consistent with our international obligations.